DECEMBER 2023 NCPAG Working Paper 2023-02

WORKING PAPER
Tulong Pangkabuhayan sa Pag-unlad
ng Samahang OFW (Tulong PUSO) -
A Livelihood-Oriented Reintegration
Program for OFWs: Awareness,
Challenges, and Current Impact
The NCPAG Working Papers are pre-publication
versions of research papers by NCPAG faculty,
lecturers, researchers, and students. They are meant
Jay Lord Alden L. Estolas to disseminate knowledge and stimulate discussion
that will help authors revise the manuscript for future
MPA Student
publication. The views articulated in this document
National College of Public Administration and Governance do not represent the views or positions of the author’s
University of the Philippines Diliman institutional affiliation(s). For questions, comments, and
suggestions, please send an email to:
[email protected].

Abstract
The increase in the number of returning overseas Filipino workers (OFWs) can be attributed to several
factors. Returning to their home country presents challenges for these individuals, particularly concerning
financial stability. The government has taken steps to provide support and assistance to OFWs, focusing
on training and proper reintegration into society. The Philippine reintegration program offers intervention
services that aid returnees and their families through reemployment opportunities or the facilitation of
livelihood development. The primary objective of these reintegration programs is to optimize the benefits of
overseas employment and foster a productive transition back to the community. This paper delves into the
awareness level of OFWs regarding the Tulong Pangkabuhayan sa Pag-unlad ng Samahang OFWs or Tulong
PUSO, a livelihood-oriented reintegration program initiated by the Philippine government for this specific
sector. The study also examines the challenges faced during the implementation of the program and its
initial impact.

Keywords: Overseas Filipino Workers, reintegration, livelihood programs, Tulong PUSO

University of the Philippines

National College of Public Administration and Governance
Tulong PUSO: Awareness, Challenges, and Impacts

According to data from the United Nations, new life and surroundings, with social and cultural
there were approximately 281 million international pressures often leading to feelings of personal
migrants in 2020, representing around 3.6% of the guilt if they are unable to achieve the success or
global population. This figure has been steadily financial gain they had envisioned during their time
increasing over the past two decades (United abroad (ILO, 2015).
Nations [UN], 2021).
Table 1
In the Southeast Asian region, there has
Top Destinations of Filipino Migrants (1990-2019)
been a longstanding trend of workers migrating
from lower-income countries to wealthier Destinations No. of Share of No. of Share of
Migrants Total (%) Migrants Total (%)
nations, attracted by better wages and more job
Extraregional Destinations
opportunities (Graham & Jordan, 2011). Migration
has become deeply ingrained in the culture, United States 2,061,178 33.8% 912,674 45.4%
presenting a common and standard opportunity for
Saudi Arabia 644,828 10.6% 239,551 11.9%
pursuing better prospects abroad (Asis, 2017).
Canada 633,547 10.4% 118,304 5.9%
In particular, the Philippines has seen a
significant number of its citizens working overseas, United Arab 564,769 9.3% 60,107 3.0%
Emirates
driven by better career prospects, reasonable
Kuwait 196,910 3.2% 49,207 2.4%
compensation, and the chance to save more. The
remittances sent back by overseas Filipino workers Qatar 170,052 2.8% 37,462 1.9%
(OFWs) have played a crucial role in the country’s
Italy 151,520 2.5% 65,197 3.2%
economy. The Asian Development Bank (ADB)
estimated a substantial contribution of USD 28 United Kingdom 141,722 2.3% 21,328 1.1%
billion in 2019, equivalent to 11% of the country’s
Germany 62,408 1.0% 22,895 1.1%
gross domestic product (GDP). These OFWs are
regarded as modern-day heroes due to their impact Bahrain 59,391 1.0% 7,934 0.4%
on the nation’s economy (Inquirer, 2020).
Intraregional Destinations
Approximately ten million Filipinos actively
Australia 286,303 4.7% 90,580 4.5%
pursue employment opportunities abroad
(International Labor Organization [ILO], 2022). Japan 275,252 4.5% 49,106 2.4%
They are employed in various occupations across
Hong Kong, China 123,056 2.0% 79,010 3.9%
200 countries and territories, working in diverse
occupations (UN, 2020). Many Filipino migrants are Malaysia 117,990 1.9% 104,730 5.2%
concentrated in the Middle East (Table 1).
New Zealand 70,412 1.2% 4,379 0.2%
Over time, many OFWs decide to return Stock of Filipino 6,094,307 100% 2,012,499 100%
permanently to the Philippines, either voluntary or Migrants
involuntary (Newland, 2017). Voluntary return refers Source. Kang and Latoja (2022)
to individuals who choose to return to their home
country, often due to reasons such as retirement Statement of the Problem
or reuniting with family. In contrast, involuntary
return occurs when migrants’ right to stay in the Many Filipinos who have spent considerable
host country has expired or is revoked. For these time overseas express a strong inclination
returnees, successful reintegration into their original to permanently return to their homeland.
communities is essential (Arowolo, 2000). Both Consequently, it is crucial to comprehend the
those who voluntarily return and those who are genuine aspirations of OFW returnees. Meanwhile,
forced to do so face challenges in adapting to their the government has faced criticism due to the
absence of a cohesive system among relevant

2
Tulong PUSO: Awareness, Challenges, and Impacts

agencies concerning OFW affairs, until the • propose recommendations to the

establishment of the new Department of Migrant government aimed at enhancing the
Workers (DMW), which has gradually gained livelihood reintegration program.
traction. Consequently, concerns persist regarding
the progress and enhancement of streamlined
reintegration plans. Literature Review
In 2021, the Department of Labor and Reintegration
Employment (DOLE) reported that the number of
OFW returnees surpassed 800,000. However, only a Reintegration entails reinserting migrants
small percentage of OFWs have availed themselves into the context and environment they were
of reintegration programs. This research focused accustomed to before their migration. It entails
on the Tulong Pangkabuhayan sa Pag-unlad ng returning individuals to a status like when they
Samahang OFWs (Tulong PUSO) program. Tulong left their country of origin and helps returnees by
PUSO is a livelihood-oriented initiative that provides providing them with the assistance and necessary
financial grants to deployed or returning OFW tools to successfully adapt to life back home while
groups, supporting them in livelihood start-ups, contributing to the sustainability of return (Fonseca
restoration, or business expansion. et al., 2015). The United Nations (UN, 2020)
describes returning migrants as individuals returning
This research aimed to examine whether the to their native country who are about to stay
Philippine government has achieved the Tulong permanently after being immigrants for some time.
PUSO program’s objectives at the implementation Developing effective policies to support returning
level. It also seeks to ascertain the awareness of migrants can help integrate them into society and
the target sector of this program. Additionally, enhance their capacities to reintegrate and invest
the research explored the challenges faced by in their original society (Haase & Honerath, 2016).
program recipients/grantees and investigate the
reasons why some OFW returnees have not availed Effective reintegration of returning migrant
themselves of the Tulong PUSO program. workers is a complex undertaking that involves the
facilitation of safe and dignified return, provision
Objectives of the Study of adequate reception services, and registration
to access support services. The OFW also needs
This study sought to assess the
to reintegrate into society and find a job that will
implementation of the Tulong PUSO program,
allow them to support themselves and their families.
examining its effectiveness and the challenges
The acculturation of returning OFWs is essential to
faced by overseas Filipino workers (OFWs) in
their successful reintegration (ILO, 2019).
availing of the program. Additionally, the research
aims to understand the impact of the program on its Return-migrant entrepreneurship is an
recipients. The specific objectives of the study are innovative policy that harnesses the skills and
as follows: aspirations of emerging OFW entrepreneurs to
develop a viable economic reintegration program
• gauge the level of awareness among
for the benefit of both return migrants and the host
active OFWs regarding the Tulong PUSO
country (Roldan, 2020).
program;
• identify the challenges experienced by Supporting migrant entrepreneurs to put
recipients of the program and analyze its their ideas into practice goes beyond lending
initial effects on them; money and providing training. They also need
• investigate the reasons behind some access to appropriate networks to help them
OFWs/returnees not utilizing the succeed. Return-migrant entrepreneurs may be
program; and faced with significant challenges, such as poor job

3
Tulong PUSO: Awareness, Challenges, and Impacts

opportunities and low salaries. Policymakers should is an attached agency of DOLE that caters to
address financial, psychological, and social barriers social services, education, and training, financial
faced by aspiring entrepreneurs to help the country management, reintegration, and entrepreneurial
reach its growth potential. Returning migrants services (Republic Act 10801). The National
hopeful to be reintegrated into society may seek Reintegration Center for Overseas (NRCO), an
access to enhance their skills through training and agency under DOLE, was also institutionalized
technical support of migrants with unique needs as a link between returning migrants and non-
and career paths (ASEAN, 2020). Being ready and government organizations (NGOs), civil society
prepared through skills upgrading helps reduce organizations (CSOs), and local government
stress and boost confidence in tackling new tasks, units (LGUs). The office’s role is to help migrant
conditions, and challenges (Kang & Latoja, 2022). workers find suitable livelihood opportunities, start
The Philippine government has provided support businesses, or expand their current businesses when
and initiatives facilitate the returning migrants’ needed. Like OWWA, NRCO promotes the welfare
investment of gains from overseas employment by of the returning OFWs and their dependents by
re-skilling, training, loans, and grants, among others. providing them appropriate programs and projects
for livelihood, entrepreneurship, and financial
Government Agencies literacy (ILO, 2015).
The government has mandated departments Department of Agriculture (DA)
and agencies to provide welfare and livelihood
programs to overseas workers. The Migrant In 2020, the Inter-Agency Task Force for the
Workers and Overseas Filipinos Act of 1995, which Management of Emerging Infectious Diseases
was amended by Republic Act 10022, provides (IATF) announced that the different agencies must
better protection and promotion of well-being implement several projects and research studies to
for OFWs and their loved ones. It mandates the support agribusiness development. The Department
DOLE and the OWWA to formulate programs to of Agriculture (DA), along with subgroups led by
encourage OFWs to engage in livelihood and the Department of Trade and Industry (DTI), sought
entrepreneurial development. It also created to create a favorable enabling environment for
the National Reintegration Center for Overseas agribusiness to grow. The group is expected
(NRCO), which coordinates and promotes activities to focus on the immediate need for sources of
for reintegration, and the Technology Livelihood livelihood opportunities and employment of returned
Resource Center (TLRC). The law also pushed for OFWs by supporting their agribusiness programs
prioritizing OFW returnees in government livelihood and projects.
training programs.
Department of Trade and Industry (DTI)
Department of Labor and Employment (DOLE)
The Department of Trade and Industry –
The DOLE Reintegration Services is a Regional Operations Group (DTI-ROG) partnered
government body tasked to provide training with OWWA to assist repatriated OFWs’
programs designed to meet the needs of returning reintegration through entrepreneurship (DTI, 2016).
OFWs affected by job loss or natural calamities. The partnership of both departments supports
Programs include livelihood assistance and joint programs, projects, and services as part of
enhancement, educational assistance, marketable the reintegration for OFWs, such as sustaining
skills training, community-based enterprises, promotions of MSMEs and business ventures by
local reemployment, and entrepreneurship holding caravans and seminars in target areas
development. (DOLE, 2022). The Overseas Workers locally and overseas.
Welfare Administration (OWWA), established
under Presidential Decree No. 442 or the Labor DTI works together with OWWA to help OFWs
Code of the Philippines to help OFWs in distress, find other sources of income upon their return to

4
Tulong PUSO: Awareness, Challenges, and Impacts

the country, including starting a business. For its Technical Education and Skills Development
part, OWWA organizes training for entrepreneurship Authority (TESDA)
advancement and assists interested OFWs or their
families in planning business ventures. The DTI- In his 2020 State of the Nation Address
OWWA partnership aims to develop strategies to (SONA), former President Rodrigo Duterte instructed
improve OFWs’ living conditions and their families the TESDA to develop unique training for OFWs
through entrepreneurship (DTI, 2021). Table 2 to ensure better career opportunities back home.
provides an overview of the opportunities for OFWs and their families can easily avail themselves
livelihood-oriented reintegration programs for and gain advantage through the livelihood
returning OFWs. programs and skills education provided by TESDA.
OFW desks have already been put up in TESDA
field offices and various international airports in the
country.

Table 2
Livelihood Opportunities for OFWs

Program Description
Balik-Pinas, Balik- Extends assistance to OFWs who have been displaced because of natural calamities, disasters of human origin, or other
Hanapbuhay Program related events. These affected individuals are in urgent need of financial support during their recovery and rehabilitation
process. To address this need, the program was designed to offer an initial or supplementary capital of up to PHP20,000 for
their livelihood ventures.
Balik-Pinay, Balik- Caters to returning women OFWs who have encountered distressing situations, such as displacement resulting from illegal
Hanapbuhay Program recruitment or state conflicts. It is structured to encompass two main components: first, the provision of livelihood skills
training that aligns with the preferences of the beneficiaries, and second, the distribution of starter kits to aid them in
initiating their own businesses or utilizing the acquired skills to secure employment opportunities.
Overseas Filipino Extends loans to OFWs and their families, focusing specifically on fostering micro-entrepreneurship endeavors. The program
Workers - Enterprise was established in cooperation with the Land Bank of the Philippines (LBP) and the Development Bank of the Philippines
Development and Loan (DBP).
Program (OFW-EDLP)
Tulong Pangkabuhayan Supports the establishment, enlargement, or rehabilitation of business enterprises that have been lost or damaged. This
sa Pag-unlad ng program involves a non-repayable financial grant specifically intended for groups of OFWs. Unlike a loan, the assistance
Samahang OFWs provided is in the form of a grant, emphasizing the promotion of viable and prompt income-generating livelihood ventures.
(Tulong PUSO) These projects are targeted towards OFW groups comprising a minimum of five members.
Livelihood Development Offers eligible individuals the opportunity to access business enterprise start-up kits valued at PHP10,000. These kits are
Assistance Program inclusive of pre-assembled materials and equipment, which can be utilized by OFWs to initiate their small-scale business
(LDAP) ventures.
TESDA Abot Lahat ang Offers a cost-free skills training initiative primarily focused on granting scholarships to OFWs and their dependents upon
OFWs successful online registration through the agency’s mobile application. This program targets both prospective outbound
OFWs in need of skills assessment and returning OFWs seeking to acquire new competencies for livelihood projects to
sustain their families, particularly those who have experienced job displacement from their overseas employment.
OFW Re-integration A web-based training program that enables OFWs to gain knowledge about entrepreneurship and the essential processes
Through Skills and involved in establishing a sustainable livelihood. The course is tailored to educate and empower Filipino migrant
Entrepreneurship (OFW workers who have been impacted by the pandemic, equipping them with the necessary skills and knowledge to explore
RISE) entrepreneurship as a viable option for their economic reintegration. It is a partnership between DOLE, OWWA, TESDA, DTI-
Philippine Trade Training Center (PTTC) with Coca-Cola Philippines through NRCO.
Agri Negosiyo (ANYO) Assists OFWs who have returned from abroad to start their own agri-fishery business. The program offers various resources
Para sa OFW including financial assistance, training, and access to potential investment opportunities.
Helping the Economy Provides an opportunity for displaced, repatriated, or returning OFWs who require assistance by helping them establish their
Recover through OFW start-up businesses through a loan program with no interest.
Enterprise Start-ups
(HEROES Program)
Sa Pinas, Ikaw ang OFWs who passed the Licensure Examination for Teachers (LET) who want to return to the Philippines and practice their
Ma’am, Sir profession receive PHP20,000 worth of teaching kits on top of a teaching job position. This is an OFW reintegration
convergence program of the DOLE and its attached agency, the NRCO, and the Department of Education (DepEd). It
also aims to provide an online refresher course to qualified beneficiaries and retrain them to enhance their teaching
performance skills.

Note. Adapted from ACPC (2021), DOLE (2022), DTI (2016a, 2021), NRCO (2022, n.d.), OWWA (n.d.-a, n.d.-b), OWWA MEMBER (n.d.), POLO OWWA (n.d.-a, n.d.-b)
and TESDA (n.d., 2022).

5
Tulong PUSO: Awareness, Challenges, and Impacts

In line with its mandate to promote Scope and Limitations

employment, livelihood, and training, the TESDA
is bound to sustain its intention of upgrading This study only focused on the Tulong PUSO
and improving the OFWs’ skills, particularly those program. It determined the level of awareness
affected by the pandemic (TESDA, 2022). by active OFWs on the program; the challenges
faced by former applicants in applying for the
Research Framework program and/or the reasons for not availing the
program; and the impacts of the program on
Conceptual Framework the recipients, with the final aim of coming up
This study aims to propose policy with policy recommendations to improve the said
recommendations to improve the implementation specific program in particular and the whole OFW
of the Tulong Pangkabuhayan sa Pag-unlad ng reintegration program.
Samahang OFWs (Tulong PUSO) program, which is Moreover, the data is derived from government
a livelihood-oriented government program, after documents kept by the program implementers. This
determining the program’s level of awareness exploratory research provides only a snapshot of the
by active OFWs, the challenges involved in program from the perspective of the respondents.
implementing the program, the reasons behind not
availing the program by returning OFWs, and the Definition of Terms
impacts of the program to the recipients. Figure 1
shows the flow of this study. Migrants – there are several types of
migrants: (a) low or medium-skilled workers; (b)
white-collar workers, including those who have
Figure 1
permanent residency in other countries; and (c)
Conceptual Framework
migrants who are married to citizens of the host
country.

T ULONG PUSO Reintegration – a way of helping OFWs

Program successfully reintegrate into Philippine society. The
government implements reintegration programs to
help ease returning OFWs’ transition back to the
country. The programs provide various benefits,
Level of including financial support, education opportunities,
awareness of counseling services, job placement assistance, and
OFWs
other social services. Reintegration is guided by the
DOLE and implemented by the NRCO, its regional
offices, and OWWA.
Policy
Impacts and recommendations
challenges
Undocumented OFWs – those who have fake
to improve
implementation or expired documents, or no documents at all; those
whose visas are inappropriate for their stay in the
country; and those whose contracts have not been
Reasons for not verified and registered on-site by the Philippine
availing of the Overseas Labor Office or POEA (RA 10022, Sec.
program 1[u]).

Tulong PUSO program – a one-time livelihood

financial grant that supports the proposed
business plans of OFW groups. The program is a
one-time financial assistance that will help OFW

6
Tulong PUSO: Awareness, Challenges, and Impacts

groups develop their own business, whether it deployed OFWs, and the impacts and challenges
is a livelihood start-up, restoration, or business of the programs to the returning OFWs who were
expansion. It supports micro-, small, medium, and recipients of these programs. In addition, reasons
large OFW groups. The table below shows the of OFW returnees for not availing the program were
maximum grant each OFW group category may gathered from those who did not avail of the Tulong
receive. Eighty percent (80%) of the members of PUSO program. The study made recommendations
the OFW organizations must be registered members to improve the program and its implementation.
of OWWA. The other 20% may be composed of It also identified the challenges encountered by
undocumented OFWs. returning OFWs in availing these livelihood-oriented
programs. The data were gathered in a semi-
Awareness – what the OFWs know about structured manner, and are recorded, transcribed,
the Tulong PUSO program in terms of superficial analyzed, and classified into themes.
knowledge about its existence, purpose, and
objective. As regards the level of awareness on
program by active OFWs, the researcher examined
whether they are partially or fully aware of the Methodology
program. In this study, the researcher utilized three
Challenges – obstacles that the recipients distinct sets of data. The first set pertained to
of Tulong PUSO encountered in applying for and the awareness of deployed OFWs on the Tulong
sustaining commitment in the livelihood program, PUSO program. The second set of data focused
and the reasons for not availing of the program. on the challenges encountered during program
The researcher investigated the information void, implementation and the reasons for not availing
age and physical factors, qualification standards, the program. Lastly, the impacts of the program
documentary requirements, and mindset of the OFW were derived from the perspectives of program
respondents. recipients.

Impact – impact evaluation assesses the To ensure the efficiency of data collection
overall impact of an intervention, such as whether and respect the respondents’ time, the researcher
it reached its goals and how well it affected those employed guide questions specifically tailored for
involved individuals or groups (Wynn et al., 2005). conducting interviews. This approach aimed to
Meanwhile, the Organisation for Economic Co- maximize the use of interview time and prevent
operation and Development (OECD, n.d.) defines unnecessary delays or disruptions during the data
impact broadly, encompassing long-term, intended, gathering process.
or unintended effects. In this study, success is when Online interviews were conducted to assess
the aim of the Tulong PUSO program is achieved, the level of familiarity among OFWs regarding
that is, helping OFW groups develop and maintain the Tulong PUSO program. Furthermore, the study
viable and sustainable business ventures. Referring aimed to collect the participants’ responses
to the program’s impacts, the study investigated the regarding the initial impact of the programs on their
sufficiency of the grant provided for the industry or lives. The degree to which the program’s objectives
business; the adequacy of the income/profit in the were achieved and their overall perceptions of its
industry or enterprise; sustainability of the industry effectiveness were also measured. In addition to
or business; and self-esteem building. inquiries about their awareness and opinions of
Research Design these programs, participants were asked to provide
personal information and plans. However, to protect
This study employed a developmental research confidentiality, pseudonyms were assigned to all
design. It determines the level of awareness for the participants. To maintain privacy and confidentiality,

7
Tulong PUSO: Awareness, Challenges, and Impacts

transcripts and audio recordings of the interviews Results and Discussion

were securely stored in encrypted cloud storage.
Among the 14 active OFW leaders approached
Selection of Respondents for interviews, only half (n=7) responded to the
request. Challenges, such as time differences,
The study involved three distinct groups of unpredictable work schedules, and non-responsive
respondents: deployed OFWs, beneficiaries of behavior during follow-up attempts hindered
the Tulong PUSO program, and OFW returnees communication with other potential respondents.
who did not avail of the program. All respondents
held leadership positions in their respective Meanwhile, 66% (n=10) of the 15 program
organizations. recipients tapped as respondents were successfully
interviewed. Despite repeated attempts to
For the deployed OFW organizational establish contact, the researcher could not reach
leaders abroad, a random sampling approach was the remaining five recipients. Similarly, among
employed, selecting leaders from countries with the 14 OFWs who were not Tulong PUSO program
significant numbers of OFWs. Snowball sampling participants, only eight respondents (57%)
was utilized to gather participants for this group. participated in the scheduled interviews.
The interviews with these leaders focused on
assessing their level of awareness regarding the Level of Awareness on the Tulong PUSO Program
Tulong PUSO program.
Findings from the interviews indicate that
The returning OFW leaders who benefited there is a significant need for increased knowledge
from the Tulong PUSO program were chosen from dissemination. Six of the seven active OFWs who
the database of the National Reintegration Center hold positions as leaders of OFW groups in their
for OFWs (NRCO). Similarly, the OFW returnees respective host countries rated their awareness
who did not avail of the program were randomly level as either 1 or 2 on a 5-point scale, with one
selected. These individuals also served as OFW denoting the lowest level and five representing
leaders abroad or current OFW community leaders the highest. Five respondents mentioned that
in their respective localities. the interview itself was their first encounter with
the Tulong PUSO program, while the remaining
Throughout the interview process, all OFW respondent acknowledged having heard about the
respondents were considered, but data collection program previously but lacked understanding of its
ceased once data saturation was reached. This mechanics. On the other hand, one of the active
approach was also applied to the interviews OFWs interviewed, identified as active OFW-leader
conducted with the OFW returnees who were from Qatar, rated his awareness level as four. His
beneficiaries of the program and those who did not higher awareness was attributed to his role as an
avail themselves of it. online radio correspondent, which prompted the
Tools for Data Analysis OWWA to engage his assistance in disseminating
information about the program.
The results of the interview were transcribed
and imported into the trial version of the NVivo The need for increased awareness of the
software program for analysis. Here, the imported Tulong PUSO program was attributed by the
transcripts were coded and classified into themes active OFWs to the lack of adequate activities
and were analyzed. NVivo is a program for and platforms for program dissemination among
analyzing qualitative data. It can analyze tweets, their community. For instance, an OFW leader from
image annotation (maps, photos, diagrams), Singapore suggested that the program should
interview analysis (video and audio), coding of be promoted not only on the OWWA website
open-ended questions on surveys, and data on or Facebook page but also on the Philippine
demographic variables. embassy’s website or social media platforms. Such

8
Tulong PUSO: Awareness, Challenges, and Impacts

an approach would be beneficial, as most OFWs challenge of obtaining the necessary requirements
regularly browse through the embassy’s online as they were not clearly enumerated in one list,
channels. An OFW leader from France emphasized and the required documents were given in parts,
the importance of conducting government-led necessitating multiple visits to the OWWA office.
orientation activities that comprehensively explain
the program’s purpose, eligibility criteria, and Another formidable challenge faced by the
application requirements to the OFWs. Similarly, recipients pertained to the initial funding required
an OFW leader from Kuwait expressed the desire for processing the necessary documents and
for a centralized venue where OFWs could attend initiating their projects. As stated by OFW leader
seminars about the Tulong PUSO program. Likewise, returnee, the recipients had to use their own funds
an OFW leader from Taiwan expressed regret at not for document processing, and some members
having been aware of the program and explained did not have the financial means to contribute.
the potential of OFWs to help spread information if Furthermore, an OFW leader returnee from Taiwan
the government takes more proactive measures to highlighted that they had to shoulder the costs of
reach out and educate them about the program. documentation, rent, and renovation of the business
premises, which proved to be burdensome for other
The interviews highlighted the need for members involved.
improved efforts in disseminating comprehensive
information about the Tulong PUSO program among Furthermore, finding interested and committed
active OFWs. Addressing this gap in awareness members for the association posed a significant
through enhanced dissemination activities and challenge. Since the Tulong PUSO grant is intended
targeted platforms is crucial for better engagement for associations or organizations, the organizers
and participation in the program. encountered difficulties in attracting interested and
dedicated members. An OFW leader returnee from
Challenges Encountered by the Recipients of the Kuwait corroborated this, mentioning that many
Program OFW returnees they approached showed disinterest
and even misinterpreted the program as a “scam.”
The OFW returnees who are recipients Additionally, some OFWs expressed interest
of the Tulong PUSO program encountered in establishing their own individual businesses
challenges before and during the program rather than joining an association, as reported
implementation. One of the significant challenges by an OFW leader returnee from Saudi Arabia.
involved preparing the necessary documentary Similarly, another OFW leader returnee, also from
requirements for availing the Tulong PUSO grant. Saudi Arabia, mentioned the challenge of finding
For instance, an OFW leader returnee from Kuwait members who shared the same business interests for
mentioned that her association faced difficulties their association.
in computing their business proposal as they
lacked the necessary knowledge and skills to do The primary challenge faced by the recipients
so. Similarly, an OFW leader returnee from Saudi of the Tulong PUSO program in the implementation
Arabia reported that their association struggled of their projects is the management and staffing
with creating the constitution and by-laws of of their businesses. An OFW leader returnee from
their group and registering with the DOLE due to South Korea pointed out that the members of her
a lack of understanding in the process. Another association lacked the necessary knowledge and
OFW leader returnee from Singapore shared experience in running a business, which makes it
that their association required assistance in challenging for them to effectively manage their
producing the documents, such as registering the venture. She emphasized the need for business
organization/association, opening a group bank training, stating that such training would greatly
account, and securing a business permit, because benefit their association. Currently, their business
the entire process was time-consuming. An OFW is in a trial-and-error phase, as they are still
leader returnee from South Korea also noted the learning how to navigate the intricacies of running

9
Tulong PUSO: Awareness, Challenges, and Impacts

a business. Additionally, the issue of staffing poses on a particular day, they receive an allowance for
a concern for the associations. An OFW leader that day, which contributes to their family’s income.
returnee from Taiwan shared that none of the Similar views were expressed by an OFW leader
members in her association had the expertise to be returnee from Singapore and another from the
a cashier, so they had to hire someone and pay a Middle East. Moreover, an OFW returnee from Saudi
monthly salary. Moreover, effective online marketing Arabia mentioned that members receive dividends
or promotion is essential for reaching a broader at the end of the year from their association.
customer base. However, the challenge lies in Additionally, in times of emergencies, members
finding someone in the organization who possesses can borrow money or goods from the association,
the capability and willingness to handle online using the earnings for support. The OFW returnee
marketing, or alternatively, providing further training from Kuwait also shared how they can access loans
in this area, as emphasized by the OFW returnee from their association when needed, and a leader
from South Korea. from Saudi Arabia mentioned that their association
distributes goods to its members from time to time.
The second significant challenge encountered Furthermore, a returnee from Singapore highlighted
by the recipients is related to the limitations of that the association’s fund provides financial
the grant and the release of funds in tranches. assistance in case of illness or death of a family
According to the recipients, there is a need for member.
increased subsidies to better support the members
of their organizations. Additionally, the budget was Beyond the financial aspects, the program
released in tranches, causing delays in sustaining also has positive impacts on the social and
and expanding their businesses. An OFW returnee emotional well-being of the members. One
from Taiwan highlighted how the delay in receiving significant effect is the strengthening of
a tranche hindered their business operations. camaraderie and friendship among the members,
Furthermore, the OFW returnee from South Korea as reported by an OFW returnee from Taiwan.
expressed that the granted fund is insufficient. The program fosters a sense of unity among the
members, acts as a stress reliever, and helps them
The challenges faced by the recipients emotionally and mentally.
under the Tulong PUSO program thus involve the
management and staffing of their businesses, and However, the program was not without its
the limitations of the grant and its disbursement challenges and negative impacts. For instance,
in tranches. Addressing these challenges will be the involvement of OFW returnees in operating the
essential in facilitating the success and growth of business meant that they had to devote time to
the businesses established by the recipients. managing the association’s business. A returnee
from Taiwan viewed this as a burden, as it required
Initial Impacts of the Program on the additional time and effort. Furthermore, a returnee
Respondents from Kuwait, being new to business operations,
The interviewed OFW returnees, who serve as expressed that running the business brought about
presidents of their respective associations under the a certain level of stress.
Tulong PUSO program, unanimously asserted that, In sum, while the interviewed OFW leader
even without the program, they could provide for returnees asserted their self-sufficiency, they
their own needs and those of their families. Despite acknowledged the program’s financial benefits
this self-sufficiency, the respondents acknowledged and its positive effects on social and emotional
that the program has some financial benefits, albeit well-being. However, they also pointed out the
limited. In terms of finances, the program serves as challenges and negative impacts related to the
an additional source of income. As described by time and effort required for business operations,
an OFW beneficiary from Saudi Arabia, under the especially for those less experienced in business
piece rate pay system, if a member served as staff management.

10
Tulong PUSO: Awareness, Challenges, and Impacts

Reasons for Not Availing of the Program beneficiaries. Addressing these challenges is crucial
to ensuring the program reaches its intended target
Despite the generally positive perception sector and provides meaningful support to OFW
of the Tulong PUSO program among recipients, a returnees.
considerable number of OFW leader returnees have
not availed themselves of it. The primary reason for Conclusion
not availing of the program is the lack of knowledge
or awareness regarding the grant. Some OFW The Tulong PUSO program, with its
returnees from Japan and Thailand, for instance, commendable goal of aiding OFW returnees in
revealed that they only became aware of the their reintegration into Philippine society, faced
program during the interview. They opined that the challenges in reaching a broader beneficiaries
program’s promotion may be insufficient. An OFW due to inadequate and comprehensive information
leader returnee from Japan expressed difficulty dissemination. This resulted in misconceptions about
comprehending the program due to what she the program. Additionally, the program’s stringent
perceived as inadequate information dissemination. requirements, beneficiaries’ unfamiliarity with
business management, the need for initial financial
Another reason cited by the OFW returnees contributions, and the staggered release of the
for not availing the program is the challenge in minimal grant, further hindered its full utilization.
forming an association or organization, which was To address these issues, the researcher proposes
similarly mentioned by grant recipients during their the development of a policy focused on intensive
early stages. Geographical location emerged as a and comprehensive education and information
justifiable factor, as explained by an OFW leader dissemination about the Tulong PUSO program to
returnee from Kuwait, who found it challenging reach a wider audience and increase participation.
to create an association or organization with There should also be a policy designed to provide
interested members from the same location. This education or training on business and association
supports the observation of another OFW leader creation and management, assisting OFW returnees
returnee from Singapore, who emphasized the in these areas. Moreover, implementing a policy
considerable difficulty in convincing OFW returnees for regular semi-annual evaluation and planning
to join an association or organization due to various of the associations and industries would enable
reasons. monitoring and improvement of the associations
and businesses.
The last challenge highlighted by the OFW
returnees pertains to the stringent requirements It is important to note that this study solely
that must be met to avail the program. An OFW focused on the Tulong PUSO program, and
leader returnee from Kuwait hesitated to avail the the impact of the program on the recipients’
program upon hearing that it involved numerous businesses is yet to be fully measured in the early
procedures, requirements, and systems. Similarly, stages of the program. Therefore, the researcher
an OFW leader returnee from Saudi Arabia decided recommends conducting similar studies on other
not to avail the program after learning that despite livelihood-related government-initiated programs
many applications, only a few were approved and and conducting a follow-up study on the Tulong
granted. PUSO program after two or three years to assess its
medium-term effects.
Despite the positive perception of the Tulong
PUSO program among recipients, several factors
hindered its full utilization by OFW returnees.
Insufficient awareness, difficulties in forming
associations or organizations, and the perception
of stringent requirements have contributed to
the program’s underutilization among potential

11
Tulong PUSO: Awareness, Challenges, and Impacts

References National Reintegration Center for OFWs. (2022). Livelihood Development

Assistance Program (LDAP). Programs and Services. https://nrco.
Agricultural Credit Policy Council (ACPC). (2021). ANYO. https://acpcaccess. owwa.gov.ph/index.php/programs-and-services/livelihood-
ph/#services development-assistance-program-ldap
Arowolo, O. O. (2000). Return migration and the problem of reintegration. Newland, K. (2017). Migrant return and reintegration policy: A key component
International Migration, 38(5), 59-82. of migration governance (pp. 169-173). Migration Research Leaders’
Syndicate, International Organization for Migration. https://
ASEAN. (2020, November). Guidelines on effective return and reintegration of publications.iom.int/system/files/pdf/migration_research_leaders_
migrant workers. ASEAN Secretariat. https://asean.org/wp-content/ syndicate.pdf#page=177
uploads/2021/08/07-ASEAN-Guidelines-on-Effective-Return-and-
Reintegration10.pdf Organisation for Economic Co-operation and Development (OECD).
(n.d.). OECD DAC criteria for evaluating development
Asis, M. M. B. (2017, July 12). The Philippines: Beyond labor migration, toward assistance. https://www.oecd.org/dac/evaluation/
development and (possibly) return. Migration Policy Institute. daccriteriaforevaluatingdevelopmentassistance.htm
https://www.migrationpolicy.org/article/philippines-beyond-labor-
migration-toward-development-and-possibly-return Overseas Workers Welfare Administration (OWWA) (n.d.-a). Balik-Pinas, Balik-
Hanapbuhay Program. https://owwa.gov.ph/?page_id=3706
Department of Labor and Employment (DOLE). (2021, November 28). Returned
OFWs hit 800k mark - Bello. DOLE News. https://www.dole.gov.ph/ Overseas Workers Welfare Administration (OWWA) (n.d.-b). Tulong
news/returned-ofws-hit-800k-mark-bello/ Pangkabuhayan sa Pag-unlad ng Samahang OFWs (Tulong PUSO).
https://owwa.gov.ph/?page_id=4253
Department of Labor and Employment (2022). Reintegration services for
overseas Filipino workers. https://www.dole.gov.ph/reintegration- OWWA MEMBER. (n.d.-a). How to apply HEROES Program for OFWs. https://
services-for-overseas-filipino-workers/ owwamember.com/heroes-program/
Department of Trade and Industry (2016). DTI, OWWA ink pact to help OFWs. OWWA MEMBER. (n.d.-b). How to apply OFW RISE Program. https://
Archives. https://www.dti.gov.ph/archives/news-archives/dti-owwa- owwamember.com/ofw-rise/
ink-pact-to-help-ofws/ POLO-OWWA. (n.d.-a). How to sign up OWWA SPIMS Program. https://polo-
Department of Trade and Industry (2021). DTI offers free entrepreneurship owwa.com/spims-program/
seminar to overseas workers. Archives. https://www.dti.gov.ph/ POLO-OWWA (n.d.-b). Overseas Filipino Workers - Enterprise Development
archives/regional-archives/region-10-news-archives/dti-offers-free- and Loan Program (OFW-EDLP). https://polo-owwa.com/ofw-edlp-
entrepreneurship-seminar-to-overseas-workers/ enterprise-development-loan/
Fonseca, A., Hart, L., & Klink, S. (2015). Reintegration - Effective approaches. Rappler. (2017, August 12). How Duterte gov’t plans to bring OFWs back home.
International Organization for Migration (IOM). https://www.iom.int/ https://www.rappler.com/newsbreak/in-depth/178065-duterte-
sites/g/files/tmzbdl486/files/migrated_files/What-We-Do/docs/ government-plans-returning-ofws/
Reintegration-Position-Paper-final.pdf Republic Act No. 10022. An Act Amending RA 8042, Otherwise Known as the
Graham, E., & Jordan, L. P. (2011). Migrant parents and the psychological Migrant Workers and Overseas Filipino Act of 1995. https://lawphil.
well-being of left-behind children in Southeast Asia. Journal of net/statutes/repacts/ra2010/ra_10022_2010.html
Marriage and Family, 73(4), 763–787. https://doi.org/10.1111/j.1741- Republic Act No. 10801. An Act Governing the Operations and Administration
3737.2011.00844.x of the Overseas Workers Welfare Administration. https://www.
Haase, M., & Honerath, P. (2016, December). Return migration and officialgazette.gov.ph/2016/05/10/republic-act-no-10801/
reintegration policies: A primer. Integration Strategy Group, Deutsche Roldan, M. D .G. (2020). Reintegrating returning Overseas Filipino Workers
Gesellschaft für Zusammenarbeit – GIZ and German Marshall Fund through entrepreneurship. Paper presented in the DLSU Research
of the United States. https://www.giz.de/static/en/images/ Congress, Political Science Department, College of Liberal Arts, De La
contentimages_320x305px/Haase_ Honnerath-Return_migration_ Salle University. https://www.dlsu.edu.ph/wp-content/uploads/pdf/
primer_Dec16.pdf. conferences/research-congress-proceedings/2020/SEP-02.pdf
International Labour Organization (2022). Labor migration in the Philippines. Technical Education and Skills Development Authority (TESDA). (2022). OFWs
https://www.ilo.org/manila/areasofwork/labour-migration/lang-- remain among priority for TESDA training. https://www.tesda.gov.ph/
en/index.htm Media/NewsDetail/20154
International Labour Organization (2019). Effective return and reintegration of Technical Education and Skills Development Authority (TESDA). (n.d.). TESDA
migrant workers with special focus on ASEAN member states. https:// Abot OFW - Free Skills Training Program for Returning OFW. http://
www.ilo.org/wcmsp5/groups/public/---asia/---ro-bangkok/---sro- tesdatrainingcourses.com/tesda-abot-ofw-project-free-skills-
bangkok/documents/publication/wcms_733917.pdf training-program-for-returning-ofw.html
International Labour Organization (2015, May 11). Return and reintegration to United Nations. (2020). United Nations Network on Migration in the
the Philippines. Public Service International. https://www.ilo.org/ Philippines. https://migrationnetwork.un.org/sites/g/files/
dyn/migpractice/docs/294/Return.pdf tmzbdl416/files/docs/philippines_network_terms_of_reference.pdf
Inquirer.net (2020, December 19). OFWs are heroes of PH economy. Philippine United Nations. (2021, January 15). International Migration 2020 Highlights.
Daily Inquirer Opinion. https://opinion.inquirer.net/125993/ofws-are- Department of Economic and Social Affairs. https://www.un.org/en/
heroes-of-ph-economy desa/international-migration-2020-highlights
Kang, J. W., & Latoja, M. C., (2022). COVID-19 and overseas Filipino workers: Wynn, B. O., Dutta, A., & Nelson, M. I. (2005). A conceptual framework for
Return migration and reintegration into the home country. https:// evaluating health projects in developing countries. Challenges in
www.adb.org/sites/default/files/publication/767846/sewp-021- program evaluation of health interventions in developing countries
covid-19-ofws-return-migration-reintegration.pdf (1st ed.) (pp. 13–24). RAND Corporation. http://www.jstor.org/
Mapa, C. D. S. (2020, June 4). Total number of OFWs estimated at 2.2 million. stable/10.7249/mg402hlth.10
https://psa.gov.ph/statistics/survey/labor-and-employment/survey-
overseas-filipinos
National Reintegration Center for OFWs. (n.d.). Balik-Pinay, Balik-Hanapbuhay
Program. https://nrco.owwa.gov.ph/index.php/programs-and-
services/balik-pinay-balik-hanapbuhay-program

12