Evaluation of The Philippine Expanded Senior Citizens Act (RA 9994) On Mandated Privileges For The Elderly

EUROPEAN ACADEMIC RESEARCH
Vol. VI, Issue 10/ January 2019
Impact Factor: 3.4546 (UIF)

ISSN 2286-4822 DRJI Value: 5.9 (B+)
www.euacademic.org
Evaluation of the Philippine Expanded Senior

Citizens Act (RA 9994) on Mandated Privileges for
the Elderly
APRIL KYLE A. INABANGAN1

Instructor, College of Nursing, Cebu Normal University
Cebu City, Philippines
LAURENCE L. GARCIA2
Associate Professor, College of Nursing, Cebu Normal University
Cebu City, Philippines
FERDINAND T. ABOCEJO3
Associate Professor, Graduate School
Eastern Visayas State University
Tacloban City, Philippines
Abstract
This study examined how the Philippine government
implemented Republic Act 9994 known as the “Expanded Senior
Citizen’s Act” of 2010. It evaluated the compliance of concerned
establishments on selected privileges accrued to Filipino senior
citizens. We employed the Provus discrepancy model (PDM) in the
evaluation and analysis of gathered data. Thirty senior citizens from
Cebu City, Philippines were identified as respondents and twenty
establishments were surveyed. A content-validated semi-structured
interview guide was used to gather the needed data from both groups.
1
April Kyle A. Inabangan is a faculty member of the College of Nursing, Cebu Normal University (CNU), Cebu
City, Philippines. She is a duly licensed and a professional nurse who currently teaches in the undergraduate level.
Her recent publication and conducted researchers are focused on the different aspects of gerontology nursing.
2
Laurence L. Garcia is a faculty member of the College of Nursing, Cebu Normal University (CNU), Cebu City,
Philippines. His works centred on mental health and care of the older persons. His focus is on understanding human
behaviour throughout life, inspired by his exposure to people of different ages from his childhood to the present.
Currently, he is the Director of the Centre for Research and Development (CRD) and the Research Institute for
Ageing and Health (RIAH).
3
Ferdinand T. Abocejo is an Associate Professor of Eastern Visayas State University (EVSU) in Tacloban City,
Leyte, Philippines. He is a social science researcher with published researches encompassing public policy,
economics, statistics, health, tourism and political science. His most recent publication (in a Scopus indexed
journal) as a co-author, focused on disaster-related resiliency among older adult typhoon Haiyan survivors.
Prof. Abocejo is the corresponding author for this research article submission.
Email: [email protected]
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April Kyle A. Inabangan, Laurence L. Garcia, Ferdinand T. Abocejo- Evaluation of
the Philippine Expanded Senior Citizens Act (RA 9994) on Mandated
Privileges for the Elderly
Findings revealed discrepancy along the process of policy

dissemination and implementation, notably among hospitals, grocery
stores and in the transport sector. Documents such as administrative
orders (AOs) and memorandum circulars furnished to concerned
government agencies were not effectively disseminated to the elderly
senior citizens as intended beneficiaries of RA 9994. Even if concerned
establishments were compliant in giving the mandated discounts,
Filipino values and cultural background such as jackpot mentality
and shyness among senior citizens casted shadows in the
implementation of the law. The implementing establishments like
pharmacies and restaurants enjoyed the value added tax (VAT)
exemptions upon compliance to the law, while no benefit was afforded
for compliant hospitals, grocery stores and those in the transport
sector. Still, crucial issues concerning implementation of the law
persist until the present. In conclusion, the implementation of the RA
9994 was effective at the establishments’ level with no discrepancy
between mandated and provided benefits to senior citizens. However,
there is no clear provision in the law which is silent about the
derivable benefits accrued to establishment implementers particularly
among public utility jeepneys and taxicab drivers.
Key words: Senior citizens, senior citizen, Republic Act 9994, 20

percent discount privilege, 5 percent VAT exemption, Provus
discrepancy model
1: INTRODUCTION
The burgeoning of ageing population can no longer be taken for

granted (United Nations Population Fund, 2012). As total
population expands, the elderly population also increases. Older
persons’ population in 2050 is projected to double the current
population (United Nations, 2013). The same scenario could be
foreseen in the Philippines where any person who reaches 60
years old is considered a senior citizen. The ageing population
poses crucial challenges to individuals, families and the global
community in the social, economic and cultural perspectives
EUROPEAN ACADEMIC RESEARCH - Vol. VI, Issue 10 / January 2019
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(United Nations Population Fund, 2012). With the challenges

faced by the elderly, the Philippine government implemented
laws to help senior citizens (Philippines Statistics Authority,
2012; Garcia, 2013). However, several issues abound concerning
the implementation of the law. Less privileged individuals are
more prone to discrimination whose access to social resources
are limited with large variations among social groups (Abocejo
and Gubalane, 2013; Almazan et al., 2018; Abocejo et al., 2012).
In 2010, the Philippine government amended Republic Act (RA)
No. 7432 to RA 9994 or the Expanded Senior Citizens Act of
2010 (Government of the Philippines [GOP-RA 9994], 2010). RA
9994 aims to provide more benefits to the elderly and deliver
full support to their well-being as integral members of
Philippine society. These benefits include discounts in
medicines, ailment treatments, professional fees, basic
commodities, among others. Philippines is one of the 21
countries worldwide that have implemented age-specific
policies and one of the 12 countries which passed national laws
concerning the elderly (United Nations Population Fund, 2012,
Philippine Statistics Authority, 2012). In spite of the aim to
provide benefits to the elderly, issues concerning their benefits
still abound.
The RA 9994 was enacted to further assist the elderly
and provide them more benefits and privileges. This is not only
limited to discounts but also freebies solely for the senior
citizens where purchases of maintenance and over-the-counter
medications entitled them to 20 percent discount and VAT
exemption. Same benefit can be availed for purchases of
vaccines, essential medical supplies, accessories and equipment
(GOP-RA 9994, 2010). The 20 percent discount is also applied
for medical services transacted in private hospitals for
diagnostic and laboratory fees, attending physician’s
professional fees and other health related services. Out-patient
elderly citizens can take advantage of the discount provided by

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private hospitals and health service care providers (Garcia,

2018)
Transportation is also covered by 20 percent discount
which includes public utility jeepneys (Arnado, Gogo and
Abocejo, 2017), public utility vehicles, taxicabs, domestic sea
fare and domestic air fare. The elderly can also avail of 20
percent discount in restaurants, hotels, recreational centres
and places of leisure (GOP-RA 9994, 2010). Besides, an elderly
can avail of five percent discount on basic necessities, prime
commodities and discount in their monthly water and
electricity bills given that they are supplied by public utilities
and they qualify to the criteria set under RA 9994 (Garcia,
2013).
In this study, we evaluated the implementation of the
RA 9994 by assessing the implementation of the law in view of
the selected privileges afforded to senior citizens following the
Provus discrepancy model [PDM] (Provus, as cited in Lindahl
and Beach, 2013). We argued that implementation of the law
(RA 9994) brings about positive and favourable changes in the
quality of life of Filipinos whom the government commits to
provide optimum access to resources in their late stage of life.
1.1: Study Objectives

The study evaluated the implementation of the Expanded
Senior Citizen Act of 2010 (RA 9994) on selected privileges of
senior citizen following the Provus discrepancy model (PDM). It
also investigated the extent of compliance of establishments,
assessed policy dissemination, benefits and discrepancies on the
mandates of RA 9994.
2: REVIEW OF LITERATURE
Many senior citizens are not fully aware of the discount

provisions as well as the VAT exemption in pharmaceutical

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products (Salenga, Loquias, and Sarol, 2016). It is noted that 75

percent of surveyed drug outlets claimed to have provided the
mandated discount provision while half claimed to have
provided the 12 percent VAT exemption (Salenga et al., 2016).
Problems in the implementation were experienced when elderly
citizens were not able to take advantage of the law because of
their lack of awareness (Haber, Lobiondo-Wood, 2002) or
noncompliance of drug outlets (Government of the Philippines-
Implementing Rules and Regulation of RA 9994 [GOP-IRR of
RA 9994], 2010; Alvarez, Ong, and Abocejo, 2017).
As stipulated, RA 9994 provides more benefits and
privileges to senior citizens affording them benefits such as 20
percent discount and VAT exemption on purchases of
medicines, vaccines, essential medical supplies, accessories and
equipment as determined by the Department of Health (GOP-
IRR of RA 9994). The law applies to physician’s professional
fees and services which can be availed in private hospitals
including laboratory, diagnostic, medical and dental services,
out-patient check-up fee and home health care services (GOP-
RA 9994, 2010). The law also covers the transportation sector,
specifically for domestic air, sea and land fares. It also include
discount for leisure activities such as hotel accommodations,
admission fees in theatres, cinema houses, among others (GOP-
RA 9994, 2010).
In restaurants, meals for the senior citizens are
discounted separately, if ordered with other meals for the
family (Alvarez et al., 2017). If all people sharing the meal can
present their senior citizen card, 20 percent discount and VAT
exemption will be applied to the total bill (GOP-RA 9994, 2010;
Alvarez et al., 2017). An elderly citizen can also avail of the five
percent discount on water and electricity bills if he/she qualifies
in the criteria set under the law. These criteria include: (1)
electric consumption should not be more than 100 kilowatt per
hour; (2) water consumption should not be more than 30 cubic

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meter; and (3) five percent discount applies regardless of the

number of elderly citizens in the household (GOP-RA 9994,
2010).
They can also avail the same discount for prime
commodities and basic necessities determined by the
Department of Trade and Industry (DTI) and the Department
of Agriculture (DA) in accordance with the RA 7581 or the Price
Act (Department of Trade and Industry, 2010). These basic
necessities include fresh and canned marine products, fruits,
vegetables and all drugs not classified as essential drugs.
RA 9994 likewise stipulates that senior citizen centres,
residential/group homes and other institutional supports can be
provided with 20 percent discount in their utilities (electricity,
water and telephone consumption). Financially, elderly citizens
can also avail of the five hundred pesos (Php500.00) monthly
pension if considered indigent (Department of Social Welfare
and Development [DSWD], 2010). However, a PhP2,000.00
death assistance is given to the nearest surviving relative who
cared for the deceased elderly (GOP-RA 9994, 2010).
Accordingly, the PDM was utilized in Gwynne-Atwater’s
dissertation (2011) to evaluate a professional development
program (PDP) and check if such implementation was
consistent with the program’s design. In her dissertation, the
PDM was able to provide significant findings that proved to be
useful in enhancing the offered program. Meanwhile, Sampong
(2009) employed the PDM to compare the performance of
distance teacher education program against the program’s
design standard. Using random sampling, Sampong (2009)
utilised two survey instruments administered to students and
faculty/administrators. Although there were discrepancies
noted in the study, public teachers in Ghana assigned in K-8
schools improved their professional and academic performance.
In so doing, the PDM helped Sampong (2009) to further
improve the evaluated program. Sampong (2010) affirmed that

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using the model, she was able to identify the discrepancy and
derived solutions from it. Aside from the good points, critics
(Barrett, 1998; Steinmetz, 2002; Ambida and Cruz, 2017) found
out disadvantages of the model. They pointed out some
shortcomings or failures noted on the process of using the
evaluation model.
2.1: Theoretical-Conceptual
Framework
The Provus discrepancy model
(PDM), was first advocated by
Provus (as cited in Lindahl and
Beach, 2013). The PDM is
employed in this study to
evaluate how RA 9994 was Figure 1. Theoretical-Conceptual Framework
of the Study
implemented. This model has
been widely applied and proven
effective in evaluating programs. PDM has the ability to
identify weaknesses from the discrepancy present after
comparing the current program and the standards (Kellaghan,
Madaus, Stufflebeam, 2002). The PDM was also used as basis
if there is a need to modify, continue or terminate the program.
Provus (as cited in Lindahl and Beach, 2013) stressed that
discrepancies are an essential clue in program evaluation.
There are five (5) evaluation stages in PDM; namely, “design
criteria, installation fidelity, process adjustment, products
assessment and cost benefit” (Provus, as cited in Lindahl and
Beach, 2013).
Applying PDM in this study (Figure 1), selected
privileges of the RA 9994 were analysed based on the four (4)
stages of PDM. Initially, policy dissemination serves as the
design stage of the evaluation study on RA 9994 where it is
expected that, prior to the implementation of the law on the
selected privileges for elderly citizens, mass dissemination of

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information were undertaken to promote awareness among the

elderly about their welfare and benefits. These privileges
include 20 percent discount, VAT exemption in restaurants and
pharmacies, 20 percent discount in hospitals and
transportation, and five percent discount in grocery stores
(GOP-RA 9994, 2010).
The second stage of PDM is equated with the policy
implementation phase in this study where actual
implementation practices were investigated based on the
mandates of the law. The third and fourth stages of the PDM
are taken together as represented by the policy, benefits and
disadvantages (Provus, as cited in Lindahl and Beach, 2013).
Pros and cons were considered from both the consumers (senior
citizens) and the provider (establishments).
3: RESEARCH METHODOLOGY
The study utilized evaluative research design and implemented

in Cebu City, Philippines. Thirty (30) senior citizen respondents
were identified while 20 establishments were surveyed using
purposive sampling. The inclusion criteria in selecting senior
citizens were as follow: (1) a senior citizen card provided by the
Office of Senior Citizen Affairs (OSCA); and (2) availed of senior
citizen discount regardless of establishment (OSCA, 2017).
The study used a semi-structured interview guide.
Voluntary consent to participate in the study was ensured.
Transmittal letters were provided to establishments to gain
access of the data related to the benefits and services provided
to the elderly in Cebu City, Philippines. All generated
responses were verified and validated. Data were analysed
using the PDM. Data pertaining to stages 1-4 were gathered
except for stage 5 which not included because the study only
focused on the implementation of RA 9994 without delving into
cost benefit analysis.

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4: RESULTS AND DISCUSSION
4.1: Policy Dissemination

Upon enactment of RA 9994, it was officially published in
national daily newspapers. The concerned government
departments issued circulars and directives to concerned
establishments and companies within 30 days from the
affectivity of RA 9994 for implementation and compliance. The
concerned establishments received the various administrative
orders and memoranda emanating from respective government
agency head offices. With the dissemination of the law as
amended, all establishments which applied for business were
automatically required to give discounts to elderly citizens.
Memorandum Circular number 23, series of 1994,
provided by the Bureau of Food and Drug (BFAD) was
distributed to pharmacies and posted by concerned
establishments to guide senior citizens of their privileges on
discounted purchases of goods and services (Bureau of Food and
Drug, 1994). Meanwhile, grocery stores provide the discounts
based on what is mentioned in the purchase booklets jointly
determined by the DTI and DA through joint Administrative
Order no. 10-02 series of 2010.
Hospitals were notified of elderly discounts through
Administrative Order number 2012-0007 (DOH, 2012) and
Memorandum Circular No. 056-2012 provided by the Philippine
Health Insurance Corporation (PhilHealth, 2012). For
Restaurants, they were provided with Revenue Regulations no.
7-2010 and Revenue Memorandum Circular no. 38-2012
(Bureau of Internal Revenue, 2012)
For transportation, Department of Transportation and
Communication (DOTC) provided Memorandum Circular No.
2010-07 in reference of actual transportation fare (National
Council on Disability Affairs, 2011). Land Transportation
Franchising and Regulatory Board (LTFRB) also provided

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Memorandum Circular No. 2009-010 (LTFRB, 2009). A

discrepancy was noted in the transport sector, specifically
among taxicabs. In an interview with taxicab drivers, they
confirmed to know about the 20 percent discount for senior
citizens through the AM frequency radio broadcasts and upon
compulsory attendance to seminar when caught for driving
violation. They also revealed that no seminar was conducted
about the discount privilege for the elderly when applying to be
a taxicab driver. Neither, they received any memorandum from
the Land Transportation Office (LTO) nor from the LTFRB.
Their taxicab operators also never mentioned to them about
senior citizen discount privileges.
Evidently, there was lack of information advocacy in the
transport sector and the memorandum order was not properly
disseminated. The memorandum order did not reach the
intended recipient who were responsible in providing the
discounts to senior citizens. Fortunately, other subsectors in
transportation (shipping lines and airlines) were aware of the
discount accrued to the elderly. PUJ drivers, on the other hand,
were provided with fare matrix from the Land Transportation
Office.
For the elderly, they knew their benefits and privileges
through senior citizen identification card (ID), purchase
booklets, word of mouth and sometimes through the radio,
newspapers and news programs. They also mentioned that
there was no seminar provided about their benefits and
privileges when they claimed their identification card issued by
the OSCA. This is an indication that senior citizens are not
fully aware of the benefits they are entitled to. This was noted
during the interviews when some elderly got amazed to know
the full list of benefits accrued to them.
A notable discrepancy in policy dissemination of RA
9994 concerns the purchase booklets. Interviewed senior
citizens affirmed that they did not have a purchase booklets

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because they were asked to pay PhP100.00, in a way hindering

full advantage for those who have not acquired the booklets.
Verifications with the OSCA revealed that such allegation was
not true and purchase booklets are free of charge. The office
mentioned that they only need to present their senior citizen ID
to be given a purchase booklet. Operationally, many senior
citizens have no proper knowledge due to lack of information
dissemination. They were not properly informed that they
would need to present their senior citizen ID at the OSCA to get
the purchase booklet for free.
4.2: Policy Implementation

Senior citizens in the Philippines are entitled to some benefits
and privileges. They can enjoy these privileges as long as they
comply with the requirements mandated by the law. Table 1
shows the actual discounts afforded to the senior citizens by the
establishments under study and their discrepancy. The
numbers shown in the table is the average of the 5
establishments surveyed by category.
This discount will only be provided if the requirements
are complete based on the Memo Circular No. 23, series of 1994
as provided by the Bureau of Food and Drug (BFAD) of the
Department of Health (Bureau of Food and Drug, 1994). These
requirements are purchase booklet, senior citizen ID and the
prescription with the date, name, address and age of the
elderly, generic name of the medicine, dosage form and
strength, quantity, name of the prescribing doctor with license,
professional tax receipt number and narcotic license number if
applicable. Only prescriptions which comply fully with the
Generics Law (Dantes, 1991) are honoured.

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Table 1: Actual senior citizens’ discount and discrepancy by

establishments’ category
Standard
Standard Discount VAT
VAT Discrepancy
Establishment Discount Provided Exemption
Exemption (%)
(%) (%) (%)
(%)
Pharmacy duty upon

20 20 12 12 0
survey
Restaurant manages 20 20 12 12 0
Hospital lab info desk 20 20 - - 0
Grocery Store manager 5 5 - - 0
Transportation, Taxicab &

jeepney, Ticket agent, 20 20 - - 0
Shipping line
All pharmacies gave 20 percent discount to senior citizens on

the purchases of medicines and other medical supplies. A
twelve percent VAT exemption for the selling establishments
was also provided on senior citizens’ purchases. Majority of
pharmacies complied and provided a total of 32 percent
discount to senior citizens as mandated by RA 9994, Rule IV
article 7 section 1 (paragraph A). There was no discrepancy in
terms of the 20 percent discount and VAT exemption. All senior
citizens are ensured to save substantial proportion of their
budget with 32 percent discounts, a considerable assistance in
lowering their expenditures.
If a senior citizen is not able to purchase the medicines
by themselves, authorization letter with valid ID of the
representative needs to be provided. Any missing requirement
disqualifies that granting of the discount. It was also mentioned
in the memorandum order which if the elderly can’t afford the
consultation fee of a private practitioner physician, he/she can
visit a government health centre and get a prescription for free.
There is no limit as to the amount of the medicine purchase.
However, medicine supply good for one month will only be
provided by the pharmacies. This means that the elderly needs

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to visit the pharmacy again once the month-long supply of

medicines has been consumed.
Purchases are documented in the pharmacy’s logbook
where the name of the senior citizen, total amount purchased,
discount, senior citizen ID number and signature of the elderly
or the representative are reflected. In the case of the elderly,
their purchases are recorded on their purchase booklets.
Majority of the pharmacies have a special lane or a counter
designed to give priority to senior citizens thereby make their
transactions faster without queuing with younger customers.
The lane also caters to person with disabilities (PWD) and
pregnant women.
A discrepancy was noted in the policy implementation
where the elderly claimed to have experienced being provided
with the mandated discount but with increased price on the
purchased medicines. Verifications conducted with the
pharmacy establishments revealed that the medicines were
already discounted and senior citizens availed the 20 percent
discount and VAT exemption from the original price.
Pharmacies also placed a printed copies of the policy along their
customer counters for everyone to see, read and comply.
Notwithstanding affirmation by the Department of
Trade and Industry (DTI) that double discount is not allowed,
some elderly still get confused. No clear information is evident
per DTI Administrative Order released to the pharmacies. Of
the five surveyed pharmacy establishments, only one has a copy
of Administrative Order. Disseminating clear information
would lessen or most probably clear such confusion regarding
this issue. Appropriately addressing this concern will not only
ensure full implementation of the law but also confirmed
harmonious and proper implementation (GOP-IRR of RA 9994,
2010).
All restaurants complied with Republic Act 9994
specifically in Rule IV article 7, section 3 (paragraphs b, c, d e,

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f, g and h) and provided both 20 percent discount and VAT

exemption. A total of 32 percent discount is given to senior
citizen by pharmacies. There is no discrepancy both in standard
discount and VAT exemption. Discount and VAT exemption are
reflected in their receipts. Upon verification, all elderly
respondents confirmed that their senior citizen IDs were
honoured. They also added that they were able to avail of the
full 32 percent discount.
In quick service restaurant or commonly known as fast
food, the establishments complied with article 7, section 3
(paragraph e) that the meal of the senior citizen is charged
separately independent from his/her non-senior citizen
companions. Only the meal of the elderly is discounted. Senior
citizens easily avail of the discount and find it very convenient,
they just need to present their senior citizen ID to avail of the
mandated discount. In hospitals, every admitted elderly
benefits from the 20 percent discount on laboratory and
diagnostic exams, medical services, medicines and professional
fees of their attending physicians. No discrepancy was noted
among hospitals which were compliant to the mandated senior
citizens discount provision. The elderly affirmed convenient
processes afforded to them in hospitals and other health service
delivery establishments.
Meanwhile, if the elderly is with the family or any
group, the total bill is divided to the number of diners and the
32 percent discount will be applied to the quotient. When diners
are elderly, they just have to present their senior citizen IDs
and total bill will be entitled to a 20 percent discount and
exemption from VAT or a total of 32 percent discount.
Children’s meal, bulk orders or party packages are not
discounted.
Moreover, some restaurants give the elderly discount
even if they don’t have their senior citizen ID with them as long
as they can present any government-issued ID with their birth

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date. Meanwhile, grocery stores give five percent discount on

regular retail price of basic necessities and prime commodities
but no exemption is given on the value added tax (Table 1). No
discrepancy occurred among grocery establishments since they
complied with the law specifically on Rule III article 5 of RA
9994 and with Joint DTI-DA Administrative Order no. 1`0-02
series of 2010 Section 3 (Department of Trade and Industry,
2010).
Pharmacies and grocery stores require the elderly to
bring their purchase booklets and senior citizen ID to avail of
the discount on basic necessities and prime commodities. If an
elderly is unable to purchase by himself/herself, a
representative can do the purchase by just presenting an
authorization letter and a government-issued ID in accordance
with Joint DTI-DA Administrative Order no. 10-02 series of
2010 section 9 (Department of Trade and Industry, 2010). When
one of the requirements is missing, no discount can be afforded.
The grocery stores clarified that the allowable amount to be
discounted from elderly purchases should not exceed
PhP1,300.00 per calendar week without carry-over of the
unused amount. This is also reflected in their purchase booklets
based on Joint DTI-DA Administrative Order no. 10-02 series of
2010 section 3 (Department of Trade and Industry, 2010).
Purchased items are logged in their purchase booklets and
reflected in the official receipt. Special lanes are provided in
many establishments as discount counters to make transactions
faster and convenient for the elderly. Counter computers are
also specifically programmed to provide the discounts.
However, the discount on grocery stores was not smooth
sailing from the elderly’s perspective. Many of them consider
the process a hassle and prefer not to avail anymore.
Interviewed elderly, especially those without regular income
feel shy to ask for the discount of their small quantity
purchases. Rough Guides (2015) noted that one characteristic of

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Filipino society is “shyness”, as respondent said: “I am

purchasing a few items only. I’m shy to ask for discount”. Those
without regular income are the ones who feel shy in availing of
the discount. Senior citizens also don’t ask for discounts to
maintain good rapport and avoid conflict.
Filipino values and cultural background somehow affect
the full implementation of the law. Three issues were noted
during the interviews: jackpot mentality; helpfulness; and
shyness. Jackpot mentality is defined as the “get rich quick”
mentality of some Filipinos who prefer to engage in easy ways
of getting money (Quizlet, 2015). This concept is akin to some
Filipinos who prefer the easy way to get purchase discount the
fastest way possible. From the interview, one respondent said
that “asking for discounts is such a hassle because of the
requirements needed. It takes too much time waiting for others
to be given their discount. I rather go to other fast lane counter
without discount”. Arguably, the process of getting the discount
is easy than what some elderly complained about. Yet, some
senior citizens consider the process a hassle so they prefer not
to avail. In some cases, they don’t avail the discount because
they only use their senior citizen ID to get financial assistance.
On the transportation services, there is no discrepancy with the
mandated discount since shipping and air lines are complaint,
specifically to Rule IV article 7 Section 2 [a and b] of RA 9994
(GOP-RA 9994, 2010). Senior citizens are just required to
present their senior citizen ID to avail of the discount. Those
who experienced travelling by air and sea were to avail of the
full 20 percent discount on their base fares. It was very
convenient since they only need to present their senior citizen
ID. Flights which are on promotion are not entitled for the
senior citizens’ discount.
Taxicab drivers confirmed that they give discount only if
the elderly asks for it. Otherwise, they don’t initiate to give the
discount. This is one discrepancy in the implementation process

6127
of RA 9994. Taxicab drivers justify that the discount is inherent

to their income since taxicab operators do not reimburse them
on the provided discounts. Some senior citizens are also not
aware that they can avail fare discount when riding a taxicab.
The value of altruism and being helpful are strongly inculcated
among elderly Filipinos. In many cases, senior citizens don’t
anymore ask for discounts to help the common people,
especially jeepney and taxicab drivers. One respondent said
that “It’s just a few pesos anyway, I’ll just give it to them”. They
are convinced that a peso is already a big help for taxicab
drivers.
4.2: Policy Benefits and Disadvantages

Senior citizen affirmed that the discount is really a big help in
lessening their expenses in buying medicines whose prices are
too expensive. Yet, they pointed out that the process of
acquiring discount is a hassle and take too much time.
One taxicab driver reasoned: “It’s okay to have 3 to 5
passengers a day but if it exceeds, it’s a loss on our side”.
Practically, taxicab drivers provide the discount taken away
from their earnings and when they have plenty of senior citizen
passengers a day, their income are substantially cut back.
Another taxicab driver said: “We pay for the full car rent. It
would have been better if taxicab operators also reduce the car
rent whenever we give discounts but this is happening”. This
shows that the taxicab drivers don’t really get any benefit from
giving discounts to their elderly passengers. Taxicab owners
and operators don’t share the expenses incurred in providing
discount fares to the elderly.
Establishments’ respondents noted that they were not
aware how the provision of senior citizen discount benefit their
company, they only mentioned that providing discounts to the
elderly attracted more customers, in return, higher sales and
eventually higher income. A pharmacy respondent noted that

6128
representative from the DTI checked its company logbook

randomly he is not aware of the entire process. Some
establishment managers admitted that the discount they
provided to elderly citizens is subtracted from their taxable
income but they could not show the data due to confidentiality.
This was explained more in Revenue Memorandum
Circular No. 38-2012 (Bureau of Internal Revenue, 2012).
Establishments were mandated to keep a separate record of
sales where names of senior citizens (purchasers), OSCA ID,
gross sales receipts, sales discounts granted, dates of
transactions and invoice/OR number are documented. The
memorandum order also clarified that both the 20 percent
discount and VAT exemption are expense accounts absorbed by
the government.
4.9: Discrepancies
Of the three assessed areas, discrepancies were noted on policy
dissemination and policy implementation as reflected in Table
2. Senior citizens are not fully aware of their benefits and
privileges. They are also not aware how to avail some discounts
on specific goods and services. Another discrepancy is the lack
of information dissemination among taxicab drivers. Though
memoranda were distributed, these failed to reach the
concerned individual implementers of various establishments
who were supposed to give the mandated discounts to senior
citizens.
Table 2: Discrepancies in the assessed areas of RA 9994.

Areas Discrepancy
Policy  For transportation, taxicab drivers and operators did not receive
dissemination advice from LTFRB.
 Senior citizens did not have seminars on their welfare and benefits;
information was disseminated more by word of mouth.
Policy  Limitations of senior citizen’s availing discounts on the purchases
implementation of medicines due to the requirements of purchase booklets,
prescription and valid IDs
 One pharmacy increased the price of the medicine if senior citizen
discount is to be applied.

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 Senior citizen considered the process of acquiring discount a hassle.

 Personal decision of some senior citizens not availing the discount
to help other people.
Policy benefits  No clear benefits for taxicab drivers.
and
disadvantages
On policy implementation, Filipino values and cultural

considerations were noted. These are the reasons why some
elderly prefer not to avail of their discounts privileges believing
that not getting their discount could help others even in small
amount. As to policy benefits and disadvantages, the taxicab
drivers clamoured to loss a portion of their daily earnings when
providing discounts to the elderly. They took it from their own
income and their operators collect the full amount for the car
boundary rent for the day.
4.10: Policy recommendations

Intensive campaign and information ads about RA 9994
as a form of policy dissemination. The discrepancies noted
boil down to lack of information for both implementers and
beneficiaries. We suggest that a lectures about the senior
citizen discounts may be included during the job orientation of
establishment employees. This will educate frontline service
providers of business about the law. If employees are well
informed, there will be no confusions and discounts will be
afforded accordingly. Similarly, senior citizens should be
educated about the benefits they are entitled to. By rightfully
knowing the full benefits and privileges, no elderly can be
misled by establishments thereby encouraged to exert his/her
rights.
Hassle-free processes and transparency on policy

implementation. Uniform implementing rules and regulations
and hassle-free processes can be a concrete solution. Since
senior citizens can use their ID cards to avail of discounts

6130
anywhere in the Philippines, establishments must apply

uniform implementing rules and regulations of RA 9994. This
will bring a harmonised processes and the same requirements
for senior citizens to bring always with them especially those
who often travel. They will be ensured to avail of their discount
privileges. It is also recommended that transparency through
posting stickers or banners to inform the elderly how they can
avail discount from concerned establishments. In so doing, the
elderly can be reminded of their rights thereby lessen
complaints. Grocery stores may put price checkers not only the
price of the item but also the five percent discount for the
elderly citizens of items eligible for the discount.
Policy monitoring. There should be regular monitoring of the

implementation of RA 9994 from concerned regulatory boards
like, DTI, DOTC, LTFRB, among others. OSCA should also be
vigilant and aggressive in addressing concerns on non-
provisions of privileges to senior citizens as mandated by the
law. The regulatory boards should use uniform and standard
evaluation tool to ensure that the law is properly observed and
implemented. This will facilitate identification of
establishments which need improvements. An annual random
check have to be put in place to ensure implementing
establishments are consistent in providing the mandated
discounts.
Clear articulation of policy benefits for the implementers.

Lastly, clarify the benefits which are accrued to the
implementing establishments and individuals, in particular for
among PUJ and taxicab drivers since they are those who have
no derived benefits as compared to other establishments.
Drivers don’t have regular income and operationally loss part of
their earning upon provision of senior citizen discounts.

6131
5: CONCLUSION
Establishments are compliant with RA 9994 and provided

senior citizens with the mandated discounts in their purchases
of goods and services. Policy dissemination, implementation
and monitoring of concerned establishments are crucial to the
compliance and effectiveness of the law. Some discrepancies
occurred along policy implementation. Granted discounts on
purchases of goods and services were indeed beneficial to senior
citizens especially on highly priced medicines and other
commodities. However, procedural processes and required
transaction recordings were hassle to many senior citizens.
Limited awareness level among the elderly beneficiaries
downplayed the full benefits of RA 9994 implementation.
Pharmacies and restaurants have benefitted from the VAT
exemptions upon compliance to RA 9994. Taxicab drivers who
abide to give the discounted fare rates do not have concrete
returned benefits, a clear limitation of the policy implementing
rules and regulations. The full benefits of the law is not
optimized due to some implementation procedural processes
impediments, issues on transparency, regular product and
process monitoring and no clear benefits for PUJ and taxicab
implementers.
6: RECOMMENDATIONS FOR FUTURE RESEARCH
In this study, the conclusion reached has been limited due to

purposive sampling employed. In this regard, future researches
may be conducted increasing the sample size, assessing the
knowledge level about the RA 9994 and considering all
implementing establishments. Future studies may also
consider socio-economic and educational background of
identified respondents.

6132
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EUROPEAN ACADEMIC RESEARCH

Vol. VI, Issue 10/ January 2019

Impact Factor: 3.4546 (UIF)

Evaluation of the Philippine Expanded Senior

APRIL KYLE A. INABANGAN1

Findings revealed discrepancy along the process of policy

Key words: Senior citizens, senior citizen, Republic Act 9994, 20

The burgeoning of ageing population can no longer be taken for

(United Nations Population Fund, 2012). With the challenges

EUROPEAN ACADEMIC RESEARCH - Vol. VI, Issue 10 / January 2019

private hospitals and health service care providers (Garcia,

1.1: Study Objectives

Many senior citizens are not fully aware of the discount

EUROPEAN ACADEMIC RESEARCH - Vol. VI, Issue 10 / January 2019

products (Salenga, Loquias, and Sarol, 2016). It is noted that 75

EUROPEAN ACADEMIC RESEARCH - Vol. VI, Issue 10 / January 2019

meter; and (3) five percent discount applies regardless of the

EUROPEAN ACADEMIC RESEARCH - Vol. VI, Issue 10 / January 2019

EUROPEAN ACADEMIC RESEARCH - Vol. VI, Issue 10 / January 2019

information were undertaken to promote awareness among the

The study utilized evaluative research design and implemented

EUROPEAN ACADEMIC RESEARCH - Vol. VI, Issue 10 / January 2019

4: RESULTS AND DISCUSSION

4.1: Policy Dissemination

EUROPEAN ACADEMIC RESEARCH - Vol. VI, Issue 10 / January 2019

Memorandum Circular No. 2009-010 (LTFRB, 2009). A

EUROPEAN ACADEMIC RESEARCH - Vol. VI, Issue 10 / January 2019

because they were asked to pay PhP100.00, in a way hindering

4.2: Policy Implementation

EUROPEAN ACADEMIC RESEARCH - Vol. VI, Issue 10 / January 2019

Table 1: Actual senior citizens’ discount and discrepancy by

Pharmacy duty upon

Hospital lab info desk 20 20 - - 0

Grocery Store manager 5 5 - - 0

Transportation, Taxicab &

All pharmacies gave 20 percent discount to senior citizens on

EUROPEAN ACADEMIC RESEARCH - Vol. VI, Issue 10 / January 2019

to visit the pharmacy again once the month-long supply of

EUROPEAN ACADEMIC RESEARCH - Vol. VI, Issue 10 / January 2019

f, g and h) and provided both 20 percent discount and VAT

EUROPEAN ACADEMIC RESEARCH - Vol. VI, Issue 10 / January 2019

date. Meanwhile, grocery stores give five percent discount on

EUROPEAN ACADEMIC RESEARCH - Vol. VI, Issue 10 / January 2019

Filipino society is “shyness”, as respondent said: “I am

EUROPEAN ACADEMIC RESEARCH - Vol. VI, Issue 10 / January 2019

of RA 9994. Taxicab drivers justify that the discount is inherent

4.2: Policy Benefits and Disadvantages

EUROPEAN ACADEMIC RESEARCH - Vol. VI, Issue 10 / January 2019

representative from the DTI checked its company logbook

Table 2: Discrepancies in the assessed areas of RA 9994.

EUROPEAN ACADEMIC RESEARCH - Vol. VI, Issue 10 / January 2019

 Senior citizen considered the process of acquiring discount a hassle.

On policy implementation, Filipino values and cultural

4.10: Policy recommendations

Hassle-free processes and transparency on policy

EUROPEAN ACADEMIC RESEARCH - Vol. VI, Issue 10 / January 2019

anywhere in the Philippines, establishments must apply

Policy monitoring. There should be regular monitoring of the

Clear articulation of policy benefits for the implementers.