From Welfare to Productive Ageing: Towards a Sustainable Governance for the Silver Economy in the National Capital Region

Abstract

Population ageing is increasingly reshaping governance, labor markets, social protection, and local development priorities. This study examined the institutionalization of the silver economy among local government units (LGUs) in the National Capital Region (NCR) of the Philippines, focusing on the shift from welfare-oriented interventions toward productive ageing and sustainable governance. An explanatory sequential mixed-methods design was used, combining a survey of 400 senior citizens aged 60–74, key informant interviews, documentary review, and the researcher-developed LGU Silver Economy Institutionalization Index Assessment (LSEIIA). Proportionate stratified sampling distributed respondents across the 17 NCR LGUs. Quantitative data were analyzed using frequency, percentage, weighted mean, and standard deviation, while qualitative data underwent thematic analysis. Findings showed limited awareness of the silver economy’s core concept and governance implications, although awareness was higher regarding economic participation, the Sustainable Development Goals, and the Philippine Development Plan. Institutionalization remained low and largely at an early stage. Social protection and well-being were the most developed areas, while organizational and governance capacity showed the greatest gaps. Key barriers included limited funding, technical capacity, age-disaggregated data, interagency coordination, and opportunities for employment, entrepreneurship, lifelong learning, and productive participation, alongside persistent ageism. The study developed a Sustainable Silver Economy Governance Framework (SSEGF) anchored on leadership, policy institutionalization, governance capacity, social protection, multisectoral engagement, and economic participation. The framework promotes older persons as active contributors to sustainable local development and supports a shift toward more inclusive, productive, and evidence-based ageing governance. It concludes that NCR LGUs have foundations but require stronger institutional integration overall.