Rationalizing the Local Planning System and the Local Planning Structure in the Philippines

Rationalizing the Local Planning System and Structure in the Philippines

Rationalization

• Making a process more efficient.
• Reorganizing a process or system to be more logical and consistent.

Ambisyon Natin 2040

• A long-term vision for the Philippines: "Matatag, Maginhawa, at Panatag na Buhay" (Stable, Comfortable, and Secure Life).
• Aims to lay the foundation for inclusive growth, a high-trust and resilient society, and a globally-competitive knowledge economy.

Strategies

• Malasakit (Enhancing the Social Fabric):
  • Ensure people-centered, clean, and efficient governance.
  • Pursue swift and fair administration of justice.
• Pagbabago (Inequality Reducing Transformation):
  • Expand economic opportunities.
  • Reduce vulnerability of individuals.
  • Manage the demographic dividend.
• Patuloy na Pag-Unlad (Increasing Growth Potential):
  • Increase access to economic opportunities.
  • Promote technology adoption.
  • Stimulate innovation.
  • Promote Philippine culture.
  • Accelerate human capital development.
  • Implement strategic trade and fiscal policy, maintain macroeconomic stability, and promote competition.
  • Ensure peace and security.
  • Accelerate strategic infrastructure development.
  • Ensure safety and build resilience.
  • Ensure ecological integrity, clean and healthy environment.

Current State of Local Planning

• Functionality of Local Development Councils: 83%.
• Plan Formulation: More than 97% of LGUs formulated plans (CDP, CLUP, AIP).
• Sanggunian Support: Indifferent or unsupportive.
• Vertical Linkages: Poor or total absence between national, regional, provincial, and city/municipal/barangay government levels.
• Horizontal Linkages: Poor or total absence among sectoral concerns (Social, Economic, Infrastructure Development, Environment and Natural Resources, Institutional Development).
• Plan-Budget Linkage: Weak plan-to-budget linkage. CDP.
• Multiplicity of Plans: Many different plans exist.
  *Examples: Forest Management Plan, ICT Plan, FSP, Gender & Development Plan, Solid Waste Management Plan, Traffic Management Plan, Local Poverty Reduction Action Plan, Small & Medium Enterprise Development Plan
• Not all of the 33 NGA-Mandated Plans/Prescribed Sectoral and Thematic Plans have been formulated.
  • No sanctions for non-compliance.
  • Plans were not considered necessary or beneficial.
  • Repetitive planning efforts.
  • No focal person to steer the plan formulation process.

Rationalized Planning System

• Need to implement the full implications of the Local Government Code of 1991 pertaining to planning.
• Reduce the number of plans that LGUs must prepare to the two comprehensive plans (CLUP and CDP) that are mandated in the Code.
• The need for NGAs that are directly involved in local planning to harmonize or dovetail their planning guidelines.
• Reconfiguring the planning process from its traditional technocratic form into one that accommodates the imperatives of multi-stakeholder participation and consultation.
• Emphasizes the importance of strengthening the LDC as the mandated structure to formulate development plans in the LGU, organization of functional committees to assist the LDC in the development of the plan.
• Underscores the importance of the legislative body as partners of the executive branch in advancing the general welfare of its constituents, thus both have important roles to play in planning for their jurisdictions.
• Promotes the development of a medium term CDP (6 years) to align with the MTPDP and MTPIP, and a term-based CDP (3 years) which becomes the LGU's ELA.
  • MTPDP: Philippine Development Plan
  • MTPIP: Public Investment Program
  • CDP: Comprehensive Development Plan

Policies and Guidelines

• Executive Order No. 366, s. 2004: Directing a strategic review of the operations and organizations of the executive branch and providing options and incentives for government employees who may be affected by the rationalization of the functions and agencies of the executive branch.
• DILG-HLURB Joint Memorandum Circular (JMC) No. 001 Series of 2009: Guidelines on the Harmonization of Comprehensive Land Use Plan (CLUP) and Comprehensive Development Plan (CDP) Preparation, dated 19 October 2009.
• DILG MC No. 2015-77: Guidelines on Mainstreaming Climate Change Adaptation and Disaster Risk Reduction in Local Development Planning.
• DILG, NEDA, DBM and DOF Joint Memorandum Circular (JMC) No. 2016-01: Updated Guidelines on the Harmonization of Local Planning, Investment Programming, Resource Mobilization, Budgeting, Expenditure Management, and Performance Monitoring and Coordination in Fiscal Oversight.
• DILG-NEDA JMC No. 1 Series of 2018: Guidelines on the Localization of the Philippine Development Plan (PDP) 2017-2022 Results Matrices and the Sustainable Development Goals (SDG).
• EXECUTIVE ORDER NO. 138, S. 2021: Full devolution of certain functions of the executive branch to local governments, creation of a committee on devolution, and for other purposes

Planning

• Planning must be viewed holistically as a system.
• Planning is an integral part of Governance

Dual Function of the LGU

As a Political Unit

• LGUs are in charge of the management of its entire geographical territory for and in behalf of the national government.

As a Corporate Body

• Representing its inhabitants.
• Promoting the general welfare among the inhabitants within its territorial jurisdiction, (Sec. 16, RA 7160) and
• Delivering basic services & facilities to enable its inhabitants to develop fully into self-reliant communities (Sec. 17, RA 7160)
  • promote health
  • enhance the right of the people to a balanced ecology
  • encourage and support the development of appropriate and self-reliant scientific and technological capabilities
  • enhance economic prosperity and social justice
  • promote full employment
  • ensure and safety
  • support the preservation and enrichment of culture
  • maintain peace and order
  • improve public morals
  • preserve the comfort and convenience of their inhabitants

Components of the Local Planning System

• The Organizational Structure and its functions
• The plan or plans that the planning structure is mandated to produce
• The process that the planning structure will follow to produce the desired plan outputs
• The tools for plan implementation
• Why should LGUs plan?
• How are plans prepared?
• How can LGU plans be implemented?

LOCAL PLANNING SYSTEM

Components of Local Planning Structure

• Political Component:
  • Its the policy-making body which defines the content and direction of local development.
  • The principal function of the political component is that of deliberation to take decisions or lay down policies.
• Technical Component:
  • This component supplies the technical content and process of local planning. Except for some local special bodies, the technical component generally has no decision-making powers.

Comprehensive Development Plan

• The document that pertains to the multi-sectoral plan formulated at the city/municipal level, which embodies the vision, sectoral goals, objectives, development strategies and policies within the term of LGU officials and the medium-term. It contains corresponding PPAs which serve as primary inputs to investment programming and subsequent budgeting and implementation of projects for the growth and development of local government territories.

Comprehensive Land Use Plan

• The CLUP is a planning document prepared by LGUs to rationalize the allocation and proper use of land resources. It projects public and private land uses in accordance with the future spatial organization of economic and social activities.
• Under the LGC of 1991 and other pertinent laws, all LGUs are mandated to continue to prepare/revise/update their comprehensive land use plan which shall be enacted through a zoning ordinance.

CLUP vs. CDP

CLUP-CDP Process Flow

Chart prepared by Ernesto M. Serote outlines modules for review, assessment, data collection, analysis, public consultation, mapping, objective setting, and policy formulation

Implementation tools

CLUP

• Zoning Ordinance
• Eminent Domain

CDP

• Tax Schemes (i.e. PPP)
• Indebtedness
• Income from National Shares
• Tax
• Public Capital Investments
• Co-Management

The Local Planning Structure

Components of Local Planning Structure

• POLITICAL
  • Local Sanggunian
  • Local Development Council
  • Congressman's Representative
  • Civil Society Organizations
• TECHNICAL
  • Local Planning and Development Office
  • OLGU Department Heads
  • Local Special Bodies
  • OLDC Sectoral/Functional Committees
  • ONGA Office Chiefs in the locality
  • Private Sector Representatives

The Local Planning Structure and its Functions

• Local Development Council
  • Executive Committee
  • Sectoral or Functional Committees
    • Social
    • Economic
    • Infrastructure
    • Environment and Natural Resources
    • Institutional
  • Secretariat

Local Development Council (LDC)

• Primary Functions
  • Formulate development plans and policies
  • Formulate public investment programs
  • Appraise and prioritize programs and projects
  • Formulate investment incentives
  • Coordinate, monitor and evaluate implementation of development programs and projects.
• Barangay Development Councils
  • Mobilize people's participation in local development functions
  • Prepare barangay development plans
  • Monitor and evaluate implementation of national or local programs and projects.
• Members
  • Provincial - Headed by the Governor
    1. All mayors of component cities and municipalities
    2. The chairman of the committee on appropriations of the sangguniang panlalawigan
    3. The congressman or his representative; and
    4. Representatives of NGOs operating in the province, who shall constitute not less than one-fourth (\frac{1}{4}) of the members of the fully organized council.
  • City/Municipal - Headed by the Mayor
    1. All punong barangays in the city or municipality
    2. The chairman of the committee on appropriations of the sangguniang panlungsod or sangguniang bayan concerned
    3. The congressman or his representative; and
    4. Representatives of NGOs operating in the city or municipality, as the case may be, who shall constitute not less than one-fourth (\frac{1}{4}) of the members of the fully organized council.
  • Barangay - Headed by the Punong Barangay
    1. Members of the sangguniang barangay
    2. SK Chairperson
    3. Representatives of NGOs operating in the barangay, who shall constitute not less than one-fourth (\frac{1}{4}) of the members of the fullyorganized council.
    4. A representative of the congressman.

Executive Committee

• Primary Functions
  • Represent the LDC when it is not in session
  • Ensure that the LDC decisions are faithfully carried out and act on matters needing immediate attention by the LDC
  • Formulate plans, policies and programs based on principles and priorities laid out by LDC.
• The provincial, city, municipal, or barangay development council shall, by resolution and within three (3) months from the date of reorganization of the LDC, create an executive committee to represent and act in behalf of the LDC when the latter is not in session.
• Members
  • Provincial
    1. Governor
    2. City/Municipal Mayor's representative
    3. Chairman of the committee on appropriations
    4. President of the provincial liga
    5. NGO representative
  • City/Municipal
    1. Mayor - Chairman
    2. Chairman of the committee on appropriations
    3. President of the city/municipal liga
    4. NGO representative
  • Barangay
    1. Punong Barangay Chairman
    2. Representative of Sangguniang Barangay
    3. NGO representative

Secretariat

• Primary Functions
  • Provide technical support to the LDC
  • Document proceedings
  • Prepare reports
  • Other support functions as may be necessary.
  • Provide both technical and administrative support
  • Assist with documentation
  • Provide other type of assistance
• Members
  • Provincial / City/Municipal
    • Local Planning and Development Coordinators
  • Barangay
    • Barangay Secretary
    • City/Municipal Planning and Development Coordinator

Sectoral or Functional Committee

• Primary Functions
  • Assist the LDC in the performance of its functions
  • Provide the LDC with data and information essential to the formulation of plans, programs and activities
  • Define sectoral or functional objectives, set targets and identify programs, projects and activities
  • Collate and analyze data and conduct studies
  • Conduct public hearings on sectoral planning, projects and activities
  • Monitor and evaluate programs and projects; and
  • Perform functions assigned by the LDC.
  • Each LDC Member to participate in Sectoral/functional committees
  • Sectoral/Functional Committee to establish direct connection with NGAs

The Development Sectors

1. Social Development
   • Population (size, growth, distribution)
   • Social services and status of well-being
     • Health
     • Education, culture, recreation
     • Welfare
     • Housing
     • Protective services
   • Gender equity concerns
2. Economic Development
   • Primary sector
     • Agricultural crops
     • Livestock
     • Fisheries (inland, brackish, marine)
     • Forestry
   • Secondary sector
     • Mining and quarrying
     • Manufacturing
     • Construction
     • Electricity, water, gas utilities
   • Tertiary sector
     • Wholesale and retail trade
     • Transportation and communication
     • Finance, insurance and related activities
     • Real estate
     • Personal and community services
     • Tourism
   • The Informal Sector
3. Infrastructure Development
   • Economic support
     • Irrigation systems
     • Power generation (mini-hydro)
     • Roads, bridges, ports
     • Flood control and drainage
     • Telecommunications
   • Social support
     • Hospitals
     • Schools
     • Waterworks and sewerage
     • Public socialized housing
     • Facilities for aged, infirm disadvantaged
   • Public administrative support
     • Government buildings
     • Jails
     • Freedom parks
     • Public assembly areas
4. Environment and Natural Resources
   • Lands
     • Lands of the public domain
     • Private and alienable and disposable lands
     • Ancestral domain
   • Forest lands
     • Protection forests
     • Production forests
   • Mineral lands
     • Metallic mineral lands
     • Non-metallic mineral lands
   • Parks, wildlife and other reservations
   • Water resources
     • Freshwater (ground, surface)
     • Marine waters
   • Air quality
   • Waste management
     • Solid waste
     • Liquid waste
     • Toxic and hazardous
5. Institutional Development
   • Organization and Management
   • Fiscal Management
   • Legislative Output
   • LGU-NGO-PO linkages

SUGGESTED SECTORAL COMMITTEE

Expanded Technical Working Group (Nice to have around)

• Other LGU officials, national government agencies operating in the locality, and important non-government organizations with functions and advocacies touching on the concerns of the particular sector. When added to the core TWG the resulting body becomes the Expanded TWG.

Full-Blown Sectoral Committee (The more the merrier)

• Other groups and individuals, mainly from non-government sectors, who have a stake in local development in whatever capacity, enrich and enliven the full-blown committee's deliberations with their varied views, agendas, and advocacies.

The Local Planning and Development Office

Functions:

1. Formulate integrated economic, social, physical, and other development plans and policies;
2. Conduct continuing studies, research, and training programs;
3. Integrate and coordinate all sectoral plans and studies;
4. Monitor and evaluate the implementation of the different development programs, projects, and activities;
5. Prepare comprehensive development plans and other development planning documents;
6. Analyze the income and expenditure patterns, and formulate and recommend fiscal plans and policies;
7. Promote people participation in development planning; and
8. Exercise supervision and control over the secretariat of the LDC.

Group Functions:

1. Information management
2. Comprehensive and multi-sectoral planning
3. Investment programming
4. Public participation promotion
5. Secretariat services to LDC

Ideal Core Planning Team

1. knowledge of the following:
   • planning process; and
   • development and governance concepts and principles
2. skills in:
   • planning
   • problem analysis,
   • technical writing, and
   • communications, and networking
3. knowledge, understanding of and sensitivity to critical development themes which LGUs are mandated to incorporate in their local plans such as:
   • poverty,
   • environment,
   • gender, and
   • peace
4. talent and proficiency in consultation processes; and
5. willingness to work with others

Non-Government Sector Participation

• Partnership between LGU and Peoples/NGO
• Joint-ventures / Cooperative arrangement
• One-fourth (\frac{1}{4}) of LDC
• Accreditation
• Sectoral committees