Social Work Case Management Guide for Insurgent Returnees

DSWD Social Work Case Management Guide

Copyright © 2022 Department of Social Welfare and Development All rights
reserved.
No part of this publication may be reproduced, distributed, or transmitted
in any form or by any means, including photocopying, recording, or other
electronic or mechanical methods, without prior written permission of the
publisher, except in the case of brief quotations embodied in reviews and
certain other non-commercial uses permitted by copyright law.
Printed by the Department of Social Welfare and Development, in the
Philippines.
First printing, 2022.
Edited by:
Amelia P. Paje
Department of Social Welfare and Development
DSWD Building, Constitution Hills, Batasan Complex
Quezon City, PH 1126
www.dswd.gov.ph

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DSWD Social Work Case Management Guide

ACKNOWLEDGMENTS

This Case Management Guide for Insurgent Returnees is the first of its kind and can
still be considered a work-in-progress. Although it has been vetted by concerned
DSWD Central Office Bureaus and Field Offices, as well as integrates feedback from
inter-agency discussions and a public consultation, the processes described herein
are still subject to a continuing appraisal of practitioners i.e. the case managers,
LSWDOs and the DSWD offices involved in reintegration work.
This Guide is a result of the collaborative efforts of the Office of the Undersecretary
for Inclusive and Sustainable Peace, led by USec. Rene Glen Paje together with his
team including Ms. Rea Curray, Ms. Judy Ann Moreno, Ms. Dionela Bigcas, Ms.
Eloise Octaviano, Ms. Rica Maravilla and Mr. Angelo Raper, and the DSWD EO 70
Technical Working Group members and the CM Guide Ad Hoc Committee composed
of Ms. Camille Anne Francisco-Taguba from the Social Technology Bureau (STB),
Ms. Catherine Espedido, Ms. Jessamine E Peñalosa and Ms. Camia N. Ferrer from
the Program Management Bureau (PMB), Ms. Jasmine Nacabuan and Ms. Gloria G.
Alvarado from the Social Welfare and Institutional Development Bureau (SWIDB),
and Mr. Samir Manzanilla from the Policy Development and Planning Bureau (PDPB).
Special thanks also goes to Ms. Nancy Endrinal Parreno and Dr. Jowima Ang-Reyes
for lending their expertise on social case management and for spending long hours
crafting much of this Guide. We also appreciate Dr. Amelia Paje for her guidance
and insights in the finalization of the Guide. Truly, their tireless efforts have paved
the way for this Guide to finally see the light of day.
The Department would also like to thank all those who participated in the various
activities conducted in the drafting of this Guide, and whose valuable input was
instrumental to the realization of this document, including our partners from the
DSWD Field Offices and from other National Government Agencies.
Most of all, we acknowledge the Almighty, the true source of peace, for the inspiration
strength and wisdome during the development of this Guide.

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DSWD Social Work Case Management Guide

Table of

CONTENTS

vi | FOREWORD
vii | MESSAGE
viii | GLOSSARY OF TERMS
xv | LIST OF ACRONYMS

PART I: INTRODUCTION
1 | Rationale
2 | Objectives of the Case Management Guide
3 | Target Users
4 | Laws and Policy Issuances on Case Management of Insurgent
Returnees
5 | Principles of Case Management and the Interventive Role
of the Social Worker
10 | Complementary Roles of the DSWD Social Worker and the Local Social
Welfare and Development Officer (LSWDO)

PART 2: THEORIES, MODELS AND PERSPECTIVES ON SOCIAL WORK
PRACTICE OF CASE MANAGEMENT
12 | Transformative Justice
13 | Theories of Change in Peace-building
15 | The Ecological Perspective
16 | Strengths-Based Approach
17 | Other Approaches

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DSWD Social Work Case Management Guide

PART 3: UNDERSTANDING INSURGENT RETURNEES
20 | Communist Terrorist Groups (CTGs)
21 | Moro National Liberation Front (MNLF)
21 | Moro Islamic Liberation Front (MILF)
22 | Violent Extremist Groups (VEG)

PART 4: PHASES OF SOCIAL WORK CASE MANAGEMENT
26 | Phase One: Pre-Social Work
26 | Phase Two: Initial Engagement and Intake
30 | Phase Three: Assessment
34 | Phase Four: Planning
36 | Phase Five: Implementation and Monitoring
37 | Phase Six: Evaluation, Reintegration and Closure
39 | Phase Seven: After care
40 | Other cases involving Former Rebels, Former Violent Extremists

and Children in Situations of Armed Conflict

PART 5: DOCUMENTATION AND DATA MANAGEMENT
44 | Data Collection
44 | Data Storage
44 | Data Access
45 | Data Use
46 | Data Sharing

47 | REFERENCES

52 | APPENDICES

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AListPofPENDICES

53 | Appendix A : Government Assistance for the Reintegration of
Former Rebels

57 | Appendix B : DSWD Services and Programs for Reintegrating
Former Rebels

59 | Appendix C : Initial Interview Form

65 | Appendix D : E-CLIP Enrolment Form
66 | Appendix D.1 : Needs Assessment Form

74 | Appendix E : Sample Safety Plan Format

75 | Appendix F : FR Custody Form

76 | Appendix G : Profiling Interview Form

81 | Appendix H : Informed Consent Form

82 | Appendix I : Healing and Reconciliation Framework

83 | Appendix J : Sample Intervention Plan Format

84 | Appendix K : Treatment Plan Format

85 | Appendix L : Former Rebel Reintegration Plan

90 | Appendix M : Non-Disclosure Agreement

93 | Appendix N : E-CLIP Monitoring Form

95 | Appendix N.1 : Positive Reintegration Form

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DSWD Social Work Case Management Guide

FOREWORD

The Department of Social Welfare and
Development (DSWD), as one of the member
agencies of the National Task Force to End
Local Communist Armed Conflict (NTF-
ELCAC) has been implementing programs
to the marginalized, disadvantaged, and
vulnerable sectors in support of attaining
just and lasting peace. As such, insurgent
returnees are part of the vulnerable groups
that the DSWD is serving. However, these
marginalized groups have been largely
overlooked and this is evident in the lack of
accounts on the experiences in rehabilitating
these returnees, and in the inadequacies
of services that address their plight.
In time, the process of providing interventions for Former Rebels (FRs) made it
apparent that there is no existing case management guide which caters to their
specific needs. Similarly, there is limited literature that can guide social workers
on how to handle Decommissioned Combatants (DCs), Former Violent Extremists
(FVEs) and other insurgent returnees.
Addressing this gap, the DSWD is publishing this Case Management (CM) Guide
which contains procedures that will be used by case managers and other social
workers. It aims to provide a deeper understanding on CM within the context of
peacebuilding, in line with collective participation, in addressing the root causes of
insurgency and armed conflict such as poverty, social inequality, and lack of inclusivity,
among others.
Hence, it is our goal that this CM Guide would aid the formulation and implementation
of more defined and focused programs and activities for our insurgent returnees,
aiding their transition back to becoming productive citizens of our country.
This guide shall be a living and timeless document which can be modified and
enhanced based on studies, actual application, and as current and relevant situations
demand.
May this Guide be only the beginning of further efforts towards inclusive and
sustainable peace.

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DSWD Social Work Case Management Guide

MESSAGE

Greetings of Peace!
The Philippines has a long history of dealing
with the prevalent problem of insurgency
and terrorism. This long-standing conflict
has resulted in countless lives lost,
properties damaged, and innocent and
vulnerable people displaced. This, in the
long run, affects progress and negatively
impacts the economy as well as the peace
and order situation of the locality and the
country as a whole. Undeniably, peace and
development are two concepts that cannot
be separated. Where there is no peace,
there can be no real development.
In the past, the military has been at the forefront of resolving the conflict. But with
the realization that the problem of insurgency is not merely a problem of security
but also of socio-political and economic issues, efforts have been made to shift
the viewpoint from treating armed conflict as a purely military concern to one that
may be won by listening to the needs of the people and effectively delivering
basic services.
This Guide comes at an opportune time, when our joint efforts to reach out to our
brothers and sisters who have lost their way are bearing fruit. Many have given up
the path of violence and have chosen peace. It is our duty to help them in their
journey back to the folds of the law and the community. They too deserve a chance
to have a better life.
It is my fervent hope that this Guide will inspire more people to walk the path of
goodwill and harmony, and to help their fellowmen do the same.

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GLOSSARY OF TERMS

After care refers to post-case management intervention that utilizes
Case social support strategies. This include facilitation of social
closure support strategy programs for the community adaptation of
Case former rebels, monitoring and evaluation of the development
Case of relationships and prosocial networks of former rebels
manager returning to the community
Children also called “case termination” in generic social work literature;
Involved the phase in case management wherein the client and
in Armed social worker agree to end their engagement because
Conflict the intervention goals have been achieved, among other
(CIAC) conditions.
also called “social case management”; process of providing
services whereby a professional social worker assesses the
needs of the client and the client’s family, when appropriate,
and arranges, coordinates, monitors, evaluates and advocates
for a package of multiple services to meet the specific client’s
complex needs (DSWD AO No. 14 s.2012)

social service worker who coordinates care for clients. In
this document, case manager refers to someone, preferably
a registered social worker, employed by the LSWDO or
DSWD, who undertakes case management to assist insurgent
returnees to reintegrate or normalize into mainstream society

Children involved in armed conflict (CIAC) refer to children
who are either forcibly, compulsorily recruited, or who
voluntarily joined a government force or any armed group
in any capacity. They may participate directly in armed
hostilities as combatants or fighters; or indirectly through
support roles such as scouts, spies, saboteurs, decoys,
checkpoint assistants, couriers, messengers, porters, cooks
or as sexual objects (Republic Act No. 11188)
RA 9208 as amended by RA 10364, CIAC are considered as
qualified trafficking.

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DSWD Social Work Case Management Guide

Children in refer to all children involved in armed conflict, children
Situations of affected by armed conflict and internally displaced children
Armed Conflict (Republic Act No. 11188)
(CSAC)

Client refers to insurgent returnees working with social workers
for their reintegration in mainstream society or for their
normalization/ transformation.

Communist refers to members of the Communist Party of the
Terrorist Philippines- New People’s Army (CPP-NPA) who were
Group declared as terrorists under Presidential Proclamation No.
374, series of 2017.

Community a social group of any size whose members reside in a specific
barangay, a sitio/purok, locality, share government, and
often have a common cultural and historical heritage.

Community the process wherein the former rebels, decommissioned
combatants, former violent extremists and other insurgent
returnees return to their families and communities, and
into civilian life (see also “Reintegration”). The successful
reintegration of former rebels in their communities is the
end goal of case management; this may entail interventions
at the individual, family or community levels to create an
enabling environment for their mainstreaming

Custodian refers to the FR’s guarantor as regards their compliance to
the conditions of surface, and welfare in the community.
The custodian can be a trusted barangay official, a religious
leader, a CSO, or any person residing in the same community
as the FR. The custodian shall also be one of the LSWDO’s
community contacts on matters relating to the reintegration
of the FR.

Data Sharing refers to the Agreement that governs the sharing of
Agreement personal information and sensitive personal information of
Former Rebels (FRs) and Former Violent Extremists (FVEs)
among member agencies of the Task Force Balik-Loob
(TFBL) and comply with regulations of the Data Privacy Act

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DSWD Social Work Case Management Guide

Decommissioned in this Guide, DC refers to a former member of the
Combatants Moro Islamic Liberation Front (MILF) who has been
decommissioned by an Independent Decommissioning
Body (IDB) and has been issued by the same with a
signed document that serves as proof of being a
decommissioned combatant.

Deradicalization refers to the intervention or process of changing an
program individual’s radical beliefs and views with the ultimate goal
of the individual’s rejection of violence, and embracing
peaceful ideals and values to achieve desired change
(adapted from the National Framework on Preventing
and Countering Violent Extremism)

Enhanced expanded version of the Comprehensive Local
Comprehensive Integration Program (CLIP) which provides a complete
Local Integration package of assistance to former rebels as well as their
Program immediate family members (DSWD AO No.14 s.2019)
(E-CLIP)

Former Rebel former members of Communist Terrorist Groups who
(FR) voluntarily abandoned the armed struggle and opted to
Former Rebel become productive members of society (DSWD MC No.
Reintegration 03, s. 2020 & DSWD MC No. 2, s. 2022)
Plan (FRRP) refers to the plan resulting from the individual assessment
undertaken by the LSWDO with the former rebel. The
identified needs of the FR shall be matched with the
existing available resources of the LGU or resources that
may be tapped to address the needs of the former rebel.

Former Violent former members of the Abu Sayaff Group, Maute Group,
Extremist (FVE) Dawlah Islamiya, Bangsamoro Islamic Freedom Fighter,
Gender Turaige Group, and other violent extremists groups as
may be identified by the Task Force Balik Loob who
voluntarily abandoned their violent extremist way to
become productive members of society.

socially and culturally constructed roles and expectations
ascribed to people on the basis of their sexual
characteristics

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DSWD Social Work Case Management Guide

Gender-based refers to any act which results, or is likely to result physical,
violence (GBV) sexual and psychological harm against any person on the basis
of the person’s gender; it can be committed by an individual,
one’s family, community or State. It is recognized that women
and girl children are disproportionately affected by GBV

Halfway House in the context of the E-CLIP, this refers to a processing
center and civilian facility which is intended to serve former
rebels who have expressed intention to return to the folds
of the law and disengage in armed violence; also called
“rehabilitation center” intended to facilitate the systematic
assessment, processing, delivery of immediate interventions,
and development of individual reintegration plans of former
rebels, as well as to secure their safety in the short term (3 to
6 months).

Helping a document showing the agreements between the case
contract manager and the FR on how the latter’s reintegration is
to be achieved, and signed by both parties. The helping
Immediate contract contains the following: (a) issues to be worked on
family / family (b) desired change, goals or outcome of the engagement; (c)
objectives of the intervention; (d) intervention or activities to
be implemented; (e) tasking; (e) timeframe; and (f) means of
monitoring progress.

refers to the client’s spouse or partner, direct ascendants
and descendants by consanguinity or affinity (IRR of A.O. 10
s.2018).

Insurgent for purposes of this Guide, Insurgent Returnees refers to former
Returnee members of different insurgent groups (including Former
Rebels, Decommissioned Combatants, KAPATIRAN members
and MNLF members who have formerly borne arms against
the government)

Joint AFP-PNP a body created by virtue of the AFP-PNP Joint Standing
Intelligence Operating Procedures (JSOP) No. 01-2008 to verify the identity
Committee of a former rebel (DILG-DND JMC No. 2018-01).
(JAPIC)

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DSWD Social Work Case Management Guide

Local Social in the case of FRs, the LSWDO refers only to the Provincial
Welfare and Social Welfare and Development Office (PSWDO) and City
Development Social Welfare and Development Office (CSWDO) of in the
Office case of highly urbanized and independent component cities
(LSWDO) (HUCs and ICCs), which are the agencies primarily tasked with
the case management with former rebels under the E-CLIP

NPA in the are mass supporters who have been indoctrinated and may or
Barrios / may not be directly involved in violent armed struggle but, when
Militia ng organized, can provide mass support to the CTG movement
Bayan (MB) (DILG-DND JMC No. 2018-01)

Non- in this Guide, DC refers to a former member of the Moro Islamic
Disclosure Liberation Front (MILF) who has been decommissioned by an
Agreement Independent Decommissioning Body (IDB) and has been issued
(NDA) by the same with a signed document that serves as proof of
being a decommissioned combatant.

Normalization a process through which communities affected by armed
conflict in Mindanao can return to peaceful life and pursue
sustainable livelihood, free from fear of violence and crime.
It involves the transition of MILF combatants to a peaceful
civilian life, which includes putting their weapons beyond use.
(DSWD MC No. 2019-018)

Receiving unit a government or non-government agency, or individual, to
Rehabilitation whom the former rebel initially surfaced or asked to facilitate
his or her surfacing. This can include the AFP, PNP, CSOs, an
LGU official, business, church or community leaders and any
civilian with whom the former rebel feels safe and confident to
surface

refers to a wide range of interventions aimed at restoring
offenders to a status of being law-abiding and non-violent
citizens while encouraging them to desist from violent activities.
(adapted from the National Framework on Preventing and
Countering Violent Extremism)

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Reintegration DSWD Social Work Case Management Guide

Social Work a process where the former rebel (or other insurgent returnee)
Social Case voluntarily disarms and undergoes mainstreaming into
Management civilian and productive life, and the government undertakes
measures to assist the FR in the transition and attend to the
Social Worker FR’s socio-economic well-being, as well as his/her security
and safety, psychosocial and legal concerns (DND-DILG JMC
Task Force No. 2018-01)
Balik-Loob
Task Force refers to the profession which helps individuals, families,
Balik-Loob groups, and communities develop, improve, maintain or
restore their capability for coping with the demands of their
environment, through the use of social work methods and
interventions (Republic Act 9433 or the Magna Carta of Public
Social Workers)

is a method of providing services whereby a professional
social worker assesses the needs of the client and the
client’s family, when appropriate, and arranges, coordinates,
monitors, evaluates, and advocates for a package of multiple
services to meet the specific client’s complex needs.

a practitioner who by accepted academic training and
social work professional experience possesses the skill to
achieve the objectives as defined and set by the social
work profession (RA 4373 or An Act to Regulate the Practice
of Social Work and the Operation of Social Work Agencies
in the Philippines and for Other Purposes).

This may refer to a Registered Social Worker, who is a
graduate of BS Social Work or MS Social Work, and has
passed the licensure examination for social workers (RA
9433 or the Magna Carta of Public Social Workers) or a social
worker who is a graduate of BS or MS Social Work but has
no license yet.

the national inter-agency committee on the reintegration of
former rebels, as created by the Presidential Administrative
Order No. 10 s.2018; DSWD became part of the TFBL by
virtue of A.O. 25 s.2020

the national inter-agency committee on the reintegration of
former rebels, as created by the Presidential Administrative
Order No. 10 s.2018; DSWD became part of the TFBL by
virtue of A.O. 25 s.2020

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DSWD Social Work Case Management Guide

Task Force the national inter-agency committee on the reintegration of
Balik-Loob former rebels, as created by the Presidential Administrative
Order No. 10 s.2018; DSWD became part of the TFBL by
virtue of A.O. 25 s.2020

Temporary refers to the LGU Halfway House, or a DSWD residential
protective care facility where the former rebel resides prior to his or her
shelter reintegration into mainstream community living, for security
and other related reasons.

AFP or PNP facilities, and facilities managed by CSO could
also be considered to provide temporary protective shelter
subject to a Memorandum of Understanding (MOU) or
Agreement (MOA) with the LGU which will be responsible
for client case management.

Terrorism refers to an act or the threat to commit a violent act. It is
used by extremist groups to intimidate the public and destroy
or destabilize the fundamental political, constitutional,
economic and/or social structures of a country by causing
death or injury to any person, destroying property and critical
infrastructure, or instigating serious risks to the health and
safety of the population. (adapted from the NAP-PCVE)

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LIST OF ACRONYMS

AFP Armed Forces of the Philippines
AO Administrative Order
CIAC Children involved in Armed Conflict
CSAC Children in Situations of Armed Conflict
CSO Civil Society Organizations
CSWDO
DC City Social Welfare and Development Office / Officer
DILG Decommissioned Combatant
DND Department of Interior and Local Government
DOLE Department of National Defense
DSWD Department of Labor and Employment
DTI Department of Social Welfare and Development
E-CLIP Department of Trade and Industry
FR Enhanced Comprehensive Local Integration Program
FRRP Former Rebel
FVE Former Rebel Reintegration Plan
Former Violent Extremists
GBV
HUC Gender-based violence
Highly urbanized city/ies
ICC
JAPIC Independent component city/ies
Joint AFP-PNP Intelligence Committee

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ICC Independent component city/ies
JAPIC Joint AFP-PNP Intelligence Committee
JMC Joint Memorandum Circular
LGU Local Government Unit
LSWDO Local Social Welfare and Development Office / Officer
MC Memorandum Circular
MOA Memorandum of Agreement
MOU Memorandum of Understanding
MSWDO Municipal Social Welfare and Development Office / Officer
NDA Non-disclosure Agreement
4Ps Pantawid Pamilyang Pilipino Program
PNP Philippine National Police
PSWDO Provincial Social Welfare and Development Office / Officer
R.A. Republic Act
SWDI Social Welfare and Development Indicators
TESDA Technical Education and Skills Development Authority
TFBL Task Force Balik-Loob

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DSWD Social Work Case Management Guide

A social worker assists in giving packages to EO 70 beneficiaries together with members of
the AFP. Photo courtesy of DSWD Field Office II.

Part 1
INTRODUCTION

Rationale

In December 2018, President Rodrigo Roa Duterte signed Executive Order No. 70
(EO 70), series of 2018, which institutionalized the Whole-of-Nation approach to
addressing local communist armed conflict. As a member agency of NTF-ELCAC,
the Department of Social Welfare and Development (DSWD) and partner agencies
have been implementing programs in support of EO 70 to address the psychosocial,
economic, cultural and political concerns of former members of the communist terrorist
groups, or Former Rebels. In fact, the DSWD alone served some 10,000 beneficiaries
as of 2021 through more than five (5) programs, to include Assistance to Individuals
in Crisis Situations (AICS), Sustainable Livelihood Program (SLP), Pantawid Pamilyang
Pilipino Program (4Ps), Protective Services for Individuals and Families (PSF), Social
Pension, Recovery and Reintegration Program for Trafficked Persons (RRPTP), etc.
However, in the course of the operation, a realization dawned among the implementers,
the social workers, among others, that there is no existing case management guide
which can be used to address the unique situation of Former Rebels (FRs) in particular
- and Insurgent Returnees (IRs) in general - in the Philippines. Thus, this initiative.
Currently, there is limited literature on social work and case management in the context
of working with former members of armed insurgent groups in the Philippines. This
may be indicative of several things: 1) limited or lack of access of this particular client
group to welfare programs, especially if the focus of prior interventions have been
on disarmament and demobilization of insurgents; 2) social workers may not be the
primary actors in interventions directed at this particular client group, which again

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may be due to the limited view of It is worth mentioning that in the
interventions for them; 3) the practice process of contextualizing this Guide,
of social work with this particular social workers and consultants realized
client group is yet to be systematically the need to include current and related
documented like for example - Key policies and issuances, latest FGD data
informant Interviews or results of Focus among FRs in 2020 and experiences of
Group Discussions during engagement program implementers on the different
with insurgent returnees, and other insurgent returnee groups which served
related documentations; and 4) lack of as valuable information in crafting this
documentation on existing practices Guide.
of social workers in the field fully and
collectively documented. It is for these During the conceptualization stage,
reasons that this Guide has been the intent of the Guide was limited to
conceptualized and developed. address concerns on handling Former
In the development of this Guide, Rebels, (FRs), also known as former
available references on generic case members of the Communist Terrorist
management standards such as that Groups (CTGs). It has since expanded
of the National Association of Social to consider other groups of Insurgent
Work (n.d.), as well as from social work Returnees, to include Decommissioned
textbooks were used. Pertinent are Combatants (DCs), KAPATIRAN
the principles of adherence to human members, former MNLF members,
rights, gender-responsiveness and former violent extremists, and other
diversity sensitivity which are crucial groups that may surface in the future.
to address issues of homogenization Thus, the finer details of the document
(“all rebels are the same”), community can be said to be still evolving.
stigmatization, lack of trust on the part of
the client and government agents, and Thus, social workers and or
the risk of re-radicalization which may case managers should remember
characterize work with former members that the terms “former rebels,”
of armed insurgents. Overall framework “Decommissioned Combatants,”
of Strengths Based Approach and “KAPATIRAN members,” “MNLF
Transformative Social justice highlight members,” “former violent extremists,”
the creation of the innovation covering and “clients” are used in the document
not only rehabilitation or curative to refer to the different groups of people
aspects of Healing and Reconciliation accessing social welfare services,
but baseline for innovating preventive guided by their definitions under the
and developmental approaches in Glossary of Terms section; they are also
the conduct of case management referred to as “insurgent returnees”
of insurgent returnees. Another when referred to as a whole, and “E-CLIP
international reference is the United enrollees” if they are eligible for and
Nations publication, Operational availing services provided by the E-CLIP
Guide to the Integrated Disarmament, and related government program is also
Demobilization and Reintegration recognized.
Standards published in 2014.
This reference forwards several Objectives of the Case
considerations nuanced approaches Management Guide
based on cross-cutting themes of gender,
working with the youth and children. This Guide serves as the standard for
social work case managers in extending

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support and services to Insurgent family-centered case plans; and
Returnees and their families through 6. develop mastery in the
social work case management. The documentation of handled cases of
Guide also strives to present a general IRs through compilation of pertinent
approach to case management with documents.
Insurgent Returnees as clients, whether
they are E-CLIP enrollees or not, and Target Users
without prejudice to the different groups
to which they were previously members, This Guide was developed with Local
with the goal of being inclusive of all Social Welfare and Development
returnees. Specifically, the objectives Officers (LSWDOs) primarily in mind,
of the Guide are to: given that they will be directly working
with insurgent returnee client groups.
1. provide information and For DSWD Social Workers, the Guide
orientation to deepen the social may be utilized as a reference in
workers’ understanding on case the implementation of programs for
management of IRs, relevant insurgent returnees, as they will be
laws, policies and issuances and working closely with the LSWDOs.
the processes involved in case The Guide may also be a reference for
management of these client groups; other individuals or agencies working
2. equip the social workers with with case managers of insurgent
usable knowledge on Transformative returnees who have a little background
Justice framework as applied in the on social work case management, yet
Social Work Case Management as are required to make decisions about
applied in the Social Work Case reintegration work. These include
Management which include key members of the local E-CLIP committee,
principles such as liberation, shifting and referral agencies.
power, safety, accountability,
collective action, honoring diversity Laws and Policy Issuances
and sustainability; on Case Management
3. broaden and strengthen the of Insurgent Returnees
knowledge,skills,valuesandmindset
of social work case managers in The operationalization of case
handling varied case of IRs; management of IRs is guided by
4. equip social workers with national laws and policy issuances,
knowledge and skills in providing administrative and department orders
assistance to IRs and their families and memorandum circulars from
to help them improve their coping national agencies involved in the
skills, increased resilience, promote implementation of peace programs.
greater autonomy, safety and well- These are the Office of the President
being; and change or improve their (OP), the Department of Social Welfare
social realities; Development (DSWD), Department
5. help empower IRs to identify and of National Defense (DND) and the
access multiple services through the Department of Interior and Local
creation of specialized individual or Government (DILG) to name a few.

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The social case managers being 4. Executive Order No. 70 series of
implementers of the program should 2018, “Institutionalizing the Whole-of-
be knowledgeable of these laws by Nation Approach in Attaining Inclusive
heart to maximize effective and efficient and Sustainable Peace, Creating a
delivery of social services to all target National Task Force to End Local
beneficiaries. Communist Armed Conflict and
Directing the Adoption of a National
1. R.A. No. 7610, signed 17 Peace Framework” aims to address
June 1992 “An Act Providing for the root causes of insurgency to end
Stronger Deterrence and Special local communist armed conflict using a
Protection against Child Abuse, whole-of-nation approach to providing
Exploitation and Discrimination, assistance to former members of the
and for Other Purposes” defines Communist Terrorist Groups and to
living in a community where there conflict affected and vulnerable areas.
is armed conflict or being affected
by armed conflict-related activities 5. Executive Order No. 79 series
as one of the circumstances which of 2019, “Implementing the
gravely threaten or endanger the Annex on Normalization Under the
survival and normal development Comprehensive Agreement on the
of children. Bangsamoro ‘’ defines programs
2. R.A No. 10173, signed 15 August under the different components
2012 “An Act Protecting Individual of the Normalization Program for
Personal Information in Information implementation for the combatant
and Communications Systems and non-combatant elements of the
in Government and the Private MILF and families of Decommissioned
Sector, Creating for this Purpose a Combatants.
National Privacy Commission, and
for Other Purposes” declares that 6. Office of the President
the State recognizes the vital role Administrative Order No. 10 series
of information and communications of 2018, “Centralizing All Government
technology in nation-building and Efforts for the Reintegration of Former
its inherent obligation to ensure that Rebels and Creating for the Purpose
personal information in information an Inter-Agency Task Force” enhances
and communications systems in the Comprehensive Local Integration
the government and in the private Program (hereinafter, “E-CLIP”), and
sector are secured and protected. creates Task Force Balik-Loob to
centralize all efforts to reintegrate FRs.

3. R.A. No. 11188, signed 10 7. Office of the President
January 2019 “An Act Providing for
the Special Protection of Children Administrative Order No. 25, series
in Situations of Armed Conflict and of 2020, “Amending A.O. 10 s. 2018
Providing Penalties for Violations on Centralizing All Former Rebels
Thereof” considers as paramount and Creating for the Purpose an
the best interests of children, and Inter-Agency Task Force” expands the
treats all children involved in, coverage of E-CLIP to facilitate the
affected by or displaced by armed reintegration to civilian life of former
conflict as victim-survivors. violent extremists (FVEs) who have
similarly chosen to lay down their arms
and become productive and law-abiding
members of society.

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DSWD Social Work Case Management Guide

8. 1996 Peace Agreement with 13. DILG-DND JMC No. 1,
the Moro National Liberation Front series of 2021, “Implementing
contains the commitments between Guidelines on the Provision of
the Government of the Republic of the DILG-Administered Package of
Philippines and the MNLF. Assistance for Former Rebels (FRs)
and Former Violent Extremists
9. GPH-RPM-P/ RPA/ ABB 2000 (FVEs) under the Enhanced
Peace Agreement and its 2019 Comprehensive Local Integration
Clarificatory Implementing Document Plan (E-CLIP)” governs the
dictates the commitments between implementation of DILG packages
the Government of the Republic of for Former Rebels, including the
the Philippines and the RPM-P/RPA/ E-CLIP procedures and the roles of
ABB-TPG otherwise known as the the local E-CLIP Committees and
KAPATIRAN; layout the details of the other stakeholders.
mutual obligations of both parties
that need to be carried out to ensure 14. The Enhanced Comprehensive
the eventual signing of the Closure Local Integration Program (E-CLIP)
Agreement to GPH-RPM-P/RPA/ABB Former Rebel Reintegration
2000 Peace Agreement. Handbook serves as a guide for
E-CLIP implementers and partner
10. DSWD Administrative Order agenciesincarryingoutinterventions
No. 84, series of 2002, “Procedures in for Former Rebels under the E-CLIP
the Handling and Treatment of Children program.
Involved in Armed Conflict” provides
procedures from rescue to recovery and Principles of
social reintegration of children involved Case Management and
in armed conflict. Interventive Roles of the
Social Worker
11. DSWD MC No. 3, series of
2020, “Revised Guidelines in the Case Management is a process to plan,
Implementation of Executive Order seek, advocate for, and monitor services
No. 70, series of 2018” provides from different social services or health
guidance to different OBSUs in the care organizations and staff on behalf
Central Office and the Field Offices in of the client. The process enables
the implementation of social welfare social workers in an organization, or in
and development programs and different organizations, to coordinate
projects towards the achievement of the their efforts to serve a given client
objectives of EO 70 s. 2018. through professional teamwork, thus
expanding the range of needed services
12. DILG MC No. 125, series of 2019, offered. Case management limits
“Guidelines for the Local Government problems arising from fragmentation
Units in the Implementation of Executive services, staff turnover, and inadequate
Order No. 70, series of 2018” defines coordination among providers. Case
roles and responsibilities of local management limits problems arising
government officials and functionaries, from fragmentation services, staff
councils and National Government turnover, and inadequate coordination
Agencies for efficient and effective among providers. Case management
collaboration of the local Task Forces to can occur within a single, large
End Local Communist Armed Conflict.

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DSWD Social Work Case Management Guide

organization or within a community baseline information as how to achieve
program that coordinates services ways forward gearing towards attaining
among settings (Barker, 2003). client’s capacities to be independent
Case management is considered and practice self-help.
as a cross-disciplinary practice, as a
“professional and collaborative process Therefore, essential to the
that assesses, plans, implements, implementation of the reintegrated
coordinates, monitors, and evaluates the work with insurgent returnees, social
options and services required to meet an workers recognize that the case
individual’s health needs” (Commission management process is highly aligned
for Case Manager Certification, 2015). with social work practice. NASW defines
Therefore to highlight the significant role social work practice as applying the
of the case manager, is to put utmost “values, principles, and techniques”
importance to the responsibility to of social work to achieve one or more
promote the best interest of the client(s). of the following: “helping people
In order to do so, social workers take obtain tangible services; counseling and
on various roles to advocate on behalf psychotherapy with individuals, families,
of their client system in going through and groups; helping communities or
the labyrinth of various array of social groups provide or improve social and
services available, to coordinate, access health services; and participating in
services that are safe, timely, effective, legislative processes” (NASW, n.d.).
efficient, equitable, and client-centered.
As postulated by Lee-Mendoza (2008), Thus, it is envisioned that the main
the entirety of the case management objective of this Social Work Case
process in managing the reintegration Management Guide is to provide a
of the insurgent returnees is the reference for social workers engaged
critical role of the case manager/ in reintegration work with Insurgent
social worker/s. Emphasis on the Returnees. Intricate to the professional
strong value to adhere, respect and roles and responsibilities performed by
promote the individual’s cultural beliefs social workers, the profession is guided
and practices infused in the case by certain basic principles of Social
management is one way to honor Work (Lee-Mendoza, 2008).These are
the cultural heritage of the IRs upon the following principles:
which can be a beginning foundation in
building a smooth professional rapport Principles of Social Work
and relationship between the Social (Lee-Mendoza, 2008)
worker and the IRs. As a preventive
stance of promoting a safe space for the 1. Worker self-awareness
IRs, a necessary element of community This principle of self-awareness
engagement is promoting social and encompasses the understanding
cultural inclusions to gear away from of one’s self, both professional
labels and stigmatization brought forth and personal dispositions. This
by unfamiliarity of the uniqueness and also means that social workers are
diverse cultural background of the IRs always conscious that their role is
and community. A synergy of various to make use of their professional
strengths illuminated and reflected in relationship with the client in a
the interests, wishes, needs, and values way that will enhance primarily
of the insurgent returnees anchored the the client’s development rather
than the worker’s own. Being a
human being, the social worker

6

has personal cultural beliefs, values and DSWD Social Work Case Management Guide
is influenced by these biases, prejudices,
and negative attitudes about certain information to the worker. Trust is an
things. Without purposive awareness, all important element in a client-worker
these may enter into their relationship relationship, a backbone to establishing
with the individual, group, or community a strong professional relationship. This
they work with. The worker should means that what the client disclosed to
therefore sufficiently understand and be the social worker is not discussed with
conscious of the responses to the client. others, except when this is done within
the context of professional relationships
2. Acceptance of people as they are for the purpose of helping the client
e.g., an insurgent returnee disclosed to
This principle highlights the value of the social worker that he was having
understanding where the IRs are coming nightmares suicidal thoughts because
from in order to appreciate their values, of trauma experienced in the field where
needs, problems and hopes. They being in a kill or be killed situation was
need feedback on the returning rebels’ part of his daily life. Therefore, the
comments on the behavior which social worker will need to coordinate
social workers still call out and correct with a mental health provider and seek
objectively without judging and setting immediate referral. Hence, there is
aside the social worker’s personal no absolute confidentiality, and it is
beliefs. important to discuss this with the client
It is founded on the premise that in order from the beginning of the helping
to establish an initial foundation of a relationship. Specifically, confidential
trusting working relationship between information may be given if disclosure is
the social workers and insurgent made in the best interest of the returnee
returnees, presented presented ideas, in mind, such as in cases of critical health
emotions and beliefs, are provided a issues, mental health concerns, and the
safe space for expression keeping in like.
mind that a different lens was utilized. 4. Client-worker relationship
Therefore, a non-threatening and non- The relationship between worker and
judgmental attitude of the social workers client, whether the client is a person,
in his/her engagement with clients is a group or a community, is the means
critical in building a strong foundation for carrying out the social worker’s
towards successful and meaningful function. The phrase that “social work
helping processes. problem solving takes place within a
A common misconception is that the meaningful client-worker relationship”
principle of acceptance would mean that puts the emphasis on “relationship.”
the social worker accepts everything, A professional relationship is different
even if the behavior is considered from ordinary relationships in a way that
inappropriate or rude. The social worker it should have the element of being
should bear in mind the agency’s support controlled and purposive. The purpose
of their helping role in keeping with of worker-client relationship is to help
societal prescribed goals. the client in some area of his/her social
3. Confidentiality functioning in which at the present
The principle of confidentiality provides time he/she is experiencing some
and ensures the client with protection, difficulty and where the worker, usually
within the limits of the law, from harm representing a social agency, is in some
that might result from his divulging the position to offer help. Thus, the function
of using the professional relationship
becomes the bridge for the helping
process to begin.

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DSWD Social Work Case Management Guide

5. Individualization of clients to develop capacity building and
The principle of individualization self-efficacy. It is highly encouraged
involves “the recognition and that the social worker discusses
understanding of each client’s unique the cruciality of the client’s
qualities and the differential use of active participation as one of the
principles and methods in assisting main components towards an
each toward a better adjustment based empowering change in their lives.
upon the right of human beings to be Through the social worker’s
individuals and be treated not just as a influential skills, the client is
human being but as this human being encouraged to participate from the
with his personal differences.” beginning of the helping process-
Thus, social workers should relate to from assessment, in the planning of
each client as an individual in a situation ways to resolution of the problem,
which involves the interaction of in thinking of possible alternatives,
different factors such as physical, social, up to the implementation and
psychological, among others. evaluation of the final results
As intended in this guidebook,thesocial
6. Self-determination as a right of workers can benefit from the intentional
the client and mindful practice of key qualities
for generalist social work practitioners
The social worker recognizes that every which are creativity and flexibility and
individual, group and community has is focused on individual well-being in a
the right to assess and determine what bio-psycho-social context and the well-
their needs are in the context of but being of society. Therefore, Generalist
not limited to the economic, personal social work practitioners utilize a generic
or social needs. This is to attain, sustain set of assessment, planning, and
and improve the client’s current state of intervention knowledge and skills that
functioning and how or in what manner are applicable and can be utilized on any
they should be met. The social worker’s system size. Given the social realities
role is not to provide everything for the and circumstances of many LGUs, an
client, for the social worker knows that alternative to working with individual
the client is capable of self-help. At clients can be done in groupwork and if
the same time, the social worker does applicable by community organizing.
not manipulate the client’s affairs but To maximize limited resources and
instead guides the latter so that they are manpower, groupwork can be
able to look at their problems, concerns conducted for individuals with other
and issues objectively, understand what concerns that are similar in nature,
choices or alternatives are open to them, instead of one on one, separate
the implications and consequences, thus sessions. This may be the case for some
leading to informed decisions. non-E-CLIP eligible insurgent returnees.
The conduct of the social work
7. Participation of the client in generalist practice will require a variety
problem solving of interventive roles, which refer to the
composite of activities or tasks that the
In consonance with the strengths-based social worker is expected to undertake
approach, the social worker makes in order to accomplish the goals agreed
a conscious and deliberate effort to upon with the client. This is guided
involve the client in the entire duration of
the helping process. The social workers’
collaborative and participative work with
the client provides the opportunities

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DSWD Social Work Case Management Guide

by certain Interventive Roles of regardless of their economic status,
Social (Mendoza, 2008). . In the case political, or religious affiliation. Given
Work (Mendoza, 2008). . In the case this, the social worker can provide the
management of the insurgent returnees, former rebels with equitable access to
social workers have to take on various government services and economic
interventive roles that will facilitate opportunities to address the root cause
the conduct of the helping process on of insurgencies and armed conflict in
the individual, group and community the identified vulnerable communities.
circumstances and needs of the IRs. Further, the social worker shall facilitate
community solidarity and engagement
Interventive Roles in the development of systems that will
of Social Workers be inclusive for all people and treat them
with dignity and respect, and ensure
1. Advocate human rights and social justice.
The social worker as advocate aims 4. Mediator
to influence, in the client’s interest, As a mediator, the social worker acts as
another party usually possessing an intermediary or conciliator between
the same power of authority two persons or sides. This is an important
over the client. The social worker role a social worker assumes when
needs to build rapport during working with the insurgent returnees
the engagement to have a sound as the social worker has to equip and
Intervention Plan. prepare the client for reintegration
2. Enabler into society in efforts that will resolve
This role involves the social worker disputes between the client system and
in interventive activities that leads other parties.
to client empowerment. The 5. Resource Provider
engagement should be clear to This roleengages thesocial workerinthe
the client and agreements should direct provision of material aid and other
be set between both parties. concrete resources such as those found
This will help clients find coping eligible to Assistance in Crisis Situation
strengths and resources within (AICS) Sustainable Livelihood Program
themselves and solve problems (SLP) Pantawid Pamilyang Pilipino
they are experiencing. The client Program (4Ps) and other resources such
serves as the primary resource, Residential Care Facilities, halfway
and change comes about mainly houses and other DSWD Programs
through the client’s efforts. The based from the assessment of the social
worker’s responsibility is to perform worker that will be useful in eliminating
a supporting and empowering or reducing personal and situational
function by providing available deficiencies. Often, this role is evident
resources, service and linkages during the first phase of the intervention
so as to enable the client’s wherein viewed as critical to providing
accomplishment of defined change. stability and security like in the case of
3. Human Rights Defenders the insurgent returnees, is to ensure that
The role of the social worker is to basic survival needs are addressed.
uphold and defend the rights of the 6. Social Broker
individuals or or group to promote This is a common role for social
peace, dignity, and worth of people workers which involves the process

9

DSWD Social Work Case Management Guide Complementary Roles
of the DSWD Social
of negotiating he “service jungle” Worker and the Local
for clients, whether individually, in Social Welfare and
groups or the whole community. Development Officer
The social worker links or connects (LSWDO)
the client to various agencies
based on the initial engagement The DSWD Social Worker
and intake of the social worker/ and the LSWDO play crucial
LSWDO. The worker often performs roles in the normalization
a variety of activities - helper, and reintegration process
interpreter, facilitator, expediter, of insurgent returnees. A
escort, negotiator to ensure rapid social worker’s intervention
service delivery. is required from the initial
7. Social Work Counselor engagement with the client
The most utilized interventive role and for as long as needed
of social workers is as a social to ensure the client’s
work counselor. They work towards smooth transition to being
the restoration, maintenance a productive and peaceful
and enhancement of the client’s member of the community.
capacity to adapt or to adjust to
his current reality, and change Case management shall be
one’s social reality if the source of the primary responsibility
dysfunction emanates from either of the LSWDO as the social
one or both situations. The use worker on the ground with
of social work counselling lies on direct access to the client
the premise of working on the and the frontline services
person in an environment schema, of the different agencies
using the discussion of the social and the LGUs The DSWD,
functioning factors, coming from through its field offices,
the self as discussed in this section shall provide technical
but also coming from the external support and augment
environment. The end goal is for IRs resources.
to have come to a place wherein
informed decision is made for their Case management,
best interest and for their families however, shall be the
and the communities they belong primary responsibility of
to. Social workers must refrain the DSWD if the concerned
from giving advice as social work LGU does not have a
counselling engages the IRs and licensed social worker in the
believes in their inherent capacities local social welfare office,
inherent capacities, given the or if the IR is housed in a
opportunities and support, to make DSWD-managed Center.
make choices by weighing the
advantages and disadvantages of
the available choices and critically
assessing them, ultimately deciding
for the best. This way, social workers
promote the right of the IRs to self-
determination and adhere to social
work principles.

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DSWD Social Work Case Management Guide

DSWD Field Office II Regional Director Cezario Joel C. Espejo together with members of the AFP
while distributing packages to EO 70 beneficiaries during the National Peace month celebration.
Photo courtesy of DSWD Field Office II.

Part 2

THEORIES, MODELS
AND PERSPECTIVES

ON SOCIAL WORK PRACTICE OF CASE MANAGEMENT

As the social workers and case
managers engage with the IRs to
provide their needed assistance,
they should be well-versed with
the synergy of peace and culture
in work ing with the IRs which are
the basis for this Social Work Case
Management Guide.

Figure 1. Synergy of Peace Culture in Working with IRs. As shown in Figure 1, the synergy
Source: DSWD, 2020 framework is consist of theories
of change on peacebuilding,
transformative justice, ecological
theory, and strengths-based
approach, which are mainly used in
the social work practice in handling
IRs. The ultimate objective of this
framework is to deradicalize and
fully integrate the IRs into the
mainstream and live life anew as
productive citizens.

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DSWD Social Work Case Management Guide

1. Transformative Justice In addition, the discussion on the
understanding of the need for
Transformative justice is characterized deradicalization is critical in the genuine
as a process by which all individuals transformative and reintegration
who were victims of injustice are “given of the IRs. Therefore, understanding
the opportunity to address and repair the principal components of the
the harm” (ValorUS, 2017). Instead of deradicalization programs provides
simply acknowledging the victims, the insights as to what is required to make
injustice they experienced and how they the program effective and can be
can move on from it, transformative referenced by the social worker to guide
justice provides a broader approach of their practice in working with the IRs.
actually introducing systemic change to Identified factors that can contribute to
intervene, address and prevent social the higher success rate of the IRs healing
injustice (Waziok, Braswell, Vogel and and reintegration process are as follows
Blevins, 2008). as advanced by Rabasa, et. al (2010) are
Discussing the healing and reintegration as follows:
process for IRs can be illustrated
in the basic tenets of the concept 1. It is important that
of transformative justice wherein a upon expression of interest to
holistic and overall change is needed be reintegrated to society, the
for individuals, systems & structures Insurgent Returnee must remain
and relationships. This is a political completely disengaged in and reject
framework and approach in responding participation in any violent activity
to violence, harm and abuse. Basic or organization that perpetuates or
tenets postulate that this approach supports violence.
seeks to respond to violence without
creating more violence and/or engaging 2. Post psychoeducational
in harm reduction to lessen the violence training and workshops which
(Mingus, n.d). address the affective, pragmatic,
As Rabasa, Pettyjohn, Ghez, and and ideological components need
Boucek (2010) posit, transformative to continue after the completion of
justice also supports the basic tenets the initial deradicalization program
of the Strengths Based Approach as to ensure success in moderating
it is viewed as a liberating process if insurgent returnees. The purpose
truly infused and implemented in the of providing such programs is to
full cycle of the case management. create a counter measure to address
Paramount to the principle wherein “all types of commitment to a
safety and accountability is sought but radical organization and provide
at the same time there is no further continued support as the former
need for the punishment and alienation, militant re-enter mainstream
state or systemic violence, including society. Provide emotional well-
incarceration or policing implemented being through counseling and
to the IRs. Framed in this way, the help locate a supportive social
program on reintegration of insurgent network;address practical factors
returnees adheres to the basic principle like providing training and a job;
of the Social Work practice in believing work to moderate the beliefs by
the inherent worth and dignity of every challenging extremist Islamism.
person. facilitate the reintegration into

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DSWD Social Work Case Management Guide

facilitate the reintegration into 2. Theories of Change on
society deradicalization programs Peace-building
should continue to support and
monitor those who have reformed The aim of peace-building is to resolve
(Rabasa, et. al, 2010).” injustice through nonviolent ways and
3. In the process and conduct to transform the structural conditions
of deradicalization and continued that generate destructive conflict.
post psychoeducation of the Peace-building can include conflict
insurgent returnees, there must prevention; conflict management;
be emphasis on the ideological conflict resolution and transformation;
aspect of a deradicalization and post-conflict reconciliation. With
program. It is recommended this assumptions, Kroc Institute for
that the spokespersons for International peace Studies (n.d) further
deradicalization programs be ex- characterizes peace-building as the
militants for the deradicalization to developmentornurturingofconstructive
have more impact, as they may have relationships (personal, group and
greater credibility with the insurgent political) across boundaries (ethnicity,
returnees. religion, social class, nation and race).
4. To ensure holistic
deradicalization efforts, it is critical “Peace-building”, according to Wood
to include peripheral radicals, such (2001) is an appropriate term for the long
as supporters and sympathizers, and and arduous toil — within a society, and
to reform less committed radicals, by external supporters — of preparing
even if hardcore militants have the ground, and nurturing and protecting
disengaged and deradicalized. the seedlings of peaceable governance
Rehabilitation efforts should not and participation. This developmental
summarily exclude these less perspectiveintegratestherecentinsights
committed militants. in economics and other disciplines about
5. Counter-radicalization and the critical importance of human capital
deradicalization strategies need to and “social capital” in development,
be flexible so local implementing while taking note that “bridging” social
agencies and social workers can capital — the basis of relations, habits
customize their actions plans to the and institutions of trust between groups
unique community characteristics, — is key for conflict prevention, rather
realities, challenges, needs needs than merely “bonding” social capital
and importantly their strengths. The within groups, which can sometimes
emphasis and importance on local exacerbate divisions and potential
initiatives stems from the realization conflicts.
based on deradicalization programs
in different parts of the world, that Church and Rogers (2006) advanced
it is the local authorities who are the work of an interesting exercise in
best placed to detect radicalization articulating the embedded assumptions
and therefore intervene early in within the peace-building field initiated
the process when the prospects of by Peter Woodrow (2006) at CDR
success are greater. Associates. The latest iteration of
Church and Rogers (2006) as cited by
Jantzi and Jantzi (2009) highlights 10
categories, or models, of theories of
change found within peace-building
practice:

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DSWD Social Work Case Management Guide

2.1. The Individual Theory of 2.4. The Reduction of Violence
Change Theory
Peace is achieved through the The reduction of the levels of
transformative change of a violence perpetrated by combatants
critical mass of individuals. This is or their representatives will allow
through changes in the individual’s peace to develop. This can be
consciousness,attitudes,behaviours achieved through ceasefires,
and skills. This type of change may creating zones of peace, withdrawal
be achieved through investing in or retreat from direct engagement,
the individual’s training, personal introduction of peacekeeping
transformation/ consciousness- forces/interposition, observation
raising workshops or processes, missions, accompaniment efforts,
dialogues, encounter groups, and/ promotion of nonviolent methods
or trauma healing. for achieving political/social/
economic goals.

2.2. The Healthy Relationships and

Connections Theory process 2.5. The Root Causes/Justice Theory
Peace results from a Peace results from addressing
of breaking down isolation, underlying issues of justice,
polarization, division, prejudices and oppression/exploitation, threats to
stereotypes between and among identity and security and people’s
groups. It is necessary to have sense of victimization. This calls
strong relationships as it is a crucial for long-term campaigns for social
component of peacebuilding. This and structural change, truth and
type of change may be achieved reconciliation, changes in social
through processes of inter-group institutions, laws, regulations, and
dialogue, networking, relationship- economic system.
building processes, joint efforts and
practical programs on substantive
problems. 2.6. The Institutional Development

Theory
Peace is ensured through stable
or reliable social institutions that
2.3. The Withdrawal of the guarantee democracy, equity,
Resources for War Theory justice, and fair allocation of
As war requires massive amounts of resources. This can be seen through
resources, from goods to armory, good governance, access to
interrupting the supply of people quality social services and
and goods to the war-making empowerment of vulnerable sectors
system may have an impact on that guarantee democracy and
conflicts. However, the impact human rights. These are founded
may not significantly reduce the on creating new constitutional
possibility of conflict in the long run. and governance arrangements/
Other ways may be explored such entities, development of human
as compromised agreements and rights, enacting the rule of law,
other similar methods, with respect strengthening anti-corruption
to the peculiarities of the different mechanisms, establishment of
groups involved. Methods of anti- democratic/ equitable economic
war campaigns to cut off funds/ institutions in the pursuit of
national budget, international arms economic development and
control, arms (and other) embargoes democratization.
and boycotts.

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DSWD Social Work Case Management Guide

2.7. The Political Elites Theory bring peace.
Peace results from the commitment 2.10. The Public Attitudes Theory
of political (and other) leaders to
pursue such and taking necessary It is through prejudice,
steps towards achieving it. misperceptions, and intolerance
The mechanisms and efforts of of differences that war and
peacebuilding should change violence are motivated. Peace, on
the way key political and group the other hand, can be promoted
leaders calculate the necessary by using mass media to change
factors proceeding to crucial public attitudes and build greater
decisions in peacebuilding. This tolerance in society. This can be
may be through raising the costs through TV and radio programs
and reducing benefits for political that promote tolerance; modeling
elites of continuing war while tolerant behavior; symbolic acts of
increasing incentives for peace. The solidarity/unity; dialogues among
international community may also groups in conflict—with subsequent
take part in this endeavor through publicity.
engaging active and influential
constituencies in favor of peace; and 3. The Ecological Perspective
through withdrawing international
support, especially funding, for In recent years, social work has
warring parties. increasingly focused on using an
ecological perspective. This approach
2.8. The Grassroots Mobilization integrates both treatment and reform
Theory by conceptualizing and emphasizing
Political leaders will have to pay the dysfunction between people and
attention when the people mobilize their physical environment. It views
themselves to oppose war. This people not as passive reactors to
happens when grassroot groups their environment but rather dynamic
are mobilized to oppose war or to and reciprocal inter-actors with their
advocate for positive pacification environment. The Singapore Institute
of conflict areas or positive of Management (2015) suggests that
reinforcements of non-violent an ecological model tries to improve
action campaigns; use of the media; coping patterns so that a better match
education/mobilization efforts; can be attained between the individual’s
organize advocacy groups; dramatic needs and the characteristics of their
events to raise consciousness. environment. In social work practice,
applying an ecological approach can be
2.9. The Economics Theory best understood by looking at persons,
Socio-economic interventions families, cultures, communities and
are essential in ensuring peace. If policies, and identify and intervene
economic needs are met, peace upon strengths and weaknesses in the
occurs, people make personal transactional processes between these
decisions and decision makers systems.
make policy decisions based on a Bronfenbrenner (1979) suggests four
system of rewards/ incentives and levels of ecological components as a
punishments/sanctions that are useful framework in understanding
essentially economic in nature.
If we can change the economies
associated with war making, we can

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DSWD Social Work Case Management Guide

Figure 2. The Ecological Framework: Example of Risk Factors at Each Level
Source: World Health Organization’s (2018) The VPA approach (http://www.who.int/ violence-
prevention/approach/ecology/en/)

how individual or family processes more generalised level which affect
are influenced by the hierarchical family interactions indirectly on
environmental systems in which they the micro and meso levels (i.e. the
function. The systems are, as lifted from effects of parent’s employment on
Bronfenbrenner (1979): family interactions).
3.4. Macrosystem: The most
3.1. Microsystem: The most basic generalised forces, affecting
system, referring to an individual’s individual and family functions (i.e.,
most immediate environment political, cultural, economic, social).
(i.e., the effects of personality 3.5. Chronosystem: The
characteristics on other family patterning of environmental events
members). and transitions over the course of
3.2. Mesosystem: A more life.
generalised system referring to the
interactional processes between 4. Strengths-Based Approach
multiple microsystems. A system
interactional processes between Strengths-based approach is a “social
multiple microsystems. A system work practice theory which focuses on
comprises connections between an individual’s self-determination and
immediate environments (i.e., effect strength” as presented by Wayne (2005).
of spousal relationship upon parent- This type of approach builds the clients
child relationship). on their strengths, specifically seeing
3.3. Exosystem: Settings on a

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DSWD Social Work Case Management Guide

them as resourceful and resilient when oriented, time-limited work, usually two
they are in adverse conditions. to six weeks in duration. It is a under
Another unique characteristic of this stress. To be really effective, crisis
approach, which is also postulated intervention should be available within
by Wayne (2005), is that it is client- 24 to 72 hours after application or
led and centered on outcomes in the referral for assistance.
future individual’s set of strengths. Lee-Mendoza posits that Crisis
An interesting aspect of the strengths- Intervention involves warm, emphatic
based approach is that it is about reaching out, and what is called a “search
getting people to affect change in and find approach.” Participation is
them. Change happens using positivity, always voluntary and the client should
affecting each person on how they be committed to the change process.
handle their own attitudes about their Crisis Intervention with families and
dignity, capacities, rights, characteristics groups includes the following target
and similarities. population: (1) individuals in crisis; and (2)
Over the years, strengths-based those associated with persons in crisis. It
approach has proven to be successful is deemed appropriate for people of all
because the client becomes the key ages, ethnic groups and social classes.
player or agent of change. This approach It only requires that the client should
is highly dependent on the thought be in a state of crisis or affected by the
process and emotional and information person in crisis, willing to seek help or
processing of the individual. This be referred for help, and able to sustain
approachallowsforopencommunication a relationship with a helping person for
and thought processes for individuals the brief period of treatment.
to identify value and assemble their 5.2. Social Work Interventive Models
strengths and capacities in the course The social work interventive models
of change. provide guidance for social workers
In addition, a strength-based approach involved with the reintegration of IRs,
identifies any constraints that might be for them to provide interventions
holding back an individual’s growth. according to the needs of the IRs. For
These constraints can be evident when instance, if the IR expressed difficulties
the individual has to deal with social, in adapting to the mainstream (e.g. the
personal and/or cultural issues in inability to function as a newly elected
organizations that cannot be balanced community officer) then the social
fairly (Wayne, 2005). worker can work around what tasks are
needed and revolve case management
5. Other Approaches around gaining skills and knowledge in
the conduct of the FRs new community
5.1. Crisis Intervention Approach role through task oriented activities.
Crisis intervention is a process for Depending on the circumstances of the
actively influencing the psycho- IRs, social workers can choose from the
social functioning of individuals and various Social Work interventive models
groups, during a period of acute (Lee-Mendoza, 2008).
disequilibrium. It involves crisis-
5.2.1. Direct Provision of Model
The goal of this model, according

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DSWD Social Work Case Management Guide goal of alleviating the problem.
5.2.4. Problem Solving Model
to Schneiderman (1974), is the The problem solving model was
enhancement of the client social created by Helen Harris Perlman
functioning through the direct provision (1957), a social worker and author
of material aid useful in eliminating or of “Social Casework: A Problem-
reducing situational deficiencies. Others solving Process.” With this model,
refer to this as “resource provision,a” a social worker helps an individual
where “resources may be mobilized, identify a problem, create an action
created, directly furnished: the client plan to solve it and implement
may be advised and counseled in making the solution. Together, the social
optimal use of them. worker and individual discuss the
effectiveness of the problem-solving
5.2.2. The Intercession - Mediation strategy and adjust it as necessary.
Model The problem-solving model enables
It involves the process of negotiating the social worker and individual to
the “service jungle” for clients, whether focus on one concrete problem at
singly or in groups. The social worker a time. Perlman (1957) argued that
/ case managers will “connect” the this method is effective because
client to need services in the system long-term psychotherapy isn’t
until they avail of them. According to always necessary and can hinder an
Schneiderman (1974) “the utilization of individual’s progress.
non-consensual strategies such as direct
confrontation, administrative appeal,
and the use of the judicial and political
system, as appropriate.

5.2.3. Task-Centered Model These are the theories and approaches
The term “task-centered” is used to mainly used in handling the IRs.
describe many different social work However, case managers should
interventions. The said model of not be restricted to these theories and
practice developed through research approaches as they onlyserveasaguide.
at University of Chicago in the 1970s Case managers may opt to explore
under the collaboration of Laura Estein, the other perspectives/ approaches in
Professor Emeritus and William J. Reid order to provide better planning and
(1972), Professor of the State University appropriate interventions. Despite
of New York at Albany. the clientele being IRs, they still are
According to them, the Task-Centered different from each other in terms of
model is “technology for alleviating personality, experience, motivations
specific target problems perceived by and aspirations. This difference is deep-
clients, that is particular problems client rooted in their former group affiliations,
recognize, understand, acknowledge, community backgrounds, social class
and want to attend to.” and experiences among others, which
A “Task” is defined as what the client will be further discussed in the next part
is to do both an immediate goal and at of this Guide.
the same time the means of achieving
the goal of alleviating the problem.

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Part 3
UNDERSTANDING
INSURGENT RETURNEES

To understand the dynamics of working with IRs, it is important to review the personal
and societal factors viewed as reasons or motivations of IRs for engaging in armed
conflict or extremism. As the IRs return to the folds of the law and are embraced
by agencies like DSWD for case management, social workers should recognize the
existence of a national action plan for this client group towards their reintegration
to the society- the National Action Plan for Preventing and Countering Violent
Extremism (NAP-PCVE).
Figure 3 below is the framework on NAP-PCVE. It illustrates the concept of preventing
radicalization that leads to violent extremism by utilizing the whole-of-nation approach
or convergence of the government, civil society organizations, religious sector and
other key stakeholders.

Figure 3. Concepts on Synergy of Approaches
Source: Adapted from Schirch, Lisa (ed., 2018). The Ecology of Violent Extremism: Perspec-
tives on Peacebuilding and Human Security. London: Rowan & Littlefield. Video Explanation URL:
https://www.youtube.com/watch?v=Ug6cfjcs24w&feature=youtu.be(accessed on October 2, 2018)

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DSWD Social Work Case Management Guide

It is extremely important that social On September 21, 1972, President
workers working with insurgent returnees Ferdinand E. Marcos signed
possess the knowledge and skills in the Proclamation No. 1081 in response to
discussion, analysis and implications of the communist threat posed by the CPP,
the interplay of the psychological-socio- placed the Philippines under Martial Law
economic-political dimensions existing that led to the radicalization of many
in society in order to understand the young people and a rapid growth of the
context of the clients being served. CPP-NPA (Schirmer, 1987).
This part of the CM Guide discusses
information related to the nature of the According to Cornish (2005),CPP had
groups from which the IRs may have its heyday in the 1980s during Martial
been previously identified with. These Law, but its influence has since waned.
are classified as follows: Analysts estimate that the NPA currently
has at least 10,000 members. They have
1. CommunistTerroristGroup been responsible for the kidnappings of
(CTG) local citizens and foreigners, extortion
and killings. The CPP-NPA-NDF sees
Suerte (2010), in his paper on Peace- itself as a broad political, revolutionary
building in the Philippines laid a piece of and liberation movement and claims
history and cited that the New People’s that it does not attack civilian targets and
Army (NPA) is the military wing of the that it adheres to international law. NPA
Communist Party of the Philippines nevertheless claimed responsibility for
(CPP) established in 1969 by Jose Maria the assassination of two congressmen
Sison. The CPP, which is considered as in May 2001 whom it considered as
oneoftheoldestcommunistinsurgencies “legitimate targets.” Former CPP chair
in the world, aims to overthrow the Rodolfo Salas acknowledged that in
Philippine government using guerrilla- the 1980s, internal purge of persons
style warfare. suspected to be government and army
The insurgency waged by the NPA for infiltrators within CPP resulted in torture
more than 50 years is reported to be and execution of about 1,800 cadres
one of the deadliest in the Philippines, and civilians.
with local reports putting the number
to at least 40,000 (BBC News, 2012). Many of the NPA’s senior leadership
The group is included in the Foreign including its founder Jose Maria
Terrorist Organization list of the US Sison - live in self-imposed exile in
State Department (BBC News, 2012). the Netherlands and claim to direct
The history of the communist rebellion operations from there. Peace talks
in the Philippines started on March 29, between the CPP’s political arm and the
1969, when Jose Maria Sison’s newly- government have been sporadic over
formed CPP entered an alliance with the years but were unsuccessful.
a small armed group led by Bernabe
Buscayno. Buscayno’s group, which was On December 2017, President Duterte
originally a unit under the Marxist– issued Presidential Proclamation No. 374
Leninist 1930s-era Partido Komunista declaring the CPP and NPA as terrorist
ng Pilipinas (PKP-1930), was renamed groups under Republic Act No. 10168,
the “New People’s Army” (NPA) and otherwise known as “The Terrorism
became the armed wing of the CPP. Financing Prevention and Suppression
Act of 2012”. They are now referred to
as a Communist Terrorist Group (CTG).
between the CPP’s

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DSWD Social Work Case Management Guide

2. Moro National Liberation 4,875 firearms were voluntarily turned
Front (MNLF) over by individuals joining the military
and police. Most analysts agree that
The Crisis Group Intervention, in its this integration was a qualified success,
2013 Asia Report, specified that Nur because many of those integrated were
Misuari founded the Moro National not hardened fighters, but relatives of
Liberation Front (MNLF) in 1971, with MNLF members. In contrast, the special
the goal of fighting the Philippine regional security force was never set up.
state for an independent Moro nation. Misuari’s term however ended in
An intervention by the UN-backed violence in November 2001, when he led
Organization of Islamic Conference, a failed uprising. He was subsequently
later called as the Organization of jailed, but eventually released, in 2008.
Islamic Cooperation led to the On February 2005, supporters loyal to
signing of the often-referred Tripoli Misuari launched a series of attacks on
Agreement in Libya in 1976. This army troops in Jolo, the largest of the
agreement, however, failed to hold (BBC Sulu islands. The trigger for the violence
News, 2012). was thought to be the launch of a huge
military operation to target the armed
Historically, it can be said that the Muslim group Abu Sayyaf, alleged to
Philippine government made an effort have ties with the Misuari faction. On
to reconcile with MNLF. In 1986, then August 2007, the group said it was
President Corazon Aquino personally behind an ambush on troops in Jolo,
met Misuari to hold peace talks. Three which led to nearly 60 deaths. In 2008,
years after, President Aquino signed a Misuari was ousted as MNLF chairman.
law that gave predominantly Muslim Muslimim Sema succeeded him. Over
areas in the region a degree of self-rule, the years, the MNLF is believed to have
setting up the Autonomous Region in become weaker, and many factions have
Muslim Mindanao (ARMM). The ARMM splintered from the main group.
is composed of the mainland provinces
of Maguindanao and Lanao del Sur and 3. Moro Islamic Liberation
the island provinces of Sulu, Tawi-Tawi Front (MILF)
and Basilan. But the significant peace
agreement with the MNLF was signed in The BBC News (2012) in its article “Guide
1996 during the incumbency of former to the Philippines Conflict” identified
President Fidel V. Ramos. This paved that the Moro Islamic Liberation Front
the way for Misuari to run for office who (MILF) is considered as the country’s
was elected as ARMM governor on the largest Muslim rebel group. It was
same year. formed in 1981 after its leader, Salamat
Hashim, split from the MNLF in 1978.
The 1996 agreement allocated slots for The MILF has had a long-term aim of
some of the MNLF’s 17,000 fighters in creating a separate Islamic state in the
the Philippine military and police, i.e. southern Philippines. Since 1997, the
5,750 and 1,750, respectively; others group has had a series of peace talks
were to join a special regional security with the Philippine government, most of
force. Anyone not accommodated in which were brokered by Malaysia from
one of these options was to benefit 2003 onwards. In 2008, the government
from socio-economic, cultural and under then President Gloria Arroyo said
educational programs. The deal was
silent on the MNLF’s arsenal, although

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DSWD Social Work Case Management Guide

it had reached an agreement with the According to Samuel (2016), some
MILF on the boundaries for a Muslim scholars assessed that the primary
homeland. However, the Philippine drivers of radicalization are poverty and
Supreme Court ruled that the draft economic hardship, ethnic and religious
agreement was unconstitutional and marginalization and disenfranchisement
the failure of negotiations prompted and frustration with the government.
renewed fighting.
On March 27, 2014, the Government The deep cultural and geographical
of the Philippines (GoP) and the MILF gap between Christian and Muslim
signed the Comprehensive Agreement communities in the Philippines is one of
on the Bangsamoro (CAB). Under the the push factors that drive radicalization.
Agreement, the Islamic separatists Although the GoP nominally affords
would turn over their firearms to a third Muslims a substantial degree of religious
party, which would be selected by the freedom and tolerance, some Filipino
rebels and the GoP. The MILF agreed Muslims have expressed that they view
to decommission its armed wing, the Christians resettling in traditionally
Bangsamoro Islamic Armed Forces Muslim areas, such as Mindanao, as
(BIAF). In return, the GoP would establish an encroachment on their religious
an autonomous Bangsamoro. and cultural identity (US Department
U.S. Department of State, Bureau of
4. Violent Extremist Groups Democracy, Human Rights and Labor,
(VEG) 2013).

Borum (2011) described violent Schoewbel (2017) laid the historical
extremism to be a result of processes background of the Moro conflict-
“by which people come to adopt beliefs socio-economic marginalization,
that not only justify violence but ethno-religious discrimination, lack of
compel it and later progress — or not political representation; she established
— from thinking to action”. The process conditions conducive to the rise of violent
of evolving into violent extremism is extremism which are in turn activated by
triggered by ‘push’ and ‘pull’ factors. at least three pull factors:
Push factors, which are ‘socio-economic,
political, and cultural in nature’ First, Moros join violent extremist groups
contribute to creating the ‘conditions because of financial incentives. The
that favor the rise or spread in appeal monthly salary paid by the Abu Sayaff
of violent extremism’). Pull factors, Group (ASG) to its members is indeed
on the other hand, are ‘necessary for an incentive for the numerous youth and
push factors to have a direct influence poor people of Mindanao. Some may
on individual level radicalization and even have no other alternative for survival
recruitment.’ They can be in the form than joining the ASG. Financial incentives
of ‘personal [social and psychological] also play a role in actual violence. This is
ewards,’ ‘social networks,’ ‘the presence illustrated by the prevalence of kidnap-
of radical institutions or venues,’ for-ransom activities among ASGs.
‘service provision by extremist groups’
and ‘extremist involvement in illegal A second pull factor is family or clan ties.
economic activity’ (USAID, 2011). Family is the first circle of allegiance in
Mindanao, and many individuals are
related by either blood or marriage. It is
thus common to see a person providing

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DSWD Social Work Case Management Guide

support to a violent extremist group, including the Maute and Abu Sayyaf
because he/she counts relatives among Salafi jihadist groups. The Armed Forces
its members. On the other hand, an of the Philippines stated that some of
extremist group will be enticed to use the terrorists were foreigners who had
violence to support family members. been in the country for a long time,
On the other hand, an extremist group offering support to the Maute group
will be enticed to use violence to support in Marawi. Their main objective was to
family members. raise an ISIL flag at the Lanao del Sur
Last, is the recruitment led by extremist Provincial Capitol and declare a wilayat
preachers, as indicated by a Moro youth or provincial ISIL territory in Lanao del
leader. This information is corroborated Sur (Lim, 2017).
by the deportation in 2014 of two foreign On October 17, 2017, the day after
preachers and the killings in 2015 and the deaths of Omar Maute and Isnilon
2016 of extremists from Morocco and Hapilon, President Duterte declared
Malaysia. The literature however does Marawi as “liberated from terrorist
not specify whether local figures were influence” (Aljazeera, 2017). Then on
involved. October 23, 2017, Defense Secretary
Some extremist groups seek to draw Delfin Lorenzana announced that the
uneducated young people in with five-month battle against the terrorists
the promise of providing them with in Marawi had finally ended (ABC News,
an Islamic education; those with no 2017).
moderate Islamic education have no The aforementioned groups:
basis for challenging radical teachings. Communist Terrorist Group (CTG),
Rhoades and Helmus (2020) note that Moro National Liberation Front (MNLF),
recruiters have been active in schools Moro Islamic Liberation Front (MILF),
and mosques and that most individuals and Violent Extremists Groups (VEG),
gradually adopted radical views through have their own respective belief systems
listening to radical preachers, attending and manner of pursuing it which have
prayer groups, and having regular not been in congruence with peaceful
contact with the recruiters. nation-building. With the surfacing of
The Battle of Marawi was a IRs as surrenderees, it is crucial that
consequence of the Philippines’ long social workers and case managers
struggle against terrorism, associated are equipped with the knowledge of
with the Maute Group and Isnilon where these IRs are coming from. It is in
Hapilon, the leader of the Islamic State- understanding the nature of the groups
affiliated ASG, who was listed as among including its history and ideology that
the world’s most wanted terrorists by social workers and case managers can
the US State Department. Matsuzawa engage better in discussions, provide
(2017) in her article in The Star, the five- deeper analysis and contribute sufficient
month-long armed conflict in Marawi, implications in handling the cases of IRs.
Lanao del Sur, started on May 23, It is also in understanding these that
2017, between GoP security forces social workers can have more empathy
and militants affiliated with the Islamic towards their plight and better provide
State of Iraq and theecurity forces assistance in their reconciliation and
and militants affiliated Levant (ISIL), reintegration back to their communities
for stronger community participation
and social cohesion.

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DSWD Social Work Case Management Guide

DSWD Undersecretary Rene Glen O. Paje turned-over housing units to members of the KAPATIRAN
para sa Progresong Panlipunan, Inc. (KAPATIRAN). Photo courtesy of Office of the Undersecretary for
Inclusive and Sustainable Peace.

Part 4
PHASES OF SOCIAL WORK
CASE MANAGEMENT

Case managers’ awareness on the case management flow is highly essential to
the success of reintegration and mainstreaming of IRs. All government agencies
involved in helping the IRs conform to the seven phases of interventions in social case
management. These are: 1) pre-social work; 2) initial intake and engagement;
3) assessment; 4) planning; 5) implementation and monitoring; 6) evaluation,
reintegration and closure; and 7) after care.
Although the case management flow is largely informed by the processes outlined
in the implementation of E-CLIP, it is still applicable to reintegration work with IRs
who are not eligible for the program. The main difference in the intervention to be
provided to the two groups of clients is their access to material grants under the
E-CLIP; financial and other related assistance for non-E-CLIP enrollees would have
to be sourced from the regular programs of concerned agencies (e.g. the LGU,
DSWD, TESDA, DOLE or DTI), and would be guided by their own policies/ guidelines
separate from EO 70, and under CBRR1.

1 See Appendix A and B

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DSWD Social Work Case Management Guide

Shown below is the framework on case management for IRs, compared with the
E-CLIP Process and the Deradicalization Process:

Figure 4. Social Work Case Management Phases
Source: DSWD Office of the Undersecretary of Sustainable and Inclusive Peace, 2021

Important terms to note under this phase are the
following:

1. Surfacing pertains to the act in which an IR (in this case a CPP-NPA-
NDF, Militia ng Bayan or Violent Extremist Group member) has expressed
intent to abandon the armed struggle and/ or violent extremism to
rejoin mainstream society and become productive members of the
community (definition based on ECLIP Manual)
2. Holistic Assessment includes physical check-up and assessment on
the biopsychosocial level of functioning of the IR (for the checklist,
DILG-DND JMC No. 2021-01 Annex C may be used as reference)
3. E-CLIP ELIGIBLE refers to an IR who has been issued a Certification
by the Joint AFP-PNP Intelligence Committee (JAPIC) that validates his/
her previous membership to Communist Terrorist Groups or Violent Extremist
Groups.

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DSWD Social Work Case Management Guide

Phase One: Pre-Social Work Combatants of the MILF, under the
Comprehensive Agreement on the
In this phase, the IRs formally surface Bangsamoro (CAB), an Independent
to the government whether directly- Decommissioning Body (IDB) is
through the AFP, PNP or other responsible for determining and
government agencies or through processing the decommissioning of
mediating agencies- the LGU, civil MILF combatants. The IDB shall issue
society organizations, faith-based an identification card for each DC as
or religious institutions, who are proof that the former MILF combatant
identified as the Receiving Unit. The has been decommissioned (DSWD MC
Receiving Unit takes the lead at this No. 18 s. 2019).
point, although the LSWDO is already In the case of the MNLF, the general
engaged in the process for intake and profile of individual combatants will be
validation of government programs based on the data gathered from the
previously availed by the IR, if any. At verification and registration process
this stage, it can be determined if the IR during profiling with joint committees
is E-CLIP eligible or not. through their assigned Case Workers.
It is important in this phase to consider The detailed profiling and individual
or include local community leaders and development planning will be done
other significant people whom the IRs during the one-on-one interview with the
might have initially coordinated with to combatants that will be conducted by
express their desire to be reintegrated. case workers and representatives from
Therefore, involvement of the potential the partner agencies. The planning may
community in which the IRs will be continue until the case workers conduct
reintegrated needs to be involved in the the home visitation to the different areas
preparation from the beginning. of the combatants.
The lead social welfare agency for the
reintegration of former rebels (FR) is the Phase Two: Initial Engagement
Local Social Welfare and Development and Intake
Office (LSWDO) which is under the
supervision of the Local Government Under the Initial Engagement Phase, IRs
Unit (LGU). This is to ensure the undertake biometrics and profiling to
continuity of case management from generate socio-economic information
the temporary protective shelters which as a basis for the assessment and service
are managed or supervised by the P/ intervention by the DSWD, other NGAs
CSWDO, to community reintegration. and stakeholders. Rapid assessment
An exception to this is when the former may be done for the purposes of
rebel is housed in a DSWD facility, in addressing immediate needs.
which case, the case management If the IR is E-CLIP eligible, like the case
is transferred from the DSWD to the of Former Rebels or Former Violent
LSWDO when the FR is reintegrated in Extremists with Certification from the
the community. The LSWDO, however, Joint AFP-PNP Intelligence Committee
may use available referral pathways for (JAPIC), they will undergo preparatory
provision of services above and beyond activities to E-CLIP interventions such as
their capabilities and functions. referral to halfway homes, registration
In the case of Decommissioned of birth or marriage certificate, issuance

26

of government identification cards such DSWD Social Work Case Management Guide
as a postal or voter’s IDs, as needed,
medical services, and psychosocial has surfaced and has undergone the
services. Enrolment in a Deradicalization initial process stated in number 1, an
Program is also required for E-CLIP- by the LSWDO for profiling and to
eligible IRs. identify the immediate needs of the
If the IR is non-E-CLIP eligible, they IRs.2 Referrals can already be made to
may undergo preparatory activities address these needs while waiting for
based on policies and guidelines of the JAPIC clearance and determination
their particular group, if existing (e.g. of E-CLIP eligibility.3
KAPATIRAN, MNLF) and /or other 3. The LSWDO, as an Advocate,
preparatory activities to community- shall undertake a rapid assessment of
based interventions. the IR’s immediate needs in relation to
actual or perceived threats to life and
Steps on initial engagement specific to safety due to the surface, including
the case of E-CLIP eligible IRs: threats of physical harm against people
close to the IR. A safety plan shall be
1. LSWDOs may either be a drawn up with the FR based on the rapid
direct receiving unit of the FR or a assessment. 4
recipient of an endorsed FR from 4. After rapid assessment, the
other receiving units. LSWDO, as a Resource Provider and
Enabler, can already facilitate the
1.1 In the first case, the LSWDO following services at the onset5:
shall coordinate with the Armed
Forces of the Philippines or the 4.1. Referral to a temporary
Philippine National Police to protective shelter;
initiate processing of the surfacing. 4.2. Registration of birth or
Also as part of the process, LSWDO marriage certificate, issuance of
shall check if the FR has been part government identification cards
of a government reintegration such as a postal or voter’s IDs, as
program in the past. The result needed;
of this assessment is a reference 4.3. Medical services;
as to which government program 4.4. Psychosocial services, which
that a FR can avail, specifically, if may include:
he or she is eligible for E-CLIP.
1.2 In the latter case, the name 4.4.1. Psychological first aid
of the FR is only forwarded to 4.4.2. Mental Health
the LSWDO for checking if the interventions (psychological
FR has availed of a government and psychiatric services, as
reintegration program in the past. may be needed);
In both cases, the LSWDO acts as 4.4.3. Counseling sessions;
a Social Broker. 4.4.4. Enrolment in a
2. After the E-CLIP-eligible IR deradicalization program as
required of all IRs.

2 See Appendix C for Initial Interview Form
3 According to the E-CLIP Handbook (2019), this process may take up to two weeks.
4 See Appendix E for Safety Plan format
5 Relevant information to determine need for these services are included in the Initial Intake Form

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DSWD Social Work Case Management Guide

5. If, for security reasons, the IR needs of the child to the armed group.
to stay in a temporary protective 5.5. Facilities run by civil society
shelter: organizations, including faith-
based organizations or religious
5.1. The social worker shall institutions, may also be tapped
coordinate with the administrator for the same purpose, subject to
of the LGU Halfway House to their willingness and assessment
arrange for the admission of the IR. of capacity to provide temporary
If there is no Halfway House in the protective shelter for IRs.
LGU, or the Halfway House cannot 5.6. The immediate families of IRs
accommodate the IR at that time, may also be placed in temporary
alternative protective shelters can protective shelters with them for
be explored, for instance, an AFP their safety and security, if necessary.
or PNP facility. The social worker shall coordinate
with facilities which have provisions
5.2. Female IRs and children for protective custody of IR families.
involved in armed conflict (CIAC) 6. If the IR opted to stay in a community
may also be placed in a DSWD (TFBL, 2019):
residential facility subject to the 6.1. The social worker, as a
agreement of the DSWD facility’s Mediator, shall determine whether
administrator or the Center Head, the community is within the
considering the possible security jurisdiction of the LSWDO. It may be
risks that the arrangement may pose the case that the IR surfaced in one
to the residents (i.e. clients already LGU but wishes to stay temporarily
housed in the facility). or be reintegrated in another. If
this is so, the social worker shall
5.3. CIAC is considered as coordinate with the AFP regarding
qualified trafficking under RA 9208 the clearance and transfer of the
as amended by RA 10365. Therefore, IR to another LGU. If cleared, the
they are considered as Trafficking social worker shall coordinate with
in Persons (TIP) victim – survivors the LSWDO of the said LGU for this
and eligible to avail services under transfer, subject to the approval of
the Recovery and Reintegration the concerned Local Chief Executive
for Trafficked Persons (RRPTP). (LCE).
Decisions must be evidenced based, 6.2. The transfer of the IR to
hence, case managers must conduct another LGU jurisdiction shall also
Risk Assessment on the CIAC and mean that the case management
Parenting Capability Assessment to will also be with the LSWDO of the
the parents. said LGU.
6.3. In cases where the IR feels safer
5.4. Results of the Risk Assessment relating with the LGU where she or
and Parenting Capability he surfaced, the case management
Assessment should be the basis of remains with that LSWDO. However,
the Case Manager to decide a custodian based in the community
whether to return the CIAC
to his/her family legal guardian/s
or nearest kin. The Case Manager
must ensure that the family legal
guardian/s or closest kin have not
been instrumentalin therecruitment

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DSWD Social Work Case Management Guide

where the IR will be staying shall be Halfway House, a social worker from
identified to ensure compliance with the Halfway House shall be the case
the conditions of surface and follow manager. Case management shall
through of case management (See be informed by the guidelines and
1.2.3.4.) protocols as described in the Task
6.4. All IRs who opt to remain Force Balik-Loob Manual, Turning a
in the community shall have a House into a Home: A Handbook on
custodian as identified by t he social Administering Halfway Houses for
worker and the IR. The custodian is Former Rebels, in addition to this
the IR’s guarantor as regards their Guide.
compliance to the conditions of 7.3. If the IR is placed in a temporary
surface, and welfare while in the protective shelter apart from a
community. A custodian form shall DSWD facility or the LGU Halfway
be filled out for this purpose, and an House (e.g. AFP/PNP or CSO
NDA will be signed.6 The custodian facility), a social worker from the Local
can be a trusted barangay official, Social Welfare and Development
a religious leader, a civil society Office shall be assigned as the case
organization (CSO), or any person manager. Case management shall
residing in the same community as be informed by the provisions of
the FR. The custodian shall also be the MOA or MOU between the LGU
one of the LSWDO’s community and the agency providing shelter, in
contacts on matters relating to the addition to this Guide.
reintegration of the IR. 7.4. If the FR is living in the
6.5. The Provincial Government, community, a social worker from
through the Halfway House, assumes the Local Social Welfare and
no responsibility for the safety of the Development Office shall be
IRs if they refuse or choose to stay assigned as the case manager. Case
out of the center. management shall be informed by
7. The LSWDO, as an Advocate, shall this Guide.
assign a case manager to the IR. All former regular NPA are required to
The case manager, as Resource undergo a deradicalization program
Provider and Enabler, shall assist the as facilitated by Armed Forces of the
IR apply for services and benefits Philippines, regardless of their E-CLIP
under the program, and coordinate eligibility. Deradicalization involves
for other services as needed in their cognitive and behavioral change to
reintegration. dissociate the IR from their extreme
7.1. If the IR is placed in a DSWD ideological views. It includes: (1) political
residential facility, a social worker and ideological interventions by the
in that facility shall be the case Philippine Army; and (2) psychosocial
manager.7 Case management shall and economic interventions by different
be informed by the guidelines and national government agencies and the
protocols of the DSWD facility, in local government. The entire process
addition to this Guide. takes around three months and is usually
7.2. If the IR is placed in the LGU facilitated in halfway houses/ facilities in
coordination with the AFP.

6 See Appendix F for the FR Custody Form, and Appendix 12 for the NDA
7 DSWD MC No.03 s.2020, Section VI/6

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DSWD Social Work Case Management Guide

Depending on the design of the Conversely, the FGDs also uncovered
deradicalization program and clearance the reasons of FRs for leaving the
from the JAPIC, the IRs may be required movement, as follows:
to stay in a temporary facility e.g. LGU-
run halfway houses for FRs until they 1. Failure of the movement to
finish the deradicalization program. deliver their promises;
The AFP and/or PNP, in coordination 2. Insufficient supply of food and
with the LSWDO as the Case Manager water;
and Social Work Counselor, shall lead 3. Exhaustion from always moving
in the facilitation of the deradicalization from place to place; and
program. 4. Distance from family/ influence
The DSWD shall provide assistance as of family.
needed, and shall monitor and ensure The initial information from the FGDs
that deradicalization is conducted for may guide social workers on how to
returnees before other interventions are handle the returnees and how to come
provided. up with the most efficient and workable
During the Initial Engagement and Intake reintegration plan for them.
Phase, it is important that social workers Creating a safe space for the clients
have holistic data on the bio-psycho- to share information about their
social wellness of the IRs. Given that the experiences, fears and worries is critical
IRs have undergone extreme psycho- in all stages of case management, but
emotional-social states, they require especially during the initial stages.
thorough medical and psychological While formats are provided to guide the
assessment in order for their needs to interview and collect standard data, the
be met appropriately. Through this, social worker-client interaction should
immediate physical or mental health be client-oriented. The social worker
conditions are predetermined and are should be sensitive to the clients’ verbal
immediately addressed to prevent and non-verbal cues while conducting
escalation. interviews.
It is also noteworthy to keep in mind
the motivations of these clients for Phase Three: Assessment
joining anti- government groups in the
first place. Focus Group Discussions Under the Assessment Phase, the case
(FGDs) held FRs in CY 2020 revealed manager focuses on more holistic
the following: assessment for the IR based on intake
information gathered in Phase Two.
1. Lackofaccesstobasicservices; The more holistic assessment takes a
2. Lack of livelihood; comprehensive view of the returnee’s
3. Concerns not addressed by current context and its implications to
their reintegration. In the case of E-CLIP
government; eligible IRs, LSWDOs assess what E-CLIP
4. Promise of financial/ other interventions may be accessed based
on their individual situation, from a menu
support by the movement; or programs and services under E-CLIP.
and In the case of non-E-CLIP eligible IRs,
5. Influence of family members
and relatives.

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DSWD Social Work Case Management Guide

assessment is done based on policies security concerns that the IR may have,
and guidelines of the particular returnee as well as in keeping with the principle
group, if any, and/or as guided by of confidentiality and creating a safe
Community-Based Restoration and space during the interviews.
Reconciliation (CBRR) as cascaded to 5. The Initial Intake and Profiling
LGUs by the DILG. Interview forms9 present a good outline
Under the Assessment Phase, LSWDOs for interviews; more in-depth interviews
shall note the following to-do list: on the information provided during the
pre-social work case management stage
1. All case managers and anyone can be conducted.
involved in handling IR data are 6. In addition to above, themes which
required to sign a non-disclosure the social worker should explore in the
agreement8 prior to interviewing interviews with IRs (which are not found
the IR. in the above forms) toward having a
2. The initial interview is focused more holistic biopsychosocial-spiritual
on identifying safety and security assessment are the following:
issues arising from the surface of the
client. 6.1. Developmental needs based
3. A more in-depth data gathering on the IR’s age and current
shall be done after the initial capacities;
interview for the purpose of a
holistic assessment of the IR’s 6.2. Gendered experiences while a
situation and capabilities and member of the armed group,
for reintegration planning. Data and at present when he or she
gathering includes information is reintegrating in mainstream
on the IR’s previous involvement life;
with the armed group, family
background, current resources and 6.3. Experiences or concerns
psychosocial needs. The following over stigmatization and
may be conducted the data discrimination when they are
gathering phase: (3.1) individual eventually reintegrated in the
interviews; (3.2) document review community as these also relate
and validation; (3.3) collateral to their sense of safety and
interviews with the FR’s family; security;
and (3.4) the overall professional
observations of the social worker 6.4. Goals and aspirations
and synthesis of the validated data. for themselves and their
4. If the IR is residing in the families; stigmatization and
community, the social worker shall discrimination when they are
make arrangements with the IR and eventually reintegrated in the
his or her custodian on the schedule community as these also relate
and venue of the interview, taking to their sense of safety and
into consideration the safety and security;

6.5. Strengths or capabilities
(including social networks) that
they can tap to realize their goals
and aspirations; and

8 Appendix L: Non-Disclosure Agreement
9 See Appendix G Profiling Interview Form. The FR’s responses to the Initial Intake Interview Form (which had been already filled up
during the intake) can be used as reference for in-depth interviews.

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DSWD Social Work Case Management Guide

6.6. Spirituality, or their views about shall also be arranged to gather
the meaning of life and their role information relating to their readiness
in it, as well as the meanings they to accept and support the IR when he
attach to their life experiences. or she returns to mainstream life. The
following may affect reintegration:
7. There is a need for triangulation
to filter the authenticity of the data 11.1. The safety and security
and ensure that the plans for IRs are of the IR upon return to the
legitimate and evidence-based. This is community. Thus, it is important
done with individuals in contact with the for community dialogues and
IR e.g. custodian, physician, therapist, information campaigns to
spiritual adviser, and with community be conducted in advance to
stakeholders, e.g. barangay official, help prepare the community.
AFP/PNP. Discussions around the safety
8. Secondary data such as from concerns, community to be
government agency certifications, included. Thus, the role of the
identification documents, e.g. birth case manager is not limited to
certificate, physical and mental health the relational aspects, but as
reports, school records, among others generalists practitioners, to the
may also be collated. community, as well as that of the
9. If the IR’s family is enrolled in IR’s family.
the Pantawid Pamilyang Pilipino
Program (4Ps), the LSWDO may send 11.2. Creation of family support
a communication to the DSWD Central groups that can provide a sense
Office to access the FR’s family’s Social of safe space to talk about their
Welfare and Development Indicators concerns without worry of their
(SWDI) results as pertinent for IR family’s safety.
reintegration assessment. Since trust
building is very important , consent 11.3. Economic prospects, e.g.
must be secured in accordance with employment or livelihood
the data privacy law. The IR has to be opportunities.
informed and permission to access
DSWD Pantawid Pamilya data must be 11.4. Familystructureanddynamics,
granted consent by the IR. including its gendered
10. Caution of not freely accessing dimensions (e.g. composition,
information is important as this may role expectations, performed
trigger trust issues with the IR in the roles, gender-based violence).
beginning of the process that will affect Dysfunctional family dynamics
the reintegration process. The use of needs to be addressed first and
data and up to what specified period healed before any continuance.
it will be kept needs to be given to the
IR. 11.5 Community relations and
11. Whether residing in a temporary resources, e.g hierarchy power
protective shelter or in the community, structure/relation.
a visit to the IR’s family and community
12. The principle of confidentiality, and
conditions regarding data privacy, shall
be upheld by the social worker at all
times in the gathering of IR information,
and in all matters relating to the case
management in general. Before starting
the interview, the social worker shall:
(a) state the purpose of interview; (b)

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