It was Congress and the Budget Department that ordered the release of pork barrel funds to NGO’s that may have included an allegedly bogus NGO of Janet Lim Napoles.
Agriculture Department Secretary Proceso Alcala confirmed this in response to grilling over his agency’s  proposed budget for 2014.

Alcala says when he assumed office, he stopped PDAF disbursements to NGO’s and PO’s to prevent any misuse. However in August 2012, he was told that he cannot stop PDAF disbursements through NGO’s because some NGO’s have legtimate projects.
“buhat july 2010 till agosto 2010 di nagpadaan pdaf sa da dahilan sa di nga po malinaw sa amin ang guidelines umiiwas tayo sa datihang balita ngunit sa pagharap namin sa kongreso sinabihan kami di wpede kasi may lehitimong programa ginawa po namin nag ayos ng paraan paano magiging mas transparent.”

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