Terminal Report:

Policy Study on Enhancing a National Integrated

Farm-to-Market Road Implementation and Development
in the Philippines
Engr. Raffy M. Espiritu
Project Leader
Study Leaders:
Dr. Jaime I. Manuel Jr.
Dr. Adriano T. Esguerra
Dr. Venelyn L. Bersamira
Project Staffs:
Prof. Grace S. Nisperos
Engr. Ericson N. Laquidan
Engr. Paul James Ganola
Engr. Delilah P. Dal-uyen
 Project Details
Start: September, 2017
End of Extension: May 30, 2019
Project Fund: Php 2,000,000.00
Actual Release: Php 2,000,000.00
Major Project Output:
1. Nine Major Policy Recommendations
2. At least 4 Policy Brief on FMRDP
3. Template FMR Network Plan piloted in
Province of La Union
Straightening the crooked DAF Farm-To-Market Road Program
PTV·THURSDAY, MARCH 2, 2017
By Manny Piñol
Here are some of the questions I raised:
1. How much has been spent for the FMR program?
2. How many kilometers have been constructed and completed?
3. Where are these roads and is there an inventory of the roads and a
continuing assessment of the current state and condition of the
roads?
4. How many more kilometers of FMR do we need to construct to give
our farmers and fishermen easy access to the market?
5. Is there a national road map which identifies the location of the
roads which need to be constructed?
6. Is there a follow through program which would closely monitor the
status of the roads after these are constructed and undertake repairs
when there is damage?
Section 4. Definition of Terms (RA 8435 AFMA)

Farm-to-Market Roads
-roads linking the
agriculture and fisheries
production sites, coastal
landing points and post-
harvest facilities to the
market and arterial roads
and highways.
 AFMA Law:
• Sec. 52. Farm-to-Market Roads. – The Department
shall coordinate with the LGUs and the resident-
farmers and fisherfolk in order to identify priority
locations of farm-to-market roads that take into
account the number of farmers and fisherfolk and
their families who shall benefit therefrom and the
amount, kind and importance of agricultural and
fisheries products produced in the area.
• Construction of farm-to-market roads shall be a
priority investment of the LGUs which shall provide
a counterpart of not less than ten percent (10%) of
the project cost subject to their IRA level.
 LGU Dilemma
Lack of adequate resources
in local road project
implementation relying
mainly from different NGAs
and donor agencies.
Results:
1. uncoordinated road
network development
2. possible duplication of
effort
3. Heterogenous project
output.
Philippine National Road Network Data (DPWH,2015)
Philippine Agricultural Land
Area: 7.19 Million Hectares
(PSA,2016)
 Significance of Farm-to-Market Road Program in the
Department of Agriculture Budget

Program Budget Allotment Share in

2011-2015(Php.00) Total DA
Budget
Irrigation Projects of NIA 85,185,850,000 31.21%
Farm-to-Market Road Program 32,805,620,000 12.02%
National Rice Program 31,856,420,000 11.67%
National Corn Program 7,052,170,000 2.58%
 Conceptual Framework :
Convergence Program for Rural Roads & FMR Projects
 Activities
 Data Gathering –
survey, reports, KII at
Department of Agriculture,
DPWH-DEO, PRDP,
Commission on Audit (COA),
Department of Budget and
Management (DBM), selected
local government unit,
National Tobacco
Administration, Phil. Statistics
Authority, farmers & others
 Poor Planning, implementation,
Operation & Maintenance of Farm
to Market Roads
Study 1. Timelines related to FMR Policy evolution in the Philippines
1975- issuance of Presidential Decree 701 designating feeder roads as “farm-to-market roads” and allocating funds thereof
1991- Local Government Code was enacted devolving responsibility on local roads development to local government units
1996 – Program Implementation, Farm-to-Market Roads Development Program Operational Manual
1997- AFMA was passed strengthening and defining Farm-to-market roads as priority intervention in agricultural
modernization
1998 – Memorandum from the Acting Secretary, Amendment to the Farm-to-Market Roads Development Program Guidelines
1999 – DO No. 137, Guidelines for the Implementation of DPWH projects by LGUs
2007 – DO No. 58, Guidelines for Valuation of Right of Way Acquisition
2009 – DO No. 14, Monitoring and Coordination of Farm-to-Market Road Projects
2013 – AO, Guidelines in the Implementation of the Bottom-Up Budgeting (BuB) Projects FY 2013
2013 – Memorandum from the Secretary, CY 2013 and 2014 Farm-to-Markey Road Network Plan
2013 – Memorandum from Assistant Directors and Special technical Assistant for DA Projects, Updated General Guidelines on
the Implementation of Farm-to-Market Road Development Program
2013 – Memorandum from the Undersecretary for Operation, Submission of Major and Minor Farm-to-Market Road (FMR) Proj.
2016 – Memorandum from the Secretary, Amendment in the Validation and Prioritization Requirement, Guideline No. 1.2.a.ii of
the Administrative Order No. 04 Series of 2016 Entitled “General Guidelines in the Implementation of Farm-to-Market
Road Development Program (FMRDP)”
2016 – AO No. 04, General Guidelines in the Implementation of Farm-to-Market Road Development Program (FMRDP)
2016 – MC No 3-B, Implementing Guidelines and Criteria for Prioritization of Sugarcane FMR Proposals
2017 – DO No. 68, Minimum Design Standards for Industry Roads Under the DTI-DPWH Convergence Program for Roads
Leveraging Linkages for Industry and Trade (ROLLIT)
Study 1.1 Status of Implementation, Quality Assurance and PAES
Standard/ Guidelines Compliance in FMR Projects
Total Farm-to-Market Road budget under Department Farm-to-Market Road
of Agriculture Budget, 2001-2017 in Philippine Peso Implementation in
the Philippines has
been allotted with
Foreign-Assisted 113 Billion Pesos
42,392,680,000.30 Projects (FAPs)
(37%)
from 2001-2017
71,237,547,000.00 where 63% was
General Appropriations
(63%)
Act (GAA) funded by GAA-
Regular Fund for
FMRDP and 37%
(4,004.69km) thru
Total: PhP 113,630,227,000.00 FAPs.
 Department of Agriculture Farm-to-Market
Roads Program from General Appropriations
8,753,000,000
Act (GAA) fund in Billion PhP, 2001-2017
(12%)
14
12.00
12
Total Amount in Billion PhP

10

7.38 62,484,547,000
8 6.95 7.05
(88%)
6.00
6 6.00
4.40 6.25
5.94
4 Total:
3.32 DA IMPLEMENTED
PhP 71,237,547,000.00
2.50
2 1.24
0.72
0.55 0.55 DPWH IMPLEMENTED
0.20 0.20
-
2001

2002

2003

2004

2005

2006

2007

2008

2009

2010

2011

2012

2013

2014

2015

2016

2017
Year Funded
 DA funded Farm-to-Market Roads, 2010-2017
No. of No. of FMR not yet
Funding Programmed Amount No. of
Completed completed / not
Year (PhP) FMR
FMR implemented
2017* 5,576,758,000.00 1,139 549 589
2016* 7,377,167,000.00 1,792 1,241 551
2015* 6,250,000,000.00 1,396 1,392 4
2014* 12,000,000,000.00 1,805 1,803 2
2013* 7,780,311,236.00 1,980 1,980 0
2012** 2,824,995,058.00 956 478 478
2011** 4,695,260,723.00 1,750 1,527 223
2010** 6,435,400,000.00 2,301 1,768 533
TOTAL 52,939,892,017.00 13,290 10,956 2,334
Note: * Accomplishment reported by DA-FMRDP from DPWH Report as of July 26, 2018
** Data of 2010, 2012 and 2013 from COA Audit Report 2010, 2012 and 2013 & DPWH
DA- FMR
budget
implemented
by DPWH
from
5.18%
(2015) to
1.30%
(2017).
 Department of Public Works and Highways Farm-to-Market Road
programmed and completed projects, 2014-2017

2,500
Number of Projects

2,000

1,500

1,000

500

-
2010 2011 2012 2013 2014 2015 2016 2017
Programmed Projects 2,301 1,750 956 1,980 1,851 1,493 1,814 1,145
Projects Completed 1,768 1,527 478 1,189 1,803 1,399 1,685 1,107

Source: FMRDP data provided by DPWH

as of December 31, 2017
 Study 1.3-Review of Updated DA FMR Network Plan
Proposed Farm-to-Market-Road For Funding (Nationwide) C.Y. 2014-2018
Estimated Cost Estimated Average Cost Estimated Cost Average No. of No. of No. of Project
Proponent
(Php) Length (km) (PhP)/Proj /km Length (km) City/Municipality Barangay Item
CAR 5,320,317,982.85 538.19 10,834,074.40 9,885,575.69 1.10 66 257 483
RFO 1 2,474,524,092.37 277.17 11,033,063.19 8,927,820.80 1.30 62 239 247
RFO 2 12,443,250,839.01 1,393.38 9,751,036.95 8,930,263.70 1.12 91 704 1,085
RFO 3 14,782,601,058.04 1,478.26 11,515,767.22 10,000,000.72 1.15 116 743 1,342
RFO 4-A 4,899,450,512.70 485.03 8,153,811.70 10,101,335.00 0.79 109 461 644
RFO 4-B 1,510,500,000.00 150.65 10,351,431.01 10,026,551.61 1.03 45 122 144
RFO 5 5,109,735,500.00 510.47 19,307,627.19 10,009,864.44 1.93 69 265 307
RFO 6 3,553,749,049.72 350.35 12,451,040.76 10,143,425.29 1.24 82 - 252
RFO 7 3,233,000,000.00 321.22 14,630,793.74 10,064,753.13 1.45 87 167 221
RFO 8 17,248,880,921.92 1,730.97 14,834,924.82 9,964,864.16 1.47 141 155 1,331
RFO 9 3,274,000,000.00 279.77 10,852,332.09 11,702,469.89 0.94 74 245 262
RFO 10 17,233,603,640.71 1,724.27 18,181,706.48 9,994,724.52 1.77 78 488 730
RFO 11 7,639,272,095.92 647.44 24,633,821.84 11,799,196.98 2.04 49 212 320
RFO 12 18,839,996,113.38 1,706.49 19,498,842.37 11,040,203.06 1.88 48 338 371
RFO 13 10,075,268,057.49 815.54 45,675,012.02 12,354,106.55 3.62 53 226 224
ARMM 919,000,000.00 95.30 14,408,064.52 9,643,231.90 1.43 33 65 67
PRDP 21,716,316,907.37 1,807.14 117,195,568.51 12,016,953.26 9.62 169 210 214
TOTAL 150,273,466,771.48 14,311.64 21,959,348.17 10,500,087.12 1.99 1,372 4,897 8,244
Source: FMRDP Data Total: 1,634 42,036
Average Cost (Php)/Proj = Ʃ(Estimated Cost per Province / Number of Project Item per Province) % 84% 12%
Estimated Cost/km = Estimated Cost (PhP) / Estimated Length (km)
 Farm-to-Market Road project issues and concerns, 2013-2017

123
86 Engineering Design/technical, 8.2%
107
Implementation, 51.95%
1
Post-Implementation, 17.83%
187
545 Political, 0.10%

Others, 10.20%

Total: 1,049
No Issues, 11.73%
responses
Note: Region II, IX, XIII, CAR and ARMM are not yet visited
Data Source: PCAF FMR Monitoring
PCAF Policy Study

Implementation issues (51.95%%) are the major constraints in FMRDP.

 Post-implementation issues and concerns in Farm-to-Market Road projects ,
2013-2017 No budget for maintenance
1 (0.53%)
1 (0.53%)
1 (0.53%)
FMR is not properly maintained. Grasses and shrubs
4 (2.14%) 17 (9.09%) encroaching on the road
11 (5.88%)
1 (0.53%) FMR is underutilized due to rehabilitation of riprap
1 (0.53%)

1 (0.53%)
No action for complained rehabilitation of damaged
pavement

FMR is not being used by the community

hauling fee of agricultural products had not changed

149 (79.68%)
because there is still a long unconcreted portion and
transportation is still difficult
BLGUs lack of manpower and resources to maintain
the constructed concrete pavement

transportation cost is still high due to the river

FMR is no longer passable by heavy trucks

Note: Region II, IX, XIII, CAR and ARMM are not yet visited
Data Source: PCAF FMR Monitoring
PCAF Policy Study
 Other LGU issues and concerns in Farm-to-Market
Road projects, 2013-2017
1 (1%) Recipients asking for
additional length of FMR to
connect to other areas
45 (42%) BLGU is requesting for
55 (51%) rehabilitation of a 20-year old
FMR
unpaved road in the end of
FMR

need additional funds to

extend FMR projects
5 (5%) 1 (1%) Total: 107 responses
Need of the farm for thresher,
Note: Region II, IX, XIII, CAR and ARMM are not yet visited
Data Source: PCAF FMR Monitoring mechanical dryer and rice mill
PCAF Policy Study
for the respondents
4.1 Benchmarking Best Practices In Farm-to-Market Road Implementation
 4.6 Best Practices in FMR Project Development & Implementation
1. Application of geo-tagging technology from project identification to monitoring
2. LGU initiated construction of paved tire track as farm-to-market road type in low traffic
areas and to maximize limited local funds.

3. DILG Memorandum Circular No. 2017-159 (Nov 21, 2017) re: for the formulation of an
integrated 5-year Local Roads Network Development Plan (LRNDP) for the sustainable
development and maintenance of local road networks.
 MINIMUM REQUIREMENTS FOR MAP LAYOUTING –
LOCAL ROAD NETWORK DEVELOPMENT PLAN (LRNDP)
The map will show the following data:
a. National Road
b. Provincial Road
c. KALSADA 2016
d. CMGP 2017
e. CMGP 2018
f. Orthoimages (as
background)
g. City Road
h. Municipal Road
i. Barangay Road
j. Big water bodies
k. Names of the capital and
municipalities in the province
l. Names of neighboring
provinces, if any
m. Names of big water bodies
such as sea, bay, gulf, cove
The national road is thicker than the other line width and the like
5. Policy Recommendations to enhance FMRDP
1. Formulating a Proposed FMR Accessibility Indicators, Targets
and FMR Priority Rankings
SDG Indicator World Bank Indicator Proposed DA-FMR Indicator
Kilometre / 1,000 people Kilometre / 1,000km2 Road Access in Farms Index (RAF
Index), Meter or kilometer / hectare
Kilometre / 1,000 people Rural Village Road Availability
Index (RVRA Index), Kilometer /
barangay
Rural Access Index (RAI)
=No. of Population w/
access/ total population
within 2 km
5. Recommendations and Policy Action Taken
2. Transfer to DA the full implementation FMRDP projects with
the Institutionalization of PRDP Quality Assurance mechanisms
& CPES as safeguards.

a. adopt the quality assurance mechanisms of PRDP for FMRDP projects

b. CPES implementation for FMR, other Agricultural infra projects of DA
c. Capability building of DA technical personnel on Quality Assurance
methodologies and techniques
d. Actively involve and deputize the local AFCs in project monitoring for FMRs
5. Recommendations and Policy Action Taken
3. Harmonize Farm-to-market road definition (amend Sec. 4, AFMA and PAES 421:2009) and coverage in the
propose updated guidelines with illustrative lay-out for guidance of proponents
DMMMSU FMR Policy Recommendations Policy Action Taken
1. Farm-to-Market Road must be a feeder road within the -Adapted in the Final Draft for Concurrence to Update
agriculture and fisheries production, coastal landing points, Philippine Agricultural Engineering Standards for FMR:
post-harvest or processing facilities that links to local roads, Farm-to-Market Road must be a feeder road within the
national highways and marketS. agriculture and fisheries production, coastal landing
points, post-harvest or processing facilities that links to
local roads, national highways and markets.
2. Typical Lay-out of FMR Connectivity to Local Road Network Typical Location of FMR (Final Draft for Concurrence)
 5. Recommendations and Policy Action Taken
3. Updating of PAES 421:2009 for FMR and review of appropriate pavement type
and road design to be used in FMR projects
DMMMSU FMR Policy Recommendations Policy Action Taken
3. Provision of access facilities ( i.e. access ramps and -Adapted in the Final Draft for Concurrence to Update
crossings for persons, PWD & machineries) and other Philippine Agricultural Engineering Standards for FMR:
auxiliary structures as part of the Farm-to-Market Road
Design

Typical Location of FMR (Final Draft for Concurrence)

4. Inclusion and definition of Access Ramp in the PAES

 DMMMSU FMR Policy Recommendations Policy Action Taken
5. Lay-out Drawings of access facilities for FMRs -Adapted in the Final Draft for Concurrence to Update
Philippine Agricultural Engineering Standards for FMR:

Typical Location of FMR (Final Draft for Concurrence)

5.1 Typical design for access ramp perpendicular to

carriageway

5.2 Typical design for access road over irrigation canal

 DMMMSU FMR Policy Recommendations Policy Action Taken
6. Minimum design dimension for road carriageway of FMRs -Adapted in the Final Draft for Concurrence to Update
Philippine Agricultural Engineering Standards for FMR:

7. Minimum design dimension for shoulder width of FMRs

8. Minimum design thickness of PCCP of FMRs

Espiritu, R.M., Manuel, J.J.I.,
Esguerra, A.T., Bersamira, V.L.,
and Nisperos, G.S. (2019).
Farm-to-Market Roads:
Redefining its meaning. Policy
Study on Enhancing a National
Integrated Farm to Market
Road Implementation in the
Philippines.
5. Recommendations and Policy Action Taken
4. Strengthening of
FMRDP Program
Strategy &
Implementation
Structure
- Issuance of a
Department Order
transferring the
FMRDP Program
National Office and
personnel under the
Bureau of Agricultural
and Fisheries
Engineering (BAFE)
5. Policy Recommendations to enhanced FMRDP
4. Strengthening FMRDP Program Strategy & Implementation
Structure
- Amendment to Joint DA-DPWH implementing guidelines for the inter-
agency coordination, complementation and implementation of FMRDP
- Formulation of capability building program of DA personnel for FMRDP
planning, implementation and CPES monitoring
-institutionalization on the use of Project and Construction Management
Application (PCMA) software for project updating, monitoring and
evaluation within the DA System
-Harmonize template in preparing, reporting and monitoring the POW, DUPA
& DED for FMR with DPWH
-mainstreaming FMRDP structure within BAFE at the national level
-strengthening organizational structure and creation of DA-RFU RAEG-
FMRDP section to oversee its implementation at the regional level
-minimum average daily traffic of project site shall be a major consideration
in the recommended PCCP carriageway width of FMR projects
5. Policy Recommendations to enhanced FMRDP
5. Formulation of long overdue nationwide FMR Network Plan & Online Portal of Local Road
Registry System interfaced with the Local Road Network Development Plan of DILG & LGUs
5.6 Policy Recommendations : Revision on GAA Special Provision for FMRDP
The amount of Thirty Billion Pesos (P30, 000, 000, 000.00) appropriated herein for Farm-to-Market Road
(FMR) projects shall be released directly to the DA for the construction, rehabilitation and repair of FMRs in
accordance with the approved network plan. The DA shall be the focal agency of all FMR programs and shall
ensure that such projects to be implemented will lead to arterial or secondary roads and key production
areas and are geo-tagged in accordance with the provision of the AFMA. Upon completion of the
construction, rehabilitation and repair of FMRs, the DA shall turn over the management and ownership
thereof to the LGUs concerned, which shall commit to shoulder the maintenance and repair cost.
The Secretary of Agriculture and the Agency’s web administrator or his/her equivalent shall be
responsible for ensuring that the approved network plan, community of farmers and agrarian reform
beneficiaries, FMRs to be constructed for the year with the corresponding budgetary allocation, status of
implementation supported by pre-construction geo-tagged photos, and project evaluation and/or assessment
reports are posted on the DA website.
Capability Enhancement of DA for FMRDP Evaluation, Monitoring and Implementation. The amount of
One Hundred Fifty Million Pesos (P150,000,000.00) is appropriated herein for DA capability enhancement,
monitoring and evaluation of FMR projects. It shall be used exclusively for the training and hiring of
additional support personnel for the preparation of engineering plans, construction specifications, project
schedule, and quality evaluation of FMR projects; procurement of service vehicles , engineering and testing
instruments and project management software applications and such other related expenses. In no case shall
said amount be used for any other purpose.
5. Policy Recommendations to enhance FMRDP
7. Enhance transparency and accountability in FMRDP
complementation with DPWH
-Include in the DPWH-DA MOA the provision “Complete project documents:
a. Program of Work (POW)
b. Detailed Unit Price Analysis (DUPA)
c. Detailed Engineering Design (DED)
must be provided by the DPWH District Engineering Office to DA-RFU and
LGUs prior to signing of Notice of Award and Notice to Proceed for each FMR
Project to be implemented”
-furnish copies of FMR projects’ MOA & Certificate of Acceptance to LGUs & DA-
RFUs

8. Crafting of a DA Action Plan for the periodic monitoring and

maintenance support scheme to completed FMR projects
5. Policy Recommendations to enhance FMRDP
9. Allocation of funds for Road Right of Way acquisition
and related expenses for the transfer of rights and other
cost of conveyance.
10. Formulation of national research and development
agenda in support to Farm to Market Roads and other
Access Infrastructure development and its enhanced
implementation
5. Policy Recommendations to enhance FMRDP
11. Intensify DA-DILG
Complementation for FMRDP
- DA and DILG to work-out Joint
Memorandum to include the identified FMR
in the LRNDP
- Set standard color coding of FMR in the
LRNDP, in connection with the identified
arterial roads and core roads of LGUs
- Segregate data on FMR in the LRNDP i.e.
FMR lumped in the barangay road
- Separate thematic map of FMR in the
LRNDP
- establish a Road Functional Classification
System i.e FMR, Tourism Road, Core Local
Road, Core Local Access Road, etc.
5. Policy Recommendations to enhance FMRDP
12. Drafting of I-FARM
Act to harmonize
policies, inter-agency
collaboration and
financing
arrangement for long-
term FMRDP
implementation
6. Presentation of the iRoad Portal by Geomapping and Governance Unit of
PRDP and preliminary policy recommendations of the study at Apacible Hall,
DA-PCAF, Quezon City last October 04, 2018
Presentation of Policy recommendation of the study during the National Workshop on
Farm to Market Road (FMR) Network Inventory and Normalization of Data for the
iRoad Portal Roll-out at Clark Field City, Angeles City, Pampanaga last December 12-
15, 2018. Photo credit to John D. Pagaduan.
Other Policy Advocacy Activities attended by the Project Team

1. Presentation of preliminary output of the FMR policy study during the AFMech Special Meeting in
connection with the implementation of PCAF funded FMR policy study last July 24-25, 2018 at ApacibleHall,
DA-PCAF, Quezon City.
2. Presentation and validation of policy recommendations of the project during PSABE-CAR Chapter Briefing
last August 09, 2018 at ATI-CAR, BSU Compound, La Trinidad, Benguet.
3. Presentation of the updated Terminal Report of the FMR policy study during the AFMech Regular Meeting
last August 29, 2018 at DA-PCAF Central Office, Elliptical Road, Diliman Quezon City.
4. Attendance to several Technical Working Group Meeting for the updating of PAES for Farm-to-Market
Road at the Bureau of Agricultural and Fishery Products Standard, Visayas, Ave, Quezon City.
5. Presentation of the iRoad Portal by Geomapping and Governance Unit of PRDP and preliminary policy
recommendations of the study at Apacible Hall, DA-PCAF, Quezon City last October 04, 2018.
6. Presentation, validation and solicitation of additional inputs for the draft policy recommendations of the
FMR policy study during the National Finalization Workshop for the 2019 FMR Development Program
(FMRDP) Guidelines at Subic Bay, Zambales last November 14-16, 2018.
7. Attendance of the Project Team at the DA-PCAF AFMeC Regular Meeting and presented the Project
Terminal Report for its validation in connection with the implementation of PCAF funded FMR policy study
at DA-PCAF Central Office, Elliptical Road, Diliman Quezon City last December 05, 2018
 References
David, C.C., R.M. Briones, A.E. Inocencio, P.S. Intal, Jr., M.P.S. Geron, and M.M. Ballesteros.
2012. Monitoring and evaluation of agricultural policy indicators. PIDS Discussion Paper No.
2012-26. Makati City: Philippine Institute for Development Studies.
Manasan, R.G. 2010. Financing the MDGs and inclusive growth in the time of fiscal
consolidation. PIDS Discussion Paper No. 2010-34. Makati City: Philippine Institute for
Development Studies.
PCAF Monitoring of FMR Projects Raw Data
DPWH website
DA website
FMRDP Data
DA & DPWH Department Orders
Thank you!!!!!