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

Rationalizing the Local Planning System

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

Current State of Local Planning in the Philippines

• Functionality of Local Development Councils: 83%
• LGUs Formulated Plans: More than 97% (CDP, CLUP, AIP)
• Indifferent or unsupportive Sanggunian.
• Poor or total absence of vertical linkages among National Government, Regional Government, Provincial Government, City/Municipal/Brgy Government Unit.
• Poor or total absence of horizontal linkages among sectoral concerns, including:
  • Social Development
  • Economic Development
  • Infrastructure Development
  • Environment and Natural Resources
  • Institutional Development
• Weak plan-to-budget linkage (CDP).
• Multiplicity of Plans
  • ICT Plan
  • Gender & Development Plan
  • Small & Medium Enterprise Development Plan
  • Forest Management Plan
  • FSP
  • Solid Waste Management Plan
  • Local Poverty Reduction Action Plan
  • Traffic Management Plan
• Not all of the 33 NGA-Mandated Plans/Prescribed Sectoral and Thematic Plans have been formulated because:
  • No sanctions are in place.
  • Plans were not considered necessary or beneficial.
  • Repetitive nature.
  • 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.

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

The Need for Rationalizing the Local Planning System

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

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

Components of the Local Planning System

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

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

The CLUP-CDP Process Flow

• Review
• Assessment/Impact M&E
• Existing Data & Maps
• Module 1: Initial Characterization
  • Statistical Compendium
  • Inter-Intra Area Analysis
  • By Area By Sector
  • Development Potentials & Problems
  • Vision & Aspirations for the LGU
  • Vision-Reality Gap Analysis
  • Demand-Supply Balancing
  • Data Maps
  • Further Research & Map Overlay
  • New Ecological Profile Analysis
  • Validation of Data
  • Public Consultation No. 1
  • Alternative Spatial Strategies
• Module 2: Preferred Spatial Strategy of Land Resources
  • Desired Urban Form
  • Decision Zones
  • Public Consultation
  • Policy Options
  • Overlap with the next module
  • Refined Vision & Goal Statements
  • Sieve Mapping
  • General & Urban Land Use Plan
  • Policy Formulation
  • Public Consultation No. 3
  • Draft Zoning Ordinance
  • Development Regulations
• Module 3: Sectoral Development Planning
  • Sectoral Development Objectives & Targets
  • Investment Programming
  • Sectoral Programs Projects & Activities
  • Budgeting
  • Other Local Legislations
  • Annual General Fund Budget

Implementation Tools

• CDP
  • Tax Schemes (i.e. PPP)
  • Indebtedness
  • Income from National Shares
• CLUP
  • Zoning Ordinance
  • Eminent Domain
  • Public Capital Investments
  • Co-Management

The Local Planning Structure

• Political
  • Local Sanggunian
  • Local Development Council
  • Congressman’s Representative
  • Civil Society Organizations
• Technical
  • Local Planning and Development Office
  • LGU Department Heads
  • Local Special Bodies
  • LDC Sectoral/Functional Committees
  • NGA 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

Primary Functions

• LDC:
  • 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.
• Executive Committee:
  • 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.
• Secretariat:
  • Provide technical support to the LDC;
  • Document proceedings;
  • Prepare reports;
  • Other support functions as may be necessary.
• Sectoral or Functional Committee:
  • 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.

The Local Development Council

• The Local Development Council (LDC) is a special body created under the Local Government Code of 1991 to assist the local legislative body in setting the direction of the economic and social development of the local government unit and to coordinate development efforts within its territorial jurisdiction.

Local Development Council 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 $(1 /4)$ 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 $(1/4)$ 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 $(1/4)$ of the members of the fully organized council.
  4. A representative of the congressman.

Local Development Council Functions

• Provincial / City / Municipal
  • FORMULATE
    • Plans and Policies
    • Annual Public Investment Programs
    • Investment Incentives
  • COORDINATE
    • Implementation of Development Programs and Projects
  • EVALUATE
    • Programs and Projects
• Barangay
  • MOBILIZE
    • People’s participation
  • FORMULATE
    • Barangay Development Plan
  • MONITOR AND EVALUATE
    • Implementation of Programs and Projects

The Executive Committee

• 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.

Executive Committee Members

• Provincial
  1. Governor ~ Chairman
  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

Executive Committee Functions

• ENSURE
  • Implementation of LDC decisions
• ACT
  • Immediate matters
• FORMULATE
  • Policies, Plans, and Programs
• TAKE
  • Final action on special concerns

Sectoral or Functional Committees

• Each LDC Member to participate in Sectoral/functional committees
• Sectoral/Functional Committee to establish a direct connection with NGAs
• Functions:
  1. Provide data and information
  2. Define planning details; Objectives, targets, etc.
  3. Provide analysis for information
  4. Conduct public hearings
  5. Coordinate
  6. Monitor and Evaluate

The Development Sectors and Sub-Sectors

1. 0 Social Development
   1. 1 Population (size, growth, distribution)
   2. 2 Social services and status of well-being
      1. 2. 1 Health
      2. 2. 2 Education, culture, recreation
      3. 2. 3 Welfare
      4. 2. 4 Housing
      5. 2. 5 Protective services
   3. 3 Gender equity concerns
2. 0 Economic Development
   1. 1 Primary sector
      1. 1. 1 Agricultural crops
      2. 1. 2 Livestock
      3. 1. 3 Fisheries (inland, brackish, marine)
      4. 1. 4 Forestry
   2. 2 Secondary sector
      1. 2. 1 Mining and quarrying
      2. 2. 2 Manufacturing
      3. 2. 3 Construction
      4. 2. 4 Electricity, water, gas utilities
   3. 3 Tertiary sector
      1. 3. 1 Wholesale and retail trade
      2. 3. 2 Transportation and communication
      3. 3. 3 Finance, insurance, and related activities
      4. 3. 4 Real estate
      5. 3. 5 Personal and community services
      6. 3. 6 Tourism
   4. 4 The Informal Sector
3. 0 Infrastructure Development
   1. 1 Economic support
      1. 1. 1 Irrigation systems
      2. 1. 2 Power generation (mini-hydro)
      3. 1. 3 Roads, bridges, ports
      4. 1. 4 Flood control and drainage
      5. 1. 5 Telecommunications
   2. 2 Social support
      1. 2. 1 Hospitals
      2. 2. 2 Schools
      3. 2. 3 Waterworks and sewerage
      4. 2. 4 Public socialized housing
      5. 2. 5 Facilities for aged, infirm disadvantaged
   3. 3 Public administrative support
      1. 3. 1 Government buildings
      2. 3. 2 Jails
      3. 3. 3 Freedom parks
      4. 3. 4 Public assembly areas
4. 0 Environment and Natural Resources
   1. 1 Lands
      1. 1. 1 Lands of the public domain
      2. 1. 2 Private and alienable and disposable lands
      3. 1. 3 Ancestral domain
   2. 2 Forest lands
      1. 2. 1 Protection forests
      2. 2. 2 Production forests
   3. 3 Mineral lands
      1. 3. 1 Metallic mineral lands
      2. 3. 2 Non-metallic mineral lands
   4. 4 Parks, wildlife, and other reservations
   5. 5 Water resources
      1. 5. 1 Freshwater (ground, surface)
      2. 5. 2 Marine waters
   6. 6 Air quality
   7. 7 Waste management
      1. 7. 1 Solid waste
      2. 7. 2 Liquid waste
      3. 7. 3 Toxic and hazardous
5. 0 Institutional Development
   1. 1 Organization and Management
   2. 2 Fiscal Management
   3. 3 Legislative Output
   4. 4 LGU-NGO-PO linkages

Suggested Sectoral Committee Composition

Secretariat

• Provide both technical and administrative support
• Assist with documentation
• Provide other types of assistance
• Provincial / City / Municipal
  • Local Planning and Development Coordinators
• Barangay
  • Barangay Secretary
  • City/Municipal Planning and Development Coordinator

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

Local Planning and Development Office

• Local Planning and Development Coordinator
  • Deputy Local Planning and Development Coordinator
    • Planning Information Management Division
      • Geographic Information Section
      • Statistical Database Section
      • Special Studies and Research Section
      • CLUP Updating and Revision Specialist
    • Planning and Programming Division
      • Monitoring and Evaluation Section
      • CDP Formulation Specialist
      • LDP & AIP Preparation Specialist
    • Sectoral Coordination and People Participation Division
      • Social Development Coordinator
      • Economic Development Coordinator
      • Land use & infrastructure Development Coordinator
      • Environmental Management Coordinator
      • Institutional Development Coordinator
    • Administrative Support
    • Public Information and Advocacy Service

Ideal Core Planning Team

1. knowledge of the following:
   1. planning process; and
   2. development and governance concepts and principles
2. skills in:
   1. planning
   2. problem analysis,
   3. technical writing, and
   4. 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:
   1. poverty,
   2. environment,
   3. gender, and
   4. 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 $(1/4)$ of LDC
• Accreditation
• Sectoral committees

Sources

• Rationalizing the Local Planning System, 1st Edition, DILG-BLGD, 2008
• Local Planning Illustrative Guide, DILG & European Union
• DILG MC No. 2008-156, Guide to CDP preparation for LGU
• CLUP Guidebook, Volume 1, 2013
• Primer on Barangay Development Planning, DILG-NBOO, 2020
• Baseline Study on Policy and Governance Gaps for the Local Government Support Fund Assistance to Municipalities (LGSF-AM) Program, Philippine Institute for Development Studies, 2020
• https://www.region6.dilg.gov.ph/index.php/programs/35-programs/117-rps