Zuellig Family Foundation (ZFF)’s Executive Dialogue with Baguio City highlights how the city’s health system transformation is creating new opportunities to strengthen primary health care, deepen partnerships, and improve access for every community.

Photo above: Baguio City Mayor Benjamin Magalong personally thanks ZFF Chairman Dr. Manuel Dayrit for his guidance, which helped transform the city’s frustrations into renewed motivation for its UHC journey.

“What we discovered today is that Baguio City has experienced massive organizational growth in just a few years. There has been growth in the budget, growth in human resources for health, and growth in population access to health services and the capacity of District Health Centers to provide care. What this tells me is that while your organization and capacity are growing, you are also uncovering more needs. As the Mayor said, ‘Hindi pa natin naaabot lahat.’ You are growing and increasing your budget, but as you grow, you continue to uncover more needs. Umaangat nang umaangat ang accomplishment ninyo, but the bar keeps getting higher.”

This was the central message of Dr. Manuel Dayrit, ZFF Chairman, during the Executive Dialogue with Baguio City officials as they reflected on the city’s continuing journey toward Universal Health Care (UHC).

Despite these remarkable gains, city officials acknowledged that many families living in pockets of poverty continue to face barriers in accessing quality health care. The discussion reflected both the accomplishments and the persistent challenges of local leaders committed to making UHC a reality.

Related articles:

• The Universal Health Care Journey in Benguet and Baguio: Celebrating Gains, Navigating Hurdles
• Mayor Magalong Completes ‘Deep Dive’ to Assess Baguio Health System

The Challenge of Translating Policy into Impact

Baguio City Mayor Benjamin Magalong observed that while national health reforms have expanded policy guarantees and strengthened people’s entitlement to health services, these commitments have also raised public expectations. Local governments, however, often face the challenge of translating national policies into tangible improvements on the ground, where implementation requires time, resources, and sustained collaboration. As a result, communities may become frustrated when the benefits envisioned by policy are not immediately realized.

Echoing the Mayor’s observations, City Councilor Hon. Elmer Datuin shared his experience in facilitating guarantee letters for indigent patients seeking access to health services. While the city has continuously worked to bridge health inequities through local legislation and financial assistance, he acknowledged that reaching every marginalized family remains a challenge.

He also noted Baguio City’s legislative gains in advancing public health, including ordinances supporting non-communicable disease (NCD) prevention through alcohol and liquor regulation, anti-smoking and anti-vaping measures, and the city’s ongoing efforts to strengthen healthy procurement systems.

PhilHealth’s Perspective: Financial Protection and Its Limits

Offering the perspective of the Philippine Health Insurance Corporation (PhilHealth), Dr. Glenn Lamsis acknowledged the frustration expressed by Baguio City leaders over the continuing challenge of reaching the city’s most marginalized communities. He recognized that despite the collective efforts of national agencies and the local government, some families continue to face barriers in accessing the health services they need.

Dr. Lamsis explained that PhilHealth’s primary role in UHC is to provide financial risk protection by reducing the financial burden of seeking health care. While financial risk protection is essential, he noted that it cannot, by itself, address the broader challenge of poverty.

He said, however, that PhilHealth continues to strengthen its benefit packages to narrow existing gaps. From initially covering 21 medicines, PhilHealth has expanded its formulary to 75 medicines, enabling more patients to receive medicines for many common illnesses at no cost. While not every medicine is included, medicines covered under the approved benefit package are provided free to eligible members.

Recognizing that UHC is a shared responsibility, Dr. Lamsis reaffirmed PhilHealth’s commitment to supporting Baguio City through technical assistance and by reimbursing eligible services within existing policy guidelines as the city continues to strengthen its local health system.

Rethinking Progress: From Frustration to Motivation

Photo above: Dr. Dayrit huddles with Baguio City Health Officer Dr. Celia Flor Brillantes to map out actionable next steps for strengthening primary care and expanding partnerships across Baguio’s health system.

Building on these perspectives, Dr. Dayrit explained that the relationship between national policies and local implementation often produces both intended and unintended effects. 

While UHC reforms are designed to expand access to individual health services, one unintended effect is that local governments devote considerable time and resources to meeting implementation requirements, leaving less capacity for community-based health promotion and disease prevention.

Rather than waiting for policies to evolve, he encouraged Baguio City to continue innovating, thinking beyond conventional approaches, and co-creating solutions with partners who share the same vision for healthier communities. 

“The best way forward is to think outside the box. Work with others who share the same goal of improving people’s health.” 

While the dialogue covered operational updates and implementation challenges, its defining moment came when Dr. Dayrit reframed the city’s frustrations as evidence of progress.

Dr. Dayrit emphasized that Baguio’s frustrations should not be viewed as signs of failure, but as evidence that its health system is maturing. As services expand, expectations naturally rise, hidden gaps become more visible, and the standard for success continues to move higher.

The familiar Filipino expression, “Malayo na, pero malayo pa,” is often heard in conversations about UHC. While it reminds us that much work remains, it can also overshadow the remarkable progress that has already been achieved. Dr. Dayrit challenged the city to embrace both realities—to celebrate its gains while remaining committed to continuous improvement.

Mayor Magalong welcomed this perspective, sharing that the discussion transformed his frustration into renewed motivation. “When we create solutions to one problem, new problems emerge. It is a continuous process that requires us to keep innovating. It is our responsibility to continue finding solutions. And, of course, our greatest virtue here is always patience.”

A Collaborative Platform for Reflection and Action

The Executive Dialogue was held on July 3, 2026, in Baguio City as part of  ZFF’s Bayang Malusog Leadership and Governance Program (BMLGP). It brought together members of the Local Health Board headed by Mayor Magalong and co-chaired by City Health Officer Dr. Celia Flor Brillantes, alongside representatives from the Department of Health-Center for Health Development Cordillera Administrative Region (DOH-CHD CAR) led by Regional Director Dr. Amelita Pangilinan, PhilHealth represented by Dr. Glenn Lamsis, and ZFF headed by Dr. Dayrit.

Rather than simply reporting accomplishments, the Executive Dialogue created a space for national and local leaders to reflect on Baguio City’s UHC journey, openly discuss implementation challenges, and identify collaborative strategies for further strengthening the city’s health system.

In his closing message, Mayor Magalong appealed to DOH and PhilHealth to continue listening to the experiences and insights of local government implementers, emphasizing that the realities on the ground provide valuable lessons for strengthening national policies.

Dr. Dayrit likewise encouraged Baguio City to identify more “force multipliers” through strategic partnerships that can strengthen health promotion efforts. As the city continues its transition toward a primary health care-oriented system, initiatives such as YAKAP have understandably required significant organizational focus. Expanding partnerships, he noted, will help ensure that health promotion remains a strong pillar of the city’s health agenda.

Echoing this recommendation, Regional Director Dr. Amelita Pangilinan encouraged the city to further strengthen partnerships with private health facilities, intensify its health promotion and information campaign, and continue transforming District Health Centers into fully functional one-stop shops by maximizing reimbursements from the YAKAP package.

Photo above: Participants stand together after the Executive Dialogue, reaffirming their collective resolve to turn Baguio’s growing capacity into tangible health gains.

Baguio’s UHC Milestones: A Model for Transformation

Baguio City’s experience demonstrates that implementing UHC is not simply about complying with national policies. It is about continuously strengthening institutions, investing in people, learning from implementation, and responding to the changing needs of communities.

As one of the country’s pilot sites for UHC, Baguio has become a model for local health system transformation:

• In 2025, the city achieved 100% of the DOH’s Local Health System Maturity Level, reflecting full compliance with the preparatory, organizational, and functional requirements for UHC implementation.
• For its primary care facilities, the city secured a DOH License to Operate and obtained PhilHealth accreditation as a YAKAP provider, along with other PhilHealth benefit packages.
• It expanded its human resources for health and upgraded plantilla positions.
• It fully implemented the Magna Carta for Public Health Workers.
• It developed one of the country’s pioneering locally developed health information systems through the Baguio Medical Record System (BMRS).

These milestones demonstrate that Baguio is not merely keeping pace with health reform. It is helping shape its future. The Executive Dialogue affirmed that progress is not measured by the absence of challenges, but by the willingness to confront increasingly complex ones.

As Dr. Dayrit reminded the city, growth inevitably uncovers more needs and raises the bar even higher. For Baguio, this is not a setback, but a sign that its health system is moving in the right direction.

Author: Joan Kidatan, ZFF BMLGP Associate

The Zuellig Family Foundation (ZFF), together with the Department of Health-Cordillera Administrative Region (DOH-CAR) and the City Government of Baguio, hosted a two-day City Health System Strengthening Program (CHSSP) workshop on November 20–21, 2025 at Mines View Park Hotel, Baguio City. The activity, part of the Bayang Malusog Leadership and Governance Program, brought the Baguio Local Health Board and health leaders from the City Camp and Irisan District Health Centers into one space to reflect on the city’s health challenges and opportunities.

Baguio’s Health Situation: Key Points

The workshop began with a grounding on Baguio’s 2024 health situation—a clear picture of both progress and continuing gaps. The leading causes of illness (acute respiratory infections, dental cavities, and hypertension) and the main causes of death (vascular diseases, cancer, and heart disease) showed the city’s dual burden of infectious and lifestyle-related conditions.

Dr. Celia Flor Brillantes, City Health Officer, added other important concerns. Maternal deaths remain high; antenatal care and full immunization percentages are still below national targets; and procurement delays have limited the availability of medicines for people with hypertension and diabetes. Partnerships—such as Abbott’s support for viral load testing—continue to enhance HIV services, but mental health cases increased sharply from 241 in 2023 to 525 in 2024, pointing to urgent psychosocial needs.

The city also faces staffing gaps, with 11 more health workers needed across facilities. Accreditation efforts under the Yaman at Kalusugan Para sa Pamilyang Pilipino (YAKAP) Program continue, supported by better population registration. The Mines View Health Center is preparing for accreditation by the end of the year.

Workshop Learning Sessions

Given this context, participants joined sessions on Universal Health Care (UHC), PhilHealth benefits, systems thinking, visioning, and ZFF’s Bridging Leadership Framework. Resource persons from DOH-CAR, PhilHealth, the Baguio Health Services Office (HSO), and ZFF guided the discussions, which helped deepen appreciation for shared leadership and collective action.

Throughout the workshop, health leaders shared reflections that captured the spirit of the program.

“Change does not happen overnight, but we can always start with our own,” said Dr. Vanessa Fagcangan of the Irisan District Health Center.

Dr. Ma. Lourdes Pakoy of the HSO spoke about the need to widen their perspective: “Ang lawak pala ng kailangan naming punan. Even with UHC, the problem of strengthening primary care facilities is still the same today. We really need to step up and unite.”

Meanwhile, Dr. Nelson Hora of the City Camp District Health Center emphasized adaptability in a changing health landscape: “We are in a changing world… you always have to grow your capital. Invest in your expertise. Kung ano ang meron ka, pagyamanin mo para madali mong i-offer.”

The workshop closed with a renewed sense of co-ownership—the third and last phase of ZFF’s Bridging Leadership Framework—between the Baguio Health Services Office and the Local Health Board. Both teams committed to addressing health inequities through coordinated leadership and stronger engagement with communities and partners.

ZFF and its partners continue to nurture health leaders who demonstrate technical skill, grounded leadership, and a shared commitment to strengthen Baguio’s health system—one collaborative step at a time.

Author: Joan Kidatan, ZFF Bayang Malusog Leadership and Governance Program Associate

Baguio City is moving closer to making Universal Health Care (UHC) a reality. 

Dr. Catherine Chung, Local Health Systems Director at Zuellig Family Foundation (ZFF), noted that the city has nearly completed the accreditation of all its district health centers under PhilHealth’s Yaman ng Kalusugan Program (YAKAP). Only two centers remain, while the city is also improving its electronic medical records and preparing to operationalize contracts with three private hospitals. These steps, she said, put Baguio in a strong position to shift toward a mixed health provider network that uses both public and private facilities.

These insights came during the Executive Session for Mayor Benjamin “Benjie” Magalong on August 12, 2025, organized by ZFF through its Bayang Malusog Leadership and Governance Program. 

City Health Officer Dr. Celia Flor Brillantes laid out Baguio’s roadmap to UHC. PhilHealth President and CEO Dr. Edwin Mercado shared updates on YAKAP and advised the city to prepare solid contracting rules, clear fund-sharing arrangements, and even explore public-private partnership models. Austere Panadero, ZFF President and Executive Director, reminded the group of the urgency of their shared task, stressing: “We need to reach more, serve more. We need to prepare the system.” The Department of Health (DOH)-CAR also committed its full support.

Dr. Chung underscored that while Baguio is ahead, the transition will not be easy. Building a mixed-provider network demands strong governance, especially in handling contracts and finances. There is a need for local accountability systems to ensure that health funds are used properly and transparently. At the same time, she affirmed that Baguio has the right building blocks—committed leadership, technical support from PhilHealth and DOH, and active collaboration with partners.

With these efforts, Baguio City is showing that local governments can lead the way in building a health system that truly works for every resident.

“We commit again that we will continue prioritizing health. Tuloy-tuloy tayo dito.” – Hon. Melchor Diclas, Benguet Governor

In local governments, health often competes with other urgent needs. For health officers, one big question remains: How can we make sure that political leaders keep prioritizing health—now and in the future? For the Provincial Health Office (PHO) of Benguet, the answer lies in co-creation of solutions and pathways.

A Shared Journey for Health

Benguet, led by Governor Melchor Diclas and Dr. Meliarazon Dulay, is part of the Bayang Malusog Leadership and Governance Program (BMLGP). The program is supported by the Zuellig Family Foundation (ZFF) and the Department of Health-Cordillera Administrative Region (DOH-CAR).

Now in its second cycle, the PHO has gone beyond workshops. They have built a strong shared vision, aligned their values, and created a clear plan for the next three years. They call it the Healthier Benguet Roadmap.

In one key session, ZFF facilitated a reflective activity based on ikigai—a Japanese concept about purpose. It helped the Benguet health team reconnect with why they chose public health in the first place. “What I love about being in public health service is knowing people, their story, and being able to help them,” said one participant.

Governor Diclas: Leading with Purpose

On July 21, 2025, the Benguet health team presented the roadmap to Governor Diclas. He responded with clear and strong support. 

He stressed the need for alignment with Benguet’s mayors. “Kung iba-iba ang priorities natin, hindi tayo makakapagtulong-tulungan,” he said, “Let us convince everyone to prioritize health.” He also suggested enrolling all newly elected mayors, and those who missed the first round, in the Bayong Malusog Municipal Leadership and Development Program.

Now on his third term, Governor Diclas’ commitment turns the roadmap into a legacy plan, one that could shape health governance in Benguet for years to come.

Related articles:

• Benguet Charts Path to Stronger Health Governance
• Building a Healthier Benguet: Integrating Health Information, Financing, and Service Delivery to Achieving Universal Health Care

The Healthier Benguet Roadmap

The roadmap is both bold and practical. More than just a static plan, the roadmap is a shared promise to make health services better for every resident of Benguet. Among its pillars are:

• Institutionalizing the Healthier Benguet Caravan and SHAYAW (Stellar Health Achievement Yearly Awards), bringing services directly to communities,
• Establishing an integrated Health Care Provider Network (HCPN),
• Strengthening data-driven decision-making at all levels,
• Ensuring sustainable health financing, and
• Expanding community participation and Human Resources for Health (HRH) capacity-building.

Support that Makes a Difference

DOH-CAR continues to give technical support and push for clearer alignment with the national office. PhilHealth helps by sharing data that supports equity and better program decisions. 

ZFF, aside from its leadership training, also provides mentoring, coaching, technical sessions, and grants. It is now working on building an executive dashboard to help local leaders make smarter, data-informed choices.

A Call to Co-Create

Benguet is moving forward, and they are inviting everyone to join. Health cannot be improved by the government alone. It takes a whole-of-society effort: national agencies, local leaders, civil society, private organizations, and citizens, all working together.

The roadmap is ready. The leaders are committed. And the people are hopeful.

Authors: Joan Kidatan, ZFF LHS Provincial Associate for Baguio City; Krizzia Esperanza, ZFF Corporate Communications Associate