Enhancing Participation in Local Governance

Enhancing Participation
in Local Governance:
Experiences from
the Philippines
Correct citation
IIRR,LGSP, SANREM CRSP/Southeast Asia. 2000. ENHANCING PARTICIPATION IN LOCAL GOVERNANCE:
Experiences from The Philippines. International Institute of Rural Reconstruction, Philippines-Canada
Local Government Support Program and SANREM CRSP/Souteast Asia. 197 p.
Published by
International Institute of Rural Reconstruction
Y. C. James Yen Center
Silang, Cavite, Philippines
!(63-46) 4142417
!(63-46) 4142420
Philippines-Canada Local Government Support Program

National Program Management Office
Unit 1507 Jollibee Plaza
Emerald Ave. Ortigas Center, Pasig City 1600 Philippines
!(63-2) 6373511 to 13
!(63-2) 6373235
SANREM CRSP/Southeast Asia

Philippine Council for Agriculture, Forestry and
Natural Resources Research and Development (PCARRD)
Los Banos, Laguna, Philippines
!(63-49) 5360014 to 20
!(63-49) 5360016
Printed in the Philippines

ISBN 1-930261-03-9
abbreviations & acronyms used
a ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○
ABSCDP Area-Based Child Survival and Development Program
b ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○
BPT Barangay Planning Team
B-O-T Build-Operate-Transfer
c ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○
CADC Certificate of Ancestral Domain Claim

CADT Certificate of Ancestral Domain Title
CBFM Community-based Forest Management
CBMFA Community-based Forest Management Agreement
CBHP Community-based Health Program
CBO Community-based Organization
CDF Countryside Development Fund
CLCA Claveria Land Care Association
CO Community Organizers
COA Commission on Audit
CPH Community Primary Hospitals
CRM Coastal Resource Management
d ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○
DENR Department of Environment and Natural Resources
DILG Department of Interior and Local Governments
DOST Department of Science and Technology
DSWD Department of Social Welfare and Development
DTI Department of Trade and Industry
g ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○
GIATSD Guagua Integrated Approach Towards sustainable Development
GINTO Guagua Integrated Tree Planting Operation
GO Government Officer
GSIS Government Service Insurance System
GSO General Services Officer
h ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○
HES Human Ecological Society
HRMDO Human Resource Management and Development Office
HRMO Human Resource Management Office
i ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○
ICRAF International Center for Research in Agroforestry
ICRMC Intermunicipal Coastal Resource Management Council
IMIP Integrated Municipal Implementation Plan
IPAS Integrated Protected Areas System
IPRA Indigenous People’s Rights Act
IRA International Revenue Allotment
ISWM Integrated Solid Waste Management
k ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○
KIP Key Informant Panel
l ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○
LADP Local Administrative Development Program
LCCs Local Counterpart Committees
LCEs Local Chief Executives
LGC Local Government Code
LGC-CRM Local Government Cooperative for Coastal Resource Management
LGSP Local Government Support Program
LGUs Local Government Units
m ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○
MDC Municipal Development Council

MDCCs Municipal Disaster Coordinating Councils
MFD Macro Founders and Developers
MNDC Metro Naga Development Council
MMDA Metro Manila Development Authority
MOA Memorandum of Agreement
MPMS Municipal Program Monitoring system
MPDC Municipal Planning Development Coordinator
MPTF Municipal Planning Task Force
MRLF Municipal Revolving Loan Fund
MSWDO Municipal Social Welfare and Development Officer
n ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○
NRM Natural Resource Management

NRMC Natural Resource Management Council
NRMDP Natural Resource Management and Development Plan
NVS Natural Vegetative Strips
NIPAS Natural Integrated Protected Areas System
p ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○
PAMB Protected Area Management Board
PENRO Provincial Environment and Natural Resource Officer
PHC Primary Health Care
PHIC Philippine Health Insurance Corporation
PNP Philippine National Police
POs People’s Organization
s ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○ ○
SANREM Sustainable Agricultural and Natural Resources Management
SDC Social Development Committee
SSS Social Security System
TNCs Trans-National Corporations
ToP Technology on Participation
foreword
O
ne of the major changes sweeping the world today is the increasing recognition of the changing role of local
governments in development and rural reconstruction. Undergirding these changes is a realization that
participation is a key to good local governance.
Assessing the global context of these changes, Corrigan, Hayes and Joyce (1999), observed that the role of local governments
has changed in the following areas over the recent years:
! The way in which local government influences local issues
! The issue of democracy for local government
! The delivery of services by local government
! The way in which local government views the public
! Local government being more honest and providing people with more information
Indeed, where before, local governments were relegated to playing secondary roles as mere agents and implementors of
policies and programs crafted by the national government, now, their role as major actors in the development process has
been recognized. As pointed out above, local governments play a fundamental role in defining local issues, many of which
are transformed into national issues and concerns. They serve as the bedrock for democracy. They are in the forefront of the
delivery of basic services. They have become increasingly aware of viewing the public as their client. And they have realized
the value of being more transparent in the conduct of the business of governance by making information available to the
public.
For many people in the rural areas, the local governments are the government. What the local government is, so is the
national government. If the local government is inept, corrupt and sluggish, the national government is perceived to be
likewise. But if local governments are dynamic, creative and responsive to the people’s needs, so will government institutions
in general be seen. As frontliners
frontliners, the extremely vital role of local governments cannot be overemphasized.
It is within this context that this book on Enhancing Participation in Local Governance: Experiences from the
Philippines is very timely. In 1992 when the Philippines boldly embarked on sweeping reforms that radically transformed
the nature of local governance in the Philippines: a Local Government Code was enacted that transferred, through the process
of devolution, substantial powers and authorities to local government in recognition of their frontline roles in local
governance. They were made responsible for the delivery of basic services at the local level, that included health, agriculture,
social services and certain aspects of environmental management. The Code transferred some 70,000 personnel from the
national to the local governments. Financial resources were made available to local governments by substantially increasing
their internal revenue allotment shares. It encouraged the emergence of entrepreneurialism among local governments.
Finally, the Code lay the foundation for active citizen participation and involvement in the process of local governance.
This source book zeroes in on the participatory approaches in local governance which is a key feature of the devolution
process in the Philippines. As a source book, it tried to incorporate the vital aspects of the specific topics on local governance
as drawn from the original materials surveyed. It points out other references that may eventually be referred to by the reader.
This book will indeed be useful for all stakeholders in local governance, be they local government practitioners at the local
or national level, trainors, researchers and academics.
It is divided into three major parts: Part I discusses the various perspectives and issues relating to broad concepts of
decentralization, devolution and governance. Part II shares some of the more successful experiences in public sector reform
and the adoption of modern management approaches and techniques in the areas of local governance, including local
development planning, as well as financial and disaster management. Finally, Part III highlights some successful
experiences in other local development endeavors such as health service delivery, natural resources management and the
promotion of local economic development. Underlying all these is the fundamental ideology and spirit of participation and
active involvement of the people.
This source book contributes to telling the story of good local governance in the Philippines. The modest experience of the
Philippines may provide information - and perhaps be a source of inspiration - to other countries in the region that have
embarked on a similar path of decentralization and participatory approach to local governance.
The IIRR - through the leader of this project, Mr Enrique G. Mercaida, should be commended for its efforts in contributing
to the general discourse on local governance through this source book.
Alex Brillantes Jr Ph.D.

Associate Professor
University of the Philippines National College of Public Administration and Governance
Executive Director, Local Government Academy (1993-1997)
Director, UP Local Government Center (1989-1991)
Reference:
Corrigan, Paul, Mike Hayes and Paul Joyce, Managing in the New Local Government, London: Kogan Page Ltd, 1999.
ENHANCING PARTICIPATION IN LOCAL GOVERNANCE: EXPERIENCES FROM THE PHILIPPINES

acknowledgments
T
his project to produce this resource book was carried out and completed through the combined efforts and support of
persons and institutions whose current work is geared towards the promotion of sustainable development through
the institutionalization of good governance, enhancement of active local participation and empowerment at all
levels of the government and in all fronts of society. In this connection, we wish to acknowledge the invaluable assistance
provided by the following: the Philippines-Canada Local Government Support Program (LGSP), the Center for Local and
Regional Governance of the U.P. National College of Public Administration and Governance, SANREM-CRSP/Southeast Asia
of the Philippine Council of Agriculture, Forestry and Natural Resources Research and Development (PCARRD) and the
International Institute of Rural Reconstruction (IIRR), whose key officers and staff comprised the Steering Committee (SC)
for the project.
Ms. Joy Rivaca-Caminade led the project team at IIRR consisting of Mr. Celso Amutan, Mr. Jeff Oliver and Ms. Lilibeth Sulit.
in the sourcing, editing and repackaging of relevant studies and materials, and the systematic organization and facilitation
of SC meetings and publishing work, respectively. For the clerical and administrative support, our commendation goes to Ms.
Shirley Caparas and Ms. Renell Pacrin. Ms. Ma. Stella Oliver undertook the editing and initial major desktop publishing
tasks. Mr. Ariel Lucerna provided the illustrations. Ms. Hannah Castañeda undertook the final desktop publishing and
prepared this document for print. The cover design and production was undertaken by Mr. Celso Amutan.
Special mention is due to the members of the Steering Committee who gave suggestions regarding the content of the
resource book and for facilitating the logistical requirements: Dr. Proserpina D. Tapales, Dr. Alex B. Brilliantes, Jr. and Dr.
Victoria A. Bautista of the University of the Philippines; Ms. Marion Villanueva, Mr. Rene Garrucho, Luz L. Rodriguez and
Atty. Evelyn Camposano - Jiz of Philippines-Canada Local Government Support Program; Dr. Rogelio Serrano of SANREM-
CRSP Southeast Asia at PCARRD; and Dr. Julian F. Gonsalves of IIRR who assisted throughout this project and helped in
conceptualizing this effort, carefully reading drafts of this resource book and suggesting improvements.
Funding for this production came primarily from SANREM-CRSP/ Southest Asia, Philippine Council of Agriculture, Forestry
and Natural Resource Research and Development Supplementary support was provided by the Philippines-Canada Local
Government Support Program.
Indeed, the whole effort would not have been possible without the constant encouragement and guidance of Dr. Julian
Gonsalves, and the wholehearted support of Dr. Pratima Kale, President of IIRR and Ms. Victoria Rialp also of IIRR.
Finally, and most of all we would like to thank the authors whose work have been featured in this publication.
Enrique G. Mercaida, MPA

former Associate Senior Specialist
how
how this
this resource
resource book
book came
came to
to be
be
T
he project to produce this resource book was conceptualized
Flow of activities
as early as January 1999. Its primary objective was to
document existing participatory approaches and best Identification of an initial list of topics
practices, tools and techniques on local governance from LGUs, NGOs,
the academe and other development organizations in the Philippines Formation of multi-agency steering committee
and to compile them into a user-friendly and easy to read form. representing major projects, donors,
government agencies, NGOs and academe
A Steering Committee (SC), composed of local governance

practitioners and representatives from Philippines-Canada Local Revision of topics based on the inputs
of the steering committee
Government Support Program, SANREM-CRSP/Southeast Asia and
UP-NCPAG, was organized to actively support the publication process
(from the selection of topics to the review of the final output). The Collection of available materials
(modules, published documents, case studies)
International Institute of Rural Reconstruction (IIRR) took the lead
role in coordinating the collection and acquisition of existing
published materials Critical review/planning of materials and
preparationOf revised/repackaged first drafts
Meeting at the Philippines-Canada Local Government Support

Program, UP-NCPAG and PCARRD, the SC finally approved the Revision and repackaging of second draft
materials
concept note, along with the list of topics and helped review the draft
in its various stages. Six months spent in collecting the required
materials (e.g. modules, published documents, case studies and their
Editing, desktop publishing and printing
critical review), rewriting and compiling these materials. In July
1999, an early draft of the intended resource book was produced.
Copies were furnished to the aforementioned partner-organizations Distribution
for their feedback. The revised first draft was made available only in
January 2000 as difficulties were encountered in meeting some of the
financial requirements of the project. SANREM-CRSP, Philippines- Canada Local Government Support Program and IIRR
providing the much needed financial assistance insupport for the costs incurred for SC meetings, rewriting and editing of
materials/documents, desktop publishing/layout, artwork and final printing of the resource book.
It is hoped that this resource book will make a difference, basically because of the wide range of topics covered in a single
compilation and the manner in which it was repackaged and presented. There is always a value in patiently soliciting
feedback, getting comments and suggestions from as many people as possible since such process opens up other rich sources
of related information. This resource book will be useful for trainors, local planners and development practitioners since it is
a collection of field-tested, people centered approaches. More importantly, however, is the knowledge management agenda
served by this publication: readers are provided short summarized versions of previously published/ unpublished materials in
a single compilation. They can then seek further information from the original sources listed at the end of each article.
introduction
D
uring the last two decades a revolutionary shift by development players (i.e. government, civil society
organizations and the business sector) has taken place, from a centralized system of government to a more
democratic and decentralized one. In a recent study entitled A Survey of Capacity-Building Initiatives of NGOs
Toward Good Local Governance, it is claimed that as governance is decentralized, more local energies can be harnessed
and mobilized for local development. Further, the same study asserts that the more democratic the participation in
governance is, the more responsive and effective governance becomes. This proposition reinforces the observation that
effective governance depends largely on :
! the skills with which the government governs;

! its ability to provide for the efficient delivery of public goods and services; and
! the empowerment of the people to be able to actively and responsibly participate in governmental decision making
processes relative to programs and projects that should benefit them in the first place.
It is very encouraging to note that recent developments in governance and local participation manifest the strong resolve and
interest of governments in the use of participatory methods, the importance of which has been underscored by the UN
Agenda 21. Many governments, including the Philippine government, recognize that as they remain to be the biggest
development agency in the country, they must act as facilitator and enabler of progress towards sustainable development,
coordinating efforts of various stakeholders rather that attempting to undertake country-wide development on its own.
Local government units (LGUs) in the Philippines have placed a high premium on the value of using successful experiences
and field-tested ideas. This can be seen in their continued interest to introduce, develop, document and institutionalize
innovative approaches and best practices, in managing the affairs and activities of the government and promoting the
participation of their constituencies.
A milestone in the promotion of local participation, autonomy and governance was the enactment and implementation of
the 1991 Local Government Code (LGC) of the Philippines. This legislation devolves certain powers from the central to the
local governments so that they will become self-reliant communities and effective partners in national development. The
Code, which is designed to help foster a responsible and accountable local government, has also empowered LGUs to increase
their revenues through taxation of mining, fishery, forestry and other resource development activities.
Moreover, the Code has paved the way for joint partnerships with the private sector through build-operate-transfer schemes,
bond floatation and easier access to loans from the banking system. Finally, the Code has also elicited the participation of
civil society organizations in local governance through representation of NGOs and POs in special bodies (i.e. local
development councils, local health board and local school boards), thus allowing the promotion of accountability and
responsiveness.
While there have been problems and lapses in the Code’s implementation, the consensus is that in many parts of the
country, major benefits have been derived from local-level partnerships resulting in the improved delivery of public services
and the promotion of sustainable development.
The successful experiences on local governance in the Philippines need to be documented and shared. This gave rise to the
idea to produce a resource book on tested approaches in local governance, including the methods and tools adopted by the
various development actors across the country. Although excellent literature on the subject already exist, some of these
related materials are hard to find and are often highly technical in content and usually not available in summarized forms.
Many previous publication efforts have emphasized the legislative framework, guidelines and case studies. Some of these
materials are often highly technical and usually not available in summarized form. They may not also be available in
single, easy-to-use compilations. In this light, the project aimed to come up with a user-friendly resource book on the
subject for use by trainors, local government officials, planners and workers from NGOs and other development
organizations.
The project features a unique compilation of field-tested approaches from a wide range of local government initiatives and
projects in the Philippines. All articles are based on existing literature and secondary materials. Sources are indicated at the
end of each article. It is hoped that after reading the short summary pieces , the reader will become interested to seek the
basic and original sources. Each article can be read separately and can stand on its own. Readers are encouraged to use these
materials provided the original authors are acknowledged.
The resource book is divided into three chapters. Chapter One presents various perspectives on the concepts, frameworks,
principles, issues and challenges in the pursuit of decentralization and local governance and, ultimately that of genuine
and sustainable development. Chapter Two shares some of the successful experiences in public sector reform or the adoption
of modern management approaches and techniques in the areas of governance such as local development planning as well
as financial management. Chapter Three highlights similarly successful experiences in other development endeavors, (i.e.
health service delivery, natural resource management, local economic promotion, among others).
ENHANCING PARTICIPATION IN LOCAL GOVERNANCE: EXPERIENCES FROM THE PHILIPPINES

T A B L E O F
C O N T E N T S
List of abbreviations and acronyms used

Foreword
Acknowledgment
How this resource book came to be
Introduction
Chapter 1: Good Governance for Genuine and Sustainable

Development
Sustainable Development in the Philippines Context 1
Sustainable Integrated Area Development 7
The Philippine Local Government System 13
The Local Government Code of 1991 16
Decentralization in Governance 21
Trends in the Implementation of Devolution in the Philippines 26
The Challenge of Good Governance 29
The Local Government as a Catalyst of Economic Development 31
Modern Management in Philippine Local Governance 38
Efficient Delivery Systems and Public Accountability 42
NGO-PO Participation in Local Governance 44
Chapter 2: Public Sector Reform through Modern Management

Approaches and Technology
Organizational Development in LGUs 50
Human Resources Development and Management in LGUs 54
Financial Management Innovations in LGUs 59
Enhancing LGUs Fiscal Administration 64
Tax and Administrative Codification for Efficient Local Governance 69
Property and Supply Procurement in Local Governments 74
Successful Municipal Management Innovations 77
Municipal Level Development Planning 79
Basic Strategies In Municipal Development Planning (The Ilog experience) 82
Basic Strategies and Methods in Municipal Development Planning (The Iloilo 89
Experience)
Development Planning at the Barangay Level 94
Chapter 3: Exemplary Practices In Participatory
Governance
Decentralizing Natural Resources Management 102
Landcare as an Innovative Approach in Natural Resources Management at the 106
Local Level
Local Government Innovations in Watershed Management 114
LGUs and Tree Farms: Partners in Community Resource Generation and 118
Environmental Protection
LGUs’ Role in Protected Areas Management under the NIPAS Law 123
Local Governments in Coastal Resource Management 128
LGUs in Marine Reserves Preservation and Management 133
Homelots for the Poor: The San Carlos City experience 138
Primary Health Care: Issues from the field 145
Primary Health Care as a Devolved Responsibility 149
Establishment of Community Primary Hospitals in the Hinterlands 155
Establishment of a Province-wide Community-based Health Program: The 158
AlayKa Palawan Experience
Empowering People and LGUs through Health Insurance 162
Transforming the Mainstream: Mainstreaming Gender in Local Governance 166
LGUs in Disaster Management 172
LGUs in Integrated Solid Waste Management 176
The Leagues of LGUs as Aggressive Shareholders in Governance 181
Annexes
Foreign-funded Programs / Projects Related to Local Development and 186
Municipal Development
Municipal Development Fund Projects 188
Foreign-funded Programs / Projects Related to Local Development 191
Steering Committee 195
Publication Development 196
The Publication Production Staff 197
CHAPTER
1 ONE
Good
D
evelopment actors - government,
non-government organizations (NGOs),
governance academe, the business sector and
people’s organizations (POs) have been driven
for genuine by the necessity to look back and review
& sustainable
concepts, issues and approaches to
development, governance and local
development participation vis-a-vis the ever-changing trends

and realities of development work. Concerns
now focus on accelerating the pace of
development but with a deliberate shift
towards genuine and sustainable development,
good governance and people-centered
development. These challenges have grown
bigger especially in developing countries like
the Philippines. The problem of poverty and
marginality that affect the majority of the
population remain.The impact of rural
underdevelopment, resource depletion and
pollution, the inadequacy of food supplies
limited social services, the erosion of traditional
values, including graft and corruption in
government, the alleged ineptitude of
bureaucrats and personalized politics have
done irreparable damage and squandered the
country’s now scarce natural resources.
During the past decade, these development

actors- (institutions and organizations and
partner-beneficiaries of development
assistance) have tried to address the problem of
poverty and marginality on the basis of a
growing realization of the continuing relevance
of an integrated, holistic approach to
development and the primacy of decentralized
governance.
There have also been efforts at various levels
to balance economic and technological
progress with societal, ecological and human
development concerns. One concrete action
step in this regard was the launching of the
Philippine Agenda 21 in July 1995 as the
government’s response to the commitment at
the 1992 Earth Summit. As the country’s
blueprint for sustainable development, the
document embodied the common ground for
collective action among the various
stakeholders.
Another earlier milestone in the country’s

development history was the enactment of the
1991 Local Government Code (LGC) or
Republic Act (RA) 7160. It is considered a
landmark legislation as it envisioned the
complete administrative autonomy of local
government units and some degree of political
autonomy as it provided for the devolution of
certain powers from the central to the local
governments. The Code also called for active
partnership among non-government
organizations and that of local government
units. Specifically, it provided mechanisms on
initiative and referendum, cooperative
undertakings, recall of local officials,
representation in local special bodies,
mandatory and periodic consultation with the
people.
This chapter attempts to present the various

perspectives, frameworks and strategies on
sustainable development and local governance.
Sustainable Development in the
Philippine Context
A
ny concept of development, especially a multi-stakeholder approach to sustainable
development, is implicitly or explicitly grounded in both an image of society and a shared
vision of the development path of that society.
Sustainable development must therefore take into

consideration the reality of the Philippine context.
The image of society that guides Sustainable Civil Society Government
Development in the Philippines recognizes that the
key actors in any critical and principled
partnership or conflict regarding sustainable
SUSTAINABLE
development are the government, business, and DEVELOPMENT
civil society (Figure 1). To humanize
development, there must be interplay of market
forces, state intervention, and civil society
participation. Business
Figure 1. Key Actors in Sustainable Development
ENHANCING PARTICIPATION IN LOCAL GOVERNANCE: 1

EXPERIENCES FROM THE PHILIPPINES
The existence and recognition of the three key actors in multi-stakeholder or counterparting processes, in
turn, point to an equally significant reality: the functional differentiation (not division) of modern
society into three realms, interacting with but independent from each other. These three essential societal
dimensions - economy, politics, and culture, are the realms where the key sectors are active and from
which the actors derive the substance for their dialogue and interaction with each other (see Figure 2).
This image of society animates the vision, parameters, and strategies of sustainable development.
HUMAN BEING
CULTURE POLITICS
SUSTAINABLE
SOCIETY
DEVELOPMENT
ECONOMY
NATURE
Figure 2. The Three Essential Dimensions of Society in Relation to Nature, the Human Being and
Sustainable Development
Business is the key actor in the realm of the economy where the central social concern and process is the
mutually beneficial production and distribution of goods and services to meet the physical needs of
human beings. Government is the key actor in the realm of politics where the central social concern
and process is participatory, democratic governance and rule making to secure the human rights of all
citizens including justice and equity. Civil society is the key actor in realm of culture where the central
social concern and process is the development of the social and spiritual capacities of human beings in
order, to advance the frontiers of knowledge, to achieve clarity and coherence of values and to advocate
the public interest. The three key actors in sustainable development can simply be viewed as the most
organized and significant representatives of the prevailing social processes in each of the three essential
dimensions of society.
2 ENHANCING PARTICIPATION IN LOCAL GOVERNANCE:

The multi-stakeholder or counterparting approach in Philippine Agenda 21 recognizes that while these
realms are functionally differentiated, they are interacting, dynamic and complementary components of
an integral whole. Creative social unity and harmony can, therefore, only occur from a respect and
appreciation of the mutually enhancing perspectives and roles of the key actors in these dimensions of
society and ultimately of their free choice to collaborate towards achieving the higher, common good of
society.
Society and its key actors, in pursuit of sustainable development, are bounded by two key considerations.
On the physical and material side, the key actors must nurture the integrity and carrying capacity of the
varied ecosystems, landscape ecologies, and ultimately the biosphere of the earth. On the human side, the
key actors must also affirm that their respective social processes empower the freedom, creativity, and
caring capacity of individuals who are the essence of society (Figure 2). Hence, the pursuit of sustainable
development is grounded on the primacy of people and nature in the development process.
Thus the essence of sustainable development is in the harmonious integration of a sound and
viable economy, responsible governance, social cohesion/harmony and ecological integrity to ensure that
development is a life-enhancing process. In this context, the ultimate aim of development is human
development now and through future generations. Failing this, development is bound to be ‘jobless’ and
‘ruthless’ (in the realm of the economy), ‘rootless’ (in the realm of culture), ‘voiceless’ (in the realm of
polity), and ‘futureless’ (in the realm of nature) as detailed in the 1996 UNDP Human Development
Report.
Philippine Agenda (PA) 21 is a consensus response by Philippine society to the following four questions:
! What is sustainable development?

! What is the situation with respect to sustainable development?
! Where do we want to go?
! How do we get there?
Philippine Agenda 21 envisions a better quality of life for all through the development of a just, moral,
creative, spiritual, economically vibrant, caring, diverse yet cohesive society characterized by appropriate
productivity, participatory and democratic processes, and living in harmony within the limits of the
carrying capacity of nature and the integrity of creation.

Substance-wise, PA21, simply put, is the country’s highest framework for development. Memorandum Order 399,
dated 26 September 1996, directs all government agencies to review their policies, plans and programs and to realign
these with PA21. The plans to be revised include Philippines2000 and its component frameworks, policies, and
programs.
PA21 is also, arguably, the highest policy framework for civil society. In 1996 the leaders of more than 5000
organizations under the informal banner of the Asia Pacific Sustainable Development Initiatives (APSUD) rallied
around PA21 as their framework for negotiations with government on APEC. Even those who questioned APSUD’s
stance in APEC did not oppose PA21; rather they questioned the sincerity of government in carrying out the promises
they made to have the Individual Action Plan (IAP) governed by PA21.
Process-wise, PA21’s Principles of Unity (POU) is the consensus product of government and numerous organizations
within civil society. The government’s version of the POU was reconciled with civil society’s version of the POU. And
together, civil society and government, in different parts of the Philippines, crafted the final POUl. All told, more than
20 regional consultations and 3 national consultations were convened to discuss PA21.
PA21 was produced under the guidance and supervision of the Philippine Council for Sustainable Development
(PCSD), Office of the President. The PCSD was created by President Ramos to ensure that all government
undertakings are consistent with the global Agenda 21 commitments the Philippine government made at the Earth
Summit in Rio. The number “21” means twenty-first (21st) century.
SOURCE: Center for Alternative Development Initiatives (3/27/2001)
This vision of society provides a guiding framework for sustainable development where the parameters and
strategies of sustainable development are operational throughout society. The Philippine Agenda 21
approach adheres to the following principles of sustainable development:
1. Primacy of Developing Full Human Potential. People are at the core of development
initiatives.
2. Holistic Science and Appropriate Technology. The search for solutions to the complex milieu
of development problems has to be undertaken with the perspective that situates specific problems in
the larger social and ecological context. This approach facilitates the development and use of
appropriate technology.
3. Cultural, Moral and Spiritual Sensitivity. Nurturing the inherent strengths of local and
indigenous knowledge, practices and beliefs while respecting the cultural diversity, moral norms and
spiritual essence of Filipino society.
4. Self-determination. Respecting the right and relying on the inherent capacity of the country and
its peoples to decide on the course of their own development.

5. National Sovereignty. Self-determination at the national level where the norms Sustainable Development
of society and the specifics of the local ecology inform national governance. Principles
Includes human and environmental security as well as achieving and ensuring
! Development of Full
security and self-reliance in basic staple foods. Recognizing the crucial role of Human Potential
farmers and fisherfolk in providing for the nutritional needs of the nation. ! Holistic Science &
Appropriate Technology
! Cultural, Moral &
6. Gender sensitivity. Recognizing the important and complementary roles and the Spiritual Sensitivity
empowerment of both men and women in development. ! Self-Determination
! National Sovereignty
! Gender Sensitivity
7. Peace, Order and National Unity. Securing the right of all to a peaceful and ! Peace, Order and
secure existence. National Unity
! Social Justice, Inter-, Intra-
Generational, and Spatial
8. Social Justice, Inter-, Intra-Generational and Spatial Equity. Ensuring Equity
social cohesion and harmony through equitable distribution of resources and ! Participatory Democracy
! Institutional Viability
providing the various sectors of society with equal access to development ! Viable, Sound & Broad-
opportunities and benefits today and in the future. based Economic
Development
9. Participatory democracy. Ensuring the participation and empowerment of all
sectors of society in development decision-making and processes (and to
operationalize intersectoral and multisectoral consensus).
10. Institutional viability. Recognizing that sustainable development is a shared, collective and
indivisible responsibility which calls for institutional structures that are built around the spirit of
solidarity, convergence and partnership between and among different stakeholders.
11. Viable, sound and broad-based economic development. Development founded on a stable
economy where the benefits of economic progress are equitably shared across ages, communities,
gender, social classes, ethnicities, geographical units and across generations.
12. Sustainable population. Achieving a sustainable population level, structure and distribution
while taking cognizance of the limited carrying capacity of nature and the interweaving forces of
population, culture, resources, environment and development.
13. Ecological soundness. Recognizing nature as our common heritage and thus respecting the
limited carrying capacity and integrity of nature in the development process to ensure the right of
present and future generations to this heritage.

14. Biogeographical Equity and Community-Based Resource Management. Recognizing that
since communities residing within or most proximate to an ecosystem of a bio-geographic region will
be the ones to most directly and immediately feel the positive and negative impacts on that ecosystem,
they should be given prior claim to the development decisions affecting that ecosystem including
management of the resources. To ensure biogeographic equity, other affected communities should be
involved in such decisions.
15. Global Cooperation. Building upon and contributing to the diverse capacities of individual
nations.
Sources:
Republic of Philippines. Philippine Agenda 21- Principles of Unity. Philippine Council for Sustainable Development.
September 26, 1996.
Center for Alternative Development Initiatives (3/27/2001)
Philippine Rural Reconstruction Movement (PRRM).

Sustainable Integrated Area
Development (SIAD) as the Evolving
Framework in Participatory
Governance
SIAD is Sustainable
SIAD is a framework for
SIAD strives for a sound, broad-based and viable economy. It envisions vibrant economic promoting local development
development in an area. Economic sustainability is rooted in mobilizing the skills, that incorporated the
concepts of
talents, capital and culture of local communities and utilizing resources that sustainable development (SD).
stimulate the local economy. As the name depicts, SIAD
pursues a kind of
development that is
SIAD seeks to establish a socially cohesive society. The key stakeholders and major sustainable, integrated, and
sectors come together to set priorities and agree on principles of unity so as to draw area-based.
common courses of action oftentimes translated into their formulation of realistic and
doable plans.

SIAD is ecologically sustainable. SIAD, serving both
as framework and tool for local development,
builds upon a community-based approach to
management of local resources. Planning and
management of resources is anchored on the
carrying capacities of the resources or the
ecosystems.
SIAD is culturally sustainable and gender sensitive.

SIAD recognizes that, ultimately, culture is vital to
economic and political development. SIAD
encourages maximum feasible participation of
communities in development processes. The
community's values, culture, spirituality and
morals become the foundation stones of a SIAD
process.
SIAD seeks to address the full needs of human beings in the community. It aims to develop the full range
of human potential. It therefore gives priority and bias to the needs of the marginalized and
economically deprived sectors in the community. SIAD planning integrates their knowledge, skills and
creative energies into the process of SD.
SIAD builds upon responsible governance. Sustainable development requires responsible governance.
Given the wide-ranging concerns of the community, SIAD necessitates an integrated process of multi-
sectoral participation and community involvement at all levels of government and in all phases of the
planning process.
SIAD is Integrated
SIAD incorporates the concerns and concepts of PA 21. It endeavors to mirror in concept and practice, the
wide-ranging vision, framework, principles, parameters and strategies of PA 21.
SIAD integrates the various sectors of development. It allows the various sectors to come and work together
towards sustainable human development. Health services, housing, education, infrastructure, agriculture
and fisheries can now move and complement each other toward achieving the development vision and
goals of the community.
SIAD harmonizes potentially conflicting imperatives of local society. SIAD endeavors and works towards a
mutually beneficial and harmonious interaction between the potentially conflicting interests and
influences of the business, government and civil society. Using the SIAD framework, each of the key sector
collectively pursues a unified strategy for holistic development.

SIAD is area-based
SIAD is rooted in a bio-region which include both the towns and cities, or the urban centers and rural
areas. Pursuing local development is done on a clearly delineated and geographically defined area of
unit. A SIAD area then is taken as an active vessel of development, with the area itself assuming certain
physical attributes that could point to either its potential or constraints to development efforts.
The SIAD area as a planning unit may be defined using the ecosystem approach or by adopting the
administrative political boundaries as the basis for delineating it for planning purposes. The Philippines,
owing to its archipelagic character, has good cases of SIAD initiatives that use the ecosystems as the
approach adopted in planning and management.
Laying down the foundation and enabling conditions for multi-stakeholder

partnership and participatory governance: The 1991 Local Goverment Code
(LGC) in Philippine Agenda 21
! 1991 LGC is considered as a landmark

legislation that opened several windows for
participation of Non-Government
Organizations, People's Organizations (Pos)
and the Private Sectors. It also established a
favorable policy environment of LGU-NGO/PO
cooperation. Some of the windows for
participation are:
" NGO/PO representation in the Local

Development Councils (LDCs) and other
Local Special Bodies (LSBs)
" Local Sectoral Representation in local
legislative bodies
" Mandatory Consultations with LGUs and other concerned sectors in the community
" LGU-NGO/PO partnerships, joint ventures and undertakings
Gaps between policies and realities on the ground

After almost 10 years of implementing the LGC, implementation of the law may still be far from ideal as
major issues and concerns remain that impede the realization of the objectives and intent of the Code.
Many of these issues relate to the inability of some LGUs to appreciate the roles of the non-government
sectors in the local governance processes. Put it another way, government and non-government sectors
have varying perspectives in development, both in terms of approaches and substance which remain to be
irreconcilable sans the process of inter-sectoral deliberation and consensus building.

! The Philippine Agenda 21 (PA 21), SIAD as the Localization Framework
PA 21 is the highest development policy in the Philippines as it embodies the agenda of the country for the
21st century. It draws key insights from the lessons learned from decades of development efforts. It ensures
that all government undertakings are consistent with the Global Agenda 21 commitments made by the
Philippine Government at the Rio de Janeiro Earth Summit in 1992.
National Mandates and Legislative Measures in Support As the highest policy framework, PA 21 also opens
of PA 21 Operationalization: an unusual opportunity between civil society
organizations and government agencies, including
! MO 399 issued in September 1996 directs all government
agencies, including LGUs, to review their policies, plans and LGUs, for principled partnerships in pursuit of
programs as to realign these with PA 21 local sustainable development. Civil Society
Organizations (CSOs) are non-government and
! MO 47 issued in January, 1999 strengthens the
implementation and localization of PA 21 by directing LGUs non-market organizations that are active in
to formulate and implement their respective SIAD plans pursuit of the public interest.
building on the existing planning structures and mechanisms
SIAD has become the operational framework for PA 21 localization, the essential element being the
development of multi-stakeholder/tripartite-multipartite partnerships, giving recognition to the
functional differentiation, not division, of society into three dimensions: Polity, Economy, and Culture.
Key actors in these three realms are Government, Business and CSOs, respectively.
SIAD: proposed process framework
The SIAD process champions and integrates the participation of these sectors at all levels of engagement.
Since sustainable development addressed a wide range of problems, it necessitates the involvement of all
key institutions of CSO, government and business to fully appreciate the different dimensions of
development issues.
! Constituency Building. This is the most extended phase, even a continuing process undertaken by
civil society organizations to prepare and fortify their ranks toward forging principled partnerships
with other major stakeholders (government, business), in the area.
Critical Activities involve:

" Networking and mobilizing the community-based organizations around mutually-defined
"burning issues" or development concerns. This issue serves as a rallying point for these groups
and organizations to pursue in their engagement.
" CSO strategizing and advocacy to enlist participation of concerned sectors in drawing up courses
of action to respond to the issue identified, and further defining the role/s of other major sectors
i.e., government, and the mechanisms to resolve or address that issue.

" Developing capacities, organizationally and skills wise to enable the NGOs and POs effectively
engage with other key stakeholders leading toward substantial resolution of issues or, responses to
sector-based concerns and agenda. More often, having an organized federation or network of CSOs
gives a distinctive advantage to these sectors in terms of acquiring a level of leverage in their
engagement with government or other major stakeholders.
! Consensus Building. The stage where the various key sectors from government, NGOs/POs and
business come together and try to explore possibilities of working together in an activity, project or on
a more strategic basis such as in local development planning including the identification of strategies
to implement the plan. This phase usually involves:
" Leveling off on the issue/problem, that nature of the problem that the stakeholders want to be
solved.
" Agreeing on what to be achieved, identify options, strategies, targets, activities
" Identify/Organize mechanisms that can best pursue the management and implementation of
options, strategies, activities
! Mainstreaming. Describes the stage wherein the community, through the CSOs are able to
participate in mainstream development planning, implementation and policy formulation processes
of local governance and along the way effectively incorporates SD concerns and agenda in plans,
polices, programs and projects of government. Mainstreaming in development processes maybe
manifested through
" Creation/reactivation of relevant mechanisms or bodies that are multi-sectoral in character with
multi-stakeholder participation such as the Local Development Councils (LDCs), Municipal
Environment and Natural Resource Council, Fisheries and Aquatic Resource Management
Councils (FARMCs), Protected Area Management Board (PAMB), among others.
" Development of an Action or Development Plan, Programs and Projects that directly respond to
identified concerns and priorities
" Installed mechanisms within the CSOs to ensure adequate representation and information
sharing within the sector
! Institutionalization. This means that the multi-stakeholder mechanisms begin to acquire the
necessary legal mandate and fiscal support for their dynamic and vibrant operations. This include the
regular adoption of participatory tools and processes used and continuously innovating on these tools
and processes.
! Advocacy
Advocacy.. This could be done internally within the concerned sector, i.e., CSO or across sectors in line
with their organizing objectives (of consolidation or expansion) for Sustainable Development. Policy
Advocacy is emphasized here to ensure the existence of a favorable policy environment to partnership
initiatives and for their potential replication in other areas.

Moving ahead: confronting challenges and discerning opportunities
Fuller localization of PA 21 and enabling local governance as an effective strategy and venues brings into
fore certain challenges that have to be confronted as well as opportunities that NGOs and Pos, along with
concerned LGU partners have to consider:
Challenges:
! Continuing need for local organizational/institutional strengthening and capacity building to
manage SD and SIAD
! Grapple with the effect of political turnover (e.g. change in administration) which impacts on the
continuity of SD planning and implementation
! Continuing challenge of raising public awareness on SD and SIAD
! Need for integrated strategies in resource generation, maximizing available local resources for SIAD
Opportunities:
In facing the complex challenge of achieving Sustainable Development, it would be worthwhile to look at
and transform the challenges into potential advantages. Pursuing multi-stakeholder partnership offers
vast opportunities such as:
! Venues for building higher level trust and understanding
! Opportunity for synergizing initiatives for common goals
! Building upon each other's comparative advantages as distinct sectors with unique qualities/resources
! Venues for conflict resolution
Sources:
Lopez, Divina Luz. Participatory Governance and SIAD: Proposed Framework. Philippine Partnership for the
Development of Human Resources in Rural Areas. March 2001
Perlas, Nicanor. SIAD Guidebook, A Framework for the Localization of Philippine Agenda 21. Philippine Council for
Sustainable Development. September 1999
Philippine Partnership for the Development of Human Resources in Rural Areas (PhilDHRRA) PA 21 Localization
Project and the People Participation Support Component of the Governance and Local Democracy project as
presented during the SIAD Conference on March 14-15, 2001 held at the Palm Plaza Hotel, Ermita, Manila

The Philippine Local
Government System
T
he Philippine local government system, as
of the year 2000, is composed of 78
provinces, 95 cities, 1,514 municipalities,
42,000 barangays, one metropolitan government and
two autonomous regions in the Muslim South. All
these represent local authorities that have the
capability to assume the great burden of development.
An important development of the decentralization
scheme in the Philippines is the continued and
increased role of local governments in national
development. A pre-condition to a meaningful
assumption of this role is an efficient and effective
local bureaucracy.
At the base of the local government system is the

barangay government, which reflects the “home-rule”
concept. However, in the case of the Philippines, its
implementation apparently has gone beyond the
technical and financial capabilities of the barangay. Thus, many of them are Local governments translate
ineffective in complying with the ever-increasing delegation of development and service abstract national government
delivery responsibilities. What become imperative under the circumstances are programs into meaningful
specific projects, in response
continued reform measures to strengthen administrative and fiscal capabilities of the to the needs and aspirations
barangay. of the people.
A set of criteria (income, population and area of jurisdiction) is needed for the creation of these local
government units (LGUs). In a unitary system such as the Philippines, there is no intervening level
between the national government and the LGUs. The President’s power of general supervision is delegated
to the Department of Interior and Local Government.

Inter-governmental Relationships
Department of Interior
and Local Government
Highly-urbanized Regional
Provinces
cities Agencies
Component
Cities
Barangays Barangays Barangays
Barangays
Municipalities
Legend:
Barangays Line of supervision
Service delivery ○ ○ ○ ○ ○ ○ ○
Coordination
Barangays
In the Philippines, the Consisting of multi-tiered political units, the Philippine local government system
constitutional – legal basis of performs the primary functions of interest articulation and political representation,
local governments is Section 1,
including socio-economic development, all designed to improve the quality of life of
Article X of the 1987
Constitution, which provides that their constituencies.
the political subdivisions of the
state are the provinces, cities,
municipalities and barangays.
The corporate powers of local governments are:
The constitutional provision ! continuous succession in its corporate name;
likewise, mandates the creation ! to sue and be sued;
of regional governments. Being
! to have and use a corporate seal;
community - based political
institutions, local governments ! to acquire and convey real or personal property;
are the closest to the people of ! to enter into contracts; and
the whole governmental system.
! to exercise powers as granted to corporations.

Local governments are not liable to injuries or damages to person or property arising from its acts or
omission of local officers or employees while in the performance of other official functions.
While the Constitution guarantees the existence of local governments, they perform their functions and
tasks primarily guided by the provisions of the LGC, which is the bible in the local government
administration.
At present, the local governments are at a crossroad of veering towards greater local autonomy and
decentralization while at the same time, assuming increasing roles in national development and
increasingly complex responsibilities in the delivery of basic services.
Sources:
Sosmeña, Gaudioso C., “Decentralization for Rural Development in the Philippines”. Second Project Review
Meeting on Decentralization for Rural Development. Kuala Lumpur, Malaysia. September 29 - October 3, 1986.
Tapales, Proserpina D., Perfecto L. Padilla and Ernita T. Joaquin. Modern Management in Philippine Local
Government, Philippines: German Foundation for International Development and Local Government Center –
CPA-U.P., 1996. pp. 8-9.

The Local Government
Code of 1991
Ph
Gov ilippin
ern e Lo
me
nt C cal
ode
199
1
A
s a landmark legislation, Republic Act No. 7160, more commonly known as the Local
Government Code (LGC) of 1991, introduced sweeping changes in the Philippines’ political
processes.
The Code transferred substantial power, functions and responsibilities from the national
The LGC drastically shifted
government to the local government units (LGUs) , allowing the impetus for change power from the central
and development to originate from the local communities. It redirected the country’s government to the local
development thrusts and encouraged a shift from nationally driven to locally driven governments. Its end goal is
to unleash the potentials at
strategies. Furthermore, it transferred the responsibilities for the delivery of basic the local level.
services to the LGUs, including appropriate personnel, assets, equipment, programs and
projects.
The delivery of various aspects of basic services that used to be the responsibility of the national
government are now devolved to the LGUs. These basic services include:
! field health and hospital services and other tertiary services;

! social welfare;
! community-based forestry;
! projects on agricultural extension and on-site research;
! public works funded by local fund;

! school building program;
! tourism facilities;
! promotion and development; and
! telecommunication services and housing projects for provinces and cities and other services such as
investment support.
From the ‘organizing’ standpoint, the Code has altered the mode, configuration and level of services that
local governments provide. Having bestowed greater powers and responsibilities on Philippine local
governments, there is now a common awareness of the need to improve their organizational processes and
performance. Hence, the Code embodies a major rationale for the development of local government
organization in a number of ways. The code:
! enlarges local bureaucracy because of the devolved personnel and programs;

! expressly grants local governments the authority to implement organizational reforms in order to
perform effectively in a decentralized setting;
! increases the financial capacity of LGUs;
! allows local governments to seek alternative forms of service delivery;
! provides for popular participation in decision-making and program implementation; and
! localizes accountability.
Globalization and Local Government
Globalized competition induces vulnerability among nations whose

industries and services cannot meet international standards of quality
and cost-effectiveness/cost-competitiveness. Even public organizations,
in as much as they shape policy and provide various kinds of support to
private development activities, must meet these criteria to avoid
becoming irrelevant. In relation to local government, globalization has
the following impacts on organizational improvement:
! It creates pressure to maximize organizational performance

performance.
Organizations that ignore constant improvement lose out and

eventually die down. The repercussions for government organizations
may be less dire, in the sense that governments are not meant to
create profit. Nonetheless, their experience illustrate attainable
management reforms towards maximizing the potentials of
organizations, including local governments.

! It makes more people aware of the choices open to them.
Information technology enables a great segment of the population to be more informed of the
activities of the government and the economy. Such awareness educates them of their opportunities
for political participation. This also empowers the public to identify crucial gaps in local government
services. If not addressed, it may compel their constituents to seek from the private sector, often at the
cost of political support.
! Globally competitive organizations tend to be leaner

leaner,, personnel-wise and management-
wise.
Higher production is registered by companies even with lesser layers of management and sizes of
human resources. These characteristics are related to a host of management innovations that they
continually improve.
The challenge to improve and develop local government organization comes from the external
environment as well as the additional responsibilities brought about by devolution. The remaining
task now is to identify what specific aspects of the organization need reforms and what resources are
available to accomplish them. Consciousness and will are only the beginning, but they will keep LGU
on track.
Issues and concerns
Implementing the provisions of the LGC has not been exactly smooth sailing, considering
the number of intervening factors that delayed its smooth implementation.
The issues and concerns on devolution include:
! upgrading of the position of devolved personnel particularly the municipal social welfare offices;
! residency and prerequisite of appointment of devolved personnel;
! low priority of LGUs on matters regarding devolved personnel;
! inequitable distribution of Internal Revenue Allotment (IRA);
! non-functionality of the Local Health Board;
! disparity of salaries between devolved health workers and LGU personnel; and
! non-receipt of salary increases.
Problems encountered
! Culture of suspicion and insincerity works against the participation of NGOs and POs in local
governance.
! Many non-government organizations (NGOs) and Peopl’e’ Organizations (POs) find it difficult to
sustain their involvements as they have to adapt to new systems and procedures as well as bureaucratic
accountabilities.

! The need to strengthen marginalized sectors of civil society as well as build up the
capabilities of the state to resist crisis-causing interests, which include:
" lack of basic information on government programs;
" lack of effective institutional mechanism;
" need for tax incentives;
" lack of appropriate mechanism for channeling direct government organizations
(GOs) support to NGOs;
" question of accreditation; and
" selectivity of GOs for dealing with NGOs.
The Devolution Master Plan
The Master Plan for 1993-1998 for the sustained implementation of the LGC played a
key role in the implementation of the Code. Formulated after intensive consultations
with the various stakeholders, the plan was adopted by the President in October 1994 to
serve as the framework for the Code’s implementation. Indicators and milestones
regarding Codal implementation are likewise included.
The following are 20 areas of concern in the mandatory review of the LGU of 1999:
! Equitable distribution of IRA, increase the share of LGUs in the proceeds of the exploitation of
national wealth and provide LGUs a share in local e-vat collection.
! Enlarge and diversify revenue raising and credit and financing option to lower classes of LGUs.
! Enhance basic service delivery and expand regulatory powers to LGUs in crime prevention and
environmental protection.
! Encourage national government agencies to expand devolution and decentralization process through a
Memorandum of Agreement (MOA) with LGUs prepared to perform basic services and regulatory
functions.
! Establish incentive system to promote LGU-NGO cooperation in the management and in the delivery
of basic services.
! Repeal rules and regulations discouraging LGUs to mobilize and use private investment resource
flotation, deferred payment plans, cash account or secured borrowing.
! Expand operational control and supervision over local police to administrative control and
supervision.
! Stop the creation of mandatory positions in the local governments requiring the use of local funds.
! Resist unfunded mandates and oppose the implementation of national programs and projects that
require funding by local sources.
! Define the supervisory power of the president over local officials and LGUs.
! Require mandatory consultation and approval of LGUs in the implementation of national projects in
their respective jurisdiction.
! Devolve public works with local application and rationalize road construction and maintenance.

! Power to reclassify agricultural lands to meet developmental plans and programs of LGUs.
! Adopt the honoraria system for all barangay officials.
! Integrate national and local developmental plans.
! Limit the use of Countryside Development Fund (CDF) to the approved local development plans.
! Strengthen and improve the function and management of local special bodies.
! Streamline the process of recall and people’s initiative to promote participatory democracy.
! Provide certain provincial officers administrative supervision over municipal officers to maintain
efficient delivery of basic services.
! Expand franchise and licensing powers of LGUs over public utilities.
A quiet revolution is going on in the countryside proving that devolution is working. Due to the increased
powers and responsibilities of local governments, innovativeness and creativeness at the local level has
been endangered by the Code. And before long, these LGUs will no longer need the assistance of regional
offices or even national offices in performing their expanded tasks and responsibilities. Likewise, NGOs
and POs have been encouraged by the Code to be active participants in the process of governance at the
local level. Thus, partnerships between various sectors, GOs and NGOs alike, have been endangered.
Sources:
Mistal, Teresita M. “Operationalizing Devolution in Regional Offices and Local Authorities.” in Local Government
Bulletin. P.C. LGC-CPA-UP, Volume XXXII. No. 2-4. April – December, 1997.
Joaquin, Ma. Ernita T. “Organizing for Development” in Local Government Bulletin. Q.C. LGC-CPA-U.P., Volume
XXXII. No. 2-4. April-December, 1997.

Decentralization in
Governance
D
ecentralization refers to the systematic and rational dispersal of
Decentralization is not an end in
governmental powers and authority to lower level institutions to itself but a means to achieve desirable
allow multi-sectoral decision-making, better administrative and ends such as democracy, equity and
efficiency. However, decentralization
political penetration of national government policies into areas remote from
is not a panacea for social and
the central government. This is especially applicable to countries like the economic ills. While there are many
Philippines whose basic problem is the inability of the government to reasons for this principle, the
supporters of centralization can also
penetrate many parts of the country because of the structure of its archipelago.
give strong reasons for continuing it.
Likewise, it allows greater representation by various political, religious, ethnic

or tribal groups in decision-making, which enable their voices to be heard. Furthermore, it leads to greater
administrative capability among local governments and private institution in the regions and provinces.

Decentralization and local autonomy
Local autonomy is the ability of local

communities to govern and serve themselves, to
determine their own future, as well as to initiate,
integrate, make decisions and take action with
minimum outside direction, approval, help or
other forms of intervention (particularly by the
central authorities).
It implies an attitude of assertiveness, self-reliance

and confidence that the local community knows
better where its interests lie and how to best pursue
them. It involves, first, the right of local entities
to administer their own affairs freely in accordance
with their own will and second, the right of the
local citizenry to determine that will.
Furthermore, it is the operationalization of the human ascent to full development, liberating a

community of individuals from the constraints and restrictions of forces irrelevant to the concept of
“home-rule” and the consent of the governed. As an empowered / organized community, the citizens are
thus, able to produce intended and foreseen effects among themselves.
Types of decentralization
Administrative
! Decentralization of power or authority from the highest level of the institutional hierarchy to the
lower levels of the same organization.
! Ministries or departments establish a system of regional or local administration to facilitate decision-
making and more responsive delivery of services.
! The transfer of functions and powers can be temporal and can be recalled by the authority who made
the transfer.
Political
! The devolution or absolute transfer of power from the central government to local authorities through
legislation.
! People are given the opportunity to govern themselves so they can have mastery and control of their
own environment.

Other decentralization schemes
! Use of PARASTATAL semi-autonomous bodies that perform specific governmental functions (e.g.
regional development authorities and individual estates empowered to perform certain corporate
functions).
! Privatization or the transfer of governmental functions to non-government organizations (NGOs).
! Complementation, which includes prototypes of decentralization schemes (e.g. small efforts of local
communities, which take initiatives with or without outside help to get organized for their own
development).
Advantages of decentralization
! Increased access to central government resources and institutions by people living in previously
neglected rural regions.
! The introduction of decentralization policies increased the capacities of local bureaucratic and
political leaders in some countries to put pressure on central government agencies and leaders to
obtain larger amounts of national resources for local development.
! In many developing countries, the administrative and technical capabilities of local organizations
have been improved due to increasing, though still limited, experiences in running their own affairs.
! A number of new organizations have been established, mostly in Asia and Latin America, at the
regional and local levels to plan and manage development.
Disadvantages of decentralization
! There seems to be a kind of twisted view in developing countries about the desirability and feasibility
of transferring powers and responsibilities from central ministries to other organizations. This is
characterized by the granting of authority and power, at least on a formal level, to local government
units (LGUs) while continuing to be indifferent in providing the necessary financial and human
resources.
! There are evidences to show that there has been very little success in the pursuit of decentralization
policies in Africa, Latin America and Southeast Asia.

Criteria for evaluating the effectiveness of decentralization
! The extent to which decentralization contributes in achieving broad political objectives manifested in the
promotion of political stability, mobilizing support and cooperation for national development policies.
! The extent to which decentralization increases administrative effectiveness. This can be shown by promoting
greater cooperation among units of the national and local governments, including NGOs to encourage close
cooperation in the attainment of mutually acceptable development goals.
! The extent to which decentralization contribute to the promotion of economic and managerial efficiency by
allowing governments both at the central and local levels to achieve development goals in a cost-effective manner.
! The extent to which decentralization increases government responsiveness to the needs and demands of various
interest groups within the society.
! The degree to which decentralization contributes to greater self-determination and self-reliance.
! The appropriateness of the means, by which policies and programs are designed and carried out to achieve the
goals.
Source: “Decentralization for Rural Development in the Philippines.” Second Project Review Meeting on Decentralization for Rural
Development. Kuala Lumpur, Malaysia. September 29 – October 3, 1986.
Factors affecting decentralization
Capability of implementing agencies

Apparently, this is not highly developed among the agencies that were given the task of implementing
decentralization. Their capabilities suffer as far as the following are concerned:
! ability to identify development problems and opportunities ;
! ability to identify or create possible solutions to development problems ;
! ability to make decisions and resolve conflicts; and
! ability to mobilize resources.
Inter-organizational relationship
The ideal state would be for central, regional, provincial and
lower-level governments to get their acts together. Experience
shows, however, that there are many sources of friction – political,
ideological and personal matters.

Political environment
The local political history and structure also constitutes a very important source of obstacle, which must
also be studied. Opposition might come from local elites whose power and authority in the locality might
be undermined by decentralization.
In the Philippines, the relationship between local and central governments is highly developed. People
have been used to running to somebody important to solve their problems. Habits of dependency develop
through time and these are reinforced by economic conditions. Poor people can hardly be empowered
because of their dependence on rich people. Unless people’s economic conditions improve, the habits of
dependency will just continue to persist.
Resources for program implementation

Most LGUs belong to poor territories. Thus, even if they have been given
resource-generating powers, there is very little revenue to generate because of
the very limited tax base.
Political support is another resource needed. Decentralization is almost always

perceived as a diminution of central authority. To this extent, many central level officials oppose
it. Furthermore, local officials do not wholeheartedly support decentralization efforts for one reason or
another.
Sources:
Endriga, Jose. “Decentralization: Concept and Strategy for Local Development”, in Reform of Centralized
Administration Structures in Southeast Asia – The Contribution of Local Administration to Economic and
Social Development. Local Government Development Foundation and Konrad Adeneur Foundation. Manila,
Philippines, 1996. pp. 5-10.
National Seminar on Decentralization Towards Rural Development – Reading Materials. Local Government
Center, UPCPA, Manila, 1986.
Sosmeña, Gauidioso, Jr. Decentralization and Empowerment. Local Government Development Foundation. Manila,
Philippines. 1991.

Trends in the
Implementation of
Devolution in the Philippines
T
he implementation of the Local Government Code (LGC) The RFAs documented by the Governance and
has been regularly monitored by periodic Rapid Field Local Democracy Project (GOLD) have
Appraisals (RFA) conducted by the Associates in Rural documented many good practices at the local
level. These best and good practices have
Development, Inc. with the support of the USAID through the Local proven that transferring power to local
Development Assistance Program in the early nineties and then authorities and local communities could result
through the Governance and Local Democracy Program. to good governance. It has been seen that
local governments can do things differently-and
better - at the local level given adequate
The eighth Rapid Field Appraisal conducted in the October 1998 powers and authorities.
identified a number of trends as far as the progress of devolution in
the country is concerned. These are the areas of local finance, inter-local cooperation, and private sector
participation in local governance and organizational and human resource development.

On local finance
! Local governments are increasingly looking at credit finance options. Local governments traditionally
relied on their internal revenue allotments (IRAs) and local taxes to generate finances. Now, local
governments have begun to explore the avenue of borrowing from banks - both government and private
banks - to finance local development efforts.
! Even if local governments have begun to explore borrowing directly from banks, there has been a
prudent (and conservative) attitude especially among lower class local governments to borrow,
considering the inability of other local governments to meet their financial obligation.
! While local governments appreciate the continuing importance of the IRA, they have stepped up efforts
and explored options to access external sources, such as Official Development Assistance, getting their
right share from national wealth located within their jurisdiction, etc.
! Local governments have been seen to be more innovative in generating local resources. These include
build-operate-transfer arrangements, joint ventures, bond flotation, etc.
! Local government has also increased their local investment initiatives.
On inter-local and local government-private sector

cooperation
! Collaboration and cooperation between different levels of

government - vertical collaboration, say between the province,
city, municipality and barangays - have become more apparent.
! There has been an increase in horizontal and inter-local
cooperation among the same local governments.
! In terms of local-national government cooperation, local
governments have begun to take ownership of appropriate
national programs implemented in the area, where before these
were seen as impositions by the national government.
On private sector participation on local governance
! There has been an increase in local government-private sector partnership. Where before, local
governments tended to carry out development efforts on their own. Now, they have become more open
to seeking out partnerships with the private sector for effective governance.
! Mechanisms for civil society participation in local governance, through local special bodies, have
begun to be institutionalized.

On local organizational development and human resource development
! Local governments have begun to explore innovative ways in organizational development.

! Local governments have not invested enough in comprehensive human resources development (HRD)
concerns. When the financial pinch-hits, it is usually the HRD and training concerns that are first
sacrificed.
Not to overemphasize, these are some of the very areas where local governments have begun to be creative
and innovative towards the general purpose of good local governance.
The LGC has laid the policy infrastructure for good governance at the local level. While there may be
challenges and problems, these are not enough to devail the devolution process, much less reverse it.
Philippines countryside is dotted with many good and best practices.
Source:
Brilliantes, Alex B. Jr. Doing Things Differently and Better: Innovations Among Philippine Local Governments.
EROPA 45th Executive Council Meeting and Seminar on Administration in Transition. 25 - 29 October 1998.

The Challenge of Good
Governance
T
he recent move to create a Presidential Commission on Effective If governance is to be
Governance may be viewed as recognition of the fact that, at the heart of brought about, it is
many of our problems today is the quality of governance. This observation is necessary to focus on three
fundamental institutions: the
definitely not new considering that many local and international organizations civil service and
including the World Bank, the Asian Development Bank and the United Nations bureaucracy, local
Development Program have concluded that governance-related issues and concerns such governments and non-
governmental and people’s
as prevalent graft and corruption, lack of transparency and absence of meaningful organizations.
citizen participation are actually the reasons for the continued underdevelopment and
poor performance of many third world countries, the Philippines included.
! The Civil Service Commission of the Philippines, being the primary agency responsible for human
resource development of the 1.3 million-strong Philippine bureaucracy has played a big role in the
continuing search for responsive institutions and processes. Fundamental questions such as “what is
the proper role of government in the delivery of basic services” continue to be addressed.
! The implementation of decentralization and local autonomy in the Philippines with the enactment
of a radical local government code at the beginning of the decade is the second major area where the
debate on governance continues to rage. The imperative for decentralization takes place within a
historical context or highly centralized political and administrative institutions that have shown
themselves to be irrelevant in this day and age of global competitiveness.

! A third area in the debate on governance that must be addressed refers to the role of civil society, non-
government organizations (NGOs) and People’s Organizations (POs) and the private sector in
governance. As suggested earlier, because of the general inability (some would say failure) of
government to govern, alternative and complementary structures, institutions and processes to
governance have evolved and developed.
The possible changes and obstacles in the operation of government work
1. That there continue to be “lags” in areas of administrative structures and processes. This means that reforms
introduced may be articulated at the level of policy (e.g. a Civil Service Reform Law or a Local Government Code).
However, these reforms have to be operated at the organization level, and it is entirely possible that existing
processes and procedures may not be able to cope with the (radical) demands of the changes (hence the term
“lag”).
2. When developing partnerships and cooperation between the public and private sector towards reform, it is
necessary for civil society (business, the private sector, NGOs, POs, etc.) to develop new perspectives about the
government.
3. Existing practices of graft and corruption, and rent seeking behavior in the bureaucracy — local, national — can
continue to subvert the process of reform in governance.
4. The so-called “absorptive capacities” of institutions targeted for reform may continue to be a challenge to good
governance reforms. The typical problems in this regard include the availability of qualified technical manpower
personnel within the institution.
5. Long established auditing rules and procedures could serve as obstacles to reform and change.
6. Identifying and delineating areas of cooperation vertically (national and local governments), horizontally (among
local governments, and also between government and civil society) may be difficult considering among other things,
the problem of “turfing” among these different levels of institutions.
7. There is the ever-present challenge of lack, or inadequate financial resources that may be needed to accompany
reforms. Governments always lack financial resources, and changes and reform, no matter how well meaning and
even grandiose, have to be adequately funded. Thus, augmenting funds, through counter-parting with the private
sector may be considered.
8. Finally, developing “measurable” indicators, standards and benchmarks of good governance, may serve as a
challenge considering the accurateness and reliability of existing data in the country.
Source:
Brilliantes, Alex B. Jr., “The Challenge of Good Governance”. The Kybernam Group, Inc. 1999.

The Local Government as a
Catalyst of Economic
Development
A
t present, local governments face the challenge of going beyond their traditional and primary
role of being service providers and to fulfill their alternative function as an economic entity.
Many local governments recognize now that they have to take an active role in securing the
economic well-being of their constituents and provide an environment that is conducive to growth.
Their economic role is in fact reiterated in the 1991 Local Government Code (LGC). “With
devolved powers and authority, they are provided with avenues to organize more systematic
interventions into the local economy for more enterprising activities in the local areas.”
In a larger perspective, local economies are the building blocks of the national economy. While national
economic development is principally the task of the central government, local governments play a crucial
role in the national economic strategy, as regional and global competition for markets and resources
accelerate.

The local government as an economic
unit
Local government is traditionally viewed as an

employer and a provider of goods and services. One
of its main responsibilities is to provide
employment opportunities to its constituents and
see to it that every citizen has a decent job. More
often than not, the local unit becomes a “welfare”
institution.
Recently, however, this traditional role has been de-emphasized. The local government today is viewed
more as an enterprise engaged in economic
activities aimed at developing and diversifying
the local economic structure. As such, it has to
perform functions as promoter of inward
investment and as an investor in businesses
where the private sector fails to come in. Aside
from being an investor, the local government is
also considered as a big client of business
enterprises in the locality. Services like the
provision of supervisory and skills training for its
employees can be supplied by private
organizations, which are engaged in such kind of
services.
Issues and concerns
Financial constraints of LGUs
Despite the increased budgetary share of the local government units (LGUs)
from the national government, many LGUs, most especially the municipal
governments still do not have enough resources to embark on more
enterprising activities in their respective localities. This could be partly
attributed to increased expenditures because of its devolved functions and
services as mandated in the Code.
Though loans and credits availed from financial lending institutions can
be another source of funds, only a number of local units have availed
themselves of such facilities due to the strict requirements imposed by
banks and other lending institutions. The lower income class
municipality cannot qualify for substantial loans to finance capital
improvement projects.

Even partnership with the private sector remains unpopular among rural-based LGUs. In areas where there
is not much economic activity, the private sector appears to be hesitant in constructing facilities in joint
venture with the LGU, more so when the economic situation magnifies the non-profitability of such
venture.
Inadequate technical capacity of LGUs

Many LGUs do not have the technical capacity to plan and implement development programs and
projects. As observed, most LGU’s staff are not technically trained to come up with an economic and/or
land use plan, which would serve as the framework for promoting the local economy. These LGUs are also
found to be lacking in data-banking services and promotional activities that is normally needed for an
aggressive, systematic, coordinated and appropriate marketing of investment potential.
Lack of political will or commitment

A number of LGUs have a sound economic plan. Yet, many of the projects, which have been prioritized for
implementation, remain on paper because the local chief executives do not want to implement them, for
some reason or another. They lack the will to push for the completion of these projects due to political
expediency.
Insufficient support systems for economic promotion

National agencies, such as Department of Trade and Industry (DTI), which are mandated to promote local
economic development in collaboration with LGUs are not able to extend the needed assistance as they
lack the manpower in the field. Aside from this, the DTI also does not have sufficient resources at the
regional and provincial levels to engage in a more active and sustained effort for economic promotional
activities (i.e. preparation of feasibility studies, promotion of products, marginal/entrepreneurial skills
development and conduct of seminars on investment opportunities).
The need for shifting mindsets of LGU officials

Current challenges and demands from the environment strongly call for role shifting by LGUs.
Unfortunately, many local officials do not view the local government as an economic unit, playing the
role of an “entrepreneur.” Indeed, they have not imbibed the entrepreneurial spirit, which would propel
them to take a more proactive role in creating more enterprising activities in the local area.
Existing /emerging innovative strategies
Local governments have the advantage of first-hand knowledge of local conditions,

resources and other factors that are significant for local economic development. These
include physical infrastructure, facilities, manpower, availability of land and the like.
Their access to data and information, combined with a thorough analysis, also gives them
ample opportunity to define problems and objectives and to determine the appropriate
strategies. Apparently, the strategies resorted to by some local governments were chosen
based on the peculiar conditions, needs and objectives of their respective areas. Some of
these strategies include:

Making available sites and premises for
enterprises
Backed-up by sufficient and reliable data, the local
government would be able to identify a
strategically located site with adequate
infrastructures and facilities that will attract
prospective investors to establish their business.
Sourcing external funds for local public enterprise

Much needed funds could be obtained by tapping other economic sectors in the community who could be
attracted to invest in the area and collaborate with them on a project that would serve their mutual
interest. Modifications which can be adapted are: the “Build-Operate-Transfer” (B-O-T) or “Build and
Transfer” scheme, joint and cooperative ventures with private organizations, credit financing, lease and
outright sale of economic enterprises.
Organization of teams and economic promotion units

Assigning a unit or forming task forces or groups within the local government organization could also
hasten the effective and efficient implementation of the economic plans of the LGU.
Collaborating with private investors, NGOs and other groups

Relevant sectors and actors (i.e. private enterprises, NGOs, POs and other groups in the economic
development process) who can contribute resources, ideas and skills must be deliberately involved. Serving
their mutual interest, such a strategy can also ensure the attainment of the economic aims of the local
unit.
Strengthening internal administration

LGUs must invest efforts and resources to assess and upgrade internal capabilities. This would result in
the improved performance of the economic functions of the local unit, in particular, and public services,
in general. A sound and financial management, efficient personnel, effective service delivery systems and
the presence of municipal land use plan all work towards enabling the LGUs to perform its economic role
more efficiently with regards to systems and procedures and lead to better coordination and control of
program and projects.

As early as 1986, Mayor Manuel P. Santiago of the municipality of Guagua, Pampanga had already
envisioned the Guagua Integrated Approach Towards Sustainable Development (GIATSD). Within the
broad GIATSD framework is the component project of Guagua Integrated Tree Planting Organization
(GINTO), particularly the propagation of ilang-ilang and sampaguita seedlings. Promotive of
environmental conservation and sustainable development, the project showcased a successful
collaboration among the people, the local leaders, the devolved personnel from national government
agencies and the Department of Science and Technology (DOST).
The project began in 1989 when DOST experts introduced to the local farmers a new extraction technology for
ripened and dried ilang-ilang and sampaguita flowers. While it would take a long time before oil extraction could be
done and earn money from, the considerable demands for garlands and ornamentals created a desire for immediate
conversion of fresh flowers into cash. Nonetheless the goal was set to plant and propagate the seedlings and
eventually pursue commercial oil extraction in the late years.
The project beneficiary caretakers, mostly farmers and out of school youths were encouraged by the municipality to
propagate seedlings. The beneficiaries signed a contract with the municipal government accepting their obligation to
care for the plants. The LGU allocated P50,000 from the municipal budget for the project. The ilang-ilang seedlings
were given free while the sampaguita seedlings were given on a loan basis payable within 18 months, with minimal
interest. The municipality then purchased the propagated seedlings and distributed them to be grown by qualified and
interested constituents. Agricultural technicians from the Department of Agriculture (DA) assigned in the different
barangays monitored the program regularly.
The project accomplished both economic and environmental gains. Alongside the project on hand-made paper
products, the project on the propagation of ilang-ilang and sampaguita seedlings and tree planting benefited more than
2,000 families, resulting in the generation of an additional P50M in income for the municipality.
Adopting sustainable development as a strategy and goal

Initiating development, which would sustain viable livelihood activities
for local constituents without jeopardizing the natural environment
must be encouraged. In fact, these can be combined with efforts to
preserve the natural ecology of the community.
An economic promotion project that is anchored on the

philosophy of sustainable development can serve the purposes of
economic gains and environmental conservation.
Direct intervention in creating jobs

LGUs could also facilitate the supply of labor and ensure that unnecessary impediments to employment
generation are removed. However, there are cases when local governments may have to directly intervene
and create employment opportunities for its constituents. This may be realized through the
implementation and funding of small-and-medium-scale livelihood projects or cooperative programs
that can generate jobs and provide additional income.

Several years prior to 1992, Naga City experienced a heavy influx of migrants from the surrounding
poor areas. In addition to having to provide employment to these migrants, corresponding strains in the
delivery of basic services as well as greater social problems in the city were felt. Inevitably, Naga City
leaders were faced with the challenge of modifying the city’s inward-looking development thrust by
placing greater consideration for the less developed areas around it.
Using the concept of integrated area development, Naga City officials initiated the move to maximize the
urban-rural linkage between the city and its 12 neighboring municipalities to work toward common economic goals.
This resulted in the establishment of the Metro Naga Development Council (MNDC) in October 1992. Mayor Jess M.
Robredo of Naga City chaired the council. Overall, Naga City led the MNDC to pool the effort and resources of 13
LGUs, including national government agencies and the private sector in the province. The implementation of MNDP
projects is not supposed to prevent member LGUs from pursuing other activities in their locality. The overriding aim
is to identify each member’s role to enhance the entire economy of Metro Naga in the most productive and efficient
manner. Fortunately, the private sector has been very receptive and has, in fact, offered to work together with the
Council in pursuit of various sectoral programs. Other than the investors who have sought to match their investment
decisions with the plans and programs of the Council, the Naga City Chamber of Commerce and Industry, a
consortium of NGOs along with the Ford Foundation, the Ateneo de Naga Center for community development and
the senior citizens of Metro Naga became active supporters and participants of the MNDC projects and activities.
Inter-LGU cooperation
The resources consolidation of contiguous LGUs to undertake a common project that is beneficial to them
must be encouraged. Therefore, the assignment of a staff that will work on a full-time basis for the
cooperation becomes a priority. This staff can provide the requisite administrative and technical
backstopping to ensure the continuity and success of projects implemented by the member-LGUs.
Bond flotation/credit financing

Though not too many local governments have actually utilized this instrument of indebtedness, bond
flotation has served the economic purpose of supporting self-liquidating and income-generating projects,
which local governments are determined to pursue. The ability of the local government to generate the
interest of prospective investors to invest in municipal supported
economic activities and capital investment projects is crucial.
Formation of cooperatives
LGUs must also initiate the organization of cooperatives and provide
the necessary assistance and inputs at critical points in the life of the
cooperatives. Such assistance may involve management training,
provision of capital through loans and/or grants, market linkages and
production inputs.

Establishment of special economic zones
Local government must plan, designate and implement special economic zones, as certain businesses
require conversion of land or site into an industrial estate, construction or rehabilitation of
infrastructures, facilities, factories or workshops. The primary concern is to maximize the economic
potential that may be derived from the presence of these special economic zones.
Mandaluyong, one of the recently created cities in the country, is moving fast alongside its more affluent
neighboring local government in Metro Manila. The fact is the city government of Mandaluyong has the
distinction of becoming the first local government to enter into a B-O-T arrangement with a business
consortium, the Macro Founders and Developers (MFD) to construct, to operate and manage its own
public market. When the original market burned down in 1990, the government lost a good source of
income. Local authorities had to find a way to construct a new one as soon as possible, but the local
government of Mandaluyong had no budget for public works, more so for a public market.
By resorting to the B-O-T scheme, the city

government was able to construct a public market
and a commercial complex. The city government
admits that the program’s success was a product
of the support and encouragement of the various
sectors in the area. Some P6M was allotted from
the city government’s General Fund for the
operation of the new public market. The
commercial complex was expected to operate at a
cost of P15M annually, but income was expected
to register at around P20M yearly. As projected,
while serving some 60% to 75% of Mandaluyong
residents, the new market would likewise
accommodate around 500 stall holders and a
similar number of personnel or more who would
be employed by the establishments in the complex
or contracted by MFD for the maintenance and
security of the market. In addition, the land in
which the complex was constructed was estimated to appreciate in value from P10,000 to P20,00 per square meter.
This could generate greater potential income for the city government.
MNDPs area-based strategies included: 1) the identification of area-specific economic ventures from food to industries
and services and support systems from which a labor-intensive processing/manufacturing sector and an integrated and
diversified agricultural sector could evolve; and 2) the promotion of tourist attractions for the whole region.
Source:
Legaspi, Perla P. Caobo, Wilhermina L., and Ma. Ernita T. Joaquin. Local Economic Promotion in the Philippines.
Q.C.: LGC_PAKSA, U.P. and Public Administration Promotion Center, German Foundation for International
Development, 1996.

Modern Management in
Philippine Local Governance
M
odern management involves creative and innovative approaches to management problems.
These include non-bureaucratic mechanisms that do away with procedures, which slow
down processes, experiments with solutions not tried before, or provide greater impetus to
previous managerial experiments.
For the local government units (LGUs), modern management techniques are meant to:
! provide greater efficiency in the delivery of area-wide

services;
! upgrade and improve human resources capacity in
keeping with the resurgence of the democratic spirit; and
! involve people in the processes of decision-making as
well as in the implementation of public policies and
programs.
Many modern innovations are found in the areas of internal

management, reforms in organization and management,
human resource management and financial
administration. These in turn lead to greater efficiency in
systems and procedures and lead to better coordination and
control of program and projects.

In the Philippines, the passage of the Local Government Code (LGC) of 1991 provided the needed
mandates for the use of modern management approaches to local governments by:
! giving them the responsibility for the administration of basic services;

! providing them the means to increase their revenues;
! involving people in local policy-making bodies; and
! helping the advocacy door open to them.
These innovative approaches have improved the delivery of local services and increased the revenue of LGUs
in the Philippines. It is important to note that with the presence of many innovations, there was less
reliance on the local coffers. Instead, the LGUs were able to mobilize different sectors for financial
support.
Evidence had shown that the success of innovative programs lies in the involvement of the people in the
different aspects of activities. Cooperation among the private sector, religious groups and non-government
organizations (NGOs) was effectively utilized in many areas such as in the provision of safe water supply
and the active participation of women in the provision of health care activities.

There may not be conscious Local government units have used the LGC to initiate and implement development
attempts to adopt modern activities, which would sustain viable livelihood for its people and to maintain a safe
management strategies in
their technical forms, but the
and healthy environment for local constituents. Localized efforts formed integral parts
strategies do utilize aspects of of the national agenda on sustainable human development, which in turn is part of the
these modern techniques. global agenda on sustainable development
Framework for modern management

Careful utilization of human resources and their own powers can successfully bring about “mediation of
change” through organizational development, human resource development and management, financial
management and internal control.
“Mediation of Change”
Local Government Units Management Interventions and Strategies
Human Resources
* Indigenous employees
Devoted employees
* Devolved ! organizational
development
Powers ! human resources
development and
* Traditional management
Local Development Outcomes
* Non-traditional
Financial Resources
* Local sources
* External sources ! • Social Economic
Social development
development
Leadership ! • Econimic development
Economic developmen
People’s Participation ! •Democratic

Democraticgovernance
governanc
Local special bodies democratic accountability

Alternative delivery systems joint economic ventures
SOCIAL, POLITICAL AND ECONOMIC CHANGES
Source: Modern Management in Philippine Local Governance. LGC/ DSE. 1996.
On the other hand, these interventions need further boost from the people through:
! participation in local governance through representation in local special bodies;
! assistance in providing alternative delivery system;
! joint economic ventures with LGUs; and
! provision of checks to maintain democratic accountability.

If efforts from the LGUs and the people are sustained, the intervention will lead to local development
outcomes to propel and sustain social and economic development and enhance democratic governance.
Sources:
Government. Philippines: German Foundation for International Development and Local Government Center –
CPA – V.P., 1996 pp. 111-114.

Efficient Delivery Systems and
Public Accountability
Delivery systems
F
or an institution to be widely visible, it must be efficient and effective in manning its
delivery system. Delivery systems refer to both the internal organizational network of the
institution that delivers a particular service and the clientele that the institution serves.
Institutional efficiency may manifest itself in terms of a highly performing internal Strategies that allow a
mutually reinforcing set of
management and a delivery network responsive to the requirements of the end users. functional arrangements
Furthermore, delivery systems, as an area to consider in strategy building in between institutional
institutional sustainability, are valid and always relevant. delivery systems and its
clientele will ultimately lead
to institutional effectiveness.
A standard measure of effectiveness is the capacity to create awareness among the
clientele that they can do something for themselves without the coercive and primary
influence of the state (e.g. when community leaders mobilize local resources for their own good) and the
translation of people’s hopes and aspirations into one collective political action in the process of
development.

Public accountability
The concept of public accountability refers to the

responsible use of power and the rational execution of duties
and functions delegated to those who will administer them.
This is a crucial condition for effective decentralization.
Those who are to assume delegated functions and powers

must not only exercise them for the public interest but must
also be vigilant of the ethical and moral implications of
their actions. This is the first cardinal rule necessary in the
transfer of power.
Types of public accountability
Internal accountability – at each level in a hierarchical organization, public officials are accountable
to those who supervise and control their work.
External accountability – being responsible to concerned authorities outside one’s department and
organization for actions carried out.
Public accountability- insulates the bureaucracy from partisan and unnecessary public censure. At the
same time, it provides a framework for making and implementing government
decisions responsibly.
How can accountability be sustained?
! Effective use of administrative tools that can measure the performance of public
agencies (e.g. measures on how a public agency uses its resources and achieve its
institutional goals).
! Making the agency conscious of the need to develop its capacity or to innovate in
making adjustments internally within the organization to ascertain its relevance
and responsiveness to its constantly changing environment.
! Improve the capacity of a public office to predict how it should carry out its
programs in the future to make the public agency predictably accountable (i.e.
describing its mission and committing its resources in achieving its vision / goals).
Sources:
Sosmeña, Gaudioso Jr. Breaking the Cocoon: Bureaucracy Reborn Local Government Development Foundation and
the Konrad Stifftung. Manila, Philippines. 1995.
Sosmeña, Gaudioso Jr., Decentralization and Empowerment. Local Government Development Foundation. Manila,
Philippines. 1991.

NGO-PO Participation in
Local Governance
P articipation deals largely with the issue of power,

the probability that one actor within a social
relationship is in a position to carry out his own will despite
resistance and the basis on which this probability rests.
Empowering one’s self involves claiming a share of the power held

mainly by the powerful. This necessitates the acknowledgment of a
stronger and a more powerful entity outside one’s self. Furthermore,
reforms aspired for will remain ineffectual unless affirmed and
consolidated by the current power structures.
Level Measure of success
Policy ! Adoption and legislation of the non-government organization/ People’s

Organization (NGO/PO) development program either in whole or in part by
the government
Civil society
! Strengthening the NGOs and POs that can keep the government accountable
and responsible to community needs
Democracy
! Expanding the democratic space in which NGOs and POs function, increasing
their political legitimacy and improving the attitudes and behaviors of
government officials and elites toward NGOs and grassroots groups

Variables to be considered
! The organizational ability of an NGO/PO to pursue its objectives and programs;

! Opportunities for participation provided by the government; and
! Receptiveness of local government officials to NGO/PO participation in governance
Indicators of effective participation
! Adaption of NGO/PO program by the LGUs

! A more responsive and accountable government; and
! Increased political legitimacy of NGOs and POs.
Active civil society participation in local governance has led to a redefinition of the notion of governance in the
Philippine context, one that goes beyond the formal structures and processes of governments. Over the past six
years, various consultations have been initiated and conducted by the NGO community to review the Code, make
proposals to amend it and study pending legislations on people participation and electoral reform. One such example
is the National Coordinating Council on Local Governance (NCCLG) that operated from 1993 to 1996. It served as
an umbrella network for NGOs that developed advocacy strategies to meaningfully implement the codal provisions for
NGO participation in local governance.
The 1991 Local Government Code (LGC) recognized the inability of LGUs to perform
the increasing responsibilities delegated to them by decentralization because of the:
! LGU’s limited financial and technical resources;

! limited capability of local government systems and officials; and
! need for an intersectoral convergence approach to development.
Thus, the LGC mandates that LGUs enlist the support of POs and NGOs in the
Empowerment is multi-
formulation and implementation of development policies and program. As the Code dimensional-cultural,
itself formulates specific mechanisms and guidelines on which to base a potential economic and political.
Without political
partnership between LGUs and the NGO-PO community, various venues of participation
participation, there is no
have been provided: empowerment and without
participation in governance,
there is no genuine
! representation in local special bodies; participation. Without
! sectoral representation in local legislative councils; participation of NGOs and
! mandatory consultations for national projects; POs, there is no genuine
participation and no effective
governance.

! accountability mechanisms of recall;
! financial assistance from LGUs for socio-economic development undertakings;
! joint ventures and privatization of local government enterprise; and
! local initiative and referendum.
Enabling and disabling factors for participation

Enabling factors Disabling factors
! openness and cordial relations between ! mutual suspension and mistrust

sector
! positive cultural environment ! traditional politics
! establishment of appropriate structures ! rivalry between the sectors
! acceptance of NGOs of the need to deal ! non-institutionalization of programs and
with government projects
Through the LGC, decentralization, people empowerment and the struggle for power disadvantaged groups
become intertwined. Various venues or opportunities for participation hoped to spur the organization and
mobilization of the marginalized sectors. Conversely, the more critical, organized and active the local
citizens are, the more the structures and processes of decentralization are strengthened. Various sectors
working together can achieve self-reliance and ensure public accountability.
Possible fields of LGU-NGO / PO partnerships
! Policy formulation
! Local service delivery
! Local structures and systems
! Representation in local special bodies
! Joint programs and projects
! Administrative of justice
! Environmental management
Difficulties encountered in building strategic partnership with the

government
! Lack of skills of both parties which make them unable to effectively utilize local development
councils
! NGOs/POs have yet to constitute an effective consultative and feedback process with their constituents
! The negative attitude of local officials toward the LGCs
! The nature of LDCs as purely recommendatory

Factors affecting LGU-NGO / PO partnerships
LGU-related
Facilitating Factors
! openness of LGUs to NGO partners
! good historical ties with LGUs
NGO/PO related
Facilitating Factors
! track record
! resources
! capability
! expertise
! networking
The role of civil society, NGOs and POs and the private sector in good governance is considered very
important. In fact, experiences over the past five years have revealed that these various sectors -civil society
in general – have begun to play a key role as pressure groups, initiating projects either on their own or in
collaboration with the LGUs and in involving themselves in the delivery of basic services to the people,
which is at the heart of good governance.
Unlike before, local officials are now more open and willing to understand the nature of developmental
NGOs and POs. However, to further solidify and sustain this partnership and cooperation between the
public and the civil society towards reform, it is necessary that both sectors continue to develop new
perspectives about their respective development goals, programs and projects, and their basic needs and
requirements.
Sources:
Addaba, Fernando T. “An overview of the Research Literature on NGO-PO Participation in Local Governance” in
Local Government Bulletin. LGC-CPA-V.P. Volume XXXII Nos. 2-4, April – December, 1997.
Brilliantes, Alex B. Jr. “The Challenge of Good Governance.” The Kyberman Group, Inc. December 1999.
Brilliantes, Alex B. Jr. Decentralization, Devolution and Development in the Philippines. UMP_Asia. Occasional
Paper No. 44. June 1999.
People’s Participation in Local Governance. Ateneo Center for Social Policy and Public Affairs. Ateneo de Manila
University, Quezon City, Philippines, 1995.
Zialcita, Fernando et. al., People’s Participation in Local Governance: 4 Case Studies. Ateneo Center for Social Policy
and Public Affairs, Quezon City, 1995.

2
CHAPTER
TWO
Public sector
B
eing the biggest development agency in
any country, government is mandated to
reform through provide for the efficient delivery of
socio-economic services such as health,
increased education, agriculture and livelihood. By the
accountability
nature of its functions and with the realities of
increasing demands for government’s services
and improved and subsidies, any government must endeavor

to improve and expand its administrative
management structure and machinery and enhance its
operational capacities. This is done not only to
achieve economy and efficiency in public
service but also to undertake the task of nation
building.
For governments to perform their mandate

and functions, they must be able to adapt to the
rapid changes and exigencies of the
environment both from within and outside the
administrative organization. Past Philippine
administrative experience was suffused with
serious problems and difficulties which put to
question the government’s organizational and
technical capacities to achieve its
developmental goals and objectives. These
problems, which were complex and pervasive
affected the whole governmental system and
operations. This often involved over
centralization, limited facilities and resources,
personnel shortage, rigid budgeting and
programming of resources, highly standardized
procedures and uniform packaged outputs,
among others.
The timely passage of the Local Government
Code of 1991 made it possible for the
government, particularly the LGUs, to develop,
introduce and adopt some modern
management strategies and tools. These in
effect provided order and stability to the
business of government - that of improving the
delivery of local services and increasing its
revenues to sustain and expand the scope of
such services.
To date the continuing search and testing for

more innovative management interventions
remain. Such interventions are expected to
pave the wave for the transformation of local
bureaucracies into effective catalysts for
change, enabling the realization of programs
and projects identified with and by the LGU’s
immediate constituencies: local people.
Chapter Two describes and analyzes some

modern strategies and techniques which have
been used by LGUs in the areas of
organizational development, human resource
development, financial management, fiscal
administration, among others. This chapter
also presents the relevant laws and regulations
and administrative policies and some of the
environmental, institutional and organizational
problems that provided the context and the
bases as for these management innovations.
From the experience, additional insights and
suggestions are forwarded for the eventual
possible adoption by other LGUs in their
respective efforts and functions.
Organizational
Development
in LGUs
P
rior to devolution, local governments in the Philippines were already providing services
with their own complement of personnel, administrative machinery and local funds in the
four basic areas (Health, Agriculture, Social Welfare, and Environment and Natural Resources).
The local government units (LGUs) nearly always attempted to supplement national government
provisions and oftentimes, field agents of the four national departments were called upon to lend
logistical support.
Field workers were under the supervision of the local chief executives. However, with their compensations
being received from the national government, effective control was in the hands of regional directors as
officers of the respective departments. Field agents usually have their official workstations near the
provincial capitol or city or municipal government halls. When devolution started, these field offices were
converted into technical assistance and monitoring arms of the national government.
LGC Organizational character- Organizational purpose Beneficiaries/

provision istics of the LGU Objects
Section 3b Accountable, efficient and To meet priority needs and service Communities
dynamic structure and requirements
operating mechanism
Section 18 Effective and efficient Responsible for the implementation of LGUs

organization development plans, program objectives and
priorities
Section 76 Structure and staffing pattern Takes into consideration service LGUs
subject to CSC standards requirements and financial capability
and guidelines
Source: Modern Management in Philippine Local Government. LGC-UP. 1996.

Organizational development and the Local Government Code (LGC)
During the first months up to the first year of the implementation of the new LGC, there was little
makeover, except that the number of personnel had risen tremendously. In fact, a typical LGU would
simply lump the devolved function with all the other processes and activities of the LGU, without pausing
to reconsider the new alignment of responsibilities and resources that the LGU now obtained. Before
devolution, provinces, cities and municipalities were organized in the following manner.
Typical LGU organizational chart
Local Chief Local Sangguniang

Executive Panlalawigan
Administrator*
(if there is one)
Office Office Office Office Office
*An administrator’s position is mandatory only for cities under the Batas Pambansa 337, the Code’s precursor.
Source: Modern Management in Philippine Local Government. LGC-UP. 1996.
The evolution process
The expansion of powers of local government in development planning and development finance
eventually revealed the inadequacy of existing organizational set-up and management procedures. The
process entails local determination of its own needs, local discovery of appropriate tools to address those
needs and the local interpretation of the changes happening around them.
As proposed, the internal management processes are separated (but still on an equal footing) from the
direct-public services. Those at the bottom are in constant contact with the beneficiaries of the LGU
services. Those above cater to the needs of the LGU to plan and map out strategies to keep it effective.
Some LGUs have abolished some offices, created new ones, merged with others, and streamlined divisions
among them to reflect new responsibilities they must discharge.

Organizing for economic promotion
Creation of an office for economic enterprise

development and management in some LGUs
In the past, this function was lodged within a division in the
local treasury, being one of the means for income generation.
But with the expanded LGU functions and powers in the Code,
many local chief executives of well-off LGUs conceived of having
an organizational device for the purpose of economic
development (i.e. regulating existing enterprises in the area,
developing cooperatives, promoting investment and
formulation of related policy recommendations).
Formation of economic development task forces

The local department heads and key leaders from the business sector comprise these task forces.
Creation of organizational mechanisms such as a Cooperative Office and a Federation of

Puroks to:
! harness people’s participation in decision-making;
! facilitate credit and financial support to help address the people’s livelihood needs; and
! collaborate with other public and private organizations in the areas of training and extension,
monitoring and evaluation.
Organizing for people’s participation
Representatives of accredited People’s Organizations (POs), non-government organizations (NGOs) and

individuals of good community standing were elected by their peers to sit on the board s (i.e. Development
Councils, Art. 182; Pre-qualification Bids and Awards Committees, Art. 183; School Boards, Art. 184; Health
Boards, Art. 185; Peace and Order Councils, Art. 186; and People’s Law Enforcement Boards, Art. 187).
These bodies generally act as advisers to the local Chief Executive and perform evaluation functions
concerning development programs, educational budget priorities, bids and awards, peace and order, and
health programs. Likewise, they serve as checks on the Chief Executive’s program.
Almost all LGUs in the Philippines have constituted local special bodies. The initial months were bogged
down by problems as charges of political manipulation, harassment and fraud were hurled by NGOs
against local officials, business leaders and political figures. Mistrust between LGUs and NGOs rooted in
their perception of opposing ideologies and the notion that “NGOs are often unfamiliar with government
mechanisms, weak in interpersonal skills in relating with local officials and do not know yet what they
can do with the Code to advance the interest of their sectors.”

Conceptual framework for NGO initiatives
Local development outcomes
1. Effective planning and implementation at

the local levels
2. Sustained benefits from development
NGOs activity
3. Local capacity created and on-going so that
1. Type of NGO initiative groups and communities can manage
2. Location and level of NGO operation development activities
3. Type of local development task 4. People gain increased voice in decision-
4. Relations with the local government making
5. Strategic orientation and capacity
! Orientation and approach

LGUs
! Financial strategy
! Organizational strategy 1. LGU policies, legislation and action
! Institutional linkage and policy strategy 2. LGU administrative capacity to reach
people at the grassroots
3. Priorities and content of development
strategy and programs
4. Organizational channels favored for
implementing development activities
Donor agencies 5. Level of funding and resources available for
development activities
1. Level and type of funding
2. Technical and management assistance
3. Policy guidance and advocacy Macro-environment
1. Level of political stability

Adapted from Riker, J. “Contending Perspective for Interpreting 2. Status of the economy
Government-NGO Relations in Southeast Asia: Constraints, 3. Degree of foreign donor intervention in
Challenges and the Search for Common Ground in Rural economy
Development,” in Government-NGO Relations in Asia:
Prospects and Challenges for People Centered Development.
Ed. By N. Heyzer, J. Rikker, and A. Quizon, Kuala Lumpur: Asia
Pacific Development Center, 1995:25.
To date, mistrust has been gradually overcome as cases of successful LGU-NGO ventures in community organizing,
resource mobilization and project management and implementation proliferated. The current openness between LGUs
and NGOs is an indicator of effective decentralization.
Source:
Tapales, Proserpina D. Perfecto L. Padilla, Ma. Ernita T. Joaquin with Eden V. Santiago. Modern Management in
Philippine Local Government. LGC-UP College of Public Administration and German Foundation for
International Development, Philippines, 1996.

Human Resources Development
and Management in LGUs
HRMO
T
The initial expansion in scope of government activity vis-à-vis its workforce happened at the
national level and then eventually radiated to the local level as the local government units
started delivering devolved and new programs and services. Considered as the most notable
development at the local level is the passage of the Local Government Code in 1991 that effectively
devolved substantial powers, functions and responsibilities from the national government to the LGUs. In
terms of personnel complement, the number of devolved employees from different agencies reached a total
of 70,498 as the transfer were completed in October 1993.
! Department of Health (DOH) - 46,107

! Department of Agriculture (DA) - 17,667
! Department of Environment and Natural Resources (DENR) - 899
! Department of Budget and Management (DBM) - 1,650
! Philippine Gamefowl Commission (PGC) - 25
! National Meat Inspection Commission (NMIC) - 9
TOTAL 70,498

With the implementation of the Local Government Code (LGC), the mandate of the transfer of personnel to
the local governments in support of the devolution of certain functions and services posed problems of salary
rates in the case of the transferred personnel. In fact, Philippine local government unit (LGU) personnel
complement has greatly increased because of devolution. When the transfers were completed in October 1993,
the number of devolved employees from different agencies reached a total of 70,498.
Problems encountered
! initial mistrust between devolved employees and bureaucrats;

! low financial absorptive capacity of LGUs;
! snags in the transfer of salaries during the transition year;
! misallocation of positions in some departments;
! questions of loyalty to the local Chief Executive;
! non-absorption of some personnel with political problems;
! non-assurance of career advancement and capability-building; and
! resignation of some in order to avoid having to join local governments.
Among the other major human resource concerns that local governments must immediately address,
particularly those in low-income areas, include:
! the clamor by the local employees for salaries comparable to those being received by their counterpart
employees from the national government, particularly the health workers;
! ceilings on budget for personal services;
! lack of a Human Resource Management and Development Office (HRMDO) that shall spearhead
human resource planning and implementation in the local government;
! lack of adequate career development plans and capability-building programs including management
development;
! outdated job designs and performance review systems; and
! need for changes in recruitment and promotion policies and procedures.
Measures and processes adopted to address common human

resource concerns
Adoption of systematic human resources planning

! Evaluative analysis of the personnel complements of the organizational units;
! Ascertainment of the reasonable number and appropriate classes of positions needed
by the LGUs;
! Projection of the estimated number of employees who may be retiring, resigning or
transferring to other jobs; and
! Termination of personnel services because of organization overhaul.

Establishment of HRMOs in LGUs
LGUs of small provinces and cities have been further strengthened with the designation of an HRM Officer
under the Office of the Governor or Mayor.
Introduction of the career executive service vis-à-vis top-ranking officials of the LGU
This has provided extended vertical and horizontal mobility for local personnel, which in effect motivated
their performance and enhanced their careers.
Conduct of continuing management development and capability-building programs for local

officials and employees such as:
! Joint conduct of Local Administrative Development Program (LADP) by the Local Government Center-
UP-NCPAG and Local Government Academy;
! Distance Learning / Education Program designed by the University of the Philippines; and
! Conduct of job-related, hands-on training that involves the examination of real problems in real time
by employees most closely identified with the job.
Some other preventive or remedial measures that may guide local officials and
functionaries vis-a-vis issues and problems on Human Resource Management
! On human resource planning
What may be done?
Maintaining an accurate information concerning the composition, capabilities and assigned tasks of the local employees.
An organized, accurate and updated information system needs concerted efforts of both the local management and
employees. It is not only the responsibility of the OHRM to rationalize the personnel records but the individual
themselves should be involved particularly in supplying the required information.
! On recruitment and selection
What may be done?
Strengthening of the Personnel Selection Board (PSB) which may push the LGU to strictly comply with the civil service
policy of upholding the principles of merit and fitness in the selection of its personnel. This system can significantly
upgrade the quality of future local personnel through proper screening of prospective applicants and employees for
promotion.
Other actions that LGUs may consider:

! help skilled personnel who may be promoted, to require the needed education requirements
! conduct review classes to help non-eligible acquire civil service eligibility and to enable them to eventually upgrade
their positions.
! attract highly qualified personnel by offering, if they can, additional benefits/compensation to make them
comparable with what the private sector offers.

! On detailing of personnel
What may be done?
Detailing of personnel from one office to the other is supposed to be done based on the needs of the requesting office.
This requires a thorough analysis of personnel records to ascertain if the personnel being detailed has the skills
necessary to perform the job and that there is really a need on the part of the department for said personnel
movement.
! On compensation and benefits
What may be done?
Financially burdened LGUs may find ways to fully compensate their respective employees. For instance, benefits like
amelioration allowance may be given on a staggered basis. In more affluent ones like in Metro Manila, they may give
more financial benefits to their employees as long as they are within the limits prescribed by law.
! On performance evaluation
What may be done?
LGUs should re-orient themselves in order to assign a new meaning to performance evaluation. They should review
their performance evaluation system and develop it into something that can help the LGUs achieve their goals while
improving employee performance. Performance evaluation should be used as a basis in making important human
resource decisions.
! On human resource development
What may be done?
Contents of capability-building program being offered by various training institutions are beyond the control of LGUs
but they can be more selective in sending their employees…The LGUs may address the idea of providing equitable
human resource development opportunities by:
1. Creating policies regarding the availment of capability-building opportunities; and
2. Developing their own programs to meet the needs/priority thrusts/programs of the organization and upgrade the
administration and technical capabilities of management and employees as well.
The appraisal of the Local Sanggunian is important to be able to implement the HRD program of the LGU through the
allocation of financial and logistical resources.
! On career development
What may be done?
LGUs should see the importance of developing a career management system for its employees by providing
opportunities as well as funding that would support capability-building and other activities designed to upgrade
individual performance. A well-designed career development program for LGU personnel is imperative.

! On The creation and strengthening of the office for Human Resource Management
What may be done?
The greater responsibility for the management of human resources calls for the creation of a separate and distinct office
for Human Resource Management in every LGU. Much of the personnel-related problems, from disorganized personnel
records, non-observance of the principles of merit and fitness in the recruitment and selection process, unutilized
results if the performance evaluation system, absence of a human resource development program and career
management system, may be given proper attention and greatly facilitated if an adequately staffed OHRM is created.
Sources:
Tapales, Proserpina D., Perfecto L. Padilla, Ma. Ernita T. Joaquin, with Eden V. Santiago. Modern Management in the
Philippine Local Government. LGC-UPCPA and German Foundation for International Development. Philippines.
1996
Sajo, Tomas A., Eden V. Santiago and Ma. Ernita T. Joaquin. Handbook of Modern Management in Philippine Local
Government. Center for Local and Regional Governance. National College of Public Administration and
Governance, University of the Philippines and German Foundation for International Development. Philippines.
1998.

Financial Management
Innovations in LGUs
T
he passage of the Local Government Code (LGC) has lent more importance to sound financial
management in Philippine local governments. Not only have transfers in the form of LGUs
share in Internal Revenue Allotment (IRA) increased (from 30% to 40%), a lot of opportunities
for revenue generation [bond flotation, lease/purchase scheme, credit finance, enterprise promotion and
build-operate-transfer schemes] are now open to local governments.
In managing, developing and controlling financial operations and other economic development
functions, local governments can explore many options allowed by the Code. These possibilities may
enhance local fiscal position and enable local government units (LGUs) to carry out well-financed
programs.
Issues of inter-governmental relations in financial management
National government influence

The national government’s role in local financial management extends beyond
granting LGUs more money (e.g. IRA). It influences the allocation of resources,
personal services and also the internal process of collecting and accounting of
finances.
Restrictive policies
Local officials complained that national agencies like the Commission on
Audit (COA) have not yet adjusted their regulations. Likewise, they have not
provided guidelines supportive of fiscal decentralization despite the fact
that new powers were already granted to local government pursuant to
the LGC. The Rapid Field Appraisal noted this in the areas of
Build-Operate-Transfer (B-O-T) schemes, bond financing,
revenue utilization and asset disposal.

Unfunded mandates
The creation of “unfunded mandates” continues to burden local governments. These mandates concern
the congressionally approved benefits to local health workers, the use of their 20% development funds and
even the recent Commission on Elections resolutions on LGUs partially funding the May 1997 barangay
elections. In the absence of adjustments from national financial agencies, local governments are thus,
constrained in using local finances in the way they see best. Tied to the unfunded mandates issue is the
uncertainty that may be faced by local governments once the national government incurs a deficit. The
Code provides that when this happens, the President is authorized to make the necessary adjustments in
the IRA (Section 284 C) in consultation with the Department of Budget and Management(DBM),
Department of Interior and Local Government (DILG), Congress and local government representatives.
Need for modern financial systems

Based on the experience of local governments in the first
five years of the implementation of the Code, only a few
have taken steps to improve their fiscal situation. Some
have adopted new revenue ordinances, but have not
imposed new taxing powers. Collection efficiency of
local taxes remains low and methods used in revenue
estimation remain traditional. They have not exerted
extra effort in generating more revenues to match
revenue from external sources. LGUs dependence in the
IRA is deepened by the bigger amount of allotment and its automatic release. In both revenue generation
and budgeting systems, the issue of access and management of information are considered crucial. Other
lingering problems include:
! Borrowing and other non-traditional schemes to fund income-generating projects remain limited.
! Absence of a development plan and/or the weak vertical and horizontal integration of plans (i.e. a lot
of LGUs have little discipline or patience to wait for submission from the lower levels nor for review
and integration at the higher levels).
! Local governments remain traditional in the kind of development projects funded out of the
Countryside Development Fund (CDF) of their District Representatives. Without discounting the
benefits that may be generated by these projects (which are mostly infrastructure projects), they do not
make up a whole plan for the
development of the locality. Thus,
such projects are not maintained
F primarily because the local
CD
government has not planned for their
upkeep.

! The composition of expenditures remains focused on general government expenditures. Expenditures
for social and economic services have not improved. The budget is practically devoted to the payment
of expenses on personal services, maintenance and operating expenses and hardly shows its relationship
with the targets or services that the LGU intended to provide for the fiscal year. Again, this reveals gaps
in the planning and budgeting and lack of guidance and vision in LGU operations.
Capabilities and attitude of finance employees in revenue generations and administration

Efforts at maximizing revenues fall short when management processes remain unaltered and
when the human resource component lack the needed skills. For example, the yield from
taxation depends a lot on the coordination between involved officers as well as those of the
LGUs.
Local governments are way behind with the use of

information technology because of its perceived cost and
because of attitudes held by many local employees. An
example is the “fear” of using a personal computer for
lack of training. It not only results in efficiency loss but
also upholds an attitude that old ways are still better
than new ones, even if the latter’s benefits are greater.
With respect to local development planning, a lot of LGUs have little discipline or patience to wait for
submission neither from the lower levels nor for review and integration at the higher levels. Similarly at
the national level, national agencies draw up their plans without tangible participation by local
authorities. Caught in the middle of these exercises, local planners need a lot of creativity indeed.
Marikina evolved from a small town famously known for producing export-quality shoes into one of the
most progressive and dynamic cities of Manila. It has traditionally prided itself as the ”Shoe capital of
the Philippines” where its shoe industry generates resources and provides employment for most of its
people. The glorious place it holds, complemented by competent leadership greatly influenced and
contributed to whatever transformation Marikina has achieved today.
Revenue generation is one aspect of local governance

where Marikina had shown an exemplary performance. Marikina’s total
income (local and external sources) steadily showed an increasing trend
over the past five years. Its average annual income for some period
(1992 to 1997) amounted to P338.8 million. As of August 1997, the
city has already collected 93% of all its tax collectibles. This is a
remarkable feat, which is not commonly found in LGUs.
(continued next page...)

Since taxes from real properties are said to be the most stable and productive tax base of LGUs, Marikina has been
concentrating its efforts on real property tax collection campaigns aside from other taxes. These major activities
consist of the following:
General revision of real property assessment

Marikina undertook a general revision of real property assessment beginning in 1994, which effectively increased its
revenues. This explains the 81% growth rate in real property tax collections.
Taxation of idle lands

Marikina charged a four percent levy on idle lands and in doing so, the owners of idle lands were encouraged to
improve or sell their properties. Improvement of the lands mean additional income for the city because of permit fees
that must be secured/paid (e.g. building permit, excavation permit, etc.)
Rigid tax collection campaign

To supplement the real property tax collection efforts, the Treasurer’s Office for
the past several years has been sending eight local revenue collection officers to
the field everyday. They are given a quota to visit 20 tax payers/houses on a daily
basis.
Other revenue generation strategies
The city administration is constantly on the

move to look for ways and means that could
increase the city’s coffers. These include:
! designation of additional parking areas and

collection of parking fees (minimum of
P5.00 for the first three hours plus P10.00
for every succeeding hour); and
! collection of P2.00 from public utility
jeepneys for the use of designated loading
and unloading areas.
Proposed revenue generation strategies
There are many other innovative strategies of generating revenues most of which are notably suggested by the city
treasurer. Some are just waiting to be implemented while some are still under deliberation by the Sangguniang
Panlalawigan or under study by the Chief Executive.
! Computerization of treasury operations

It is perceived to enhance the delivery of a fast and efficient service to the taxpaying public and to ensure
transparency of operations. Marikina received a P3M financial assistance from the Metro Manila Development
Authority (MMDA) for its computerization program.
! Imposition of night parking fees

There are streets in the city, which are used as parking spaces of residents particularly during the night. Aside from
depriving the public of unhampered use of roadway, illegally parked vehicles also cause accidents from time to time.

The proposal plans to charge the concerned residents at least P3,000 per year for every car parked overnight on the
road.
! Rehabilitation of the Marikina Sports Complex

The city now owns the Marikina Sports Complex building
which it acquired from the province at P15M. Situated at a
four-hectare lot including the area occupied by the
provincial hospital, Marikina plans to have the stalls
improved and lease them to private businessmen. At
present, the city has rehabilitated the complex and now
charges P2.00 for the use of the swimming pool and a
minimal entrance fee for those who would like to play.
! Establishment of a mini-hospital
Another possible source of income is the establishment of a
mini-hospital (with a 20-bed capacity). This includes a plan
to call up all medical practitioners residing in the city to
render at least one hour a day of public service. Payment for
their services will depend on the people’s capacity to pay.
Sources:
Government. Philippines. German Foundation for International Development and Local Government Center-
CPA-U.P., 1996. pp. 44-59.
Santiago, Eden V. Case Study No. 3 “Financial Management Innovations in Marikina”. pp.100-110.

Enhancing LGUs’ Fiscal
Administration
T
oday, as we enter the third millenium, local governments are under the
tremendous pressure to meet the challenge to perform and play a significant
role in the pursuit of development, considering the currency crisis obtaining
in the Asian region. With increasingly shrinking resources, local governments are in Local fiscal administration
the quandary as to ways and means to carry out their two-fold mandate of delivering a refers to the natural, effective
wide array of basic services and keeping the wheels of development running. and efficient conduct of the
fiscal functions and
operations of local
Improving the financial status and operations of local governments to enable them to government units which
embrace the systems,
carry out their mandate is the foremost concern. This concern compels them to give
structures, processes and
emphasis on the administration of their fiscal and other economic resources. An human resources involved in
efficient and effective local fiscal administration becomes imperative for them. revenue allocation and
utilization. In addition, such
conduct of fiscal affairs is
The 1991 Local Government Code (LGC) still daunts many local government units governed by laws and is
(LGUs), especially on using one’s devolved powers in dealing with local revenue affected by the fiscal policy
environment, which defines
generation and utilization. Until serious efforts are undertaken to improve the fiscal central-local and inter-LGU
administration of LGUs, local governments may not be able to face the challenges posed fiscal relations.
by the 1991 LGC.
Source:
Celestino, Malvar and
Zipagan Sr., 1998: 5

Problems confronting a local government’s fiscal administration
! The Local Treasury’s inefficient handling of its two main tasks: revenue collection and accounting and
bookkeeping.
Some personnel with no specific functions were assigned to undertake various assignments. This
practice often results to an overlapping of functions and buck passing. In most cases, nobody takes
responsibility of admitting errors or mistakes.
! Poor filing system.
It usually takes office personnel an average of thirty minutes to an hour just to retrieve a single data
on tax collected.
Strategies/activities LGUs should undertake:
! Conduct of training programs focusing on fiscal accountability

accountability,, technical capability
building and effective systems and strategies for revenue generation and resource
mobilization
mobilization. Such training could be done back-to-back with orientation on special economic
enterprises/areas (e.g. slaughterhouse and public management) since a significant amount of the
annual income is derived from these establishments.
! Formulation of program/work systems

systems. The use of a flowchart for revenue generation provided
each personnel assigned in revenue collection a more detailed task and responsibility.
! Instilling the value of fiscal accountability among staff and taxpayers. The head of the
Revenue Collection Committee/ Municipal Treasury, with the Mayor’s full support, exerts full effort to
instill the value of paying local taxes to their own staff who, in turn, did the same to the taxpayers.
Insight into the experience...
“Fiscal administrations cannot be learned nor implemented overnight. It entails a step by step implementation and constant
exposure to the said field.”
With the right attitude and commitment, things learned during capability-building programs can be brought back to
make a difference in local government.

Continuing trends, lingering problems
After almost five years of greater fiscal autonomy, there is evidence that the content and performance of
local fiscal administration has undergone some significant changes.
! Local governments’ share in economic activity has taken a slight turn upwards, and deviated from the
previous trend. Local government revenues and expenditures have registered a growing share in total
general government revenues and expenditures in GNP, and per capital terms. This is however
attributed mostly to the enlarged internal revenue allotment.
! The national governments played a major role in the fiscal decentralization process. On the one hand,
the vertical fiscal relations were improved in terms of enhanced local taxing powers, improved shares
from national internal revenue collections, reduced government intervention in revenue planning,
budgeting and spending and in selection of fiscal personnel.
But despite said improvements in local fiscal administration, some patterns remain and so are the
problems that go with them that have been there even before the enactment of PD 231.
! Local governments continue to treat the IRA as a dole out, depend on it as it has become more regular
and predictable and have not exerted greater effort in raising revenues through the exercise of their
taxing powers.
! The collection efficiency in real property tax remained low; and the property valuation used in
assessment, outdated.
! Local governments continue to rely on one or two local taxes for revenue. The real property tax and
the business tax remain the two major local taxes from which local units generate substantial
amount or revenue. This is not suprising considering the absence of tax bases in many LGUs. Even the
more prosperous LGUs have not shown extra effort in raising revenue from other taxes, fees and
charges. Apart from the fees and charges listed in the code, LGUs have not come up with ways to
augment their local income.
! Use of borrowing and non-traditional schemes to fund income-generating projects remains limited.
We can only cite the experience of Cebu Province, the Municipality of Victorias in Negros Occidental,
Legaspi City, Claveria, Mizamis Oriental and Naga City in the issuance of local bond to finance a local
project. This observation augurs well to the traditional and conservative character of LGUs.

! The absence of a development plan is also a problem that affects not a few LGUs. The importance of
having a well-conceived, well-studied development plan need not be stressed. It is very imperative for
LGUs to produce such a plan, to map out their vision for the locality, come up with relevant programs
and projects, estimate with accuracy the amount of money it needs to raise, how this could be raise.
! On the expenditure side, local governments remained traditional in the kind of development projects
funded out of the 20% Development Fund and those funded through the pork barrel of their District
Representative.
An examination of the projects listed among those included in the 20% Development Fund would
show that these are mostly infrastructure projects with little forward on backward linkages to more
pressing needs of the locality. Without discounting the benefits that may be generated by these
projects, they however do not make up a whole plan for development of the locality. The 20%
Development Fund funds a host of small projects every year without the benefit of a long term plan.
! The composition of expenditures remains focused on general government expenditures. Expenditures

for social and economic services have not improved. The budget is practically devoted to the payment
of expenses on personal services and general government expenditures with little money left for social
services and economic services or capital outlay.
Challenges
The Code offers local fiscal authority broad enough for local governments to have a meaningful local
autonomy and it is up for them to prove themselves capable of managing their own affairs, achieving the
goals of their community and that of the nation. Local governments are therefore expected to maximize
their taxing powers; impose new taxes; adopt the maximum rates provided in the Code; raise collection
efficiency; religiously collect fees and charges, adopt new tax ordinances; use legal remedies in tax
collection; and other resources to improve the fiscal status.
The challenge to the national government is to consider suggestions to provide continued assistance to
local governments. Improvements are needed with respect to a more equitable distribution of the
internal revenue allotment, nationwide tax mapping of real properties, higher allocation in the national
budget for interlocal projects prioritized by the Regional Development Councils, equitable distribution of
ODA and continuous training and retraining of personnel on local fiscal administration, among others.

Sources:
Lacuesta, Agnes and Roberto Tordecilla. Fiscal Administration in the Municipality of Alimodian, Iloilo” in A Breath
of Fresh Air-Exploring the Possibilities of Local Government Management. ed. by. Letty Tumbaga. CIDA-LGSP
Regional VI and Atone Center for Social Policy and Public Affairs (ACSPPA) Philippines, 1998. pp. 113-121.
Cuaresma, Jocelyn C., and Simeon A. Ilago. Local Fiscal Administration. Local Government Center-College of Public
Administration. University of the Philippines and German Foundation for International Development. Philippines.
1996. pp. 125-129.

Tax and
Administrative
Codification for
Efficient Local
Governance
C
odification is the act of systematically compiling and arranging the written collection of valid
and existing laws classified by general subjects into one or more volumes. In the case of local
governments, this is done in its ordinances, resolutions, executive orders and other regulations
that have the force of law over the community in which they have been adopted.
The importance of codification
The codification process serves to eliminate ordinances and other rules that are obsolete, duplicative,
invalid, unenforceable or of limited duration. Valid and current rules and regulations are codified to
minimize, if not eliminate, wrongful legislation and administration. The process also offers the chance
to write new rules to complement, augment or supplement existing ones. It also facilitates the effective
exercise of regulatory powers by local authorities.
Process in the formulation of tax and administrative codes
Pre-drafting stage
All general ordinances of the municipality are collected, classified
and arranged in chronological order (by date of legislation).

Updating the ordinances involve:
! Discarding all ordinances that have been

totally revoked, duplicated, not within the
taxing powers of the municipality, are
contrary to declared national policy or
provide for an administrative or regulatory
measure which is discriminatory in nature
to the conduct of business or calling.
! Integrating ordinances that are amendatory to the basic ordinances that remain after discarding the
others. Earlier amendatory ordinances, which have in turn been changed also by later amendments,
need not be reflected anymore. These are then classified into major sections like health and
sanitation and peace and order, among others.
Revision stage
This stage includes drafting the Code for
subsequent review and approval by the
Sangguniang Panlalawigan, as well
as examination of existing ordinances
for correction, improvement and
inclusion in the Code.
Bottlenecks in tax and administrative codification
1. Limited number of personnel (i.e. from the Sangguniang Bayan (SB) Secretariat or the Municipal
Treasurer’s Office) working on the updating and revision of ordinances.
2. Lack of supplies and equipment that hampers the drafting of the Codes.
3. Unavailability of counsels to answer legal questions that arise during the drafting of the Codes.
4. Necessity to brief or convince newly elected officials who did not appreciate the project.

Strategies/activities involving tax and administrative codification
Conduct of conference-workshops
Sessions on the relevance of improving
the local Revenue Code (of the
municipalities and basic concept of
administrative codification in the
local legislative process) were held.
Municipal treasurers, SB secretaries, SB
members, and other municipal
officials participated in the sessions.
Forming local counterpart committees

Successful municipalities organized Local Counterpart Committees
(LCCs), one for tax codification and another for administrative
codification. The LCC was formed to coordinate the actual
codification of the tax and administrative ordinances. The
Municipal Vice-Mayor heads the LCC on tax codification, while the
chairperson of either the SB Committee on Ways and Means, Finance
or Appropriations acts as the vice-chairperson. For the LCC on
Administrative Codification, the chairperson is still the Vice-Mayor
while the vice chairperson is the SB Committee Chairperson on Rules.
Survey of Revenue Codes

Subsequent activities (of the consultants) included an initial review of the current revenue codes of the
(participating) municipalities, an assessment of the current administrative ordinances to establish a
database to improve the regulatory powers of the SB, as well as a hands-on training on the process of
codifying administrative ordinances.
Comprehensive work plan

(Based on LOGODEF-supported project proposal)
First month:
1. Meeting with municipal officials to explain the nature, purpose and requirements of the project and their respective
roles.
2. Designation of coordinators and local counterpart project team.
3. Definition of roles and responsibilities of parties concerned.
4. Identification of sources of materials of the study.
5. Programming the search, retrieval and replication of study materials.
(continued next page...)

Second month:
1. Evaluation of administrative and tax materials to separate the useful from the obsolete.
2. Collation and review of usable materials.
3. Classification of materials by general subjects.
Third and fourth months:

1. Writing of first drafts of the codes.
2. Sectoral consultation with external consultants.
3. Series of conferences with counterpart team.
4. Review of initial accomplishments.
Fifth month:
1. Presentation to the Mayor, Vice Mayor and Members of the Sangguniang Bayan of the following documents:
a) Final draft of the Code of Administrative Ordinances
b) Final draft of the Code of Tax Ordinances and Tax Laws
c) List of obsolete ordinances for consignment to the municipal archives.
d) Legislative guides for predictive ordinances
e) Draft of omnibus ordinance for the adoption of the Code of Administrative Ordinances and the Code of Tax
Ordinances and Tax Laws.
2. Computer encoding of legislative records.
A model LGU that is Kalibo, Aklan
On November 29, 1995, the Sangguniang Bayan of Kalibo passed Municipal Ordinance No. 95-0024, “An
Ordinance Enacting the Revised Municipal Revenue Code of the Municipality of Kalibo, Province of
Aklan” which was eventually signed by the Municipal Mayor. The Municipal Treasurer started collecting
taxes, fees and levies based on the provisions of the new ordinance on January 1, 1996.
The Revised Municipal Revenue Code of the Municipality of Kalibo consists of seven major chapters:
Chapter I. General Provisions – includes the title and scope of the Code, definition of terms and rules of
construction (i.e. how the provisions should be interpreted)
Chapter II. Municipal Taxes – contains the types and rates of taxes to be collected on businesses, peddlers,
motorized and non-motorized tricycles, etc.
Chapter III. Permit and Regulatory Fees – taxes and fees to be collected include mayor’s permit on business,
permit fees for cockpit, registration fees on fishing boats, dog license fee, etc.
Chapter IV. Secretaries Fees – this chapter contains provisions for the collection of secretary’s fee, fees on local
civil registry, sanitary inspection fee, etc.
Chapter V. Municipal Charges – this chapter contains market fees, slaughter and corral fees, fishery, charges for
parking, etc.
Chapter VI. General Administration and Penal Provisions – this chapter details the collection and accounting
of revenues , civil remedies for collection, and general penal provisions.
Chapter VII Final Provisions – this chapter contains the applicability and repealing clauses, together with the
affectivity of the code.
The codification of the administrative code started late in 1994 as the SB Secretariat initially concentrated their efforts
on the codification of tax ordinances.
Using a similar technique in tax codification, the SB Secretarial drafted the document chapter by chapter – allowing
the Sangguniang Bayan members to concentrate their efforts on only one particular topic at a time, enabling them to
scrutinize the documents more thoroughly.

Unlike in Tax Codification, the SB Secretariat and members of the Sangguniang Bayan had to undergo follow-through
training in Administrative Codification for six days financed by the local government of Kalibo. Three LOGODEF
consultants served as trainers and facilitators.
The Sangguniang Bayan and the Municipal Mayor eventually approved the administrative code.
The Administrative Code of Kalibo contains the following:
Vision Statement
Chapter 1 - General provision
Chapter II - Rules of Procedure for the Sangguniang Bayan
Chapter III - Municipal Contracts, Personnel Policies andRecords
Chapter IV - Peace and Order
Chapter V - Health and Sanitation
Chapter VI - Comprehensive Town Plan, Land Use and Zoning
Chapter VII - Public Market and Slaughterhouse
Chapter IX - Education, Culture and Arts
Chapter X - Tourism Development
Chapter XI - Parks and Monuments
Chapter XII - House Numbering
Chapter XIII - Assistance to Barangays
Chapter XIV - Sale of Liquor
Unlike the Tax Code, the Administrative Code is

still undergoing major revisions. The wide array of
topics included in the Administrative Code made
the document quite voluminous.
Lessons learned
In order to attain efficient local governance through proper tax and administrative codification, the
following must be present:
! Proper planning
! Effective strategy
! Hardworking and competent staff
! Conducive working environment (availability of supplies and equipment)
! Supportive municipal leadership
! Dedicated Sangguniang Bayan
! Support from various institutions and sectors within the locality
Codification is just one of the many crucial steps for local development. Greater challenges still lie ahead, waiting to
test the coping ability of local officials.
Source:
Anlocotan, Raul and Roberto B. Tordecilla. “Tax and Administrative Codification in the Province of Aklan” in A
Breath of Fresh Air-Exploring the Possibilities of Local Government Management. Ed. by Letty Tumbaga. CIDA-
LGSP Regional VI and Ateneo Center for Social Policy and Public Affairs (ACSPPA) Philippines, 1998. pp. 86-103.

Property and Supply
Procurement in Local
Governments
S
upply and property management covers the recording and inventory, custody of property,
utilization and disposal of supplies and property of local government pursuant to existing rules
and regulations. Furthermore, the local supply procurement system has been characterized as a
lengthy and tedious process.
The process of procurement (as provided under the Commission on Audit (COA)
Circular 92-386)
1 The requesting office fills up a request form detailing the materials and supplies they
need. Requests are crosschecked with the annual budget of the unit.
2 The Property Division sets a bidding date and invites potential suppliers. Previously pre-
qualified suppliers who want to bid are asked to submit price quotations for each item.
3
The Procurement Officer prepares an abstract of the bid and selects the lowest price for
each item as per COA regulation. The abstract is then routed to different signatories in
the city hall.
4
If approved, notices are sent to the winners of the bid. Suppliers are given two weeks to
deliver and are penalized for any delay. A percentage of their deposit bond is deducted if
deliveries are late.
5 Supplies are delivered to the requesting unit in the presence of a Supply and Property
Officer. Payment is made two weeks after delivery.

Problems in supply management
Unresponsive government rules and systems

The units of the city government have quarterly allotments totaling to P10,000/unit without the
mandatory 20% savings. However, the allotment is not enough to cover all the supplies needed by a
particular unit or division for the year thus, affecting supply acquisition.
The departments concerned are not able to take actions or plan their tasks accordingly, due to the absence
of a feedback mechanism or progress report about the status of requests made.
Defective bidding system

The predominance of same bidders and suppliers make the bidding process less competitive. New suppliers
are discouraged from competing for the contracts because of delayed payments and bond deduction in
cases of late deliveries. Palakasan system is still evident during bidding. As such, bidding rules are not
strictly enforced, resulting to complaint from other bidders. At the same time, getting quality goods and
supplies for governments cannot be assured when the criteria for selection during the bidding is the price
and the palakasan system.
The General Services Officer (GSO) is also slowed by the lack of infrastructure. A warehouse or stockroom
for supplies and equipment is required to store advanced deliveries. With the proximity of related offices,
monitoring will be easier and the staff will be maximized.
Innovative strategies and activities undertaken to improve supply

management
Conduct of a procurement and supply management training program

A Project Monitoring Committee composed of officers from the COA and the City Planning and
Development Office was created to formulate the training design. This was done in consultation with key
people from other non-government agencies and other agencies. The training was conducted for the rank
and file, and division heads including the procurement personnel under the Property Office.
The training provided an orientation about the basics of supply and property management. It included a
workshop where participants were asked to suggest ways on improving perceived bottlenecks in property and
supply management.

Strategies formulation and implementation
The participants themselves identified strategies to shorten the processing of documents to eliminate
delays and enable efficient delivery:
! put up a separate procurement office; and

! cut the number of signatories by half and identify new ways of making purchases from more
competitive bidders.
Other systems installation and empowerment

In particular, the procurement-processing period was shortened from one month to one to two weeks. A
GSO with 27 personnel and headed by a GSO was created and tasked to address demands like property,
supplies, material acquisition/ procurement management. It also oversees the management of janitorial
services for the maintenance of cleanliness and sanitation and the upkeep of parks and median island
along major thoroughfares of the city. Given the new challenges and the increasing demands on the
LGUs, a refresher course to update government employees about property and supply management may be
necessary.
The GSO of Bacolod City was created upon the recommendations of Bacolod City government
participants of the Philippines-Canada Local Government Support Program, which sponsored a training
activity on supply and property management.
Prior to the training, only a Property Division under the Treasurer’s Office existed. Procurement was
then a tedious process that needed 16 signatories from different departments. A simple request for a
typewriter ribbon took two to four weeks of processing before it was approved. It took another two to
four weeks before the requesting department actually got the supplies. The Bacolod City Government decided it was
time for their LGU to have a separate Procurement Division under the GSO.
The creation and expansion of a Procurement Division under the General Services Department promised some
changes in the process:
! systems improved;
! the number of signatories decreased by half;
! priorities were set according to urgency; and
! things were worked out accordingly.
These changes helped ease some of the inefficiencies of the old system.
However, problems in the procurement process continue to this day. There is still the urgent need for a warehouse to
store old and new supplies and equipment. Some departments get special treatment and do not go through the
normal process of procurement. Politics also gets in the way of bidding processes. These emerging problems have to
be addressed if greater efficiency within the bureaucracy is aimed for.
Source:
Tumbaga, Letty, Leah Valientes and Nonita Adan. “ Towards a More Efficient Procurement Process in the City
Government of Bacolod” in A Breath of Fresh Air – Exploring the Possibilities of Local Government
Management. ed. by Letty Tumbaga. CIDA-LGSP Region VI and Ateneo Center for Social Policy and Public Affairs
(ACSPPA) Philippines, 1998. pp. 122 –128.

Successful Municipal
Management Innovations
M
anagement innovation requires more than an ad hoc response to a failing local government
performance. To be successful, it should be based on political initiative and should assume
the properties of a strategic long-term effort.
A grand design strategy, announced with great political fanfare and outlined in all detail is doomed to
fail. Management innovations in local government require flexible response to initial experiences and
contributions from various stakeholders in the local governance.
The reform drive must come from competent charismatic personalities, able to convince and win support.
Politicians’ support for the new ideas must equally be won for the new ideas.
Broad-based advocacy coalitions (i.e. cross-departmental cluster of senior administrators, politicians,

business sector, civil society and media) must be forged to minimize conflicts.

The central government or other higher levels of
government must be supportive of the endeavor, at
least not oppose it.
Networking with other innovators at the national

and international level and support by scientific
analysis and publication can decisively increase
the choices of success. A stand-alone approach
would be a fallacy.
To be sustainable, initial reform steps must be

institutionalized and augmented by reform in
other fields of governance.
Management innovations aiming for economic

growth must take into consideration recent
developments in science and technology and Sources:
keep abreast of worldwide economic
Meyer, Wolfgang. Recent Innovations in Municipal Government. Manila,
realignments. At the same time, they should
Philippines. Konraddeneur Stiftung and Local Government Development
safeguard gains made in the areas of sustainable
Foundation, 1998. pp. 3-5, 12-13.
human development. True, these innovations
must be met by the private sector and state
Tapales,Proserpina D., Perfecto L. Padilla and Ernita T. Joaquin. Modern
governments alike. However, governments that
Management in Philippine Local Government. Philippines. German
are closer to the earth’s resources and to the
Foundation for International Development and Local Government
people can best meet the manageability and
Center-CPA, U.P., 1996. p.2.
maintenance of these efforts. Thus,
management innovations are perhaps best
performed at the level of local government. The
Philippine experience has shown that indeed,
local government units (LGUs) have been
responding to the call for managerial
innovations, and that, in many ways, they have
been relatively successful.

Municipal-level Development
Planning
T
he new Code mandated that all local government units (LGUs) formulate their own local
development plans. While barangay and municipal governments were doing this prior to the new
Code, their efforts were largely “for compliance only” to orders from the national government.
However, given the demands of devolution and people-centered development, LGUs felt pressured to
formulate their respective plans based on the situation of their respective localities and the articulated
needs of their people. With limited resources, localities had to be guided by the development perspective
and priorities had to be set.
The process of local development planning at the municipal level, as prescribed by the new
Local Government Code (LGC), is no easy undertaking. It can be plagued by bureaucratic hitches
and can be hampered by cultural nuances, both from the community and government planners who have
become used to doing things the old and “easy” way.
Various approaches to spur local development have been attempted but have been short-lived. The lack of
needed financial and human resources to sustain the efforts and the lack of coordination among national
government agencies do little to ease this situation.
In many cases, the local development councils rarely meet. Most of the local development plans were
mere listings and compilations of past projects. Likewise, most of the plans submitted to the Planning
Officer(s) were short-term and unresponsive to the needs of the community. For many Local Chief
Executives , improving the local development planning process became a priority.

Problems in municipal development planning
Taking a long and hard look at the composition and competence of the municipal development councils
vis-à-vis planning, the following concerns become very apparent:
! lack of knowledge and expertise in the local planning process;
! lack of community participation in the conceptualization, implementation, monitoring and
evaluation of program and projects;
! lack of support for operationalization;
! lack of continuing commitment among those involved in the implementation of plans;
! lack of regular contact between members;
! frequent absenteeism;
! lack of measurable objectives and targets;
! lack of funds to support programs and projects;
! confusion in roles and relationships;
! difficulty in coordination due to political differences and unwieldy size of the council;
! failure to submit required plans and documents;
! failure to appreciate the importance of planning and to link plans directly to the budget; and
! failure to prioritize major council objectives and goals.
Similarly, the much-desired convergence of participating agencies’ efforts and services in terms of joint
planning, implementation and monitoring and evaluation of programs/projects were found lacking due
to:
! the absence of common undertaking of convergence and integration in the pursuit of developmental
activities by agency implementers and local government units (LGUs);
! existence of competition rather than cooperation work attitude among high level agency
administrators;
! difficulties in GO-NGO working relationship; and
! absence of an integrated work program.
One can look at development planning as an iterative process of formulating and implementing
incremental development plans (as distinguished from the blueprint planning tradition in the past) to
achieve total human development and the social transformation of communities involved in it. In effect,
development planning provides a logical tool to make community people actively participate in defining
and actualizing their own development priorities and programs.

Any program on participatory development planning will have to operate within factors in the external
and internal environment, which could either facilitate or constrain project activities and the attainment
of its objectives, effects or impact in the target areas and population.
In the 1990s, more and more development sectors have recognized the imperatives of people-centered and
integrated planning:
! It is the people’s categories and criteria, their analysis and plans, their reality and truth that count.
The fact is, the people constitute the “solution” and not the “problem.”
! The beneficiary communities that have shared in

planning, and not just implementing projects
produced more sustainable results than those who
have not.
! The high motivation among development planners to

learn both “what to know” and “how to do” (together
with the development participants) the build-up of
people’s own capacity to realize their potentials as
agents of their own change, gradually and eventually
without the assistance (or intervention) of outsiders,
but fully relying on their own.
Sources:
Garcesto, Sebastian and Letty Tumbaga. “ Municipal
Development Planning in the Municipalities of
Tubungan and Binangonan, Iloilo” in A Breath of Fresh
Air-Expressing the Possibilities of Local Governance
Management e.d. by Letty Tumbaga. CIDA-LGSP Region VI
and Ateneo Center for Social Policy and Public Affairs (ACSPPA) Philippines, 1998. Pp. 31 – 43.
Provido, Maria Nesza and Letty Tumbaga. “Barangay Development Planning in the Province of Antique” in A
Breath of Fresh Air – Exploring the Possibilities of Local Government Management ed. by Letty C. Tumbaga.
CIDA-LGSP-Region VI and Ateneo Center for Social Policy and Public Affairs (ACSPPA). Philippines, 1998. pp. 11-
30.
Mercaida, Enrique G., Introducing Participatory Planning Practices with Local Governments Learnings from
Nueva Ecija PRISP-PP Project. Y. C. James Yen Center, Silang, Cavite, Philippines: International Institute of
Rural Reconstruction, 1997. Unpublished Materials.
Philippine Rural Institutional Strengthening Program, Department of Agriculture (PRISP-DA). Participatory

Planning. A Joint Project of the Republic of the Philippines and the Commission of the European Union, Quezon
City, Philippines. 1996.

Basic Strategies and
Methods in Municipal
Level
Development
Planning:
The Ilog
Experience
D
evelopment planning at the local level, particularly at the Municipal level, presents a major
challenge in enabling goods and services to reach intended beneficiaries effectively. A sound and
responsive plan involves active participation of various stakeholders in its formulation,
implementation, monitoring, and evaluation. With different agencies and organizations engaged in the
planning process, the task of putting different perspective into unified and concerted manner becomes a
problem without a systematic way. The “convergence” strategy, as operationalized by the International
Institute of Rural reconstruction (IIRR) in Ilog, Negros Occidental, Philippines, offers some insights in
enabling participatory planning to happen at the Municipal level.
Planning context
The Area-Based Child Survival Development Program (ABCSDP), a national program assisted by UNICEF,
was implemented in several Philippine municipalities including Ilog in the Province of Negros
Occidental. The Social development Committee (SDC), comprising government and non-government
agencies, managed this program at the municipal level (see organizational structure on p. 61. IIRR
assisted SDC in puttingthe convergence concept into action.

Making convergence work: The IIRR-ABCSDP, Ilog, Negros Occidental
experience
Conduct of training for the Social Development Committee as a collective management body.
The focus of capacity building for the SDC was on program/project management cycle (situation analysis,
objective setting, strategy formulation, work and financial programming, implementation, monitoring,
and evaluation) through the training-sction-reflection-training-action-reflection (TARTAR) approach.
Formulation of an Integrated Municipal Implementation Plan

(IMIP)
From separate plans prepared by each of the different implementing
agencies, the Social Development Committee (SDC) came up with a
unified Area-Based Child and Development Program (ABCSDP) plan
for the municipality adapting the following steps:
Situation Analysis
This involved listing of the total number of household heads in each
village by a Key Informant Panel (KIP) composed of 7-15 persons
from the village itself.
The KIP members are the most credible and knowledgeable of the locality and its people. They also
represent the different sectors within the community (e.g. farmers, landless workers, fisher folks, women,
youth).
The KIP used the focused targeting method in classifying the households. This method involves the
categorization of households into: A (rich), B (better-off), C (poor) and D (poorest of the poor) using
common socio-economic criteria (i.e. ownership/access to land and resources, income level and sources of
income, type of shelter, family size and other distinguishing characteristics were applicable). The process
ensured that the poorer households with the worst and most number of the malnourished children (with
respect to the ABCSDP target beneficiaries) received the highest priority in terms of service delivery.
Objective Setting
The socio-economic stratification of the
households and their characteristics served as the
baseline data on project objectives. This was done
by stating the desired outcome and impact of the
intervention in a given time frame.

Strategy formulation
To achieve the given objectives, the SDC reviewed the previous strategies by analyzing its strengths and
weaknesses and consequently identified areas for improvement. The analysis revealed the need to
systematize the implementation of strategies and activities, and adopt a common framework for all the
implementing agencies in the areas of training, organizing, credit extension, monitoring and evaluation
and financial management. To ensure systematization and administrative supervision of the work in
these aspects, corresponding sub-committees were created.
Organizational Structure of the Social Development Committee (SDC)
Municipal Development
Council (MDC)
Social Development
Council (SDC)
Committee
SDC
General Assembly
Chairman
Finance
Secretariat Sub -Committee
Vice-Chairman
Monitoring
Training Credit Sub-Committee Coordinator &
Management And Savings On Organizing Evaluation Sub-
Sub-Committee Sub-Committee Committee
Source: Making Convergence Strategy a Workable Management Tool in Integrated Rural

Development Program. IIRR. March 1994.

Work and financial programming
The SDC is divided into working groups according to the technical specialization of its members and in
line with the four components of ABCSDP:
Components Specialization
Health Maternal and child survival
Livelihood Agri-based projects
Education Strengthening maternal and child survival through formal and non-
formal education
Self-government Integrated support services
Each technical working group came up with an annual Work and

Financial Plan identifying the activities to be undertaken by whom,
in what village, the required resources in terms of funds and time,
and the expected outcomes of each activity. The draft of the plan
went through a round of discussion in a plenary to ascertain
consistency with objectives and strategies, attainability of targets,
complementation of efforts, practicality of costs and to level-off
information. It was then approved by the SDC assembly and adopted
as the common program plan for the program in the municipality
known also as the IMIP.
Devolution of the responsibility for resource allocation and management

The IMIP was submitted to the core group of ABCSDP at the provincial level for review and action. Then,
the SDC, negotiated for resources with the different implementing agencies. The difference in
requirement was requested from the donor institution (i.e. UNICEF) through the provincial government.
Subsequently, the financial support granted by the donor was released to the SDC through the Office of the
Provincial Governor as a trust fund in lump sum instead of separate releases to individual agencies as
done before. The SDC correspondingly finalized its systems and procedures of managing the funds at the
municipal level. It also installed mechanisms for control and
transparency by updating and reporting the status of each activity
during the monthly meetings. In this manner, the responsibility
and accountability over the program rested on the SDC at the
municipal, rather than on agency heads at the provincial level.
Establishment of Municipal Revolving Loan Fund (MRLF)

The funds intended for income-generating projects, which used to
be implemented by three different agencies, were pooled into a
single loan fund. The SDC Sub-committee on Credit and Savings
administered this combined fund and is guided by a common set

of policies. The sub-committee used the priority listing of beneficiaries as the basis for granting financial
assistance. It standardized the rate of interest and secured completion of the same basic requirements.
The same beneficiaries became the focus of organizing work, training (technical, project and
organizational aspects) and delivery of basic health services. Aside from the financial support, there was
convergence and complementation of and by the other essential services to these priority beneficiaries.
Implementation of Municipal Program Monitoring System

(MPMS)
The SDC formulated a monitoring, coordination and evaluation
(MCE) system adapted from the conventional MCE system of ABCSDP
in the province. While using the same monitoring instruments, the
process flow, however, ensured that gathering, processing and
utilization of data and information happen meaningfully at the
municipal level. Before, the agency implementors at the municipal
level merely served as data gatherers whereby the processing and
utilization were done at the provincial level. Again, the SDC formed
a corresponding sub-committee to oversee the task. As monitoring
and project reports were discussed in the SDC meetings, its members
were able to use quality data and information to arrive at decisions
and necessary actions. Likewise, periodic reports were forwarded to
the provincial level for information and coordination.
Dimensions of convergence achieved
Spatial convergence
This refers to the concentration of services within the defined geographical areas of the municipality called
convergence villages. This was done to prevent the SDC from spreading itself and its resources too thinly. Thus,
interventions were focused in these target villages. Notably, focus on certain spots was necessary to effect impact.
Convergence in target population

This covers the identification and prioritization of intended beneficiaries common to all involved agencies, their
services and projects. In this way, the resources and services of the program were brought to beneficiaries who were
most in need of assistance.
Convergence of institutional mechanisms of service delivery

This facet refers to the systems and procedures in the SDC that were installed and formulated for the implementation
of the program. As expected, the ABCSDP coordinated multi-agency and multi-level efforts (i.e. presence of vertical
and horizontal linkages between delivery units and policy-making bodies at all levels of the local government
structure).
Convergence of intentions and actions – Integrated Municipal Planning

This presupposes that objectives, activities and resources of different agencies were complementary and focused on
the common priority beneficiaries and their respective barangays.
Convergence in program/project management-iterative process

This emphasizes a participatory program/project development cycle whereby the SDC was able to manage the
ABCSDP and tailor its strategies and activities according to the needs of the people in the community. Apparently,
both the beneficiaries and the implementors of the program played active roles in the development process.

Components of convergence
Shared philosophy, principles and concepts of development

Everyone involved in the implementation of the ABCDSP must have a common
understanding of the philosophy and principles of a poverty-focused integrated
development program. Likewise, the concepts akin to the program (i.e. people’s
participation, self-reliance, sustainable development, appropriate technology, community
organizing and social laboratory) are accepted and internalized by both planners and
implementors. The efforts of the members must also be recognized and appreciated to
prevent conflicts as well as enhance integration.
Decentralized decision making and resource allocation

This pertains to the ability of the SDC, the body tasked to manage the ABCSDP at the
municipal level to make decisions and mobilize resources toward the achievement of
objectives. Specifically, this role calls for the committee to:
! plan activities and determine the kind and amount of resources needed to carry out
such activities;
! acquire the resources needed to implement such plan; and
! manage the day-to-day affairs of the program.
Thus, the program management role as well as the authority and accountability over the
use of financial resources were devolved to the municipal level. These tasks were performed
earlier by the implementing agencies at the provincial level.
Integrated program management

These are the unified systems and procedures adopted by SDC, which were meant to make
convergence happen. The aspired outcome was the development of a unified plan for the
municipal ABCSDP, which would serve as the guiding instrument of all the program
implementors.
Through the Integrated Program/Project Planning, Programming and Budgeting System,

the SDC members identified their common target beneficiaries and specified intervention.
This was done in an orchestrated fashion to prevent duplication and conflict of efforts as
well as occurrence of gaps. Concerted moves were demonstrated in the scheduling of
training activities whereby the technical skills of the implementors were deliberately
chosen to complement each other. The cycle of training–action-reflection was adopted as
a standard procedure to internalize the technical inputs.

The four mutuals of convergence
The four mutuals make up one of the basic elements in the practice of rural reconstruction. It promotes convergence
by enhancing teamwork. These mutuals are:
1. Mutual knowledge
Knowing each other’s goals, objectives, programs and services, as well as strengths, weaknesses, resources and
limitations, both professionally and personally. This point of commonness permits each one to understand respective
standpoints and, thus, tailor expectations.
2. Mutual trust
A broader familiarity of each one brings about better anticipation of reactions and dynamics of the interaction. The
individuals are able to employ more effective coping mechanisms, thereby, reducing the chances of conflict.
Furthermore, the atmosphere of communication is enhanced since there is a greater chance of being understood for
certain behavior.
3. Mutual respect
To express thought openly while others are willing to listen and understand message eventually command mutual
respect. This stance results to a feeling of importance of personal worth and dignity by the persons involved.
4. Mutual help or teamwork

With mutual knowledge, mutual trust and mutual respect in place, the individuals of the project team are bound to
extend spontaneous support at any hint of need. Assistance is provided in a manner that is mutually beneficial and
complimentary to the rest of the members. Hence, work is expected to be more effective and efficient.
Shared Philosophy,
Principles and
Concepts of
Development
Convergence of
Four
Program and
Mutuals
Services
Decentralized Integrated Program/
Decision-making Project Planning,
and Resource Programming and
Allocation Budgeting System
Operational Framework of Convergence
Source: Making Convergence Strategy a Workable Management Tool in Integrated Rural Development Program. IIRR. March 1994.
Source:
Sabio, Eduardo A. Making Convergence Strategy a Workable Management Tool in Integrated Rural Development
Program. Working Paper No. 41. International Institute of Rural Reconstruction, Silang Cavite, Philippines.
March 1994.

Basic Strategies and Methods
in Municipal Development
Planning
(The Iloilo Experience)
T
he implementation of the Philippines-Canada Local Gevernment Support Program provided a
strong foundation to strengthen the capacity of national and regional government authorities in
planning, programming and project implementation. LGUs from the provincial to barangay levels
have since exercised greater authority in their fiscal and decision-making tasks. More importantly, they
have been able to successfully plan, prioritize investment and implement projects and take more effective
control over the necessary financial and human resources. Presented below are some lessons on Municipal
Level Planning drawn from an experience in Iloilo.

Formation of a municipal project technical team composed largely of municipal career
officials
The team’s members include the Municipal Planning and Development Coordinator, Budget Officer, Local
Civil Registrar, Engineering Assistant, and the Secretary to the Mayor whose main responsibility is to
ensure continuity in plan formulation, implementation and evaluation.
Conduct of a series of training programs with the following

major components:
! Training program on development orientation. The aim is

to update the participants on the status of present development
situation vis-à-vis the aspirations of the LGC to assist the
members of the MDCs in conceptualizing social development
programs.
! Teambuilding on community leadership and mobilization training. This was designed to

clarify leadership roles to strengthen teamwork and bring about effective working relationship among
council members.
Sustaining people’s initiatives
… while members of the MDC enhanced their skills in data collecting for their communities and
now appreciate the importance of a collective vision that can help generate commitment, concerns
over the sustainability of the gains are evident especially with the MDC membership changing with
each new administrator.
The local chief executive has to have the political will to institutionalize the planning process.
Without political will, the gains so patiently won can be easily lost. Time and the lack of correct
practices are two possible variables that can work against municipal development planning.

! SEP training of trainors. This was designed to promote program sustainability. Regular MDC
members and the Municipal Project Technical Team attended the training.
! Socio-economic profiling and collection training. Participated in by the MDCs, the Project
Technical Team and the local chief executives and/or their representatives, this was designed to develop
skills in research data collection.
! SEP data analysis workshop. This is where the Municipal Project Technical Team reduced the
data collected into a meaningful whole through classification, tabulation and determination of
measures of central tendency.
! V isioning and strategic planning workshop. Local chief executives, MDCs and the MPTTs
reflected upon the ideal scenarios for their municipality, the mission they jointly defined, and
representative programs and projects that gave substance to the vision.
! Training on resource sourcing and mobilization. This was designed to allow MDCs to locate
resources (financial and in kind) that can be tapped to deliver priority programs, projects and services
defined under the Medium-term Development Plan of the Municipality.
Plan formulation and integration

The MDCs formulated the long-term and annual
socio-economic development plan and policies
based on the consolidated needs of the barangays as
articulated in their respective Barangay
Development Plans. All the barangay captains
occupied majority seats in the MDCs. As such, their
needs were considered during the municipal plan
formulation. Other integral processes or activities
undertaken were:
! Situation/needs analysis. This activity

essentially identified gaps in service delivery,
the extent to which basic needs are met, service
demand and supply gaps, the interrelationship
of needs for sectoral planning, development
constraints and weaknesses (SWOT analysis), and evaluation of on-going programs and projects. In
effect, it provided an overall account or a profile of the economic, social, physical and institutional
conditions of the locality or the barangay. Moreover, based on the profile, critical development
problems and potentials of the municipality were identified.

Formulating the development plan ! Formulation of the Municipal Medium-term Development
framework Plan. The situational analysis provided the basis for the
formulation of the development goals and objectives. Appropriate
1) Summarizing the causal interrelationship of
the problems and issues identified in the development policies and strategies were identified to achieve the
needs assessment. formulated goals and objectives. The development plan
framework at the municipal level took into account the
2) Goal formulation was based on the
question “WHERE DO WE WANT TO identified vision, goals, objectives and strategic options embodied
GO,” given the LGU’s problems/needs and in the barangay development plans. As it were, the municipal
resource potentials and constraints.
planning activities were based on the consolidated barangay
3) Objective setting or concretizing/specifying development plans as well as in collaboration with the barangay
goals-answering the question “WHAT DO captains during the MDC planning sessions. Moreover, barangay
WE WANT TO ACHIEVE IN
programs and projects, which could not be funded by the 20%
PARTICULAR.”
development fund were prioritized and then submitted for
4) Strategy formulation or defining the ways of integration into the municipal plan and investment program.
achieving the targets set, or “HOW DO WE
GET” (using SWOT analysis).
! Arrangement for sectoral plan coordination and

Composition of the MDC by Sector integration. Integration of sectoral plans developed by the
! General Public Services
concerned sectoral or functional committees and other offices
! Education, Culture and Sports/Manpower then became the responsibility of the Municipal Planning
Development Development Coordinator (MPDC). To do this, the MPDC had to
! Health, Nutrition and Population Control
! Labor and Employment
analyze and crosscheck sectoral plans for possible inconsistencies,
! Housing and Community Development conflicts, duplication or omission before the municipal plan
! Social Security, Social Services and Welfare\ could be finally integrated. The analysis of all identified sectoral
! Economic Services (agriculture, trade,
industry, tourism, etc.)
projects involved examining projects for common purpose,
! Other Sectors: geographical area or infrastructure requirements.
" Land use planning Coordination and integration is achieved by:
" Infrastructure planning
! Forging a strong LGU-NGO partnership by encouraging the involvement of people’s organizations in

the sectors they were most interested in. Sectoral committees were also formed to serve as advisory
bodies to the LGU for investment programming and budgeting. Moreover, recommendations on
sectoral plans were sought from special bodies on health, the school board, and the peace and order
council.
! Holding of sectoral dialogues/meetings. While sectoral planning activities were going on, dialogues
among sectors were conducted at the MDC to ensure inter-sectoral issue awareness. The close
correlation among factors within and outside the sector justified the need for an integrated approach
to planning among these productive sectors.

For the Municipalities of Bingawan and Tubungan of Iloilo, various approaches to spur local
development have been attempted but have been short-lived. The lack of the needed resources to
sustain the efforts and the lack of coordination among national government agencies do little to ease
this situation.
Mayor Zafiro Palabrica of Bingawan decided to use his skills and development orientation to facilitate
true changes in his community. Dissatisfied with the manner of local development planning in
Bingawan, he initiated consultations and dialogues with the local development council and was backed by a supportive
MPDC. He saw that many plans failed to maximize the development interventions offered by national government
agencies and NGOs.
The local chief executive of Tubunga, Iloilo, Mayor Pedro Tagabi, upon his entry into government, expressed the same
sentiment. He was irked by his municipality’s local development planning process, which proved to be quite
ineffective. The local development council rarely met. Most of the local development plans were mere listings and
compilations of past projects. Most of the plans submitted to the Planning Officer were short-term and unresponsive
to the needs of the community.
For both local chief executives, improving the local development planning process became a priority. It was timely
that the Provincial Government of Iloilo, aware of this prevalent deficiency among its LGUs, designed a capability-
building project to augment the knowledge, skills, and orientation of their local development planners. Training and
consultations were conducted from the municipal down to the barangay level. The Municipalities of Bingawan and
Tubungan participated actively and benefited from the program, which was supported by the CIDA-Local Government
Support Program.
Sources:
Garcesto, Sebastian and Letty Tumbaga. “ Municipal Development Planning in the Municipalities of Tubungan
and Binangonan, Iloilo” in A Breath of Fresh Air-Expressing the Possibilities of Local Governance Management
e.d. by Letty Tumbaga. CIDA-LGSP Region VI and Ateneo Center for Social Policy and Public Affairs (ACSPPA)
Philippines, 1998. Pp. 31 – 43.

Development
Planning at
the Barangay
Level
B
arangay development planning is a basic mechanism that local
A Barangay Development
government units (LGUs) need to adopt for promoting people participation Plan is an official document
towards local development. It is important for barangays in terms of of the barangay wherein the
problems, needs and
deciding in advance what should be done to develop the community, improve basic aspirations of the community
services and upgrade the quality of life of its constituents. It maximizes the use of are identified, prioritized and
barangay resources on programs, projects and activities that are priority needs of the pursued on the basis of
available resources.
people.
Best planning practices at the barangay level
Activation/orientation of the Barangay Development Council (BDC) and the

barangay planning body. The BDC is tasked to mobilize people’s participation in local
development functions, prepare barangay plans, and monitor and evaluate the implementation of
national and local programs and projects. An assessment of the BDC status was first done to identify the
influence of BDC organization and provide assistance in organizing the BDC sectoral committees.
Formation and legitimization through a Sangguniang Bayan resolution of a Barangay

Planning Team (BPT). The BPT was authorized to undertake planning and budgeting with the
agreement that their proposed development plan and budget has to be submitted and approved by the BDC
and the barangay council.

Effects of participatory planning
! Broadening the number of people in the municipalities and barangays with knowledge skills and attitude supportive
of participatory planning. The constituents, in particular, saw the advantage of taking part in planning.
! Promotion and internalization of participatory planning process involving the people themselves and
accomplishment of more tangible outputs (i.e. Strategic Development Plan, Annual Investment and Operational
Plans, Project Concepts and/or Proposals).
! Partnership of the government, NGO and other private sectors, which provided for coordinative and collaborative
arrangements between them.
! Flexible and appropriate planning tools and methods that made possible the introduction of necessary changes
mutually agreed upon by program/project managers and the people themselves.
! Provision of technical assistance to local government units/officials functioning as municipal trainors in barangay
development planning.
Conduct of training in the localities

with the BDCs clustered into five
barangays. The training included topics
on various development perspectives and
development planning processes (i.e.
situational analysis, participatory rural
appraisal tools and technologies, adult
learning, facilitation techniques, use of
appropriate media, problem identification,
objective setting, map preparation and
interpretation, investment prioritization and
preparation of a simple budget proposal).
Working with barangay officials and other sector leaders to schedule the activities and
encourage participation and attendance.. The schedule of activities had to be done primarily by
the BPT, dividing the work among them and assigning each member to a particular segment or sub-area
in the barangay.

Mapping. Led by the BDC and /or BPT, participants are involved in preparing the physical maps of the
barangay (e.g. transect, location map and designate, and interpret map symbols).
Situation Analysis. Again led by BDC and/or BPT, the residents were involved in developing and
preparing simple instruments for data collection, environmental assessment including agro-socio-
economic conditions affecting the barangay and the presentation of the data gathered during barangay,
purok and sitio assemblies.
Identification and prioritization of potential growth areas. From the situational analysis, the
people, through the facilitation of the BDC and/or BPT identified agro-socio-economic growth areas,
analyzed these potential areas of growth and finally compiled all the data pertinent to them. The same
data made it possible for the BDC and/or BPT, together with the people to rank problems and needs
according to their importance to the community, identify available or potential resources (funds, projects/
programs, technical expertise, community capabilities and natural resources) and develop a barangay
profile.
Formulation of development vision and strategies. At this particular stage, the community
should be in full realization of the barangay’s situation and potential. Together with the barangay
officials, the people then got themselves involved in the development of the vision and goals of their
community, identifying the development strategies applicable at the barangay level, and purposively,
coming up with a strategic plan (say for the next five years) to be validated and adopted eventually by the
whole barangay constituents.
As observed, these vision and mission statements often reflect sustainable, equitable and gender responsive
perspectives, which in effect were adopted by the people themselves. Many of them envisioned their
communities to be self-reliant, industrialized, developed, clean, complete with facilities, God-fearing, and
vigilant of natural and human resources.
Preparation of plans (development, investment and

operational).. In formulating their respective plans, barangay officials
reviewed their lessons assisted by competent provincial and municipal
trainors (i.e. the Provincial Planning and Development Officer and the
Municipal Planning Task Force (MPTF) and constantly referred to
their manuals (as provided for/under the Department of Interior
and Local Government (DILG) circulars) for the various concepts
and processes. Considerable time was also utilized in conducting
either a barangay assembly or sitio and purok meetings to
analyze and validate the information to be incorporated in the
Barangay Development Plan and Budget. The final Barangay
Plan and Budget was submitted for approval through an
endorsement by the Sangguniang Barangay.

Preparation of project concept/proposal for external funding.. The municipal trainors led the
barangay officials in the preparation/writing of project proposals to be submitted to prospective donors for
funding. Based on the topography of the involved barangays, there was an apparent diversity in the
investment priorities especially in resource management. Upland barangays lined-up such projects as
sloping agricultural technology, ecological awareness, reforestation/tree planting along lakes, small water
impounding, high value crops production, livestock production and nursery establishment. Lowland
barangays identified the need for pre-and postharvest facilities, and inland fishery production. Coastal
barangays concentrated on coastal rehabilitation (artificial reef and marine sanctuary) and the
administration/management of bangus fry production and marketing.
Monitoring and evaluation. Integral in the

plan was the setting of a monitoring and
evaluation framework to gauge the effect and
impact of the project on its intended beneficiaries.
The assessment was considered essential in
providing necessary feedback on the project’s
operational efficiency and effectiveness. To pursue
the same, the data to be gathered and analyzed
would include outputs and outcomes of activities
(as indicators of performance), problems and
solutions or remedies undertaken and impact
indicators vis-à-vis the results of the planning
process and the plan itself.
The barangay units viewed their little strides towards institutionalizing barangay development planning
as a major step in the realization of the bottom-up/grassroots planning approach. Although they faced
problems (e. g. administrative timidity in the implementation of ordinances and weak project
implementation), they recognized their big gains in terms of attaining people empowerment and
countryside development.
Identified project effect and impact indicators
! Number of pool trainors developed

! Participatory planning mechanisms instituted
! Institutional arrangements for sectoral coordination
! Member of organized and capable BDCs
! Number of barangays institutionalizing barangay development planning LGSP-Antique Experience

Little strides, big gains: Barangay development planning after the interventions
! Barangay officials were able to determine the nature and status of their locality’s development,
hence, they felt better equipped to formulate plans that were reflective of and responsive to the
needs of their constituents.
! Barangays can now make more realistic plans with very little assistance from the municipal
development officers.
! To many barangays, the investments priorities made after the training were much improved
compared to past formulations. In the past, barangay plans catered to self-serving politicians. These recent
investment lists embodied socialized housing, sanitary toilets and potable water projects, among others.
! Strong partnership between the government and the private sector (e.g. NGOs giving technical and financial
assistance during the plan preparation stage) substantially contributed to the enhancement of barangay planning
towards an improved quality of life among the people.
! BDCs became active as they went through the various stages of organization and re-organization and were heavily
involved in the planning process.
! Most barangay officials noted a change in their view of leadership - from merely administering day-to-day activities
to being proactive, foresighted and anticipative - changes that had relevant impact on their locality. They likewise
recognized that traditional politics and becoming self-serving leaders would end their political careers as it did their
predecessors.
! Barangay officials were innovative enough to institutionalize certain mechanisms (others called it “gimmick”) to
encourage more people participation in the planning efforts (e.g. a raffle with door prizes, assignment of a teacher
or adviser per purok to represent the people during assemblies, passing an ordinance requiring a penalty of P15.00
per household for those who failed to give a valid excuse for not attending the meeting).
Issues and problems of the barangay development planning

(based on the DA-PRISP Nueva Ecija experience)
! The planning coincided with the planting season, hence the limited attendance and participation
of some Barangay Planning Team members and residents.
! Unsupportive barangay officials.
! Low or minimal support of some local chief executives (LCEs).
! Limited, if not the absence, of transportation facilities and supplies for use by the MPTFs.
! The “wait and see” attitude of barangay residents and high expectations from projects after the planning activities.
! Apprehension on the part of the MPTFs as to the effects of the local barangay election and other political
activities.
Loopholes in project planning and implementation
Funding. Many municipalities have not been able to implement the training due to lack
of counterpart funds.
Lack of preparatory materials. As observed, much of the time of resource

persons/trainors was spent researching on topics assigned to them so the handouts
were submitted only after the training.

Lack of NGO involvement. Some municipalities do not have NGO
representatives because the municipal mayors did not give them office orders
to attend the training. Lack of coordination between the Project Management
Staff and NGO regarding selection of participants also contributes to this
problem
Logistical problems. The delay in the reproduction of the manual due to the
breakdown of computer units, much more the inaccessibility of computers from other
municipal offices involved, presents problems in the project implementation.
Time factor. The BDP trainees found the ten-day program

inadequate to develop the required planning skills. After the
training, they still have to review the manual and other materials
on hand prior to plan preparations.
Pre-conditions for successful participatory planning
! Strong commitment and support of the local chief executives and other municipal officials and staff
! Close coordination between the Municipal Development Council (MDC), BDC and the MPTF and BPT
! Strong interest, commitment and support of barangay officials/sector leaders and their constituents
! Well-synchronized scheduling of MPTF and BPT activities both in terms of time availability of barangay officials
and residents and the regular tasks and responsibilities of the MPTFs made their mother agencies/departments
! Further training of MPTFs and BPTs in the areas of resource mobilization or fund sourcing, project feasibility
study preparation, linkaging and networking
! Sufficient municipal funding to cover necessary field expenses and logistical requirements of barangay
development planning
! Full implementation/completion of barangay projects identified by the people themselves
Sources:
Provido, Maria Nesza and Letty Tumbaga. “Barangay Development Planning in the Province of Antique” in A
Breath of Fresh Air – Exploring the Possibilities of Local Government Management ed. by Letty C. Tumbaga.
CIDA-LGSP-Region VI and Ateneo Center for Social Policy and Public Affairs (ACSPPA). Philippines, 1998. pp. 11-
30.
Mercaida, Enrique G., Introducing Participatory Planning Practices with Local Governments Learnings from
Nueva Ecija PRISP-PP Project. Y. C. James Yen Center, Silang, Cavite, Philippines: International Institute of
Rural Reconstruction, 1997. Unpublished Materials.
Philippine Rural Institutional Strengthening Program, Department of Agriculture (PRISP-DA). Participatory

Planning. A Joint Project of the Republic of the Philippines and the Commission of the European Union, Quezon
City, Philippines. 1996.

3
CHAPTER
THREE
Other exemplary
A
ttuned to the administrative
management changes taking place over
field-derived the past decade, innovative approaches
and methods in program and project
practices & administration have been tried, both at the
national and local levels. Approaches and
innovations in methods have arisen from the recognition by
government, non-government and private sectors,
governance and , of the adverse effects of centralized and
standardized systems, operational guidelines and
participatory procedures being handled in a top-down fashion.
These are usually more informal, inovative and
development cost-effective approaches, which are based and
influenced by community-felt issues. Hence, it is
efforts imperative that greater organizational flexibility in
programs and operations ensure that programs
and services respond to the localized needs of the
people. The programs and projects introduced
and implemented include: natural resource
management, health, education, development
planning, etc. All of these have great potential for
addressing the goal of alleviating poverty and the
achievement of sustainable and equitable
development. Some specific capacity-buiding
programs intended to strengthen local
governance through the provision of assistance to
LGUs and civil society organizations in improving
local government performance have likewise
been undertaken.
This chapter highlights the innovative

approaches, strategies and techniques adopted
in the various development programs and
projects implemented in recent years by
several donor agencies, local government
support organizations, the academe and other
development organizations. The results or
benefits and the problems are also cited. It is
hoped that the readers (i.e. development
practitioners and stakeholders) maybe able to
draw lessons from the experiences shared.
Decentralizing Natural
Resources Management
T
here are three key events supporting the decentralization and devolution of Community-Based
Forest Management (CBFM).
1. The provisions on environment of the Local Government Code (LGC) of 1991 devolved
significant functions, powers and responsibilities to local government units (LGUs). In particular,
Section 15 of the Code mandated LGUs to ensure the rights of inhabitants to a balanced ecology and to
undertake initiatives for community-based forestry efforts as well as to protect the natural ecosystem.
2. Enactment of Presidential Executive

Order No. 263 (July 1995) adopted
the community-based management as the
national strategy to ensure the sustainable
development of the country’s forest resources
and provide mechanisms for its
implementation. This led to the creation
of the process and procedures for the
Community-Based Forest Management
Agreement (CBFMA) – a 25-year
production-sharing arrangement entered
into by a community and the government
to develop, utilize, manage and conserve a
specific portion of forestland.
3. Enactment of Indigenous People’s Rights Act of 1997 (IPRA, Republic Act 8371)
established definitions, principles and rights related to resource management in ancestral domains.
The Act and its implementing rules and regulations strengthened the role of indigenous peoples and
provided participatory guidelines for the recognition, delineation and award of the Certificate of
Ancestral Domain (CADC) or Certificate of Ancestral Domain Title ( CADT).

Emerging problems in decentralizing natural resources management
Strong People’s Organizations (POs) are keys to a successful CBFM implementation. However, a number
of serious problems are evident in the field. These include:
! Many POs lack the organizational and technical capacity to properly manage commercial aspects
related to CBFMAs.
! Many communities lack working capital and have little or no previous financial management
experience.
! POs need to function as business enterprises and most have difficulties in negotiating fair market
forces, finding affordable transport, arranging payments, assuring quality and scaling standards for
forest products and meeting pre-payment requirements of the Department of Environment and
Natural Resources (DENR) for forest charges.
! DENR field offices are usually unable to provide all the assistance needed by forest communities,
especially with regard to cooperative business management.
To overcome these problems, it is essential to strengthen the capacity of POs and to develop effective
partnerships among DENR, LGUs, POs and the private sector to make CBFM productive, profitable and
sustainable.
Problem areas in implementing LGUs’ devolved environmental functions
! LGUs’ lack administrative and financial

capacity to assume responsibilities in
environmental management. The LGUs
complain of not having office space and funds
to pay for the salaries of devolved national
staff.
! There is limited technical expertise to
undertake environmental functions. Worse,
many LGUs are still unaware of the LGC’s provisions on local governments’ roles and responsibilities
in natural resources management.
! Duplication also presents a problem as the Code grants local executives specific functions to enforce
environmental regulations similar to that of DENR officers. Confusion over areas of responsibility
has, in many times, led to inefficiency.
! While municipalities are generally granted responsibility over program implementation, provincial
governments are granted law enforcement functions. Such division of labor may, in one way or
another, work to weaken the effectiveness of community-based projects.

! The continued problem of elite dominance in
the rural landscape also poses a problem. It is
a sad fact that wealth and power remain to be
concentrated in the hands of landlords, some of
whom maintain control on the local citizenry
with their private armies. Given this scenario,
the Code may be used by local political clans to
strengthen their economic resource base.
Some innovative features/practices in natural resources management
! Organize a multisectional Natural Resource Management Council (NRMC), which represents a cross-
section of community groups, local legislators, and municipal and provincial government line
agencies that, by good will, serve as voluntary local planners.
! Make available research-based information and technical assistance from different local, national and
international stakeholders and partners.
! Undertake capacity building activities with the NRMC, to level off the council members’ expectations
and roles and to address the information needs and planning skills of the diverse members.
! Adopt the Technology on Participation (ToP) approach developed by the USAID-funded Governance
and Local Democracy (GOLD) Project – in eliciting information and ideas from the planning
participants during workshops on envisioning, strategic directions and action planning.
! Systematically verify and consult
with local government officials at
the barangay and municipal levels
and with local people during public
assemblies. The different barangays
passed a resolution to manifest
their approval and support of the
plan.
! Legitimize the plan by the
Legislative Council (Sangguniang
Bayan), and assuring executive
support through the approval of the
Municipal Ordinance that set forth
the implementing guidelines of the
plan.

! Implement the plan using a participatory approach. This approach utilizes the presence and
participation of various GO and NGO partners in the area by inviting them to focus their work towards
achieving the objectives of the plan. A formal partnership was forged by the LGU and various
stakeholders in implementing the plan through a Memorandum of Understanding signed by all
concerned parties.
! Contributing financially to the implementation of the plan from the budget allocation for its Human
Ecological Society (HES) Program, as mandated in the implementing guidelines of the LGC.
Lessons learned
! Local Natural Resource Management (NRM) planning and implementation may

not necessarily require a large working capital and a highly structured Keys to
bureaucratic procedure. success:
! Many local governments in the Philippines have the potential to manage their own natural
resources. Therefore, forest management authority, functions and responsibilities can be Partnerships
decentralized, just as municipal agricultural offices have been devolved. Collaboration
! LGUs can tap the resources of different external programs and coordinate, channel and focus Cost-sharing
them to help resolve local environmental and resources degradation problems.
In 1996, a unique, local-level NRM planning process began in the Municipality of Lantapan, Bukidnon
Province. This process was supported by research-based information and technical assistance from the
consortium partners, although such a plan was not conceived as an initial objective by Sustainable
Agricultural and Natural Resource Management (SANREM). At that time, the mayor of Lantapan felt
that the municipality would benefit from a plan wherein all the scientific and research outputs that had
been assembled are incorporated. The SANREM partners made significant contributions to the
planning framework and the technical contents of the municipal Natural Resource Managment and
Development Plan (NRMDP). The International Center for Research in Agroforestry (ICRAF) helped to influence the
perception of local planners that, indeed, natural resource conservation and management can be profitable. ICRAF’s
technical contribution to the plan was cased mostly from its research work on soil and biodiversity conservation.
The NRMDP was adopted by the Lantapan Sangguniang Bayan (Legislative Council) in March 1998, and is the first of
its kind in the Philippines. It is a five-year indicative plan, with the following vision - “A stronger community partnership
towards a well managed natural resources and ecologically balanced environment for a sustained development in Lantapan by
the year 2000.”
The plan is presently being implemented. ICRAF is maintaining a strong partnership with the local government to
help achieve mutual goals and benefits for the farmers of Lantapan. This is achieved through collaboration with the
LGU in institutional development and working directly with the farmers on technology development, dissemination
and adoption.
Sources:
Lai, Chun K., Delia Catacutan and Agustin R. Mercado. “Decentralizing Natural Resources Management:
Emerging Lessons from ICRAF Collaboration in Southeast Asia.” International Seminar on Decentralization
and Devolution of Forest Management in Asia and the Pacific. DENR/FAO/RECOFT, Davao City, Philippines,
November 03 – December 4, 1998.
Molintas, Dani “To Wound a Forest and Threaten a Culture for Energy,” Rural Reconstruction Forum. Quezon City:
Philippine Rural Reconstruction Movement. Volume 2, No. 3. pp13-18.

Landcare as an Innovative
Approach in Natural Resources
Management at the Local Level
L
andcare is a method that rapidly and inexpensively diffuses agroforestry practices among
upland farmers. This method is based on the premise that farmers have an innate interest and
willingness to learn, adapt and share knowledge on new technologies that allow them to earn
additional income and to conserve natural resources, at the same time. It is an emerging approach that
empowers local governments and communities to effectively and inexpensively disseminate conservation
farming and agroforestry practices.
This method depends on self-motivated communities responding to community issues not imposed by an
external agent. Approaches that are founded on well-grounded theory are more likely to effect a more
permanent and positive change.
Landcare groups are supported by the government and are networked to ensure that ideas and initiatives
are shared and disseminated. Local communities and the government working together to change the
way the land is used is an important feature of Landcare.

Steps involved in Landcare
Select sites with good potential

This is to bring conservation farming technologies to
where it is needed most – on sloping lands where soils
are prone to erosion and degradation. This initial step
also involves meeting with key leaders in the LGUs
(municipal or provincial), interested farmers and
other stakeholders. Their understanding of the issues
that need to be addressed, as well as their willingness
to support and complement the program, are very
crucial to the success or failure of Landcare at a given
site.
Expose key farmers to successful

technologies and organizational methods
The aim is to develop strong awareness among
prospective key actors of the opportunities to
effectively address production and resources
conservation objectives through the new
technologies. The success of these activities
can be measured through the development of
enthusiasm to adopt the technologies within
the community. Exposure activities include:
! organization of cross visits to the fields of

farmers who have already adopted and
adapted the technology successfully into
their farming systems;
! provision of training activities for farmers
in the target communities to learn about
the practices; and
! provision of opportunities for farmers to try out the technologies on their lands through unsubsidized
trials to convince themselves that it works as expected. If so, these farmers become the core of a
‘conservation team’ to diffuse the technology in the municipality.

Organize conservation teams at the local level
Once it is clear that there is a critical threshold of
local interest in adopting the technologies and a spirit
of self-help to share the knowledge within and among
the villages of a municipality, the conditions are then
in place to support the implementation of municipal
conservation teams. A team is composed of an
extensionist either from the Deaprtment of Agriculture
(DA) or the Department of Environment and Natural
Resources (DENR), an articulate farmer experienced in
the application of the technology and an outside
technical facilitator.
Farmer Expert
DA
Technician Researcher Conservation Team Approach
The team initially assists

individual farmers in the
Barangay Barangay Barangay implementation of their desired
Consultation Consultation Consultation conservation farming practices.
Later on, seminars and training
at the village level are conducted
Interested Interested
Farmers Farmers
if the need arises.
Establish contour hedgegrows with the farmers
Barangay Barangay
Landcare Landcare
All Famers Farmer-to-Farmer All Famers

Evolve Landcare farmers’ organization
If and when the pre-conditions are in place for a
Landcare farmer’s organization, then the
facilitator may assist the community in
developing a more formal organization. A key
ingredient of success is to identify and nurture
leadership skills among prospective farmers in
vision and organization. This involve arranging
for special training in leadership and management
for the farmer leaders and exposing them to other
successful Landcare organizations.
Each barangay (village) may decide to set up its own Landcare

Association chapter and barangay conservation team. Some villages
may organize Landcare Association sub-chapters in their puroks or
sitios (sub-villages). A purok conservation team usually includes a
local farmer-technologist, the purok leaders and the district kagawads (councilors). The purok-level
teams are the front-liners in conservation efforts, providing direct technical assistance, training and
demonstration to farmer households. Conservation teams at the barangay and municipal levels backstop
them.
At the municipal level, the Landcare Association is a federation of all of the barangay Landcare chapters.
The municipal conservation team is part of the support structure, which also includes other organizations
that can assist the chapters (e.g. DA, DENR, NGOs).
The Landcare Association may opt to be registered as a PO (in the legal form of a cooperative, association
or corporation).
Attract local government support

Local government can provide crucial political and
sustained financial support to the Landcare
Association to meet its objectives. The
municipality has its own funds that are earmarked
for environmental conservation. These can be
realigned to Landcare activities that enhance
natural resource conservation. The municipality
can be encouraged to develop a formal natural
resource management plan such as the one in
Lampatan, which can help guide the allocation of
funds.

The barangays can also allocate financial resources from their regular IRA through the Human Ecological
Society (HES) program, which represents one-fifth of the total development funds of the barangay. These
funds can be used to organize the conservation teams and Landcare Association activities at the barangay
and purok levels, and support training and honoraria for resource persons.
External donor agencies can best support Landcare development by allocating resources for leadership and
human resources development, communications equipment (e.g. handheld radios) and transportation
(e.g. motorcycles) to enable Landcare leaders to maximize their time.
Structure of the Claveria Landcare Association (CLCA)
Municipal Level
Actors
Claveria
• President, Claveria Landcare Association
Landcare • Municipal conservation team
Association • Presidents of all village Landcare chapters
• Mayor
• Chairman, Committee on Agriculture &
Environment, Municipal Council
• Municipal Agricultural Officer
• MOSCAT College staff
• ICRAF staff
Village Level
Barangay
Actors
Landcare Barangay
Chapter 1 • Landcare chapter president Landcare
• Village conservation team Chapter 24
• Agriculture Technician
• Chr. Agri. & Env. Comm.
• Barangay captain
Sub-village Level
Sub-village Actors Sub-village

(sitio) (sitio)
• Sub-chapter Landscape president
Landcare Landcare
• Sub-village conservation team
Subchapter 1 • Households Subchapter 8
• Agric. Technician
• Chr. Agric. & Env. Comm
• District councelor
• Sub-village president

Monitor and evaluate
Monitoring is necessary to assess the progress of the activity and
use outputs for strategizing activities or planning actions to make
the program more dynamic and relevant to the need of the target
community.
For monitoring purposes, International Center for Research in

Agroforestry (ICRAF) has a record of all those who have attended
training or have been assisted with establishing Natural
Vegetative Strips (NVS) on their farms, as well as of farmers who
requested assistance. Details on farming and conservation
practices, training and follow-up needs are recorded on a
diagnostic card, which is updated on regular follow-up visits by
ICRAF staff. The leaders of the CLCA chapters and sub-chapters support this activity by distributing and
collecting the diagnostic/ evaluation cards to and from the sub-villages and new CLCA members.
Conservation farming
technologies
The specific activities of the

Landcare Association members
vary according to their needs and
interests, as well as their
biophysical and socioeconomic
situations. Some of the many
activities that have been or are
being developed as focal areas
for Landcare Association work
include:
! Establishing NVS along contours to reduce field or farm-level soil erosion. This was the initial farmer-
generated technology that launched the organization of Landcare in Claveria.
! Planting perennial crops on or just above the NVS to increase farmers’ income and enhance soil and
water conservation.
! Planting trees to increase family income through production of timber, fuel wood and other tree
products in farm forests, boundary plantings, or other arrangements.
! Planting high-quality fruit trees to provide income and better nutrition for the household while
enhancing the environment.
! Adopting minimum-tillage or ridge-tillage farming systems. Ridge tillage has been successfully
adopted with the existing draft-animal cultivation practices and is being further tested on farms.

The evolution from simple soil conservation
practices to a more complex agroforestry system
occurs over time as farmers continually
experiment, innovate and adapt technologies that
are well-suited to their conditions. Generally,
farmers start with the establishment of natural
vegetative filter strips. Next, they establish
communal or individual nurseries and plant
perennials on or above the NVS. Farmers can
cultivate annual cereal crops up to the fourth year,
particularly if the strips are not too close to each
other. When tree canopies shade out the crops
therefore making it no longer profitable to grow
annuals, farmers graze their livestock beneath the
trees. The trees (mostly Gmelina arborea) can be
harvested 8-12 years after planting. The farmers
then resume annual cropping. This system earns
more income than the traditional practice of
micro-cultural cropping .
In 1996, ICRAF supported Landcare dissemination activities in Claveria, Misamis Oriental, Philippines,
as a direct response to farmers’ request for technical assistance in conservation farming. The technical
and institutional innovations led to the formation of the Claveria Association, which was then formally
registered as a PO with the Philippines Securities and Exchange Commission in September 1997. By
December 1998, 59 Landcare groups have been established in 19 barangays in the Municipality of
Claveria. Most of these Landcare groups were based in the purok or sitio, where farmers can interact
with each other more frequently.
These Landcare groups have successfully extended conservation farming based on NVS to about 2,000 farmers and
established 205 communal and individual nurseries that produced hundreds of thousands of fruits and timber tree
seedlings that are planted on the NVS or along farm boundaries. They were also able to get funding for 75 draft
animals for dispersal to Landcare members who had none.

Decentralization and devolution of natural resource management at the grassroots enable governments to
allocate resources and provide policy support to complement farmer-and community-led efforts to conserve
resources for sustained production and use. The Landcare approach provides:
! a vehicle for interested farmers to learn, adopt and share knowledge about new technologies that can
earn more money and conserve natural resources;
! a forum for the community to respond to issues that they see as important;
! a mechanism for local governments to support; and
! a network to ensure that ideas and initiatives are shared and disseminated.
Sources:
Lai, Chun K., Delia Catacutan and Agustin R. Mercado. “Decentralizing Natural Resources Management:
Emerging Lessons from ICRAF Collaboration in Southeast Asia.” International Seminar on Decentralization
and Devolution of Forest Management in Asia and the Pacific. DENR/FAO/RECOFT, Davao City, Philippines,
November 03 – December 4, 1998.
Molintas, Dani “To Wound a Forest and Threaten a Culture for Energy,” Rural Reconstruction Forum. Quezon City:
Philippine Rural Reconstruction Movement. Volume 2, No. 3. pp13-18.

Local Government Innovations in
Watershed Management
A
watershed is the total land area that
contributes to the flow of a river, stream or
creek. Its boundary can be located on the
ground by connecting all the highest points of the area
around the river, stream or creek, where water starts to
flow when there is rain. It is not man-made and it does
not recognize political boundaries.
Contrary to common perception, a watershed may not

have any vegetation or wildlife. It may or may not even be under the
Department of Environment and Natural Resources (DENR) control. It does
not have to be steeply sloping and its river, stream or creek may not
necessarily be flowing continuously.
The need to save our forests and watersheds is gaining increasing attention. The frequent occurrence of
flashfloods, landslides and water shortages in many areas of the country has made more people aware
that protecting the watershed means safeguarding life and property and protecting the water supply.
Similarly, problems of upland poverty, forest denudation and wood shortages in the upland areas have
pointed to the need for innovative ways of providing income to various sectors, especially the poor, and of
meeting the demand for wood, while protecting the natural forests.

The challenge of environmental management is new and local governments are only beginning to
discover new possibilities for action. In this regard, local government units (LGUs) have several
constraints. These include:
! lack of planning data such as information on forest resources;

! limited expertise for forest land use planning;
! lack of information on kinds of initiatives allowed under existing policies and programs governing
forests and watersheds; and
! perception that local governments have limited powers for apprehending and prosecuting illegal
loggers and other violators, and for resolving conflicts over competing uses of forest lands.
Emerging local government practices
Local government innovations in watershed management and forest protection vary depending on local
conditions. These innovations focus on achieving the interrelated objectives of maintaining ecological
stability, protecting the water supply and improving the lives of resource-poor upland communities. This
also includes promoting the use of the watershed as a planning unit and adopting appropriate land use
planning techniques.
The provincial government of Sarangani and the municipalities of Claveria in Misamis Oriental and
Villaverde in Nueva Vizcaya, among others, have taken this initial step. They have allocated funds for
orientation and training programs on forest land use planning as part of a more comprehensive land use
plan. The forest land use plan is enforced as part of an overall land use plan and zoning ordinance.
The City of Naga also followed this approach in planning the rehabilitation of the Naga River. Siltation
and pollution increasingly threatened not only the river’s ecosystem but also its cultural importance. In formulating
the Strategic Management Plan for the Naga City River, government planners, citizen leaders and resource persons
agreed to focus on the river’s watershed as the planning unit. They delineated the watershed into four zones (high
population density, agricultural, timberland, and riverbank/easement).
These approaches allowed local governments to determine better the biophysical and socio-economic
features and uses of the forest and watershed and to set priorities for action. Moreover, the stakeholders
involved became aware that their actions on the environment are interdependent and that watershed
management consequently requires their mutual cooperation.

Addressing the needs of upland communities
All watersheds in the Philippines are practically occupied by upland communities. Rather than uprooting
them, local governments made the resolve to assist poor upland communities and involve them in forest
protection and watershed management.
The municipalities of Kiamba, Maitum and Maasim in Sarangani implemented projects under the
Community-Based Forest Management (CBFM) Program. The local governments protected and
managed a portion of the forest recently abandoned by a lumber company whose timber license
agreement has expired. Activities were carried out in coordination with a multi-sectoral task force.
The municipal government’s initial activities included forestland use planning, community mapping and
community organizing.
The City of Cebu maintained a Hillyland Resource Management Program that supported the farming and marketing
needs of upland farmers as leverage for encouraging soil and water conservation practices. The city also collaborated
with a large non-government organization (NGO)-led multi-sectoral group advocating for the conservation of the city’s
watershed, the Mananga. A key collaboration point is the incorporation of strict watershed protection measures in the
city’s land use plan and zoning ordinance.
The local government-led multi-sectoral Municipal Planning and Development Council of Magsaysay in Davao del Sur
mobilized an Upland Agricultural Development Program. Its objectives included: assisting upland farmers through
appropriate farming technologies, livelihood projects, community organizing and training, reforestation, and watershed
protection. The initial results were very encouraging. Soil conservation practices have been applied. Furthermore,
small livelihood projects (i.e. poultry and cattle dispersal, mango production and bio-intensive gardening) have led to
increased incomes.
Mobilizing citizen involvement
Local governments can implement and sustain projects by mobilizing popular support. Projects can
challenge the citizenry’s spirit of volunteerism and sense of civic responsibility and further drum up
support through festive activities.
Faced with a heavily denuded watershed, a threatened water supply and a seemingly public apathy
toward the environment, the city government of Baguio pilot-tested an “Eco-Walk Project.” Under this
project, school children trekked to the Busol watershed as part of their class activity. There, they learned
in situ about the forest ecosystem, particularly its link to Baguio’s water supply. The students also learned
how to plant trees properly as each participating class was assigned an area to reforest.
The project has become a community activity. Three years since the project started, a total of 15,000 elementary
students have participated. Government employees, teachers, youths and civic groups have also joined to reforest
areas not accessible to students and to do other support tasks. Now, the once denuded watershed is once again alive
and teeming with life. As the trees grow, values of volunteerism, cooperation, partnership and ecological concern also
continue to take root within the community.

For Iloilo, it was the flashfloods that brought the message loud and clear: Save the Maasin Watershed.
The provincial government promptly established the Maasin Watershed Task Force. This is a multi-
sectoral group composed of the provincial and city governments, three municipal governments, DENR,
media, various NGOs, private corporations and educational institutions. Focusing on the 6,000-hectare
watershed, the Task Force initiated the “Alay Tanim” program which mobilized 5,000 people for mass tree
planting. It also implemented the “Adopt a Tree Park” program, which designated specific areas for
particular groups or organizations to reforest and protect. As an added incentive, a stewardship
agreement was reached with selected residents in the surrounding areas to help enforce regulations protecting the
trees and other forest products. The task force also made sure that farmers who used to depend on the forest had
alternative jobs and had access to agroforestry-based livelihood projects.
Directly managing selected forest areas
In coordination with the DENR, local governments can opt to directly manage certain portions of forest
for other uses.
The provincial government of Cotabato, for example, designated the 645-hectare Amas Reforestation
Project as the “Cotabato Provincial Forest and Eco-tourism Park.” The Park was used for scientific,
educational and recreational purposes. It also served as a seed production area and had a botanical
garden. The Park was co-managed by the provincial government, DENR and the Philippine National
Police. The joint venture is truly promising in terms of its objectives and management strategy.
Both the municipal government of Sta. Fe and the Provincial Government of Nueva Vizcaya undertook a similar
project. The local governments have entered into an agreement with DENR to manage and transform a portion of the
11,664 hectares Consuelo Reforestation project into a forest park, principally for “nature-based” or “eco-tourism”
purposes. The management involved forest protection, along with sustainable income-generating and bio-diversity
conservation activities.
Helping resolve conflicts over land use
Local governments can help resolve conflicts over land use, which occasionally impede forest protection
efforts.
In Nueva Vizcaya, about 77 percent of the province’s land area is classified as forest reserve. In as much
as many communities are either already settled in or economically dependent on these areas, problems
on land tenure and resource use abound. To help address these issues, Nueva Vizcaya’s Provincial
Environment and Resource Council created the Tenure and Resource Use Task Force, composed of
representatives from government agencies, NGOs and POs in the province.
Source:
Governance and Local Democracy Project (GOLD). “Local Government Innovations in Watershed Management,”
Occasional Paper No. 98-07. Makati City, 1998.

LGUs and Tree Farms:
Partners in Community Resource Generation
and Environmental Protection
F
or the most part, local governments are mandated to protect
What is tree farming?
forests and watershed within their areas of jurisdiction
through direct protection and reforestation efforts. However, Tree farming is the planting, care and
this strategy may be too costly in the long run if pursued as the only maintenance of trees for profit through the
initiative of small farmers, community
alternative. To date, the more innovative among these local organizations and private groups. It differs
government units (LGUs) have addressed environmental protection from conventional reforestation in the sense
and local resource generation in the promotion and establishment of that it is not subsidized by the government
and is intended for commercial purposes.
tree farms.
Tree farms provide additional income and employment opportunities not only for families and
communities involved but also for local governments. Tree farms also help protect the environment by
checking soil erosion, increasing water yield and indirectly reducing the pressure to extract wood from
natural growth forests.

As any other budding enterprise, tree farming oftentimes encounter barriers to realize its full potential.
Among these barriers are:
! government regulations resulting in cumbersome procedures or too much red tape;
! the misconception that permits for cutting trees and transporting lumber must still be secured even
for trees which farmers themselves planted; and
! the need for clear information materials and quality inputs (i.e. seedlings and adequate technical
support services).
Emerging local government practices
Identifying areas and ensuring rights to harvest

Pursuant to the law, local governments must ensure the proper and efficient inventory and registration of
plantations, which could help identify and locate idle lands as well as establish legal rights of
participants to the land.
In Bohol, the provincial government has been negotiating with the Department of Environment and
Natural Resources (DENR) for the creation of an “Executive Committee” to assist the Protected Area
Management Board (PAMB) of the Rajah Sikatuna National Park. The committee will operationalize the
park’s management plan, which designates areas for sustainable use, multiple use and buffer zones.
Once these zones are delineated, tree farming may then be undertaken in appropriate areas.
In Loboc, Bohol, each barangay was encouraged to establish a one-hectare forest plantation to support the
municipality’s thriving furniture industry. In support of this strategy, the local government helped acquire the needed
lands either through donations, direct purchase and/or leasehold.
Providing benefits and incentives for stakeholders

Given the varying needs and concerns of different stakeholders (i.e. landowners, claimants and
entrepreneurs), local governments should offer a variety of benefits and incentives to all stakeholders
concerned.
The Bukidnon Environment Small-Scale Tree Farm Project aims

to establish tree plantations inside areas covered by the
Integrated Social Forestry Program. The provincial government
provides financial support in the amount of P7,500 per hectare,
while the tree planter provides labor for three years. Of the
total amount, P1,500 is used for project management and
supervision, while the remaining P6,000 is given directly to the
tree planter in the form of cash and/or farm inputs. The farmer
repays the amount with 15 full-grown trees on the 10th year of
the farm’s operation.

For stakeholders (i.e. landowners and claimants without
tenure-related problems), other benefits may be more
attractive. In Dumarao, Capiz, a tax holiday was declared
exempting lands planted to at least 1,000 seedlings per
hectare from being assessed a realty tax for a period of
five years. This encouraged the farmers to plant more
trees. Landowners were expected to resume paying taxes
when they harvest the trees.
Landowners with less definite investment plans for their

farms may be encouraged to engage in any type of Tree
Farm Leasehold. Under this scheme, individuals or groups lease land from a landowner and agree to give the
landowner a share of the income from the trees to be harvested after a specified number of years. Sharing
arrangements may be 72-25, 70-30 and 60-40 in favor of the developer or 50-50, depending upon factors such as the
species planted, the location and productivity of the land.
Special incentives and strategies may be designed for specific groups

and situations. In the “Trees for Tuition Fees” Program, the
provincial government of Siquijor endorsed and supported
agreements wherein the Parents-Teachers’ Association of a school
leases land from a local owner-benefactor, specifically for tree
farming purposes. The program has sown hope among parents that
at least five trees of Gemini or Acacia Mangium planted by their child
in the first grade may be worth P20,000 in 10 years, when that
child enters college. The provincial government provides the
seedlings and technical assistance for this program. The same
strategy has also been implemented in Bohol.
Disseminating information on government policies and regulations
Local governments should work more closely with the proper government agencies, particularly the DENR
in disseminating policies and permit regulations and requirements for harvesting and transporting trees.
As a matter of policy, the harvesting of premium species (e.g. narra, molave, kamagong, ipil-ipil, etc.) on
private lands is closely regulated and requires a Private Land Timber Permit from the Secretary of the
DENR. The extraction of fast growing trees species (e.g. ipil-ipil) on the other hand, has been
deregulated. These policies, notwithstanding other government agencies such as the Philippine
National POlice (PNP), DENR and other non-government organizations (NGOs) and LGUs, still require
special cutting and transport permits. This practice discourages the farmers from planting trees.
To avoid these hassles, the farmers must obtain Certificates of Registration and Verification for planted trees. Local
governments, therefore, can work closely with the DENR in order to disseminate this policy. In Cotabato, for example,
the provincial government organized a dialogue among the Provincial Environment and Natural Resource Officer
(PENRO), tree farmers, wood processors, lumber dealers, and furniture makers to discuss problems and solutions
related to licensing procedures (e.g. the collection of inspection and inventory fees, documentation flows and
checkpoints documentation). A similar effort can be undertaken to focus on policies and permits for harvesting
planted trees.

Sharing the establishment cost
Local governments respond to farmer’s financial needs by extending assistance in cash or in kind (e.g.
seedlings and other planting materials) either for free, as a loan or as part of a sharing of an exchange
arrangement. This practice is done to encourage farmers to establish tree farms.
Illustrative joint production-sharing schemes
Local government with actual sharing scheme Tree planters’ equity
Cash
P6,000 per hectare to farmer for labor and inputs Repay with 15 standing trees after 10
plus technical assistance (Bukidnon Environment years
Small-Scale Tree Farm or BEST Project)
Cash payment of P5 per three year old tree plus Establish three-year-old tree farms
technical assistance (Quezon, Bukidnon’s
Greenbelt Program)
Small grant of P10,000 to barangay for nursery- Barangay to produce seedlings

related costs (Alamada, Cotabato)
Cost of seedlings (Cotabato’s Plant Now Pay Repay in cash after 18 months from
Later Plan) earnings
Kind
Seedlings (Zamboanga del Norte’s Plant Now Pay Repay in cash from sale of harvested
Later Plan) trees)
Seedlings plus technical assistance (Palawan’s Tree Provide land and labor
Resources for Economic and Environmental
Security)
The lack of trainers should not be a deterrent either.

Bohol and Palawan have prioritized training of local
officials and potential leaders who can become future
trainers or “subject-matter specialists.” In Bohol,
specialists from various sectors teamed up to train
community development practitioners on tree
enterprise, agroforestry and silviculture, among others. The
trainees constitute a provincial training crop, which will
eventually manage the training of other farmers.
Local governments can take other initiatives to enhance learning

and exchange among tree farmers. Just like in Palawan, they can
establish a model farm to demonstrate ways to make trees grow.
Or they can protect alternative modes of cooperation, such as

the alayon or work group followed in Basak Larena, Siquijor. Every Sunday, members of the Basak Upland Resource
Management Association pool their labor to plant trees in the farm of one of their members. They do this in each
farm until each member establishes a small plantation.
In some cases, local governments can play an essential role in

bringing about a more coordinated and integrated support
services program. In Makilala, Cotabato, the provincial
government went beyond helping farmers own the estate sold to
them by the Makilala Rubber Development Corporation or
“Makrubber” under the Comprehensive Agrarian Reform
Program. The local government launched the KABALIKAT
Rubber Development Project, which helped organize 60-farmer
beneficiaries into a cooperative. Since then, the project assisted
the cooperative to:
! obtain credit and farm inputs;

! negotiate the sale of their produce to Makrubber;
! establish nurseries;
! purchase equipment;
! conduct training programs; and
! seek additional income opportunities.
Extending support services
Local governments may provide technical support in terms of training and extension services to tree
farmers for them to better manage their farms and achieve optimum lumber yield. In addition, local
governments can play a key role in bringing about a more coordinated and integrated support services
program.
Where resources are available, local governments can sponsor

seminars, particularly on nursery development and silviculture. They
can also help send farmers to visit and learn from other successful
farms. Even with limited resources, local governments
need not be less effective. They can encourage
farmers to share in shouldering some of the
training costs. In Bohol, tree farmers agreed to pay
a small registration fee to help provide for the honoraria of
resource speakers. In Cuartero and Maayon, Capiz, farmer-
participants brought their own lunch during a seminar, thus
reducing the training costs on the part of the local government.
Source:
Governance and Local Democracy Project (GOLD). “ Growing Trees to Save the Forests: LGUs and the Promotion of
Tree Farms”, Occasional Paper No. 98-05. Makati City, 1998.

LGUs’ Role in Protected Areas
Management under the NIPAS
Law
W
ith environmental protection becoming a global concern, the Philippine Congress enacted
Republic Act Number 7586 on June 1, 1992, which provides for the establishment and
management of the Natural Integrated Protected Areas System (NIPAS) and defines its scope
and coverage.
NIPAS refers to the classification and administration of all designated protected areas in order to maintain
essential ecological processes and life support systems, preserve genetic diversity and ensure sustainable use
of resources found therein. A “protected area” refers to identified portions of land and water set for
protection, preservation and management against human exploitation because of their unique physical
and biological significance and diversity.
Established categories of protected areas
! Strict nature reserve

! Natural park
! Natural movement
! Wildlife sanctuary
! Protected landscapes and seascapes
! Resources reserve
! Natural biotic areas
! Other categories established by law, conventions
or international agreements wherein the
Philippine government is a signatory.

For each protected area, peripheral buffer zones have to be established, if necessary, to protect the
designated area from activities that are directly and indirectly harmful. A general management planning
strategy serves as a guide in formulating plans for each protected area. The management planning
strategy should, at the minimum, promote the adoption and implementation of innovative management
techniques including:
! zoning;
! buffer zone management for multiple use and protection;
! habitat conservation and rehabilitation;
! diversity management;
! community organizing;
! socio-economic and scientific researches;
! site-specific policy development;
! pest management; and
! fire control.
The management planning strategy provides guidelines for the protection of the indigenous cultural
minorities, other tenured migrant communities who have close coordination with local agencies of the
government, non-government organizations (NGOs) and the private sector.
Problems affecting the protected areas
! Farming systems that generally involve clearing and burning secondary forests or
fallowed lands near the end of the dry season, which causes degradation of large
areas adjacent to or within the park.
! Unregulated collection of forest resources (primarily fuel

wood, vines, bamboo, timber for construction and fruits),
which occurs evenly throughout the year, especially in
areas of easy access.
! Illegal logging
especially in the
evergreen and semi-
deciduous forests
aggravated further
by weak enforcement
of laws (e.g. permits
or collection
limits).

! Conflicting land claims that lead to ambiguity over ownership
and a situation of open access leading to the degradation of a
protected area.
! Bad experiences of some residents with some

organizations that have come and gone.
This results in suspicion and indifference by
the locals on efforts that new “faces” and
organizations undertake. In some instances,
religious affiliations also result in inaction
or non-participation.
! Likewise, beneficiaries also complain that

agencies and the projects they undertake are
fleeting and have no tangible impacts.
Some projects are launched and are just
abandoned later.
! Lack of support from the local government officials, such that direct contact between the intended
beneficiary/residents and the local leaders is seldom made.
! Some protected areas do not provide adequate livelihood. Consequently, many residents have to
migrate to work.
Strategies/solutions undertaken
Creation of a Protected Area Management Board (PAMB) as the policy-making

body of the NIPAS law.
The PAMB is composed of the Regional Executive Director, one representative each from the
autonomous regional government, the municipal government, the barangays within the
jurisdiction of the protected area and the tribal communities; three representatives from
local NGOs; and one representative from the national government agency involved in
protected area management, usually the Department of Environment and Natural
Resources (DENR).

The PAMB, by a majority vote, decides on the
budget allocations, approve proposals for funding,
and decides on matters related to planning,
peripheral protection and general administration
of the area in accordance with the general
management strategy.
Capability-building
This includes training/orientation on balanced
natural resource use and its relationship with
effective and accountable governance; development
planning administration and legislation
particularly in relation to the Integrated Protected
Areas System (IPAS); and collective
implementation and monitoring system.
Usually, the local chief executives, the planning

officers, the NGOs and community through their
People’s Organizations (POs) or Community-based
Organizations (CBOs) are involved.
Enlisting/enhancing the involvement of NGOs

and other groups or sectors in the
development of their areas particularly in the
implementation of the IPAS.
These NGOs could take the role of lead
implementor and coordinator of the project and be
mainly responsible for its day-to-day operations.
They are to report directly to the Local Chief
Executive (i.e. Provincial Governor). For effective
implementation, a project manager and staff (of
prescribed number) could be assigned to the project.
Adoption of a community-based data information and monitoring system as approved/supported

by the community residents.
Formulation of policies and programs duly approved by the PAMB en banc and their
implementation.
Examples are the Comprehensive Land Use Plans, conduct of Regenerative Agriculture training and their
application, promotion of indigenous livestock, raising and provision of seeds and other technical
assistance.

Mount Kanlaon, the highest peak in the Visayas, was proclaimed a National Park on August 8, 1934
by virtue of Proclamation Number 721-34. The law defined the park area coverage at approximately
25,000 ha of lush tropical forest and stipulated that the park be considered a distinct resource,
protected for purposes of maintaining rich biodiversity. Man’s harmful activities, however, adversely
affected the conditions of Mt. Kanlaon. Once a delightful forest, it has become almost denuded. The
original area of the park has been reduced and transformed. A recent survey of the towns and cities
surrounding the park disclosed that San Carlos City and Kanlaon City has only 11,457 ha of
forestland. La Castellana, Canlaon and Murcia on the other hand, have 1,500 ha of cogonal area, 537
ha of contract reforestation project area, 475 ha of impact reforestation area, 279 ha of Kabisig reforestation and 328
ha titled properties. The condition of the Mount Kanlaon National Park has alarmed a great number of people,
resulting to efforts on all fronts to rehabilitate,
protect and preserve the park.
To protect Mt. Kanlaon, the Developing

Sustainable Communities in Protected Areas Act, a
capability-building system under the NIPAS law,
was passed in 1992. In partnership with Paghiliusa
sa Pagdidaet-Negros, the local governments in Mt.
Kanlaon and the Local Government Support
Program – CIDA, the system aimed to develop the
capability of the Province as well as the affected
constituent LGUs on the conservation,
development and management of Mt. Kanlaon’s
rich and diversenatural resources.
At the same time, tangible environmental programs

have been incorporated into the LGUs respective
local development plans and environmental laws.
The relevant councils tasked to manage the projects under NIPAS have been set up and core groups have been
formed in the surrounding communities to assist in protecting the Park.
The challenge ahead
Like any other environmental project, the challenge lies in sustaining the efforts initiated especially at the
community level. This can be attained by making sure that structures in place continue to function and
active people participation is continuously nurtured. The bottom line is how efforts can contribute to the
proper management of a natural resource that is fast diminishing.
Sources:
Saban, Maria Fe and Letty Tumbaga, “Developing Sustainable Communities in Protected Areas under the NIPAS
Law”, in A Breath of Fresh Air-Exploring the Possibilities of Effective Local Government Management . ed. by
Letty Tumbaga. CIDA-LGSP Region VI and Ateneo Center for Policy and Public Affairs 1998 pp. 74-84.
International Institute of Rural Reconstruction (IIRR). “Mt. Palaypalay ICDP Proposal to BCN-BSP”. Silang, Cavite,
Philippines. May 1995.

Local Governments
in Coastal
Resource
Management
A
coastal zone is comprised of various systems, including natural systems (i.e. estuaries,
watershed and coastal seas) and socio-economic systems (i.e. agricultural production system
and urban settlements).
Its geographic extent may include areas within a landward limit of one kilometer from the shoreline,
which includes mangrove swamps, blackish water food, nipa swamps, estuarine rivers, sandy beaches, and
other areas reached by tides. Likewise, it includes a seaward limit of 200 in isobaths which include coral
reefs, algae flats, sea grass beds and soft, bottom travelable areas.
Factors contributing to the

deterioration of coastal ecosystems
! Construction and reclamation activities for

industrial, urban and airport development
! Conversion to fish/salt ponds and rice fields
! Pollution and water disposal
! Fishing with explosives/cyanide
! Proliferation of stationary fishing gears
! Pesticide from agricultural run off
! Conversion to tourist spots

The policy to boost the export of primary products in order to improve the country’s foreign exchange
position opened the door to uncontrolled extraction of coastal and marine resources. State policy is not
only biased to world export, it also favors elite commercial fishing at the expense of small artisan fishers.
The elite gained the most from export trade and is mainly responsible for over-fishing and destruction of
the marine and coastal ecosystems.
Organizing principles in restoring and enhancing natural capacities
Community stakeholdership
Local communities who have the most to gain or lose from the use of resources should have primacy in
managing it.
Systems perspective
CRM must be viewed and carried out within the framework of the coastal ecosystem and relevant systems.
To treat any program (e.g. Fisheries Sector Program) and its components from a sectoral perspective will
be incompatible with the principle.
Local Government Cooperation for Coastal Resource Management (LGC-CRM)

An effective way to solve environmental concerns of coastal areas is to organize collaboration of affected
communities led by their respective local governments. Whatever initiatives undertaken by local
governments could serve as an initial step in a long-term process towards a community-based CRM
program. Moreover, the same initiatives can facilitate partnerships between the local government units
(LGUs), governmental agencies and local non-governmental and People’s Organizations (POs) in
promoting sustainable growth and development in their communities.
Approaches
! Generate awareness among LGUs, government

agencies, non-government organizations
(NGOs) and POs or representatives from the
fisher folk communities about environmental
issues/ problems affecting the coastal area and
the communities around it.
! Organize and mobilize an Intermunicipal

Coastal Resource Management Council
(ICRMC) to serve as a coordinating body and
sustaining mechanism for all collaborating

partners (government organizations (GOs), NGOs, POs) to plan, implement, evaluate and promote
policy advocacy about the issues involved.
! Likewise, a Project Management Committee can be organized to specifically oversee project
implementation.
! Conduct planning and other capability-building workshops on environment, gender and participatory
development perspectives and processes relevant to CRM.
! Formulate a comprehensive CRM plan including a zoning plan, action plans or watershed and
mangrove reforestation, organic farming, community education and organizing, women’s
empowerment and feasibility studies in microenterprise and alternative livelihood projects.
! Conduct follow-up on training, refinement of strategies designed during previous trainings,
expansion of the inter-municipal ICRMC at the municipal and barangay levels (particularly the
coastal barangays) and the formation of community organizers and facilitators to train the fisherfolk
of the coastal barangays.
! Document and popularize development issues and lessons gained.
Issues and problems in CRM implementation
! Differences between the project implementors cause several delays in the implementation of some
project activities.
! Conflicts between LGUs involved and the existing policies on fund disbursement result to constant
delays in the release of funds and eventually hampers the sustainability of the CRM efforts.
! Lack of municipal funds for the implementation of project activities in their respective areas is
aggravated by the lack of technical know-how on the part of LGUs and officials of government
agencies to prepare project proposals for external sourcing of required funds.
! NGO participation and coordination is lacking because some local government officials continue to
perceive local NGOs as their rivals.
! The momentum in undertaking activities is derailed due to constant changes in political leadership
and officials’ priorities.
Recommendations
! Promote and undertake alternative income-generating activities utilizing existing
resources and capacities in the area.
! Fully implement ICRM plan to stare off economic dislocation resulting from the implementation of
the zoning plan and fisheries ordinance.
! Mobilize existing POs to explore middle grounds for cooperation with the local government and other
agencies, including NGOs. Thus, there is a need for organized and skilled POs at the grassroots level.
! Promote and undertake gender-friendly schemes and activities to guarantee the recognition of women-
related issues.

Batan Bay, Tinagong Dagat is a threatened ecosystem. While it remains a very productive fishing
resource, it is deteriorating. At present, there is an alarming rate of siltation due to denuded watersheds,
mangrove deforestation, harmful farming and fishery practices in the area as well as the unregulated
proliferation of stationary fishing gears, which also pose hazards to navigation. The need for alternative
livelihood activities has also become apparent.
In a joint resolution among the Aklan provincial government, FSDP-UP, and the municipal governments
of Batan, Altavas and New Washington, the “Local Government Cooperation for the Coastal Resource Management of
Altavas, Batan and New Washington” was launched. It became the Philippines-Canada LGSP first project in Region VI.
The two-year capability building project was envisioned to safeguard, sustain and enhance the environment of Batan
Bay and its tributaries.
The project encountered serious problems including management problems, inter-governmental conflict, lack of local
funds to finance CRM project implementation, opposition from fisher folk groups and absence of NGOs during the
implementation stage, which delayed its implementation. Despite these difficulties, the project boasts of several
accomplishments:
! The level of awareness regarding the

environmental issues affecting the bay and
the need to protect it was heightened.
! The three municipalities to govern fisheries
and water activities in the Bay drafted a
fishery law. The law was integrated into the
local development plan and was observed.
The integration of the law into the
provincial development plan is being
planned.
! Ten thousand pesos form the municipality’s
Internal Revenue Allotment (IRA) was
allocated by the LGU of New Washington
to protect the Bay from illegal fishing.
! The government of Batan declared some
areas of the Bay as a fish sanctuaries.
! Mangrove areas of the Bay were reforested.
! Some fish gears (e.g. fishnets with small
eyes, tahungan) were declared illegal.
Lessons learned
! Advocacy is very important in raising the level of consciousness of people about

environmental issues. The struggle for social change always starts with changes in the
perception of people. Environmental issues affecting major sources of livelihood are the best
starting points in organizing communities towards more vigilant actions.
! CRM is a venue that encourages the productive cooperation of LGUs, POs, NGOs and the academe.
Institutions that usually have diverse perspectives and interests can work together given a common issue. A
stronger sense of commitment towards environmental issues and community empowerment has increased
especially among LGU people. This is necessary for the significant implementation of project objectives and for
LGUs to go beyond petty politics. This also gives the academe the best chance to make scientific studies/

researches significant to the needs of the community. On the other hand, POs and NGOs should consider this
collaborative project as an opportunity for them to participate and assert their interests in the design,
implementation and management of developing projects.
! Participatory management is necessary to encourage involvement of various sectors in the

implementation of social development projects like CRM. Policies, both in the management and field
levels, should be threshed out among affected sectors. Their active and substantial participation ensure a smoother
flow of operations in the management level where policies are agreed upon with the different interests considered.
! Community development should mean development of people in the lowest rung of the social
ladder. CRM as a social development project should address the issue of the lack of access and control of
resources by marginalized sectors. Cooperatives should be seen as a venue where structural changes can be made.
Thus, there is a need for membership and participation of people from the low-income groups.
! Serious consideration on gender issues should be made if substantial project impacts on women
are desired. A project’s sensitivity to gender issues takes more than just segregating the number of women
participants vis-à-vis that of the men in training, as well as in community organizations. Analysis should be done
about the women’s level of participation in decision-making, planning, implementation and management processes
in both family and community activities. These crucial tasks are usually the domain of the men, as in the case of
ICRMC where women’s participation is hardly visible.
Sources:
Espano, Agenes, “Local Government Cooperation for Coastal Resource Management (LGC-CRM) in Batan Bay”,
Local Governance Journal. LGSP Regional Project Management Office, Jaro, Iloilo City. Vol. I. No. 1, January –
March, 1998. Pp. 25-34.
Legaspi, Nora and Gerry de Asis, “Aklan Baywatch: Coastal Resource Management in Batan Bay, “in A Breath of
Fresh Air-Exploring the Possibilities of Effective Local Government Management. Ed. By Letty Tumbaga
CIDA_LGSP – Region VI and Ateneo Center for Policy and Public Affairs, 1998. P.67-73.
Serrano, Isagani R. “The Role of NGOs in Coastal Resources Management”, in Rural Reconstruction Forum.
Quezon City: Philippines Rural Reconstruction Movement, April – June, 1993. Pp. 26-28
Training Manual on Integrated Coastal Management: Philippines. Handout 1: The Coastal Ecosystem and other
Resources in the Coastal Zone. DA-BFAR, DENR-CEP, DOST-PICAMPD, HARIBON, ICLARM and IIRR, Silang,
Cavite, Philippines, 1998.

LGUs in Marine Reserve
Preservation and Management
O
verfishing, destruction of marine habitats and the resulting decline in fish catches
affects small-scale fishermen throughout the Philippines. The establishment of marine
protected areas is a recognized and proven strategy for resource conservation and
management. The protection and management of marine areas can result in marked increases in
fish growth and yields. Marine reserves protect breeding populations of corals, mollusks, fishes,
shrimps, mangroves and seagrass from which neighboring depleted areas can be recolonized. Local
government units (LGUs) play a critical role in establishing and managing marine reserves and
protected areas.
What is a marine reserve?

A marine reserve is an area within the coastal zone where resource extraction is either banned or
highly regulated. It may be a part of a single or a combination of any of the major coastal
ecosystems (coral reefs, mangroves, seagrasses, soft-bottom communities). Resource utilization in
these areas is strictly managed, hence, resources are protected.
Also, marine reserves conserve biodiversity to support local fisheries and are venues for education,
research, and habitat restoration. These areas also provide an environment for low- impact
aquaculture managed and organized by coastal communities.

Zoning system of a marine reserve
Buffer zone
Resources in marine reserves
may be viewed as “common
property” for the exclusive use
by a community. Various
sectors of the community
therefore “own” or have an
interest in the use,
management, and protection
of marine reserves.
Seagrass bed
High coral cover

Gradual slope
Steep slope
Core zone
NGOs
! Advocacy
Fisherfolk ! Collective action
! Direct users
MAR
RES I N E
ERV
E
LGUs
Researchers ! Enabling legislation
! Resource monitoring Stakeholders ! Law enforcement

Legislative and legal support
Stakeholders
The protection and allocation of marine and inland aquatic
resources is enshrined in the laws of different states. In the Fisherfolk who depend on the
Philippines, this is amply stated in the 1987 Philippine sea for their livelihood and from
the improved fishery as a
Constitution which gives preference to subsistence fisherfolk. consequence of establishing a marine
reserve.
Being direct-users, fisherfolk are day-to-day managers in the use
Researchers who conduct studies to
of these marine resources. This requires collaboration with LGU, monitor the status of resources in marine
which provide the enabling legislation that makes protective reserves as an input to management
management actions binding to all stakeholders. decisions.
Non-government organizations
Key legislations in recent years have empowered and given both (NGOs) are the ones that guide collective
the LGUs and fisherfolk greater control over their resources in action and advocacy among resource-
users.
municipal waters.
Local government units (LGUs)
provide the institutional framework and
legal basis for any individual or collective
Co-management of marine reserves management actions.
Enabling national legislation allowed the evolution of co-
management schemes involving the participation of all
stakeholders in the decision-making process, which is a Fishery laws External institutional
requirement to sustain management intervention strategies such and policies support
" National agencies
as marine reserves. - Department of
Agriculture (DA)
Administered by the LGU, the Fisheries and Aquatic Resource - Department of
LGU Environment and
Management Council (FARMC) is a multi-sectoral body of " FARMCs Natural Resources
fisher’s organizations, NGOs, the LGU and government agencies (DENR)
that regulates resource use by all stakeholders. FARMCs provide a - Department of
Interior and Local
legitimate forum to raise fishery-related issues and problems. Government (DILG)
The LGU and the fisher’s organization, often with the assistance " NGOs
Fisher’s
of an NGO, national agencies and a federation of fisher’s " Academic institutions
associations
" Federation of Fishers’
organizations, conduct a series of general assemblies, and Association
Caution!
Marine reserves have proliferated in many coastal municipalities in the Philippines and elsewhere as a
result, in part, of the global conservation movement in recent years. Indeed, this has been a welcome and
innovative move, especially in coastal communities where resource overfishing has been rampant. However, in
the rush to adopt a novel strategy, the basic norms of establishing and managing marine reserves, have been
overlooked, resulting in the non-sustainability of management measures. Physico-biological factors and, most
importantly, sociopolitical considerations are oftentimes ignored. Marine reserves can be an effective resource
management tool when concerns of all stakeholders have been and will be considered. Sadly, many marine
reserves in the country are “paper” reserves, with no credible conservation measures being applied.

consensus-building activities aimed at arriving at solutions
Related Philippine Laws
suitable to the community. The LGU enacts fishery-related laws
" The Local Government Code of and policies recommended by the FARMC, thus, minimizing
1991 (Republic Act 7160) provides conflicts in resource use. Compliance with these regulations is
LGUs greater and exclusive access to
their coastal resources. Without prior monitored and enforced by the municipal and barangay
approval from the national (villages) councils, and deputized fisher-wardens.
government, LGUs are authorized to
issue licences for and collect fees from
several fishery activities in municipal
waters. Municipal waters extend 15
LGU support of marine reserves: Two examples
km from the shoreline. The Code does
not explicitly stipulate the
establishment nor governance of Malalison Island, Culasi, Antique
marine protected areas in municipal The island community of more than 100 households consists of
waters.
subsistence fishers, having monthly incomes below the national
" The Fisheries Code of 1998 poverty level. Before 1990, the island’s reef fishery was typically
(Republic Act 8550) allows LGUs open-access, with island and other fishers from neighboring
and municipal Fishery and Aquatic
Resource Management Councils coastal barangays engaged in illegal and destructive fishing.
(FARMCs) to recommend to the Contradicting national fishery laws encouraged the encroach-
national government the declaration of
ment of commercial fisheries in municipal waters (including
closed seasons for the fishery and the
establishment of at least 15% of the the island) becoming a source of conflict. Coastal resource
total coastal area in municipalities as conservation among island fishers was practically non-existent.
fishery reserves and sanctuaries. Local
representation is emphasized in
municipal FARMCs. Together with This scenario changed in 1990. An exclusive fishery-use zone of
barangay (village) FARMCs created in one square kilometer was initially enacted by a Culasi municipal
1995 by Executive Order 240, ordinance in 1990, followed by another ordinance in 1991,
municipal FARMCs may recommend
the enactment of relevant fishery permitting the deployment of artificial concrete habitats in the
legislations to the municipal council. protected zone. Organized island fisherfolk succeeded in getting
the Culasi municipal council to declare the entire waters of
" The National Integrated
Protected Areas System (NIPAS) Malalison Island for the island fishers’ exclusive use. The
Act of 1992 (Republic Act 7586) banning of commercial fishing and destructive gears was
provides the legal mechanism for the implemented. In 1995, acting again on the petition of the
establishment and management of
protected areas that will each be organized fisherfolk and the barangay FARMC, the Culasi
directly managed by a Protected Area municipal council declared one of the island’s reef fishing
Management Board (PAMB). With
ground a marine sanctuary closed to any form of fishing. No
assistance from the Department of
Environment and Natural Resources serious violation of the sanctuary has yet occurred. To date,
(DENR), protected areas are enacted resource monitoring of the island’s marine resources by the
by presidential decrees and then by
national legislation. Like the FARMC,
organized fisherfolk together with SEAFDEC researchers provides
local representation is strong in the advice to management decisions. Since co-management
PAMB. The PAMB implements a general arrangements have been in place, performance indicators (equity,
management strategy or plan, which is
formulated in consultation with both
efficiency and sustainability) have improved, particularly in
national and local stakeholders. their perceived control over fishery resources, fair allocation of
access rights, and participation and influence in fishery
management.

Sablayan, Mindoro Occidental
Exploited by local municipal fishers and by commercial fishers from elsewhere, the reefs of
Sablayan have become sources of conflicts among contending users, including sports diving
enthusiasts who have frequented Apo reef. In 1980, the national tourism agency declared Apo reef a
marine park and, through a municipal ordinance, a tourist zone and marine reserve in 1983. Over
the years, however, enforcement of protective management has failed to the detriment of reef
resources, since local stakeholders were not fully consulted. Local fishers resisted this plan to protect
Apo reef and other neighboring reefs in the municipality. Clearly, the approach of establishing a
marine reserve in the area had to change. Therefore, with the assistance of university researchers, an
NGO, and LGU extension workers, public consultations and dialogue were initiated with local
fishers until, in 1995, Apo reef was declared a “natural park” under the NIPAS Act and nearby reefs as
municipal marine reserves. Municipal fishers were organized into a cooperative. Other livelihood
options were extended to members of the cooperative to mitigate the impact of regulating fishing
in their reefs. The LGU deputized fisher-wardens or Bantay Dagat to patrol Apo and neighboring
reefs to ward off poachers in the area. Fishery co-management of the marine reserves has continued
to date, particularly in educating all stakeholders the value of conservation of their coastal
resources. There is good rapport between fishers and the LGU. Fishers have reported an improvement
of their daily catch from outside of the marine reserves. In addition several fish, sea turtles, and
migratory birds have returned to the area.
Lessons learned
" Consultations and dialogue among all stakeholders is essential in ensuring
the sustainability of marine reserve management.
" Empowered and enlightened fisherfolk can effectively share in the
management and use of marine reserves.
" Research-based information is important in arriving at decisions and in
formulating policies.
" Management of marine reserves can be sustained by instituting an acceptable
cost-sharing scheme which confer on the local fishing community some
equity rights. This serves as motivation for them to continuously support the
project.
Sources:
Agbayani, R.F., D. B. Baticados and S. V. Siar. 2000. Community fishery resources management on Malalison
Island, Philippines: R & D framework, interventions and policy implications. Coastal management, 28: 19-
27
Baticados, D. B. and R. F. Agbayani. 2000. Co-management in marine fisheries in Malalison Island, central
Philippines. International Journal of Sustainable Development and World Ecology, 7: 1-13
Roberts, C. M. and N. V. C. Polunin. 1991. Are marine reserves effective in management of reef fisheries?
Reviews in fish biology and fisheries, 1: 65-91.
Siar, S. V. R. F. Agbayani and J. B. Valera. 1992. Acceptability of territorial-use rights in fisheries: towards
community-based management of small-scale fisheries in the Philippines. Fisheries research, 14: 295-304.

Homelots for the Poor:
The San Carlos City experience
U
rban areas in the Philippines share certain characteristics. More often than not, the impressive
infrastructures in the metropolis are deceiving facades of its ugly side. The cities' fast growth
brought both blessings and curses. Ironically, any economic boon had corresponding social costs.
The swelling urban population for example consistently bred social ill - squatter colonies which
multiplied faster than they could be monitored, and threatened to negate whatever gains a particular city
had achieved. Insecurity of land tenure hounded the squatters who were conscious that there was a
temporary residency that could be revoked anytime.
While many city governments attempted to address the squatting problem, only a few succeeded. There
were other concerns that muddled the whole issue. For example, there were the "professional squatters"
who were either individuals or groups who occupied land without the express consent of the landowner.
These professional squatters actually had sufficient income for legitimate housing. Or they could be those
who had already availed of government housing or a homelot project, which they then sold, leased or
transferred to another party and then settled illegally in the same or another site. There were also the
"squatting syndicates" that consisted of groups of persons engaged in the business of squatting for profit.

Indeed, the problem of squatting and squatters had complex socio-political and economic components
that needed to be addressed by the city governments.
The Legal Basis

The granting of corporate power to a local
government unit, particularly by Sec. 22 (4) of R.A.
7160, empowered it to acquire land for a housing
program. Before the enactment of the Code,
approval by the national government had been
required for any major undertaking of local
government units.
The devolution of some powers of the Housing and

Land Use Regulatory Board (HLURB) to the
Sangguniang Panlungsod (City Council)
accelerated the local implementation of housing
or homelot projects. Sec. 458 (2) (x) empowered
the Sangguniang Panlungsod to process and
approve subdivision plans.
Sections 34, 35 and 36 of the Code encouraged the LGUs to cultivate productive relationships with peoples'
organizations (POs) and the nongovernment organizations (NGOs). It allowed the LGUs to enter into
cooperative arrangements with the POs and the NGOs to ensure better delivery of certain basic services,
capability-building and livelihood projects which were important components of any local housing or
homelot projects.
A year after the approval of the Local Government Code, Republic Act No. 7279, otherwise known as the
Urban Development and Housing Act (UDHA) of 1992, was passed to address the issues of homelessness and
squatting. The Act sought to provide socialized housing and homelots to the underprivileged and the
homeless in the urban areas. LGUs were required to identify and register all beneficiaries within their
territories to ensure that only bona-fide beneficiaries can avail of the low cost housing projects. They were
likewise directed to identify, in coordination with the National Housing Authority (NHA), the Housing and
Land Use Regulatory Board (HLURB), the Land Management Bureau (LMB), and the National Mapping
Resource Information Authority (NMRIA), those lands for socialized housing and resettlement areas of the
squatters. The Act specified that in the identification of the areas for socialized housing, the availability
of basic services and facilities, accessibility and proximity to job sites and other sources of livelihood
should all be considered by the LGUs.

Lote Para sa Mahirap
San Carlos City in the province of Negros
Occidental is a classic example. It had 3,233
squatting households composed mostly of pedicab
drivers, fish and vegetable vendors, construction
builders, and dockworkers among others. In
February 1992, a big fire broke out that rendered
hundreds of squatter families homeless. The
situation posed a daunting challenge to the
incoming administration of Mayor Rogelio
Debulgado.
Assuming office in July 1992, Mayor Debulgado

immediately initiated the "Lote para sa Mahirap"
resettlement program, with fire victims and
squatters on government lots as priority clients. The first phase of the program relocated 588 squatters
into their own lots without any downpayment. The lots were to be paid in easy installment terms -
Php5.00 a day, five days a week, for five years.
Phase II of the program was turned over on the second week of March 1998 to 69 beneficiaries who were
among the lowest paid local government employees. Without the program, it would have been impossible
for them to acquire their own lots. With the entry of Alger Foundation, 35 more housing units were built
for qualified city government employees. A unit cost Php150,000.00 payable through salary deductions.
Phase III was completed with 187 households as beneficiaries.
PHASE I PHASE II PHASE III
LAND AREA
1. Total area 4.6989 hectares 1.7750 hectares 2.7155 hectares

2. Saleable area 3.3152 hectares 1.1025 hectares 1.5294 hectares
3. Lot size 54 sq. meters 90 sq. meters 54 sq. meters
4. Number of lots 598 124 228
COST
1. Acquisition P2,135,655.00 P1,331,250.00 P1,765,075.00

2. Development 7,767,185.80 1,558,731.25 4,505,000.00
3. Others 344,943.75 0.00 0.00
TOTAL P10,247,784.55 P2,889,981.25 6,270,075.00
PAYMENT
1. Value P100.00/sq. meter P155.00/sq. meter P125.00/sq. meter

2. Recovery P3,315,200.00 P1,708,875.00 P1,911,750.00
3. Subsidy P11,592.95/lot P9,525.05/lot P19,115.46/lot
4. Mode P5.00/day Mon-Fri Package P5.00/day Mon-Fri

Project Activities
1. Acquisition of low cost lands for
residential sites. The Appraisal Committee
passed resolutions detailing the manner of
acquisition of lands for the program. The
Committee prescribed that the buying scheme
be on a cash basis to make it more attractive to
the landowners . The areas covered by this
program were previously sugarcane fields. In
the 1980's, when sugar prices plummeted, a
number of sugarcane planters abandoned their
plantations due to heavy operational losses.
The lands were neglected for a long period of
time. These lots were acquired by the San
Carlos City government through direct
purchase.
2. Subdividing into
economical sublots. The
topographic surveys were
done by the City Planning
and Development Office.
3. Installation of
infrastructures. Road
networks, drainage system,
water system, power lines,
school buildings, and sports
and sanitation facilities were
constructed.
4. Identification and Orientation of beneficiaries. The city government required that all target
beneficiaries secure a certification from the Office of the City Assessor attesting to the fact that they
did not own any land in the city. The process was meant to identify the legitimate squatters. In
compliance with the UDHA Act, the city government sought to disqualify professional squatters and
members of the squatting syndicates.

5. Sale of sublots in cash or by installment.
Two buying options were available to the
beneficiaries: one-time full payment or
installment payments. The total cost of the 54 sq.
meter lot was Php5,400.00 at Php100.00 per square
meter. The beneficiaries can decide to pay the full
amount of Php5,400.00 on install the lot at
Php5.00 per day, for 5 days a week (Php25.00/week)
or P100.00 per month for a period of five years.
6. Transfer of houses to the project site.

The LGU provided flat bed truck, while the
community assisted in the physical transfer of
new and recycled materials for the houses.
7. The Transfer of Certificates of Titles for fully paid

sublots. The transfer of certificates was normally done within
one to two weeks after full payment was made.
8. Training. Training in community

organization, skills for livelihood activities and
mother-child care were conducted. Aside from
the City Social Welfare and Development Office,
the ALGER Foundation also conducted training
sessions on value formation, leadership, simple
bookkeeping, and candle making. Preferred
clientele for the said seminars were the
members of the cooperative, mother-
beneficiaries, and wives and married daughters
of beneficiaries, particularly for the mother-
child care training sessions.

9. Monitoring and Evaluation (M & E).
The Monitoring and Evaluation were
undertaken upon the suggestion of all sectors
involved in the program. These were done
during the monthly meetings, where everybody,
especially the beneficiaries, felt free to express
their concerns and problems. Possible
solutions were advanced, and in cases where
problems could not be resolved, these were
elevated to the concerned agency of the LGU.
The city mayor and the concerned agencies
visited the resettlement site once every three
months to listen to comments and feedback of
the beneficiaries on the program. These were
then consolidated and analyzed by the
concerned officials to identify areas for
improvement and undertake the needed
intervention.
Problems Encountered and Hurdled
1. Opposition by the squatters to the relocation. The families were hesitant to leave, not because
the resettlement area was unacceptable to them, but because of the feeling of dislocation from their
old community. This opposition was neutralized when federation officers discussed the benefits of
relocation and when families where resettled in clusters or groups. Initially, the relocated residents
were complaining about the lack of transportation to and from the relocation site.

2. Some beneficiaries were delinquent in repayments. It was observed that the added expense of
Php6.00 to remit the Php5.00 daily payment discouraged some beneficiaries to regularly pay their
dues. The project had only one full-time staff to manage all the payments which were not closely
monitored nor immediately recorded. In response , the city government hired a regular collector, who
doubled as monitoring officer at the site, plus a record officer to document all information relative to
the project. These resulted to improvements in collection and a decrease in the number of delinquent
payors.
3. Lack of classroom facilities. The sudden influx of schoolchildren created a classroom shortage.
Responding to the problem, the Department of Education, Culture and Sports (DECS) through the
Local School Board built additional classrooms using local funds, released by the city administration.
Benefits of the Program

Land Ownership. The program addressed the core issue of the squatting problem - residential lot
ownership.
! A well-planned, organized community

community.. The program resulted in the creation of compact, well-
planned, and organized community.
! Improved delivery of services. With the creation of a compact community, the delivery of basic
services became more equitable, efficient and inexpensive. Health, livelihood, and educational needs
were addressed directly. Financial assistance was granted to the local electric cooperative so that power
could be provided the resettlement area.
! Improved housing structures. Assured that they would eventually own their residential lots,
beneficiaries gradually improved their dwellings.
! The provision of potable water

water.. Deepwells for potable water were drilled in every block.
! Self-management. The program empowered the beneficiaries to manage their own affairs, to the
organization of the Fatima Village Association.
Source:
Extracted from an original case written by Prof. Edel C. Guiza and Daniel B. del Rosario, Jr. for the Pook Foundation
and Asian Institute of Management. 1998.

Primary Health Care:
Issues from the field
S
tudies on Primary Health Care and PCHD performance were very remarkable during the devolution
period. Regions varied in their contributions in the conduct of these assessments. Prominent
regions were the National Capital Region and Region XI. NCR contributed in conducting
interregional assessments and pursuing explanatory type of studies, whether qualitative or quantitative to
demonstrate the impact of PHC. Contributions of other areas could still be improved by enhancing their
capacities to go beyond the descriptive type of studies. On the whole, impact studies demonstrated the
significant effect of the participatory approach in improving the health situation of the communities
where this emerged. This pattern was further confirmed by other approaches applying the participatory
approach, thus strengthening the value of PHC approach.

Many Issues have been raised regarding the implementation of Primary Health Care (PHC). A summary of
these issues are raised as follows:
1. Preparation of the Local Chief Executives (LCEs) for PHC

LCEs have a critical role to play towards the implementation of PHC under the new Local Government
Code. The issue that can be raised is the LCEs’ level of commitment to the paradigm of PHC. Since it took
some time for PHC to shift from a community-oriented to a community-based perspective at a time it was
being mobilized directly by the DOH, it may as well be difficult to expect LCEs to appreciate the
perspective if there is no conscious effort to propagate its essence. As area-based manager, LCEs are in a
position to orchestrate the efforts of various sectors not earlier provided. Under devolution, they have a
direct role to play in local development activities. Whether or not the LCEs are able to mobilize the
appropriate persons to propagate PHC may spell the difference in its successful implementation.
2. Preparation of the DOH Representative to the Local Health Board

The key persons who could mobilize for legislative action and financial support for health activities and
strategies are the DOH representatives to the Local Health Board. Another provision that empowers the
DOH Representative is the Barangay Health Workers Incentives Act since he/she has a direct role to play in
accrediting the Barangay Health Workers (BHW), the volunteer workers in the community.
3. Distinguishing PHC as a Strategy from Primary Care

Care should be made in utilizing the term PHC when what is referred to is the delivery of primary care
services. PHC is a philosophy and implies propagation of strategies to implement different phases of the
management cycle. On the other hand, primary care connotes a level of health care which could be
packaged and delivered to a group of people. Policy statements and advocacy materials should be able to
distinguish between primary care and PHC as a strategy.
4. BHW as CO Workers or Service Delivery Workers or Both

Past efforts in PHC demonstrated the major contribution of BHWs in the delivery of primary care services
and in serving as a link between the community and the public health delivery system. The contribution
of most BHWs in the community organizing process had been mainly in the propagation of activities
directed or promoted by the local health unit or the BHW himself/herself, instead of performing the role
of facilitator. The issue therefore consistently raised in the past had been: should the BHW perform the
role of a multipurpose worker responsible for both community organizing and health service delivery, or
should his/her main task be focused on one function only? The difficulty with serving the role of a
multipurpose worker is the numerous tasks absorbed by the BHW, especially for health services alone. On
the other hand, performing one particular task (as CO worker or health worker) could enable him to
specialize on one role. However, focusing on health function alone should not excuse the BHW from
upholding the participatory methodology. Should the emphasis be on the health service function? The
responsibility of community organizing can be fulfilled by other workers in the community such as those
connected with NGOs, POs and the LGUs. This therefore requires active networking with the other service
delivery workers who could perform the CO function effectively.

Thus, options could be offered to the LGUs regarding the possible roles which could be undertaken by the
BHWs.
! Perform a multipurpose role if the BHWs have the capability to perform community organizing role
and health service delivery;
! Perform the technical function in health if there are existing support structures which could assume
the function of community organizing; or
! Determine who among the BHWs can assume the function of a community organizer with the rest
performing the task of health service delivery.
5. Monetary vs. Non-monetary Benefits

One issue regarding the passage of the Barangay Health Workers Incentive Act is the mandatory
provision for LGUs to provide monetary incentives in the form of hazard allowances and meal allowances
to BHWs. The difficulty in making LGUs responsible in sustaining the provision of these incentives is the
tendency to associate volunteer workers with the requirements and visions of the government and not of
the people. Monetary incentives could be tantamount to considering BHWs as appendages of the LGUs and
could be a political leverage of the local executive.
Non-monetary incentives can be associated less with political manipulation since the basis for obtaining
the benefits (i.e. credits to Step Ladder Education) is anchored on standards which are not subject to the
discretion of the awarding authority.
In this light, more mobilization efforts can be undertaken in order to formulate community-based
financing schemes as possible sources of monetary incentives of BHWs instead of drawing the incentives
from the government.
6. Continue Positioning PHC in the MBN Approach

The Minimum Basic Needs (MBN) approach under the Social Reform Agenda started by the Ramos
Administration, provides other methodologies which can enrich the perspective of PHC. One is the
propagation of MBN strategy itself which focuses on the prioritization of primary requirements for
survival, security and enabling needs before focusing on secondary requirements. These requirements have
already been propagated and validated in various regions and can serve as the framework for intersectoral
collaboration and convergence.
At the national level, DOH can continue to position itself for MBN advocacy since the basic commitments
for PHC can be attained through this approach. In fact, most of the indicators for PHC are in the area of
health. This could mean being an active participant in advocacy by highlighting the significance of the
community-based approach, setting up a community-based information system, and focused targeting,
apart from providing the rationale behind the inclusion and monitoring of basic health indicators.
Within the DOH, this means advocacy and propagation of MBN as a means to propel PHC. This could be
continuously be advocated to local executive through its Field Office representatives, through the
developed health personnel.

Monitoring the success of PHC through the involvement of the BHWs and the community in MBN can be
included in its indicator system.
7. Propagation of Partnership for Community Health Development to Demonstrate

Convergence
The processe applied in Partnership for Community Health Development (PCHD) where non-government
organizations served as the conduit of the Department of Health in advocating PHC, can be advocated to
demonstrate the significance if convergence and the participatory methodology. This can be included as
examples in the capability-building programs for DOH personnel and the LGUs. It can also be a showcase
for the capability-building programs in MBN to demonstrate the lessons which can be learned in the
partnership effort.
8. Process Documentation as a Methodology

Process documentation, an activity which had not been given much attention in previous efforts for PHC,
is an important activity to undertake in order to capture the dynamics involved in community
mobilization. Most of these indicators formulated focused on activities undertaken by BHWs, the number
of training programs undertaken, and the net effect of participation in the reduction morbidity and
mortality. However, information on the manner of and the persons involved in planning, implementing
and assessing these activities had not been given much attention. This can be assigned to devolved health
personnel and the technology should be passed on to BHWs.
9. Need for Training in the conduct of impact evaluation in the different regions
The unevenness of studies on the impact of PHC necessitates that capacities be built for the different
academic research institutions on the methodological requirements for this type of study. This will ensure
immediate feedback of results and empowerment of regional academic-research institutions to have a role
to play in introducing policies and preparing advocacy materials that are attuned to their local socio-
cultural situation. Initial efforts of such organizations as the Health Research Network composed of
academic-research institutions, had substantial impact in improving the capabilities of the regions in
conducting assessment studies. Many reseraches had been reaped as a result of its efforts.
Source:
Bautista, Victoria A. A State-of-the Art Review of Primary Health Care: Two Decades of Government Initiative.
Quezon City: University of the Philippines-National College of Public Administration and Governence, 1999.

Primary Health Care as a
Devolved Responsibility
P
rimary Health Care (PHC) is a strategy of enhancing
What is Primary Health Care?
health and related development requirements of an
individual, the family and the community to ensure that It is a phrase that is often misunderstood, but
they achieve a decent level of living. It is not a program nor a is significant to local government units (LGUs).
This is because this responsibility has been
service.. PHC should not be equated with delivering primary care
service transferred from the Department of Health
services like immunization, maintenance of environmental (DOH) to local Chief Executives (LCEs) when
the Local Government Code (LGC) of 1991
sanitation and improving the nutritional condition of the
was passed. Based on Chapter II, Section 17 of
households. To implement PHC means that community members the LGC, it is the responsibility of local Chief
are mobilized to get organized, to enable them to actively Executives, especially of Mayors and Barangay
Captains, to implement PHC.
participate in community development activities to respond
to their basic needs, like health. They must be organized to make
sure that a leader is elected or identified to represent the views and preferences of the members in a local
development organization (such as the local development council, the planning body of the LGU).

Importance of involving People’s
Organizations’ (PO) in local development
planning
The involvement of People’s Organization (PO)

involvement is important in local development
planning because an organized group in the
community is a more effective venue for sharing
problems, views, visions and preferences of the
members. We cannot rely on an individual who does
not originate from an organized group to represent the
views of the community. There is no venue by which
this person is able to draw ideas that will be conveyed
to a local development body, like the local
development council. At best, this person will only
convey his/her own personal view.
Likewise, an organized people’s group can identify a person who they think can represent their needs and
views. This would avoid selection of representatives by local officials since they are allies and partners in a
political party.
Furthermore, operating through an organized group, community activities (i.e. maintaining clean
surrounding area) can be done with ease than doing the activity alone.
When was PHC launched?
PHC is a commitment of the Philippines, together with other countries, at the Alma Ata Conference in
Russia in 1978. It was launched in the country in 1979 and was piloted in selected provinces in each
region, until it was formally implemented nationwide in 1981. The initial years of PHC entailed
changing the outlook of health workers to make community members less dependent on them for health
care needs. The health workers were taught how to motivate community volunteers for health (Barangay
Health Workers) to assist the national health office to mobilize their respective communities in health
activities. When devolution was passed in 1991, the responsibility of community mobilization has been
delegated to the LGUs.
Importance of PHC implementation
It is important to make people feel that they have the capacity to take care of some of their basic needs.
They will have more confidence in themselves if they are trusted that there are activities that they can do
on their own (i.e. maintaining the cleanliness in their surrounding area, keeping the immunization
record of ones children and cooking nutritious food for the family).

As community residents begin to assume
responsibility for their basic health and related needs,
the government can give more attention to more
complicated problems requiring technical expertise.
For instance, when community members agree to keep
their front yards clean, they are in effect saving on
hiring the services of a street sweeper. The barangay
can devote its resources to other expenses. Also, in
some areas where malnutrition is a problem, instead
of local health workers imparting micronutrients,
mothers assume the responsibility of cooking
nutritious foods for their children.
Mobilizing POs to participate in local decision-making will enable

local development workers to appreciate indigenous resources or
technologies. For instance, the effects of sambong to cure uric acid or
lagundi for kidney problems, would not have been made possible if citizens had
not been given an opportunity to share these resources. However, the technical expertise
of DOH is essential in validating the dosage and packaging these herbal medicines into
tablets or tea.
Enabling the citizens to assume

responsibility for managing their
health needs gives them a sense of
self-respect and self-reliance. There
are many activities that can be done
as a community which could make
the citizens feel important if they
are able to share their time and
resources. In fact, it is difficult to
sustain these activities if they don’t
have a role in conceptualizing and
implementing them. These
activities could even “die” with the
end of the term of a political leader
who just initiated projects without
due consultation of the citizens.

Community members in community development activities
Involving community members in the development process entails

opening opportunities for them to interface in situation analysis,
planning, implementation and monitoring/evaluation.
These processes are the common activities undertaken in the
management of programs and projects.
Situation analysis involves gathering of information to

determine the condition in a locality. The data gathered serve
as the bases for sound decisions in the planning process.
Planning is the stage when projects are identified in order to
meet the locality’s needs and how existing resources are able
to match these activities. The local development council in the
barangay conducts this activity. Implementation is the stage
when the LCEs oversee the execution of the plans. Monitoring/
evaluation entails an assessment if the projects are implemented
according to schedule and if the projects improve the
condition of the community.
To involve the community in the different phases of management, the citizenry must be empowered. This
can be done in the following ways:
! In the conduct of situation analysis: community members can participate in gathering

information, processing and analysis of the data as a team to ensure that consensus is developed on
problems which can be given priority attention. They can use the minimum basic needs (MBN)
information system as a starting point as this utilizes indicators of the basic requirements to attain
quality of life. This system is being implemented with the support of the Comprehensive and
Integrated Delivery of Social Services, under the Department of Social Welfare and Development
(DSWD). However, there are provinces whose governors have initiated a 100 % coverage of their
barangays with MBN, such as Davao del Norte.
! In the planning process: it is important for community residents to get involved in the
identification of projects which they can undertake and those requiring the support of government, in
response to their priority needs. Participation in local government planning can be effectively
undertaken if:
" Community residents can elect leaders of their community organization who can represent them
in local development councils, the planning body in the locality.
" There is direct consultation by POs and /or the local government with the community, through an
assembly, to validate the projects identified to resolve priority problems. Some barangays have
organized puroks (sub-villages) as a venue for more effective participation.

! In implementation:Community members can
serve as partners of government in the execution
of development projects by providing services or
material resources and not merely as recipient of
services. In the Primary Health Hospital in Negros
Oriental, volunteers took care of driving the
ambulance. Relatives also took care of cooking the
food of the patient.
! In monitoring and evaluation: Community

residents can gather information about their
condition or help in collecting data on fellow
residents on the status of the implementation of
development projects. Community residents can
likewise serve as partners of government in
summarizing and analyzing information on the
general condition of the community. The
information they gather can be the basis for the
determination of more appropriate projects and what improvements can be made in managing the
projects. The MBN information system can be applied as a tool in determining the quality of life of
the community. Additional information/instructions on MBN can be obtained from the National
Anti-Poverty Commission and the DSWD.
Responsibilities of LCEs in the

implementation of PHC
Local Chief Executives have the

responsibility of organizing the
community, especially at the barangay
level, in order for the residents to get
involved in community projects
concerning health and related projects.
This can start with the identification of
frontline workers from government and
non-government organizations (NGOs)
who have the knowledge and expertise in
community organizing.

Are there known examples which have implemented PHC?
One good example is the PHC Federated Women’s Club of Surigao city. This was launched in 1986
through the effort of a midwife. This started with 300 members in 1986 and by 1998, it boasted of
7,200 members. The federation has won two times from the Health and Management Information
System Award of the DOH. It also became a finalist of for the Galing Pook award.
Why did this organization merit these awards? This is because the federation has initiated community
projectsthrough its own initiative. The projects are not only in the area of health like maintaining deep well,
environmental sanitation, feeding centers, and herbal gardens. It has also initiated income- generating projects like
packaging herbal medicines and setting up a
health insurance system. The federation has
also motivated the men and the children to
set up their own respective groups.
From the award money from HAMIS, the

federation constructed a PHC Training Center
which the women maintain. They even cook
in this Center when there are training
programs. This has served as the source of
their livelihood.
Health status improved in the community as a

result of the active participation of the
women. To show the women’s commitment to
assess the improvement in the quality of life
in the area, they regularly conduct program
reviews where they invite the local officials
and technical people to see how they fare.
Source:
Victoria A. Bautista and Angelito Mnalili, Gabay sa Primary Health Care. Quezon City: Community Health Service of
the Department of Health and UP College of Public Administration: 1998.

Establishment of
Community
Primary
Hospitals in the
Hinterlands CPH
T
he Community Primary Hospital (CPH) is a modification, if not an embodiment, of the
concept of Primary Health Care (PHC). It is a partnership approach among the community,
the government and the private sector or non-government organizations (NGOs). It underscores
the importance of community leadership and initiative in the identification of health related problems
and in seeking their solutions in the context of total socio-economic development efforts. Health
education, proper nutrition, environmental sanitation, immunization, prevention and control of locally
endemic diseases and the promotion of natural and herbal medicines are the elements of PHC.
Reasons for innovation
The distance, difficult terrain and poor road conditions,

especially during the rainy months, make it next to
impossible for the people to avail of hospital
services in the poblacion.
Likewise, the shortage of hospital beds, the concentration of a

greater proportion of the population in the mountain areas and the
isolation of these areas from the cities made it difficult for them to
avail of medical services.

Thus, CPHs in the mountains serve not only as centers offering primary hospital services in far-flung and
isolated areas but also for comprehensive preventive health care. There are times, though when CPHs
render secondary hospital services, depending on the ability of the doctors.
Strategies/Activities undertaken
! Access to the 20% development fund for the construction of the community primary
hospital.. In Negros Oriental, the governor provided P350,000 for the said undertaking. Likewise, the
Barangay Council of Kalumboyan donated two hectares of land for the proposed facility.
! Deployment of community organizers to the pilot barangay. This is undertaken to lay the
groundwork for the community primary hospital to conduct social investigation, baseline surveys and
analysis and to ensure community support for the project.
! Promotion of the spirit of

volunteerism, or Bayanihan, among
community residents. In Bayawan,
residents rendered their share for the
construction of the CPH. Instead of paying
them the minimum wage, they were paid half
the amount. Likewise, income generating
projects were set up, through the initiative of
Silliman University.
The Kalumboyan CPH
The hospital building has two five-bed wards, a doctor’s office and quarters, an emergency treatment
room, an operating/delivery room, two comfort rooms for male and female and a separate toilet and
bathroom for the staffs. Except for the divider, which separates the doctors’ and nurses’ quarters, all walls
are made from wood and nipa. Outside the building is the ambulance garage, a communal kitchen and
comfort room. Three small nipa huts which serve as sleeping quarters for the relatives of patients and a
herbal and vegetable garden in the backyard. Electricity is provided through a solar panel at the rooftop of
the building.
The CPH’s modest structure also houses a pharmacy where the inventory of essential drugs like antibiotics,
drugs for deworming, tuberculosis drugs and IV fluids are enough to last until the next procurement.

The Pilot Site and Catchment Area
Barangay Kalumboyan is 23 km away from the town proper where the Bayawan District Hospital is located. It is
situated in a valley with a road that is passable only during the dry months and hardly accessible during the rainy
season. Because of the poor road conditions, few vehicles ply this route.
The CPH has a catchment area of about 324 square km covering 12 barangays with a total population of 37, 546. In
1998, the average per capita income of the area was P816 per annum.
The leading causes of mortality are diarrhea, upper respiratory tract infection, intestinal paratism, wounds and
bronchitis, among others. The leading causes of mortality are broncho-pneumonia, stab and gunshot wounds,
bleeding peptic ulcer, gastroenteritis and septicemia.
Managing the CPH
The CPH is managed by a development board. The barangay captain of the barangay where the CPH is
located chairs the board, while the Chief of the CPH (one of the doctors) serves as the vice-chairman. All
the other barangay captains in the catchment area automatically serve as board members, together with
the Department of Education Culture and Sports (DECS) representative, the Sangguniang Kabataan
Chairman and a representative from the religious organization. The board designates a treasurer to take
care of the funds for the CPH and an auditor to monitor disbursements. The Board prepares and approves
an annual report, on which an annual procurement plan is based.
During the monthly meetings of the Boards, matters related to hospital operations and maintenance like
the purchase of drugs and medicines, fund drive, the repair of ambulance, or a new roofing for the
hospital are discussed and decided upon. The agenda for the meeting is sent to the members in advance,
together with the minutes of the previous meeting. The Chief recommends what drugs and medicines will
be purchased and in what quantities. His recommendations are then sent to the Board for approval.
Impacts on health
! The general health condition of the people has improved since the establishment of the CPHs.
! There are more out-patients and less in-patients in both Kalumboyan and Amio. This may be an
indication that the CPH is doing well in terms of preventive and promotive health drives.
! Drawn from the success of the CPH, the provincial government has adapted a similar management
mechanism for its provincial hospital and five district hospitals.
Source:
“Community Participation in Health Services Delivery” in Devolution Matters – A Documentation of Post-
Devolution Experiences in the Delivery of Health Services. Manila: DOH and Local Government Assistance and
Monitoring Service. pp. 43-52.

Establishment of a
Province-wide,
Community-based
Health Program:
The AlayKa Palawan
Experience
T
he concept of establishing community-based health programs (CBHPs) in the county draws its
inspiration form the twin goals set by the Department of Health: Health for ALL by the Year 2000
and Health in the Hands of the People by 2020. Devolution paved the way for LGUs to pursue
health programs, which are community-based.
CBHPs are unique innovations of non-government organizations (NGOs). While the strategy of
community organizing is borrowed from the NGOs, a CBHP like the Alay sa Kalusugan ng Palawan or
Alay Ka Palawan is instituted and sustained by the Provincial governments of Palawan. It is a
(government organization) GO working as an NGO.
What makes Alay Ka Palawan unique is that its scope is province-wide, while other CBHPs have limited
target areas.
Being the first province-wide CBHP in the Philippines, the AlayKa Palawan is a magnified version of
previous efforts of NGOs to “empower” the people through health. This is done by arming them with
relevant knowledge about health and medicine and with organizing and analytical skills that ensure
collective strength and voice.
Its aim is to create a people-centered health program at the grassroots level where the people themselves, in
coordination with health workers, address health and not medical concerns.

Alay Ka Palawan does not set up CBHPs, the people do. It merely presents the concept of CBHP to the people. The
people then become aware of the circumstances surrounding their health problems. Alay Ka Palawan steps in to
facilitate the organization process that the people may continue to organize and train them. Their end goal is to
draw up solutions to their own community’s health problems and to make them self-reliant. The community decides
its own priorities and sets up its own health programs.
As a facilitator, Alay Ka Palawan helps provide resources from government agencies or NGOs to fund the
implementation of these community health projects.
General strategies / activities undertaken
Identification and endorsement of a community (province) – health program

Community health leaders and health-oriented NGOs may start discussions on the
prospect and possibility of launching a CBHP.
A CBHP may be finalized by an executive order (from the office of the Governor) and consequently
endorsed by the Sangguniang Panlalawigan (Provincial Board) through an appropriate resolution.
Depending on the needs and circumstances, such resolution/ legislation may define the legal structure of
the Program.
Formal launching of the province-wide CBHP attended by key leaders, NGOs and POs in the
province
With respect to Alay Ka Palawan, one significant output of the launching exercise was the signing of a
Memorandum of Agreement (MOA) among the provincial government, the NGOs and POs to support the
program.

Information dissemination
Seminars are conducted, brochures and newsletters
on AlayKa Palawan are distributed and radio
broadcasts are aired as information dissemination
tools.
Community organizing
Community organizers from Alay Ka Palawan go
to communities willing to adopt the program to
help facilitate community organizing. This
strategy is based on a simple yet effective concept:
the multiplication process.
Starting with a small core of committed workers, barangays are organized into health communities.
Each barangay then adopts another barangay where re-echo seminars on CBHP are conducted. Ideally,
each community must have a Community Organizer (CO) counterpart with whom Alay Ka Palawan’s
own CO can readily transfer its skills and knowledge. This encourages the early development of self-
reliance.
Training
Training of CO counterparts is required to equip them with the proper skills, attitudes and know-how in
implementing CBHP in the communities.
Networking
Alay Ka Palawan has developed an effective network among agencies, which it can tap to help resolve
issues and concerns related to its work. These agencies provide assistance in the form of financial support
for food and travel expenses of COs, provision of training paraphernalia and equipment and manpower in
the form of trainers and resource speakers.
Alay Ka Palawan does not propose to provide surefire solution to the people’s problems. It only hopes to
ease their burden by utilizing its skills in networking, to bring the people’s problems to the attention of
concerned agencies or institutions.

Specific strategies / activities undertaken
! Establishment of the TANGAY Foundation, which started as Friends of Palawan’s Provincial

Hospital. This is an NGO, which seeks support for improving the facilities of Palawan’s provincial
and peripheral hospital.
! Establishment of BAHATALA, which provides rehabilitation services and domiciliary care for the
patients of the Palawan Hospital. This is the pillar of the PHO’s CBHP.
! Establishment of Palawan Herbal Medicine and Production

Program, which helped in improving people’s perceptions of
and trust in community-based health approaches. It hopes to
put up a large-scale herbal processing plant to be managed by
PKP so it can subsidize cooperative medical care in the
province.
! Undertaking of the health personnel development program to

improve the quality and quantity of medical and health
professionals and workers in the province.
Source:
AlayKa: Leading Palawan to People-Powered Health in Devolution Matters – A Documentation of Post-Devolution
Experiences in the Delivery of Health Services. Department of Health – Local Government Assistance and
Monitoring Service. Manila. pp 67-73.

Empowering
People and
LGUs through
Health
Insurance
L
ocal health insurance operates through the pooling of funds (called premiums) among a group
of persons. In a health insurance scheme, these premiums are to be used to cover the member’s
medical expenses in the event of an illness. On the other hand, the government is relieved of
fiscal strains because there is a ready source of funds available to assure the effective delivery of health
services to the people.
The problem situation and impetus for local

health insurance
The present national social health insurance covers only the employed -
Social Security System (SSS) for private workers and Government Service
Insurance system (GSIS) for public sector workers- under Program I (PI) of
Medicare. Sectors not covered by any form of social insurance are the
unemployed, the indigents and the self-employed who are most vulnerable to
health problems.
The present practice is for indigents and low-income workers to enter public
hospitals as charity patients. The Department of Social Welfare and
Development (DSWD) and public hospitals shoulder the direct costs of their
expenses. These people are usually not given adequate health services, if they
are accommodated at all.

The Philippine Health Insurance (PHIC) recognizes this inadequacy and has taken steps to expand the
Medicare PI by instituting Progam II. The PII is an insurance program designed to cover those who are not
formally employed.
The Medicare PII operates with local government units (LGUs) as partners of the PHIC. The PHIC provides
the technology and initial assistance and the LGUs act as the administrator. The program is implemented
in certain LGUs via a Memorandum of Agreement (MOA) signed by the PHIC and the Municipality.
The Sampaloc, Quezon local health insurance experience
The social health insurance adopted in Sampaloc, Quezon is the Medicare PII, which is
very appropriate for municipalities where a good percentage of its population belongs to
the non-formally-employed sector.
Strategies/activities undertaken
! Conduct of exploratory, consultative meetings/dialogues between local chief

executives, barangay captains and purok leaders and representatives of the PMCC..
During these meetings, the PMCC Team elaborated on the dynamics of the program, the rules and
responsibilities that local officials have to assume to make the program work. As it turned out, the
local officials appreciated the benefits of the program.
! Endorsement by the Sangguniang Bayan through a Board Resolution requesting

PMCC to implement the program in Sampaloc.
! Briefing of the
townspeople about the
program. The meeting
presided by the personnel of
the PMCC was attended by
local officials, Department
of Health (DOH)
consultants, barangay health
workers and senior citizens.
Among the topics presented
to the body was the possible
benefit package for the
program.

! Signing of the MOA between the PMCC and Sampaloc town officials. Under the MOA,
PMCC was tasked to supervise the program and provide technical assistance. On the other hand, the
local government was assigned membership recruitment, collection and remittance of contribution,
and information dissemination.
! Implementation of recruitment and renewal policies.. For the Sampaloc

Program, the PMCC set a minimum membership base of 700 members for it to
The life and sustainability of
any social insurance program become sustainable. To meet the requirement, the following activities were done
depends on the number of and are continued to be undertaken:
members enrolled. All things
being equal, the more members,
the better. a. Both the Senior Citizen’s Group and the Quezon Womens’ League took
active part in program promotion and active recruitment. The Women’s
League even set-up a fund that lends money to its members for premium
payment.
b. The Farmers’ Association of Sampaloc has adopted the turnuhan scheme to help them pay their
premiums. The turnuhan involves an arrangement where a group of people regularly pool its
money and gives a certain percentage of it to a certain person at a chosen time.
c. The purok leaders were also constantly prodded to increase recruitment for the program in their
areas. Purok tally boards monitor the recruitment campaign. The number of those enrolled in
the purok are indicated on the boards.
d. The Mayor gives barangay and municipal officials a monthly quota for new recruits (i.e. a
counselor is required to enroll at least five new members every month).
Effects and initial impact
! The municipality is now relieved from shouldering the direct costs of medical services for indigent
patients. These costs are now borne by the insurance fund.
! The municipal government is now in a better position to allocate more resources for public health
concerns and innovative preventive measures that will implement the clinical and direct approach of
the insurance program.
! In the light of devolution and the fiscal constraints of the municipalities, the local health insurance
aids the LGU to overcome health costs.
! Hospitals were relieved from charity cases as the indigents can now pay for their services through the
health insurance.

Lessons learned
! A more intensive information drive may be necessary to help the people of Sampaloc to
appreciate the value of a social health insurance program. Many residents, including those who
have signed up as members, have not yet fully understand the mechanics of the program. Its
rules and regulations still need to be further explained.
! Sampaloc, so far, has been the only municipality that is able to continuously expand its membership, largely due to
creative recruitment approaches. Moreover, it shows the value of community participation and a determined
leadership in the establishment of an effective local health insurance system.
! Sampaloc is not a pioneer in health insurance, but its experiences represent a treasure chest of lessons from
which other LGUs and local officials can learn from.
Source:
“Empowering the People and the LGUs through Health Insurance” in Devolution Matters – A Documentation of
Post-Devolution Experiences in the Delivery of Health Services. Department of Health-Local Government
Assistance and Monitoring Service. Manila. pp. 53-59.

Transforming the Mainstream:
Mainstreaming in Local Gover nance
Governance
P
articipatory local governance is a major principle enshrined in the 1987 Philippine Constitution.
The 1991 Local Government Code follows on the full implementation of such mandate. Among
the key principles and strategies cited in the Code is the participation of people's organizations
and non-governmental organizations in local governance.
Women are among the key stakeholders in local governance because they…
! are almost 50 % global and local community population;
! are half the producers of economic goods and services.
! are in the money economy: in wage employment, trading and the informal sector.
! are in the non-money economy: in child bearing, child rearing, caring for & nurturing the weaker
members of the household and the community, in domestic labor and subsistence agriculture.
! are citizens, voters and community leaders.

Gender Issues in Local Governance
Global and Philippine statistics bear the fact that
men dominate leadership, power and decision-
making positions and processes in various levels of
society - at home, in the community, in the
economy, in politics and governance (UNDP-
Human Development Report, 1995; Philippine
Plan for Gender Responsive Development, 1995-
2025).
While women have increasingly taken on active

public role in society, their participation in politics
and governance continues to be limited. In 1995,
there were 9 women governors out of 75, or 12 %. In The 'social relations of
1998, this improved slightly to 12 women out of 77 gender' or 'gender' for short,
refers to the socially
governors or about 17 %. constructed roles and
responsibilities of women
In 1995, there were only 3 women out of 67 city mayors, or a measly 5 %. In the 1998 and men. This includes
expectations held about
elections, there were now 8 women out of 83 mayors, or 10 % only. characteristics, aptitudes
and likely behavior of both
Among municipal mayors, there were 125 women out of 1,536 or 8 %. in 1995. This women and men, i.e,
femininity and masculinity.
improved to 21 % with 233 women winning the 1998 election. This historically evolved
into a dominant worldview
There are more women elective officials at the barangay level but still a fraction that women are the 'weaker
sex' while men are the
compared to men. Even as more women voted in 1995 elections, with voter turn-out rate `stronger' sex.
of 71 %., they remain largely unable to influence policy and decision-making as
legislators, chief executives and top administrators at both the national and local Society now came to
stereotype women's
levels. Even as few women occupied high posts in government, their agenda did not primarily role in home-
consistently champion improvements in women's status. based and unpaid
reproductive tasks (e.g. child
bearing, child rearing,
housekeeping and other
nurturing activities) while
men's primarily roles are as
breadwinners, leaders and
decision makers in the
public domain. This belief
system brought about a
situation where women do
not share the same power
and prestige, status and
social position as men's.
Such reality limits women's
participation in decision-
making and the assumption
of leadership positions.

While there is constitutional provision for women's sectoral representation in local development councils,
this has yet to be fully implemented. It was only in the 1998 elections that a women's sectoral party,
Abanse! Pinay, won a seat under the party list system at the National Congress.
Women's limited political representation consequently render local development plans blind to gender
issues. Majority of local officials and LGU personnel were not aware of gender issues and had no inputs by
way of a gender orientation. They therefore did appreciate addressing gender concerns alongside other local
governance issues.
The major gender and development issues that local governance must monitor and respond to are:
! Women and Poverty - There is high rural

female unemployment and male
underemployment causing out migration,
especially among women. There is the
predominance of women and child labor in
subcontracting production systems that are
measly paid and are vulnerable to exploitation.
There are no safety nets for the negative effects
of trade liberalization that increase women's
burden.
Women & Health - There is inadequate support for reproductive health concerns, including their right to
contraception and safe pregnancy and motherhood. The delivery of social services on women and
health are to be implemented at the LGU level.
! Violence Against Women - Rape, domestic

violence, sexual harassment, trafficking of
women and other forms of violence against
women were long considered as private issues
that are now considered as human rights
violation. LGUs can play an important support
role in public education, monitoring, and
provision of social services to prevent incidents
and support victims and survivors.

! Women and the Environment - Women
share culpability in unsustainable farming
practices. They also contribute to
environmental conservation.
Policy Mandates for Mainstreaming Gender in

Local Governance
Women have organized their rank and became
active participants in the social movement that
persistently lobbied at local, national and
international fora for policy and community-based
responses to gender issues. Gains slowly yet steadily
came about since the 1975 International Women's
Year Conference in Nairobi until the 1995
International Women's Conference in Beijing. Filipino women from both government
and civil society organizations have been key players in advocating for a gender-
responsive government.
Official Development Assistance (ODA) programs between countries signatory to these

international agreements should uphold and promote these covenants.
For its part, the Philippine government

embarked in multi-sectoral consultations with
women's groups and produced the following
key policy and development planning
documents:
! Phil. Development Plan for Women

(PDPW) of 1989-92 ;
! Republic Act 7192 or the Women in
Development and Nation-Building Act of
1992
! Philippine Plan for Gender-Responsive
Development (PPGD) of 1995- 2025;
and the
! The Gender and Development (GAD)
Budget as provided for in the annual
General Appropriations Act (GAA) since
1998.
! Joint DBM-NCRFW-NEDA circular for
LGUs to submit a GAD Plan in their
Local Development Plans as basis for
allocating a LGU GAD Budget that
should be at least 5 % of the total.

Women's Agenda: Gender Equality and Gender Equity.
Gender Equity refers to the allocation of power and resources in ways
responsive to the needs and interest of women and men. Given that
power and resources are in the hands of men in society, gender equity
strategies should be directed toward a distribution of these factors to
women.
Gender and Development (GAD) framework . GAD espouses a

recognition of the unequal gender relations between women and
men in all aspects / sectors of development. It proceeds from the
premise that culturally defined roles have reinforced the unequal
gender relations, resulting in the marginalisation of both sexes in varying circumstances and magnitude,
with mostly women at the more disadvantaged end. The GAD approach seeks not only to fully integrate
women into the development process but works to transform social and gender relations into creative
opportunities that would equally benefit both women and men.
GRDP or what is also known as gender-responsive planning is simply the operationalization and
integration of the GAD framework into the entire development planning cycle. It rests on the premise that
introducing gender considerations makes development planning / programming more 'people-oriented or
people-focused'. Gender is one factor of heterogeneity along with ethnicity , class and other socio-
demographic variables, all of which determine to a large extent the manner by which development plans
and programs impact on different groups of peoples.
The LGSP project teams underwent gender sensitivity training and gender responsive planning. Part-time
WID/GE advisors were specially hired since September 1995 to spearhead the advocacy of the same to LGUs
and other partners. Since 1994, LGSP supported both gender-specific and gender-mainstreamed strategies
with various LGU capability building programs. Gender and development (GAD) focal teams were trained
and organized in provinces and municipalities. GAD actions plans were generated from them.
However, there has been uneven response and commitment to follow through action plans required of
those initially trained. LGSP itself initially had been less systematic and consistent in monitoring
ensuring the integration of gender in capability building programs. There is also cultural resistance from
some LGU leaders and personnel who have not yet undergone gender training and who continue to
trivialize gender issues. There is also limited knowledge on appropriate gender tools in gender responsive
planning, monitoring and evaluation.
Case Study and Gender Analysis in Qualitative Monitoring

It is important to analyze and document the processes of project implementation, identify strengths and

gaps specially with regards to project impact on
men and women, to social classes, to the ways
they perceive and relate to each other .
Monitoring and progress reports have dwelt

mainly on the quantitative or physical indicators.
While quantitative data are also important,
these do not tell much about the process, the
impact, the problems and issues in project
implementation. A balanced presentation of
both output , process and lessons will be achieved
through the case study approach. This will be
most useful for program management and
development, for evaluation and for learning
purposes.
Gender Analysis will be a major tool in the case

study approach. Gender analysis requires a good
grasp of gender issues and of the tools for analyses.
A basic step is recording sex-disaggregated data, i.e. noting down how many men and women of what
sectors ( socio-economic or job position) participated in every step of the project development cycle -
problem definition, statement of objectives, planning, implementing structures, strategies and
evaluation. A second step is analyzing the quality of participation , what roles / contributions did men
and women have , what assumptions about men and women's roles account for the types of roles and
activities they performed, and what effects on men and women did the project/s have,
Source:
Rodriguez, Luz L., Local Government Support Program (LGSP). July 2000

LGUs in Disaster Management
D
isaster management pushes local government units (LGUs) into action. Lives could be lost
and damage to property will be immense if LGUs fail to respond efficiently and effectively to
local emergencies. The key, however, to effective disaster management is to tap the spirit of
volunteerism in the community and to encourage the involvement and commitment of its constituents
towards disaster mitigation.
A comprehensive disaster management can strengthen the skills, awareness, strategies and systems of LGUs
for community disaster preparedness and mitigation. It must include:
! an analysis of municipal profiles in relation to disaster management;

! a briefing about the creation and/or strengthening of their barangay and municipal disaster
management coordinating councils;
! the installation of warning systems for mobilizing people during disasters; and
! an overview on managing the municipal calamity fund.
The disaster management cycle has three phases: (1) pre-disaster, (2) during disaster and (3) post-disaster.
In the Philippines, disaster management is at its weakest in the pre-disaster stage. This weakness spills
over to the other subsequent stages of the disaster preparedeness process.

Natural disasters and other calamities that usually affect the Philippines
! Typhoons and storms

! Massive flooding and landslides
! Eruption of “dormant” volcanoes
! Earthquakes
! Flashfloods
! Fire hazards aggravated by the lack of access roads
Issues and problems in disaster

management
! Lack of enforcement of ordinances
! Lack of modular preparedness
! Weakness (organizational, financial and
technical) in the disaster management
process
! Lack of disaster equipment and facilities
! Politics in disaster management
Strategies / activities undertaken (based on the Victorias and

Manapla experiences)
! Reorganization of Municipal Disaster Coordinating Councils (MDCCs) to assess the

present resources of the municipality for disaster management and evaluate the
efficiency and effectivity of the set-up.. The municipal administration office served as the
operation center. The
municipal administrator
was part of the Resource
Management Committee
responsible for the
disbursement of funds and
the procurement of goods
before, during and after the
disaster.
! Conduct of a 5-day disaster management training for key people (of Victorias and
Manapla) who came from various municipal line agencies and non-government
organizations (NGOs). It was on the last day of the training that Task Forces were formally
organized. Both fell under the umbrella organization of the MDCC with the Mayor as honorary
chairperson. These became a formal NGO and served as the Disaster Emergency Response Team
(Victorias - DISERT-V).

! Rescue teams went through several
training programs: 1) Disaster Rescue and
Emergency Medical Responses; 2) Basic First
Aid; 3) Basic Recon and Intel Operation; 4)
Radio Land/ Mobile Operator’s Seminar; and
5) Refresher Course on Disaster Rescue,
Emergency Medical Response and Firefighting.
! Resources for operation/management were provided by the municipality municipality.. When the rescue
team was first organized, the municipality (Victorias) provided them with raincoats, boots,
flashlights, batteries and lifesavers. During disaster operations, they were also provided with supplies
(food, rope and fuel).
As part of its disaster operations, the resource management committee of the Victorias MDCC makes
prior arrangements with storeowners for possible emergency purchase.
Pre-disaster expenses are sourced out from different sources: Social Welfare Program under 20%
Development Fund, Human Resource Development Fund, Bantay Dagat Fund and grants-in-aid
through the office of the Mayor.
! Rehabilitation measures. All barangays were equipped

with a radio communication set. The Mayor stressed that
the chairperson of the Signal and Warning Committee
should stay in the radio room at all times to receive
communication from the provincial government and
disseminate this to all barangay captains. The barangay
captains were likewise advised to install their radio
communication sets in the barangay hall and assign one
barangay tanod to man the radio.
The resource committee was in charge of providing relief

goods. In Manapla, for example, the Municipal Social
Welfare and Development Officer (MSWDO) head, which
actually received assistance from the provincial
government and prepared the goods for distribution, was made co-chairperson. On the other hand,
the relief committee was headed by the Parish Priest. Assistance from NGOs were channeled through
the MSWDO. Local residents, like other private organizations gave their own contributions directly to
the victims.

Cash assistance was provided to families whose houses were totally damaged. Aside from that, the
evacuees were also provided with food and clothing good for at least one month.
During summer, the rescue teams stay alert for any possible outbreak of fire. Some measures done
include:
" Inspection of buildings for any violation of the building code and giving the appropriate penalty
for any violations; and
" Installation of fire hydrants especially in congested urban poor areas in the poblacion.
! Clearing of waterways. In Manapla

and Victorias, heavy siltation, obstruction
of exit points of natural waterways by
prawn farms and fishponds, and the
illegal structures along the riverbanks
contribute to the overflow of rivers and
creeks. To address these problems, both
municipalities undertook dredging and
clearing of waterways with the assistance
of the Provincial Government. Other
rehabilitation works included relocation
of houses, reconnection to the shore and
the construction of breakwater.
! Tree planting and

reforestation. In Manapla,
government employees were
required to participate in tree-
planting projects.
On the other hand, the SB

Committee on environment
planned to implement the
“Adopt a Reforestation Area”
scheme with NGOs. Past tree
planting projects had reportedly
come to naught because there
was no follow-up.
Source:
Nacionales, Grace and Letty Tumbaga. “Disaster Management in Two Negros Towns” in A Breath of Fresh Air:
Exploring the Possibilities of Local Government Management. ed. by. Letty Tumbaga. CIDA-LGSP Region VI and
Ateneo Center for Social Policy and Public Affairs (ACSPPA) Philippines, 1998. pp. 46-65.

LGUs in Integrated Solid
Waste Management
S everal local governments stood out as models in the arena of managing municipal wastes.
Now, more local governments are leading the way towards the efficient implementation and
maintenance of integrated solid waste management (ISWM) programs. Citizens have a crucial
role to play in this arena. In fact, their participation is a pre-condition to the effective implementation of
such programs.
As an entity entrusted with the task of managing wastes, local governments need to look beyond the
traditional “collect-and-dispose” method. They should seek approaches that would treat wastes as
resources and the solid waste problem as an integrated system itself.
A look at our waste profile nationwide produces an interesting picture: 30% of total waste
generated is recyclable and around 45% is readily compostable. If these tasks are accomplished,
only 25% will remain for local governments to worry about.
A local government adopting the management approach will realize not only efficiency in terms of time,
money and disposal space but also other benefits such as:
! a sense of community responsibility for managing waste;
! the value of waste as a resource; and
! an entrepreneurial attitude in waste management.

Process Flow for Developing a City/Municipal ISWM Program
WASTE
WASTE APPRAISAL
APPRAISAL
Local Government and volunteers

conduct surveys and appraisals to
determine the waste profile and
existing solid waste management
operations (1-2 days)
4
IMPLEMENTING THE DOABLES* 2
LOCAL GOVERNMENT-
The Local Government and citizens implement CITIZENS
designated roles to promote: CONSENSUS BUILDING
" segregation in markets and
volunteer neighborhoods; With the help of a workshop
" better housekeeping in facilitator, local leaders and
collection and dumpsite citizens agree on vision,
management; strategies and first steps to
" enact ordinance for integrated address the problem.
approach; and (2-3 days)
" study long-term measures
(e.g. landfill). 3
6-12 months MULTISECTORAL PLANNING
AND ORGANIZING
*Broken arrow between steps
A multisectoral Task Force of leaders and
4 and 1 connotes that the volunteers further reviews technical
cycle may end up with Step 4 options, and develop action plans and
budgets for “Doable” actions. The Local
or may be repeated. Government also designates an officer in
charge.
(3-6 weeks)
Existing local government practice
Designing a waste appraisal system

The local government can mobilize citizen volunteers to determine the kind and quantity of wastes
generated and the existing solid waste management operations in a locality. This is done through surveys.
Local Government – citizens consensus building

The local government calls on various sectors of the
community to discuss the waste problem and identify
practical solutions involving the community.
Workshops involving different stakeholders, usually
utilizing Technology on Participation (ToP) methods,
generate consensus on the community’s common
vision, objectives and priority doables actions related
to solid waste management.

Multisectoral planning and organizing
The local government engages the stakeholders in action planning workshop focusing on immediate
doable actions and the corresponding budgetary requirements. These include:
! better housekeeping in the dumpsite;

! improvement of garbage collection routing systems;
! assessment of public information/communication needs; and
! launching promotion campaign for waste segregation in the market and interested neighborhoods.
The local government organizes a multi-sectoral task force to further review technical options and oversee
planning, budgeting and mobilization work. The task force consists of leaders from different sectors
(government, business, church and NGOs/Pos) and is led by an officer-in-charge, designated by the local
government.
Implementing the doables
Based on the action plan, the local government proceeds to put together instruments required for plan
implementation. These instruments include ordinances, required budgetary support and the deployment
of support personnel. Corollary efforts to galvanize public support and networking with other
stakeholders, counterparts and partners, both locally and at the provincial and national levels are likewise
undertaken.
Utilizing financing schemes for the program
Local governments have the option to undertake financing schemes to meet the required investments for
long-term improvement of existing solid waste management systems. Some of these are:
! income generated from imposing garbage collection/disposal fees;

! joint ventures with the private sector;
! build-Operate-Transfer, Build-Operate-Own schemes and other variants;
! credit financing instruments, such as credit lines, term loans, bonds or long-term securities, lease
financing and foreign-funded loans; and
! privatization.
Key factors for an effective ISWM Program
! Presence of a prime mover

! Citizen cooperation
! Appropriate office or department for coordination and implementation
! Action on “doables”

5 Es of an ISWM Program
Environmental organization building. It involves the formation of a multi-sectoral group tasked to

plan, implement and monitor programs of a municipal ISWM.
Education. It involves awareness raising, information dissemination and promotion of proper ISWM
practices.
Enforcement. It covers the formulation, promulgation, monitoring and review of support ordinances by
the Sanggunian.
Engineering. This refers to the provision of facilities and equipment to support the effective and
efficient implementation of the program.
Equity investment. It covers resource making between private and public sectors in the various aspects
of ISWM program implementation. Solid waste management must be income generating to make it
sustainable.
Case studies on exemplary practices of LGUs in solid waste management
In Lipa City, the Sipaglakas Program evolved from

mere street sweeping and maintaining the
cleanliness of the public market to household-level
waste segregation, barangay-level waste collection,
and improving dumpsite management. The city
established an inter-agency Working Committee on Sanitation and
Environmental Protection System to be responsible for program
management. Surprise visits to participating barangays and monthly
meetings by the Recycling Management Groups ensured
compliance with the program.
The program increased collection efficiency of both waste and

collection charges. Waste collection fees and fines from littering
doubled. Revenue from garbage fee collection in 1998 from business
establishments alone stood at P2.5 million.
In Puerto Princesa City, Palawan, the Oplan Linis Program was set up to promote
among its citizens a sense of urgency, concern and responsibility for the cleanliness
of the community. The program involved volunteers in its various components and
all its citizens in program monitoring and evaluation. Anti-littering ordinances
were enacted imposing sanctions to violators. Enforcement efforts are truly
serious (e.g. a Mayor was fined P200 for throwing a cigarette pack into the street).
The city has repeatedly been adjudged the Cleanest and Greenest Component
City in the Philippines.

In the mid-1980s the Metro Manila Council of Women
Balikatan Movement, Inc. launched an educational
campaign on waste segregation at the household level.
Subdivisions and commercial establishments were
informed of the schedule of waste collection as well as
the location and contact numbers of participating junk
shops. The movement also organized existing junk shop
dealers and disseminated information on waste materials
that can be recycled. It organized junk collectors into
groups and were assigned to specific aspects of the
operations and helped facilitate business loans for
recycles or users of waste materials.
In 1992, the municipal government of Marilao, Bulacan closed its

temporary dumpsite used by neighboring towns. Faced with this situation, the municipal government of Sta. Maria
joined forces with the Sta. Maria Economic Foundation, the
Associated Waste Administration and Recycling Enterprise, Inc.,
and the Department of Science and Technology (DOST) to devise
a workable scheme to address the management of its municipal
wastes.
Two years later, the resulting Sta. Maria Waste Processing and
Recycling Plant started operations. The plant processed
biodegradable materials separated from public market wastes and
produced organic fertilizers that they sell to farmers’
organizations. The plant is self-financing. Proceeds from the sale
of organic fertilizer and recyclable wastes provided funds for plant
operations. Production went as high as three to four tons daily.
The greatest value of this initiative lay in shifting people’s

attitudes towards viewing waste as resource that can generate
profit. The case of Sta. Maria provided inspiration to other
local governments to replicate its composting effort.
Sources:
Governance and Local Democracy Project (GOLD). “Waste Matters: Towards Local Government Excellence in Solid
Waste Management.” Technical Notes No. 98-01 Makati City, 1998.
Governance and Local Democracy Project (GOLD) “Local Governments and Citizens in Integrated Solid Waste
Management.” Occasional Paper No. 98-06. Makati City, 1998.

The Leagues of LGUs as Active
Shareholders in Governance
O
ne major development in the field of governance is the emergence of the various leagues of
local government units (LGUs) (i.e. Leagues of Provinces, Leagues of Cities, Leagues of
Municipalities and Liga ng mga Barangay as provided for in the Code), which have played a
key role in advocating the cause of local autonomy.
Since its inception in 1997, the leadership of the 1.2 million-member Union of Local Authorities of the Philippines
(ULAP) have been at the forefront of various raging issues affecting LGUs nationwide.
Perennially faced with issues ranging from the apparent inequities plaguing the Internal Revenue Allotments (IRAs) and
other funds shared to several unfunded mandates of LGUs - ULAP has stood its ground, guided primarily by its battle
cry: to pursue, protect and enhance the privilege of local autonomy as envisioned in the 1987 Philippine Constitution
and its 1991 Local Government Code.
Local officials at various levels have likewise organized themselves into their own leagues. Among these
are the League of the Vice-Governors, Vice Mayors League, Philippine Councilors League and National
Movement of Young Legislators. Presently, they have combined forces into the League of Leagues (LOL).

The Union of Local Authorities of the Philippines
Vision...
ULAP envisions a just, equitable and progressive society enhanced on participatory democracy and pro-
poor framework of effective governance vital to national development and progress.
Mission...
Unite all its members’ leagues and enhance its partnership with all shareholders to ensure a genuine
local autonomy for all LGUs, thereby ensuring the smooth and efficient delivery of basic services to the
people throughout the country.
Strategies...
1. Formulate and promote agreed strategies for the future development of the leagues and LGUs.
2. Actively participate in local, national and international forums, meetings, congressional hearings
and other activities affecting LGUs.
3. Initiate and conduct regular forums, dialogues and prior consultation with leagues and LGUs to
reach general policy agreements to help guide national policies and laws.
4. Provide advance and information on the operation and development of leagues and LGUs to all
interested shareholders and funding institutions.
5. Develop a “learning organization” working environment.
CLOUD 9
The proposed priority amendments to the 1991

Local Government Code
1. Rationalize the IRA share of LGUs to make it

more equitable (i.e. automatic appropriation).
2. Rationalize the share of LGUs in the National

Taxes and National Wealth, ensure
transparency in its collection and equitable
distribution scheme to all levels of LGUs.
3. Broaden the devolved powers of LGUs and redefine “devolution.”
4. Enhance local autonomy to include the right and duty of LGUs to set and define its own
organizational structure, standards and limiting the “mandatory” positions imposed on LGUs.

5. Give more powers to LGUs over local police forces while adhering to the “one civilian national police”
policy.
6. Clarify the issue on “control” and “supervision” based on existing jurisprudence and NO to unfunded
mandates.
7. Simplify “real property taxation” and fiscal administration to ensure fiscal autonomy for LGUs.
8. Enhance and simplify the “structures and systems” to enable LGUs to meet the demands of local
governance and devolution of basic services to the people.
9. Ensure “popular participation” of non-government and people’s organizations for transparency.
Major accomplishments of the league
! Amendments to the Local Government Code (LGC), including widening of the

resource base of local governments and reforming IRA allocation to address the
inequitable distribution and allocation of financial resources.
! Resistance to unfunded mandates that tend to distant development efforts,

including local planning and budgeting processes.
! Strategic alliances with like-minded sectors of society, including the NGO/PO

community.
It must be noted, though, that as early as the late eighties, even before the enactment of the LGC, the LGUs
have begun to organize themselves into a strong advocacy group actively pushing for the enactment of a
code as mandated in the 1987 Constitution.
The league have indeed gone a long way since then, with some of them able to support and sustain
secretariats that provide professional support and assistance to the league members.
Sources:
Brilliantes, Alex B. Jr. Decentralization, Devolution and Development in the Philippines. VMP - Asia Occasional
Paper No. 44. June 1999.
Union of Local Authorities of the Philippines. 1st Year Anniversary Report. 1998 -1999.

A N N E X E S
Foreign-funded Programs/ Projects Related to
Local Development and Municipal Development Fund Projects
D
evelopment efforts in the Philippines have benefited from the Support of many international institutions. Support
may come in many forms: loans, technical assistance or grants. These external international institutions have
played roles in their initiating or supporting general governance programs and specific local governance programs.
The challenge is of course to sustain the programs once donors have puuled out.
Alex B. Brillantes, Jr
Jr.. 1998
MUNICIPAL DEVELOPMENT FUND PROJECTS
Name of Project Funding Loan Amount Project Lead/ Beneficiaries Description

Institution Duration Implementing
Agency
Municipal World Bank $68 M 1993-2000 DPWH, LGU Designed to extend direct access
Development to LGUs long-term loans to
Project (MDP 3) finance urban-municipal
infrastructure and services
Agrarian Reform World Bank $50 M 1996-2003 DAR ACR provinces --- Grant to LGUs to develop rural
Communities Ilocos Norte, infrastructure and provision of
Development Isabela, Quezon, community support and technical
Project Albay, Leyte, S. support
(ARCDP) Leyte, Misamis
Or., Davao Or.,
Davao N, Surigao
Metro Cebu OECF Y30.597 B 1991-2004 Cebu Province Cebu Province Construction/improvement of
Development arterial roads, bridges in Cebu
Project - Phase City, Cebu South Coastal
III Expressway & Engineering
19th, 20th, 21st & Services
22nd (MCDP 3)
Bukidnon ADB US$20 M or 1997-2004 Provincial Bukidnon Address the needs of the
Integrated Area SDR13.835 M government of Province beneficiaries and equip
Development Bukidnon government agencies with the
Project skills and resources to sustain
(BIADPI) economic development during and
after project implementation
Third World Bank US$113.4 M 1996-2004 DECS 26 STA provinces Improvement of elementary
Elementary School Bldg. - Abra, Benguet, education in poor provinces
Education Program Ifugao, Mt. through strengthening of DECS to
Project (TEEP) $46.500 M Province, Kalinga- deliver public elementary
Apayao, Batanes, education.
Aurora, Masbate,
Antique, Capiz,
Guimaras, Negros
Or., Leyte, S.,
Leyte, E., Samar,
Biliran, Basilan,
Sulu, Tawi-Tawi,
Zamboanga Sur,
Agusan Sur,
Surigao del Sur,
Cotabato &
Maguindanao
Philippine ADB US$30 M 1997-2003 DILG (lead), Gen. Santos, Encourages self-reliance among
Regional sub-loan DPWH, LGUs Iligan City, Puerto local governments through
Development comp. (implementing) Princesa & institutional strengthening;
Project $15.250 M Tagbiliran City stimulate economic development
(PRMDP) of selected regional growth
centers; address the persistent and
pernicious problems of poverty &
service
Urban Health & IDA/World SDR50.5 M 1994-2000 DOH (lead) NCR, Cebu & To support the borrower's
Nutrition Bank DOF, DILG & Cagayan de Oro priorities to centralize, expand &
Program DBM City improve the delivery of public &
(UHNP) primary health care services
within specified areas of priority.
Community World Bank US$50 M 1998-2003 DOF (lead) Region 5, 6, 7, 8 & Aims to help alleviate & improve
Based Resource DENR, DA, 13 the living conditions of rural
Management LGUs communities by increasing farm
Project productivity & creating non-farm
(CBRMP) income sources & help halt
decline in natural resources
facility by installing systems of
utilization to enhance & sustain
them.
Subic Bay Area US$17.620M 2002 DILG (lead) 1 city & 6 To improve urban infrastructure
Municipal municipalities of such as roads & bridges, drainage,
Development Zambales and public markets & solid waste
Project (SBMA Bataan management
DP)
Early Childhood World US$19M 1998-2004 DSWD (lead) Capiz, Iloilo, To develop, provide & promote an
Development Bank/ADB (WB) DOH, DECS, & Antique, integrated set of ECD service
Project (ECDP) SDR6.487 LGUs Guimaras, Negros delivery packages to address
(ADB) Occ., Aklan, Cebu, health, nutrition, cognitive &
Bohol, Negros Or., psychological development needs
Siquijor, Lanao of children under 6 at various
del Norte, stages of growth & development.
Cotabato & Sultan
Kudarat
Metro Iligan OECF Y5771.5 M 1998-2005 Province of Lanao del Norte Involves the establishment of off-
Regional Lanao del site infrastructure facilities
Infrastructure Norte critical to the operationalization
Development of the MIRAIC in Linamon,
Project Lanao del Norte
(MIRAIC)
Local World Bank US$100 M 2006 DOF LGUs nationwide To assist participating LGUs in
Government expanding & upgrading their
Financing basic infrastructure, services &
Development facilities & in strengthening their
(LOGOFIND) capacities on municipal
governance, investment planning,
revenue generation and project
development and implementation.
Clark Area ADB US$24.30 2006 DILG Pampanga and Geared towards the improvement
Municipal Tarlac of basic urban infrastructure in
Development the 9 municipalities & 1 city
Project (CAMP) surrounding Clark Special
Economic Zone.
FOREIGN - FUNDED PROGRAMS/PROJECTS RELATED TO LOCAL DEVELOPMENT
FUND PROJECT OBJECTIVES / INTERVENTIONS EXECUTING

SOURCE TITLE DESCRIPTIONS AGENCY
AusAID DENR/ Human It aims to improve the capacity of DENR to develop its Technical assistance DENR
Resource Dev't. human resource, particularly in the regional offices. The and advisory
Program project is not meant to directly deliver HRD services, but
to strengthen service delivery from responsible sections,
particularly the human resource development services.
AusAID Technical This project is an institutional strengthening and CB Technical Assistance NEDA
Assistance to project with six inter-related components aimed at
Physical Planning improving economic and social development of the
Project (TAPP) country through improved physical planning in order to
enhance consistency of investments, projection,
settlement, resource use and environmental decisions.
Target Areas (for Phase I and II): all provinces
ADB Integrated The proposed plan consists of two parts: Part I will Technical Assistance DOH
Community comprise the national and regional components to be and Advisory
Health Services managed directly by DOH and Part II will comprise the
provincial components to be managed by LGUs in
coordination with DOH. Part I, strengthening DOH
provincial support program will consist of four
components: 1) Human resource dev't.; 2) Support for
LGU health program; 3) Community and NGO
mobilization; 4) Project management and institutional
strengthening. Part II will consist of four components: 1)
institutional strengthening; 2) strengthening referral
system; 3) community and NGO mobilization; 4) support
for priority health program
UNDP Civil Service To develop a supervisory training program by pilot Training and CSC
testing several training methodologies and approaches Technical Assistance
with participation of pilot groups constituted by
supervisors of different government agencies and with
view for its eventual institutionalization and application,
government-wide after project-completion.
Beneficiaries : division chiefs in national and local
governments and public enterprises
CIDA Local Gov't. The goal of LGSP is to assist in the effective Training Technical LGUs
Support Program decentralization of the government of the Philippines in Assistance
(LGSP) Region VI, XI and ARMM. The purpose of the program
is to enhance the capability of LGs in selected regions to
carry out planning, programming and project
implementation.
USAID GOLD The project will catalyze and reinforce the democratic Training and HUCs,
decentralization process through the strengthening of Technical Assistance independent
pluralistic community participation in local governance component
and more effective government performance in local cities (ICCs)
dev't., supporting Leagues of LGs and institutionalizing a
communication and feedback system which infuses and
support local governance.
WB Municipal The meeting is the training component of the Third Training DILG-LGA
Training Program Municipal Development Program. This is a part of the
(MTP III) WB Group-assisted project under the International Bank
for Reconstruction and Development loan assistance. It is
designed to extend direct access to LGUs for long-term
loans to finance urban-municipal infrastructure and
services. This is done through the Program for Essential
Municipal Infrastructure, Utilities, Maintenance and
Engineering Development (PREMIUMED) under the
DPWH.
ILO Integrated Rural IRAP is funded by Royal Dutch Government to bring Training Technical DILG-LGA
Accessibility local planning closer to reality while developing the Assistance
Planning (IRAP) planning capacity of LGUs. Its consists of the following
elements: assessment of the access problems in the area
concerned, identification of the interventions either in
transport system or sitting of services, selection and
prioritization of locations for the needed interventions.
Areas of coverage: Region VI, X, XI and special concerns.
Trainees are mostly PPDCs, MPDCs, draftsmen,
engineers, PLGOOs, LGOOs and NGOs.
UNDP CB for Sustainable To establish a growing, capable and committed base Local
Dev't. in the within the legislative system and local government executives
context of executives on issues involving population management by and legislators
Decentralization increasing their awareness, knowledge and understanding
(Support to on the interrelationships of population, child survival,
PLCPD) role and status of women and protection of the
environment.
Integrated In support of the national development goal of Training and LGU planners
Population and maintaining population growth at a level conducive to Research
Dev't. Planning national welfare, the project aims to promote the
conscious consideration of the two-way relationships
between population and development in the formulation
of plans, policies and programs.
Ascertaining the To establish a DB of local authorities with existing Operations Research LGUs
Capability of Local population offices identify population and family
Population Offices planning issues and problems and determine viable
for the Revitalized models for partnership network.
Phil. FP Program
FP/Safe The project aims to improve the health of mothers and Training LGUs
Motherhood and children in urban poor families by providing family
Women planning and maternal and child health services,
Enhancement in adolescent counseling and livelihood opportunities to FP
Selected Urban acceptors in the pilot areas.
Poor Areas
Increasing the The project aims to strengthen the institutional Training DOH/LGUs
Quality and capabilities of the DOH in FP service delivery in the four
Coverage of FP Advanced Implementation Regions (AIRs), namely,
Service Delivery Regions 3,7,10 and 11
through the DOH
Technical The project intends to strengthen the institutional Advisory and LGUs
Assistance to the mechanism, based on the decentralized structure, for the Training involved in
Employment implementation of identified, Food-for-Work (FFW) sub- appraisal and
Creating Special projects/activities in the four major development sectors monitoring of
Public Works of agriculture, infrastructure, reforestation and FFW project
Programme microenterprise development.
Swedish DIET-M This is a Technical Cooperation Project for the Training DILG-LGA
Government Implementation of Decentralization Implementors
Enhancement Training and Modeling (DIET-M). It
involves the following phases: Country specific Training
on Local self-governance; modeling of LGUs and
enhancement of LGA capability. Phase I of the project
has been completed already.
DSE Project with UP- The UP-LGC-DSE bilateral and technical cooperation Training UP-LGC
LGC and assistance programme mainly addresses and responds observational tours
to the problem, issues, developments and other concerns
relevant to the promotion and development of local
administration.
UNICEF Integrated IALDM is a capability-building component of the Fourth Training DILG-LGA
Approach to Local Country Program for Children. Its objective is to equip
Development the LCEs and implementors with appropriate
Management management skills to achieve the goals of the PPAC and
(IALDM) its MDGs with the LCEs assuming the role of area
Capability- development managers of their respective localities. It
Building covers 45 provinces, 7 cities and 10 municipalities in MM
as well as 10 selected cities in the regions.
EEC Phil. Rural The programme intends to increase the capabilities of Training Technical DA
Institutional both the national and local government agencies to Assistance
Strengthening improve the delivery of basic services.
Programme
(PRISP)
USAID Local The LDAP is designed to establish a foundation for Policy Study PBSP/ARD/
Development sustained economic and social development by Publications EDF/
Assistance encouraging policy reforms that will lead to increased NEDA/
Program (LDAP) autonomy of LGUs. Essentially, LDAP plays a DOF
1991-1993 supporting role for the whole decentralization movement
by performing monitoring, policy and operational
research and other actions in coordination with GOP.
Strategy areas include: support improved levels of
discretionary resources for LGUs; support greater
administrative authority for LGUs; support increased
capacity-building for LGUs and support increased private
sector role in local development.
Steering Committee
Dr. ROGELIO SERRANO Dr. PROSERPINA D. TAPALES

SANREM - CRSP / Southeast Asia Director
Philippine Council for Agriculture, Forestry and Natural Center for Local and Regional Governance
Resources Research and Development (PCARRD) (former Local Government Center)
Los Baños 4030, Laguna National College of Public Administration and Governance
University of the Philippines
P.O. Box 198, UP Campus
Dr. ALEX B. BRILLIANTES, JR. Diliman 1101, Quezon City
Professor
College of Public Administration and Governance
University of the Philippines Dr. JULIAN F. GONSALVES
P.O. Box 198, UP Campus Vice President for Program
Diliman 1101, Quezon City International Institute of Rural Reconstruction
Y.C. James Yen Center, Silang, Cavite
Dr. LUZ LOPEZ RODRIGUEZ

National Social Development & Gender Equity Advisor Mr. ENRIQUE G. MERCAIDA
Philippines-Canada Local Government Support Program Associate Senior Specialist
National Program Management Office International Institute of Rural Reconstruction
Unit 402 Manila Luxury Condominium, Pearl Drive Y.C. James Yen Center, Silang, Cavite
Ortigas Center, Pasig City
Mr. JOY R. RIVACA - CAMINADE

Atty. EVELYN CAMPOSANO JIZ Head
Regional Project Manager VI Publications and Communication Program
Philippines-Canada Local Government Support Program International Institute of Rural Reconstruction
No. 2-A Washinton Street, Jaro Y.C. James Yen Center, Silang, Cavite
Iloilo City

Publication Development
Documentation and Editing

Enrique G. Mercaida
Julian F. Gonsalves
Coordination
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Enhancing Participation in Local Governance

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Enhancing Participation

Philippines-Canada Local Government Support Program

SANREM CRSP/Southeast Asia

Printed in the Philippines

CADC Certificate of Ancestral Domain Claim

MDC Municipal Development Council

NRM Natural Resource Management

Alex Brillantes Jr Ph.D.

ENHANCING PARTICIPATION IN LOCAL GOVERNANCE: EXPERIENCES FROM THE PHILIPPINES

Enrique G. Mercaida, MPA

A Steering Committee (SC), composed of local governance

Meeting at the Philippines-Canada Local Government Support

! the skills with which the government governs;

ENHANCING PARTICIPATION IN LOCAL GOVERNANCE: EXPERIENCES FROM THE PHILIPPINES

List of abbreviations and acronyms used

Chapter 1: Good Governance for Genuine and Sustainable

Chapter 2: Public Sector Reform through Modern Management

development participation vis-a-vis the ever-changing trends

During the past decade, these development

Another earlier milestone in the country’s

This chapter attempts to present the various

Sustainable development must therefore take into

Figure 1. Key Actors in Sustainable Development

ENHANCING PARTICIPATION IN LOCAL GOVERNANCE: 1

2 ENHANCING PARTICIPATION IN LOCAL GOVERNANCE:

! What is sustainable development?

ENHANCING PARTICIPATION IN LOCAL GOVERNANCE: 3

SOURCE: Center for Alternative Development Initiatives (3/27/2001)

4 ENHANCING PARTICIPATION IN LOCAL GOVERNANCE:

ENHANCING PARTICIPATION IN LOCAL GOVERNANCE: 5

Center for Alternative Development Initiatives (3/27/2001)

Philippine Rural Reconstruction Movement (PRRM).

6 ENHANCING PARTICIPATION IN LOCAL GOVERNANCE:

ENHANCING PARTICIPATION IN LOCAL GOVERNANCE: 7

SIAD is culturally sustainable and gender sensitive.

8 ENHANCING PARTICIPATION IN LOCAL GOVERNANCE:

Laying down the foundation and enabling conditions for multi-stakeholder

! 1991 LGC is considered as a landmark

" NGO/PO representation in the Local

Gaps between policies and realities on the ground

ENHANCING PARTICIPATION IN LOCAL GOVERNANCE: 9

SIAD: proposed process framework

Critical Activities involve:

10 ENHANCING PARTICIPATION IN LOCAL GOVERNANCE:

ENHANCING PARTICIPATION IN LOCAL GOVERNANCE: 11

12 ENHANCING PARTICIPATION IN LOCAL GOVERNANCE:

At the base of the local government system is the

ENHANCING PARTICIPATION IN LOCAL GOVERNANCE: 13

Barangays Barangays Barangays

14 ENHANCING PARTICIPATION IN LOCAL GOVERNANCE:

ENHANCING PARTICIPATION IN LOCAL GOVERNANCE: 15

! field health and hospital services and other tertiary services;

16 ENHANCING PARTICIPATION IN LOCAL GOVERNANCE:

! enlarges local bureaucracy because of the devolved personnel and programs;

Globalization and Local Government

Globalized competition induces vulnerability among nations whose

! It creates pressure to maximize organizational performance