General Introduction

A RATIONALIZED LOCAL PLANNING

SYSTEM IN THE PHILIPPINES:1
General Introduction

1.0 INTRODUCTION

1.1 Why Rationalized Planning?

To begin with, some words about the word “rationalized” in the title.

This is the latest and possibly the last attempt to put order to the present chaos
that characterizes local planning in the Philippines. The chaotic condition owes in
part to the persistence of pre-devolution practices and also the failure to
implement to their full implications the Local Government Code provisions on
local planning. To rationalize the local planning system therefore starts with the
intention to faithfully comply with the applicable provisions of the Local
Government Code.

Another dimension of rationalization is to reduce the number of plans that LGUs

must prepare to the two comprehensive plans (CLUP and CDP) that are
mandated in the Code. This implies that national government agencies requiring
certain sectoral or topical plans of LGUs to prepare must integrate these
requirements into the CLUP or CDP, as the case may be, and allow the local
planning structure and processes to respond to these requirements.

Corollary to the above dimension is the need for NGAs that are directly involved
in local planning to harmonize or dovetail their planning guidelines with one
another to avoid further confusing the LGUs.

Yet another area of rationalization touches on reconfiguring the planning process

from its traditional technocratic form into one that accommodates the imperatives
of multi-stakeholder participation and consultation. This entails “taming” the
planning process so that even those who are not technically trained can
participate meaningfully in determining public policies and actions that affect their
lives.

Secondly, why “planning system”?

1
Prepared for the Bureau of Local Government Development, DILG, for eventual issuance to all local government units in
the Philippines
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 General Introduction

All local planning guidelines in use so far begin and end with the planning
process. This is consistent with the long-held notion about planning as a highly
technical activity reserved only for those who are “technically qualified”. Hence,
politicians and decision makers who feel they are not technically competent
tended to shy away from planning. Consequently, plans were hardly
implemented at all.

For planning to become an integral part of local governance, it must not be too
preoccupied with how to produce the plan documents alone. Of equal importance
are considerations about why LGUs ought to plan, who should be involved in
planning, and how LGU plans are implemented. Planning therefore must be
viewed holistically as a system consisting of at least four components: the
planning structure, the mandated plans, the planning process, and the LGU’s
authority levers which it can use to carry out its plans. Above all, local planning
must be understood as primarily the responsibility of the local government. The
local planning system therefore must be established on the foundation of the
nature and function of local governments.

1.2 Dual Role of Local Governments

The planning function of local governments is embedded in the dual status of

local government units (LGU) as a political unit and as a corporate body.

As a body politic the LGU is a political subdivision of the national government. It

is endowed with powers to manage its territorial jurisdiction for and on behalf of
the national government. Being a subdivision of the national State, moreover,
local governments are envisioned to become effective partners of the national
government in the attainment of national goals. To carry out this mandate, LGUs
exercise their inherent powers such as police power, as well as share with the
national government the responsibility in the management and maintenance of
ecological balance in their respective territorial jurisdiction (RA 7160, Sections 2a,
15, and 3i).

As a body corporate the LGU represents its residents, the inhabitants within its
territory. It is likewise endowed with powers and resources necessary for its
efficient and effective governance and to deliver basic services and facilities to
enable its inhabitants to develop fully into self-reliant communities. Being a
corporate body, every LGU is mandated to promote the general welfare among
the inhabitants within its territorial jurisdiction (RA 7160, Sections 2a, 15, 16 and
17).

Upon this dual personality and role of LGUs the local planning system is
established. The components of the local planning system include:

1) The organizational structure for planning and its functions,

2) The plan or plans that the planning structure is mandated to produce,

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 General Introduction

3) The processes that the planning structure will follow to produce the
desired plan outputs, and

4) The authority levers or tools with which the LGU implements its plans and
programs.

Each of these components is discussed in the chapters that follow. Only brief
descriptions are given in this General Introduction.

2.0 LOCAL PLANNING STRUCTURE

Contrary to the notion held by many local legislators, planning is not exclusively a
function of the executive. Planning is both proactive policy making and reactive
problem solving. The first character of planning makes it essentially a political act
while the second is the more popularly known character of planning, that of
management and hence, an executive function. Correspondingly, the local
planning structure has two components: political and technical.

2.1 Political Component

The political component comprises the legislative body (Sanggunian) and the
local development council (LDC). These bodies are composed mainly of elective
officials, hence, of politicians. The only non-politician members of the political
component of the local planning structure are the representatives of the private
sector and civil society who comprise one-fourth of the LDC membership. The
political component is 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.

2.2 Technical Component

The technical component is made up of the local special bodies, the sectoral and
functional committees, non-government sectors, and the office of the local
planning and development coordinator. Even the heads of offices of the local
government and of national agencies operating in the local area are part of the
technical component of the local planning structure. 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.

3.0 MANDATED LOCAL PLANS

The plan outputs that the local planning structure is mandated to produce are of
two types: the comprehensive land use plan and the comprehensive
development plan.

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 General Introduction

3.1 The Comprehensive Land Use Plan

The CLUP is the plan for the management of local territories. Planning as
management of local territories is a function of the LGU pursuant to its status as
a political unit. Hence, the body principally responsible for the CLUP is no less
than the highest policy-making body, the legislative council or Sanggunian. This
is the reason why the adoption of the CLUP and its enactment into a zoning
ordinance are planning functions exercised exclusively by the Sanggunian (RA
7160, Section 20c, 447, 458, 468). This devolved function is being exercised by
the Sanggunian on behalf of the national State which is directed by the
Constitution to “…regulate the ownership, acquisition, use and disposition of
property…” (Art. XIII, Sec. 1). State regulation of land use also implies that there
must be vertically integrated physical framework plans from the national down to
the municipal level. The CLUP therefore must be consistent with its higher
counterparts, the PPFP, the RPFP and the NFPP, at the provincial, regional and
national levels respectively. Conversely, the LGU territory is the stage upon
which national policies and programs converge and find application on the
ground. Therefore, national government agencies (NGA) are required to
coordinate or consult with LGUs before undertaking their projects (RA 7160,
Sections 26 and 27) within the local territorial jurisdiction.

In some cases, NGAs that have functional responsibility over certain portions of
LGU territory tend to exercise exclusive territorial powers over these areas as
well. This practice effectively prevents the LGU from exercising its powers over
those particular portions of its territory. And yet these “enclaves” are still
considered part of the LGU’s territorial jurisdiction. For one, the inhabitants of
such areas are regarded as residents and voters of the particular LGU. Moreover,
such NGA-held areas are included in the determination of the LGU’s total land
area as a basis for allocating its share in the internal revenue allotment (IRA).
Consistent with their status as partners in national development, LGUs shall now
share responsibility for managing the environment and natural resources within
their territorial jurisdiction (RA 7160, Sec. 3i).

In a word, the CLUP is the long-term guide for the physical development of the
local area, the framework for the management and co-management of the local
territory. At the city and municipal levels, the CLUP serves more than a
framework plan. It is at this level where the CLUP is enacted into a zoning
ordinance(RA 7160, Sec. 20c) hence, it becomes a statutory plan whose
provisions are not merely indicative but are legally enforceable.

3.2 The Comprehensive Development Plan

The CDP is the plan with which the LGU promotes the general welfare of its
inhabitants in its capacity as a corporate body. The responsibility for the CDP is
given to the LDC (RA 7160, Sec. 106 and 109). It must cover all the development
sectors to be comprehensive. (See Chapter 2 below.) Its time frame may be
multi-year but a short-term slice must be taken off which is coterminous with the

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 General Introduction

term of the elective local officials so that it can serve as an input to their
executive-legislative agenda (ELA).

The CDP consolidates the programs and projects necessary to carry out the
objectives of the different development sectors. Some of these programs and
projects are incorporated in the local development investment program (LDIP)
and are implemented through the annual investment program (AIP) and the
annual budget. Other programs may be picked up by the national government
and still others by the private sector for implementation.

The CDP, moreover, is the plan that the LGU prepares in its capacity as a
corporate body. By their involvement in the CDP process the inhabitants seek to
exercise autonomy as self-reliant communities. Therefore there should be no
more need for higher authorities to review or approve the CDP. National
agencies with sectoral responsibilities should not impose their requirements on
LGUs as though the latter were their subordinates or clients. There should be an
end to the prevailing attitude of NGAs which has been developed from decades
of dependency relationships wherein LGUs were on the receiving end of national
government’s generosity or lack of it. Only by enabling them to become self-
reliant will LGUs become effective partners in national development.

4.0 PARTICIPATORY PLANNING PROCESS

Up to this point in time planning has been consultant driven. It is the consultant
who usually does everything and when the plan output is handed over to the
LGU the latter is left not knowing what to do with it.

To benefit the most from consultants’ intervention, LGUs should require

consultants to enhance the capability of the local planning structure to perform its
planning function properly by itself. Technical inputs in the areas of data
generation, analysis and presentation should be given to the technical
component. The interpretation of the data and the explanations and implications
of information derived from the data should be undertaken through a broad
consultative and participatory process involving both political and technical
components of the planning structure and the general public. The participation of
the political component is critical at certain junctures of the planning process
when certain decisions have to be made before proceeding to the next stage of
the process.

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 General Introduction

The CLUP-CDP Process Flow

For simplicity, the preparation of the CLUP and the CDP can be divided into four
modules consistent with the capability-building approach. (Refer to chart.) Each
module is described briefly as follows:

Module I – deals with generating the planning database consisting of statistics

and maps and applying certain analytical tools and techniques to
derive various indicators of development or underdevelopment, of
problems and constraints as well as opportunities and challenges
for development. (The entire Chapter 3 below is devoted to this
module.)

Outputs: 1. Updated ecological profile of the area

2. Local Development Indicators table
3. Accomplished “Problem-Solution” matrix

Module II – has to do with formulating new goals or revalidating and/or revising

the existing vision statement.

Outputs: 1. Revalidated/revised vision statement

2. Vision elements and their respective descriptors and
success indicators
3. Vision-reality gaps transformed into sectoral goals.

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 General Introduction

Module III – formulation of the PPFP in the case of the province and the CLUP
in the case of component municipalities. Main activities include:
1. Generation of alternative spatial strategies taking into account
the regional or provincial spatial strategy and choosing the most
desirable alternative for the province or municipality, as the case
may be.
2. Formulating policies on settlements, production, infrastructure
and protection areas consistent with the preferred strategy.
3. Formulating the implementation tools.

Outputs: 1. Draft Provincial Physical Framework Plan and/or

Municipal Comprehensive Land Use Plans
2. Printed policy maps at suitable scale
3. Draft zoning ordinance

Module IV – preparation of the Multi-Year Provincial/Municipal Comprehensive

Development Plan and its main implementation instrument, the 3-
Year Executive-Legislative Agenda. Main activities include:
1. Formulating sectoral objectives and targets.
2. Prioritizing sectoral programs, projects and activities.
3. Local development investment programming.
4. Identifying new legislations needed to carry out the sectoral plan.

Outputs: 1. Multi-Year Sectoral Development Plans

2. 3-Year ELA with LDIP
3. Annual components (AIP)
4. Suggested legislative measures

Who does what and when?

Module I – mainly the responsibility of the technical component up to the

application of analytical tools and techniques. The interpretation,
that is probing into explanations and implications of the information
generated, is better done involving the political component and the
general public. The database should be updated every 3 years and
the analysis and interpretation is done initially during the CLUP
preparation. Subsequent data-handling activities will be repeated
every 3 years in conjunction with the CDP-ELA preparation. (See
chapter 3 and chapter 9 below.)

Module II – should be done with the political component and the general public.
The technical component only facilitates the proceedings. Long-
term goals are formulated for inclusion in the CLUP. Medium-term
and short-term objectives are formulated every 3 years in
conjunction with the CDP-ELA process. The long-term vision
statement should not be changed but should be carried through in
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 General Introduction

every 3-year CDP-ELA prepared subsequently. What should

change are the sectoral objectives and targets consistent with time
limits and resource constraints as well as the results of monitoring
and evaluation. (Refer to chapter 4 below.)

Module III – should be initiated by and with the full and active participation of the
Sanggunian. The technical component only facilitates the process.
It is done once and when enacted into a zoning ordinance will
remain in force until amended or repealed. Amendments or
revisions may be done in intervals of 3, 6, or 9 years, synchronized
with the term of elective officials. (Refer to chapters 5, 7 and 9.)

Module IV – is the responsibility of the local development council with inputs from
the sectoral and functional committees. The CDP and ELA will be
prepared after every local election. The AIP which is the annual
component of the LDIP is prepared every year synchronized with
the annual budget cycle. (See chapters 6, 8 and 9.)

5.0 IMPLEMENTATION TOOLS

5.1 The authority levers to implement the CLUP include the zoning ordinance,
the use of selected taxes on real property, eminent domain proceedings, public
capital investments, and co-management arrangements. These are discussed at
length in Chapter 7 below.

5.2 The tools to implement the CDP consist mainly of the use of financial
resources and fiscal authority of the LGU. Local governments are given the
powers and authority to raise the funds needed to undertake the above activities
including the levy of taxes, fees and charges, the use of their productive assets
and operation of municipal enterprises. LGUs are also entitled to a share in
national taxes as well as in the proceeds from the utilization of national wealth
and resources (Sec. 18 and 22, RA 7160). They can also secure financial grants
and donations in kind (Sec. 23) and create indebtedness in various modes such
as the build-operate-transfer (BOT) scheme wherein private capital is utilized to
fully finance the provision of certain public facilities like toll roads, public markets,
bus terminals, etc. (RA 6957, Sec. 302, RA 7160).

Despite the availability of fiscal powers to source out funds for their programs
and projects LGUs often find their resources inadequate for the requirements of
the services they must provide to their constituencies. Hence, LGUs must learn
to augment or complement public investments with desired private investments
so that the combined effect of these two investments is an increased capital build
up in the community that will redound to greater economic and social welfare of
the inhabitants. This is the rationale for the inclusion among the functions of
Local Development Councils of the formulation of private investment incentives
to promote the inflow of private investment capital (Sec. 109, a, 4). To this end,
the LDC can attract private investments in two ways, explicit and implicit.
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 General Introduction

Explicitly the LDC may draft for the adoption of the Sanggunian a series of
private investment incentives ordinances that include, among others, fiscal
measures such as local tax breaks, reduced transaction costs through the setting
up of one-stop shops or elimination of graft and corruption, as well as direct
provision of infrastructure support like access roads, power and
telecommunication lines. Implicitly, and perhaps more effectively, private
investments can be attracted into a locality by making the area a very conducive
place to do business in. Important factors that contribute toward establishing an
attractive business climate are a stable peace and order condition, a high level of
social and cultural services, and the over-all livability of the local environment.

6.0 ORGANIZATION OF THIS GUIDEBOOK

Chapter 1 - The Local Planning Structure

Chapter 2 - Planning Mandates of Local Governments

Chapter 3 - Building and Maintaining an Information Base for Planning

Chapter 4 - Goal Formulation Process

Chapter 5 - The Comprehensive Land Use Planning Process

Chapter 6 - The Comprehensive Development Planning Process

Chapter 7 - Tools for Implementing the Comprehensive Land Use Plan

Chapter 8 - The Local Development Investment Programming

Chapter 9 - Monitoring and Evaluation: Towards Cyclical Planning

Chapter 10 - Getting the Local Planning System to Work

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 Chapter 1 The Local Planning Structure

THE LOCAL PLANNING STRUCTURE

1
1.0 INTRODUCTION

Planning is or ought to be an integral function of governance. As such, it should not

be regarded as an activity reserved for a particular office or unit of the local
government bureaucracy. The truth is, every office of the LGU has an embedded
planning function. That means that the entire organizational structure of the local
government itself, including the legislative and executive branches constitutes the
proper structure for local planning. This is consistent with the essential character of
planning as both a policy-making and a problem-solving activity.

Moreover, planning should not be seen as a purely technical process in which only
the technically equipped can participate. In fact there is now a change in the way
planning should be understood, that is, from a view of planning as basically technical
to one that is essentially political. This can be gleaned from the change in the
composition of the Local Development Council. Under the earlier Local Government
Code of 1983 (Batas Pambansa 337) the LDC was composed of the Mayor/Governor
as head, and heads of offices and departments of the local government unit, as
members. The bulk of the membership then comprised the technical personnel of
various sectoral and functional agencies of government. In contrast, under the 1991
Local Government Code (RA 7160) the membership of the LDCs is predominantly
made up of politicians. The only non-politician members (but who may be equally
political in strategy and tactics) are those who represent non-governmental and
people’s organizations for whom one-fourth of the total membership is reserved.
Also the Congressman is represented in the LDC the better for him/her to integrate
his/her own projects or the development funds at his disposal into the plans and
programs of the LGU. More importantly, the Congressman’s membership in the LDCs
provides him/her opportunity to learn local issues that are of national concern which
must be addressed by no less than national policies and legislations.

Furthermore, planning is everybody’s business. If the ultimate purpose of planning is

to protect the common good or to promote the general welfare then every inhabitant
in the LGU territory has a stake in the process, in the product and in the outcome of
planning. Governance, after all, is much more than the concern of government. It
embraces the concerns of both government and non-government sectors. This is
everywhere evident in the membership of practically all local special bodies, sectoral
and functional committees wherein slots are invariably reserved for representatives of
the private sector, people’s organizations or non-government organizations.

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 Chapter 1 The Local Planning Structure

Consistent with the foregoing ideas the composition and functions of the structure for
local planning are set out in the following sections.

1.1 Components of the Local Planning Structure

The generic local planning structure consisting of the political and technical
components is depicted in Figure 1.1 below. The political component comprises
mainly the Local Sanggunian and the LDC. These two bodies lay down policy
guidelines and take decisions regarding the direction, character, and objectives of
local development. They do these in their capacity as elected representatives of the
people. In a very real sense, they are the true planners of the city, municipality or
province. The technical component on the other hand consists of non-elective
officials of the LGU, heads of national agencies operating in the area, and non-
government sectors. The Local Planning and Development Coordinator (LPDC)
serves as the technical arm and head of the LDC Secretariat. In that capacity the
LPDC “coordinates” the different programs of the LGU departments and the national
agencies operating locally. The LPDC also coordinates the different
sectoral/functional committees that provide detailed inputs to the comprehensive
multi-sectoral development plan and investment program.

Figure 1.1 COMPONENTS OF THE LOCAL PLANNING STRUCTURE

POLITICAL TECHNICAL
 Local Sanggunian  Local Planning and Development Office
 Local Development Council  LGU Department Heads
 Congressman’s Representative  Local Special Bodies
 Civil Society Organizations  LDC Sectoral/Functional Committees
 NGA Office Chiefs in the locality
 Private Sector Representatives

It may be noted that the Local Special Bodies should be seen not as co-equal but
subordinate to, and supportive of the LDC, the latter being the “mother” of all
planning and programming bodies of the LGU. Therefore LSBs should form part of
the technical component of the local planning structure.

1.1.1 The Political Component

The notion of planning as essentially political derives from an insightful reading

of the inherent weakness of Philippine planning in the past. Philippine planning
has traditionally been a technical exercise in need of political support.
Technocrats in both national and local levels prepare more or less elegant
plans but it is common knowledge that these plans merely adorn the
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 Chapter 1 The Local Planning Structure

bookshelves of office executives. The main reason for this unfortunate reality
is that legislators rarely use the plan as a basis for enacting laws and
ordinances. After the mandatory adoption of the plan, the legislative bodies
believe that their role in planning and development is over. Local sanggunians
are known to enact ordinances and to pass resolutions appropriating funds for
projects that are not identified in the local development plan or investment
program. The new LGC (RA 7160) sought to change all that. The automatic
membership in the LDC of the appropriations committee chair of the
sanggunian ensures an effective linkage between the planning and the
legislative functions, and, by implication, lends political support to an otherwise
isolated technical exercise. With the present composition of the LDC, it can be
said that the local planning structure has a very strong political component
represented by the LDC and the local sanggunian.

The important role played by the local legislative body in planning can be
summarized in this definition of the comprehensive land use plan by Hugh
Pomeroy, as quoted in Babcock: “… a plan that makes provisions for all the
uses that the legislative body of that municipality decides are appropriate for
location somewhere in that municipality; it makes provisions for them at the
intensities of use that the legislative body deems to be appropriate; at the
locations that the legislative body deems to be appropriate.”1

The unique role of the Sanggunian in local planning and development is

explicitly provided in its power to “prescribe reasonable limits and restraints on
the use of property”2 which is the basis of local land use planning. Also, and
perhaps more importantly, only the sanggunian has the power to appropriate
public funds. No development programs, projects and activities could be
implemented through the local budget without authorization from the
sanggunian. Furthermore, if planning is policy making then the sanggunian
being the highest policy-making body is the ultimate planning body in the LGU.
Sanggunian members should therefore banish their erroneous notion that
planning is an executive function alone. They are equally responsible for, and
ought to be as actively involved in planning as the executive.

1.1.2 The Technical Component

If planning is essentially political does that make technical inputs in planning

irrelevant? Not at all. For, although the heads of national government agencies
and local government departments are no longer members of the LDC, they
may be called upon to serve as resource persons whenever matters pertaining
to their areas of competence come up for deliberation in the LDC.3 This is one
of the means whereby the LDCs avail of technical inputs from “consultants-on-
1
Babcock, Richard, “The Purpose of Zoning” in Stein, Jay M. ed. Classic Readings in Urban Planning, An Introduction. New
York: McGraw-Hill, Inc., 1995, p. 138 (underscoring supplied)
2
See Sec. 447, 458 and 468, RA 7160
3
See Sec. 107 (d) of RA 7160
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 Chapter 1 The Local Planning Structure

call” in the formulation of local development plans and public investment

programs.
The other modality by which the LDC procures technical inputs in their
planning and programming functions is through the formation of sectoral or
functional committees.4 The sectoral committees, when properly constituted
will ensure a comprehensive multi-sectoral coverage of the local development
plan and investment program. Often, however, the so-called sectoral
committees that LGUs organize such as those on agriculture, tourism,
housing, etc. are actually sub-sectoral components of the different
development sectors. A 3-digit classification of the five development sectors
and their respective sub-sectoral components is shown in Box 1 below.

For a truly comprehensive coverage of every conceivable aspect of local

development the LDC must organize sectoral committees and not merely
content themselves with creating sub-sectoral committees. The LDC should
also make sure that technical committees draw membership from all societal
sectors: government, private, academe, religious, professions, and so on.
Even the members of the Sanggunian, NGOs/POs, whether accredited or not,
and individuals without any group affiliations can be accommodated in the
sectoral committees. Especially during planning and programming workshops
or during public consultations a fair cross-section of the local community and
society could be obtained through expanded sectoral committees (see Box 3).
Of course, in an expanded LDC such as this, everyone must have the privilege
of a voice but only the regular members of the LDC have the privilege of a
vote. The accordion-type structure allows flexibility to limit or expand
membership depending on local conditions and on the nature and magnitude
of the task a particular committee will address. Sectoral committees should be
constituted as standing committees of the LDC to serve coterminous with the
Council.

In the case of functional committees, these are ad hoc multi-sectoral bodies to

be created as the need arises. To the extent possible, membership of
functional committees should be drawn from the sectoral committees.

4
See Sec. 112, RA 7160
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 Chapter 1 The Local Planning Structure

Box 1 DEVELOPMENT SECTORS AND SUB-SECTORS

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 Chapter 1 The Local Planning Structure

Box 2 STRUCTURE OF LDC

Primary Functions
LDC:
 Formulate development plans and policies;
LDC  Formulate public investment programs;
In Plenary  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;
Executive  Monitor and evaluate implementation of national or
Committee 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
Secretariat 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;
Sectoral or Functional  Provide the LDC with data and information
Committees essential to the formulation of plans, programs and
activities;
 Social  Define sectoral or functional objectives, set targets
 Economic and identify programs, projects and activities;
 Infrastructure  Collate and analyze data and conduct studies;
 Conduct public hearings on sectoral planning,
 Environment and
projects and activities;
Natural  Monitor and evaluate programs and projects; and
Resources  Perform functions assigned by the LDC.
 Institutional

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 Chapter 1 The Local Planning Structure

Box 3 SECTORAL COMMITTEE COMPOSITION

Sectoral Core Technical Expanded Technical Full-Blown Sectoral
Committee Working Group Working Group Committee
(Must be there) (Nice to have around) (The more the merrier)
1. SOCIAL MPDO Staff Police Chief Sports Organizations
DEVELOPMENT SWDO Fire Marshall Religious Leaders
MHO Local Civil Registrar Labor Groups
POSO Population Officer Senior Citizens
LDC Rep (brgy) PCUP Media Reps
LDC Rep (CSO) Nutrition Officer YMCA/YWCA
District Supervisor Housing Board Rep Inner Wheel Club
PTA Federation NSO School Principals
Sanggunian Rep Manager GSIS/SSS Charitable Organizations
2. ECONOMIC PESO DTI Representative Lions Club
DEVELOPMENT Agriculturist Chambers of Commerce Jaycees
Tourism Officer & Industry Rotary Club
Coop Devt Officer Trade Unions Academe
MPDO Staff Bank Managers Other interested groups
LDC Rep (brgy) Market Vendors and individuals
LDC Rep (CSO) Sidewalk Vendors
Sanggunian Rep Cooperatives
Transport Orgs
3. PHYSICAL/ Municipal Engineer Electric Coop Rep Other interested groups
LAND USE Zoning Officer Water District Rep and individuals
DEVELOPMENT MPDO Staff Real Estate Developers
LDC Rep (brgy) Professional
LDC Rep (CSO) organizations
Sanggunian Rep Telecommunications
Municipal Architect companies
Academe
4. ENVIRON- MPDO Staff Sanitary Inspector Environmental
MENTAL LDC Rep (brgy) CENRO Advocates
MANAGEMENT LDC Rep (CSO) PENRO Other interested groups
General Services Head FARMC Reps and individuals
LG-ENRO BFAR Rep
Sanggunian Rep Heads of private
hospitals
Academe
5. INSTITUTIONAL MPDO Staff HRDO Religious groups
DEVELOPMENT LDC Rep (brgy) Treasurer Good Governance
LDC Rep (CSO) Budget Officer advocates
LGOO Assessor Other interested groups
Local Administrator Academe and individuals
Sanggunian Rep
CORE TECHNICAL WORKING GROUP – composed of Local Government officials and functionaries
whose tasks and responsibilities address the concerns of the particular sector directly or indirectly.
“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.
“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.
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 Chapter 1 The Local Planning Structure

Although the formation of sectoral committees is optional as indicated by the

use of the word “may”, LDCs should not miss the potential value of sectoral
committees to provide substantial inputs through their continuing engagement
in all stages of the planning and development process. The range of their
functions can be appreciated from the list in Sec. 1.2.3 below. Creating
sectoral committees is probably more effective than the one-shot, on-call
consultation as a means by which the LDCs procure technical inputs.

The importance of the sectoral committees is further highlighted by the fact

that their functions parallel those of the local planning and development
coordinators. With all the sectoral committees functioning as intended all that
the local planning and development coordinator should do is “coordinate” their
activities and integrate their outputs. After all, this is what the term
“coordinator” in his/her position title means: to coordinate the different
development sectors and not only the different department heads of the local
government. The creation of sectoral committees is even more to be
encouraged in the case of cities and municipalities that cannot afford to hire
adequate staff to organize their LPDO to its full complement. All that the few
personnel need to do is to coordinate the sectoral/functional committees and
make them work with the LPDO. (See Sec. 1.2.3 below.)

1.2 Functions of the Local Planning Structure

The institutional structure of local planning and development is spelled out in Title
Six, Sections 106-115 of the Local Government Code. The principal function of
this planning structure is to initiate the formulation of the “comprehensive multi-
sectoral development plan” for approval by the provincial, city, municipal, or
barangay level legislative council. The composition, functions, relationships,
activities and other details about the Local Development Council (LDC) as the
planning body of each LGU are:5 (See Box 2 and Box 3.)

1.2.1 Local Development Councils

1) Composition

(1) Provincial
The provincial development council shall be headed by the governor and
shall be composed of the following members:

a. All mayors of component cities and municipalities;

5
As summarized in Article 182, Rule XXIII of the Implementing Rules and Regulations of RA 7160.
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 Chapter 1 The Local Planning Structure

b. The chairman of the committee on appropriations of the sangguniang

panlalawigan;

c. The congressman or his representative; and

d. 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.

(2) City/Municipal
The city or municipal development council shall be headed by the mayor
and shall be composed of the following members:

a. All punong barangays in the city or municipality;

b. The chairman of the committee on appropriations of the sangguniang

panlungsod or sangguniang bayan concerned;

c. The congressman or his representative; and

d. 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.

(3) Barangay
The barangay development council shall be headed by the punong
barangay and shall be composed of the following members:

a. Members of the sangguniang barangay;

b. 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.

c. A representative of the congressman.

2) Representation of NGOs

Within a period of sixty (60) days from the organization of LDCs, NGOs shall
choose from among themselves their representatives to said LDCs. The
sanggunian concerned shall accredit NGOs.

3) Functions of LDCs

(1) The provincial, city, and municipal development councils shall:

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 Chapter 1 The Local Planning Structure

a. Formulate long-term, medium-term, and annual socioeconomic

development plans and policies;

b. Formulate medium-term and annual public investment programs;

c. Evaluate and prioritize socioeconomic development programs and

projects;

d. Formulate local investment incentives to promote the inflow and

direction of private investment capital;

e. Coordinate, monitor, and evaluate the implementation of development

programs and projects; and

f. Perform such other functions as may be provided by law or competent

authority.

(2) The barangay development council shall:

a. Mobilize people's participation in local development efforts;

b. Prepare barangay development plans based on local requirements;

c. Monitor and evaluate the implementation of national or local programs

and projects; and

d. Perform such other functions as may be provided by law or competent

authority.

4) Meetings

The LDCs shall meet at least once every six (6) months or as often as may be
necessary.

1.2.2 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.

1) Composition

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 Chapter 1 The Local Planning Structure

a. The executive committee of the provincial development council shall be

composed of the governor as chairman, the representative of the
component city and municipal mayors to be chosen from among
themselves, the chairman of the committee on appropriations of the
sangguniang panlalawigan, the president of the provincial liga ng mga
barangay, and a representative of NGOs that are represented in the
LDC, as members.
b. The executive committee of the city or municipal development council
shall be composed of the mayor as chairman, the chairman of the
committee on appropriations of the Sangguniang Panlungsod or
Sangguniang Bayan, the president of the city or municipal liga ng mga
barangay, and a representative of NGOs that are represented in the
LDC, as members.

c. The executive committee of the barangay development council shall be

composed of the punong barangay as chairman, a representative of the
sangguniang barangay to be chosen from among its members, and a
representative of NGOs that are represented in the LDC, as members.

2) Powers and Functions.

a. Ensure that the decisions of the LDC are faithfully carried out and
implemented;

b. Act on matters that need immediate attention and action of the LDC;

c. Formulate policies, plans, and programs based on the objectives and

priorities set by the LDC; and

d. Take final action on matters that may be authorized by the LDC except
the approval of local development plans and annual investment plans.

3) Meetings. The executive committee shall hold its meetings at least once a
month. Special meetings may be called by the chairman or by a majority of
its members.

1.2.3 Sectoral and Functional Committees

1) Organization

The LDCs may form sectoral or functional committees to assist them in the
performance of their functions. Each member of the LDC shall, as far as
practicable, participate in at least one sectoral or functional committee.
Also, it is highly desirable for each Sanggunian member to select at least

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 Chapter 1 The Local Planning Structure

one sectoral committee to join in and act as the champion or sponsor of

that sector’s programs and projects in the legislative council.

2) Functions

To ensure policy coordination and uniformity in operational directions, the

sectoral and functional committees shall directly establish linkages with
NGAs and such sectoral or functional committees organized by the
government for development, investment and consultative purposes.
Consistent with national policies and standards, the sectoral or functional
committees shall:

a. Provide the LDC with data and information essential to the formulation
of plans, programs, and activities;

b. Define sectoral or functional objectives, set targets, and identify

programs, projects, and activities for the particular sector or function;

c. Collate and analyze information and statistics and conduct related

studies;

d. Conduct public hearings on vital issues affecting the sector or function;

e. Coordinate planning, programming, and implementation of programs,

projects, and activities within each sector;

f. Monitor and evaluate programs and projects; and

g. Perform such other functions as may be assigned by the LDC.

1.2.4 Secretariat

There shall be constituted for each LDC a secretariat responsible for

providing technical and administrative support, documenting proceedings,
preparing reports; and providing such other assistance as may be required
by the LDC. The LDC may avail of the services of any NGO or educational
or research institution for this purpose.

The secretariat of the provincial, city, and municipal development councils

shall be headed by their respective local planning and development
coordinators.

The secretariat of the barangay development council shall be headed by the

barangay secretary who shall be assisted by the city or municipal planning
and development coordinator concerned.
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 Chapter 1 The Local Planning Structure

1.2.5 The Local Planning and Development Office

1) Organization

An organizational structure of the LPDO that is responsive to the

multifarious tasks assigned to it has the following salient features:

a. The Local Planning and Development Coordinator (LPDC) may be

aided by a deputy coordinator who shall coordinate the activities of the
three functional divisions to allow the LPDC to attend to external
matters and inter-departmental linkages.

b. There will be two staff support services: administrative support and

public information. The administrative support staff shall serve as the
core staff in providing secretariat services to the Local Development
Council, in addition to its support function to the LPDO. The public
information and advocacy service is a new but necessary function of
the LPDO to educate the public on planning issues and concepts and
thus enable the public to participate intelligently in efforts to resolve
those issues.

c. The functional divisions respond to the mandated functions of the office.

The divisions are further supported by sections or services that reflect
the subjects or areas of responsibility of each functional division.

In the case of large and high-income cities that can afford to hire adequate
number of personnel in their local planning offices, a suggested structure of
the Local Planning and Development Coordinator’s Office that combines
functional and sectoral concerns is given below. (See Figure 1.2)

2) Functions

a. Formulate integrated economic, social, physical, and other

development plans and policies;

b. Conduct continuing studies, research, and training programs;

c. Integrate and coordinate all sectoral plans and studies;

d. Monitor and evaluate the implementation of the different development

programs, projects, and activities;

e. Prepare comprehensive development plans and other development

planning documents;

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 Chapter 1 The Local Planning Structure

f. Analyze the income and expenditure patterns, and formulate and

recommend fiscal plans and policies;

g. Promote people participation in development planning; and

h. Exercise supervision and control over the secretariat of the LDC.

Figure 1.2 FULL-BLOWN ORGANIZATIONAL STRUCTURE OF THE

LOCAL PLANNING AND DEVELOPMENT OFFICE

3) Grouping of Functions

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 Chapter 1 The Local Planning Structure

The functions of the LPDO may be grouped into the following subjects
corresponding to the major subdivisions of the planning process:

(1) Information management. This combines functions b and d. It involves

generation, processing, storage and retrieval of sectoral planning
information. Through the conduct of continuing studies and researches
by the sectoral committees the LPDO builds up new information for
planning and programming. In addition, feedback information collected
through monitoring and evaluation of the impacts of program and
project implementation as well as the effects of development regulation
constitutes a major component of the planning database. Under this
function falls the task of building up and maintaining the Local
Development Indicators system.

(2) Comprehensive and multi-sectoral planning. This function puts together

functions a, c and e. It involves preparation, update or revision of the
comprehensive land use plan and the comprehensive development
plan.

(3) Investment programming. This combines functions c and f. This

involves culling out programs and projects from the different sectoral
plans of the CDP, which are of local ownership and responsibility to be
included in the three-year LDIP and the AIP. This function also involves
generating appropriate measures for attracting private investments into
the locality (including drafting proposed resolutions and ordinances
when necessary) for the local sanggunian to enact.

(4) Public participation promotion. Listed as function g, this requires of the

LPDO effective skills in organizing and coordinating public
consultations, seminars, workshops and other modes of involving the
different sectors of society in all stages of the planning process.

(5) Secretariat services to the LDC. This is function h and it involves

keeping minutes and records, setting agenda and related matters
pertaining to the activities of the Local Development Council.

Except for function e above, the other functions of the LPDO are covered
by the functions of the Sectoral Committees within the LDC. It is obvious
that the LPDO needs to align its internal organizational set-up. In terms of
staff capabilities, two generic abilities must be developed by the LPDO
staff: 1) familiarity with all aspects and stages of the planning process; and
2) ability to coordinate activities of the different sectoral committees and
integrate their outputs.

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 Chapter 1 The Local Planning Structure

Most local planning and development offices have inadequate staff with
which to organize a planning structure that remotely approximates the full-
blown structure described above. But those LGUs that have the capability
are strongly encouraged to reorganize their LPDOs accordingly. Others
can do it gradually, making use of such stop-gap measures as matrix
organization, inter-office secondment of personnel, and the like. It must be
understood that the functions listed above are the minimum. Having little
resources is not an excuse for not performing those functions.

1.2.6 Non-Government Sector Participation

The Local Government Code explicitly directs LGUs to promote the

establishment and operation of people’s and non-governmental organizations
as active partners in the pursuit of local autonomy (Sec. 34). The Code further
encourages LGUs to provide assistance, financial or otherwise, to POs/NGOs
that seek to undertake projects that are economic, socially-oriented,
environmental, or cultural in character (Sec. 36). Moreover, where the POs/
NGOs are able to marshal adequate resources of their own, LGUs are
enjoined to enter into joint ventures and similar cooperative arrangements with
them. Such joint undertakings may be for the delivery of basic services,
capability building and livelihood projects. These joint ventures may also
include the development of local enterprises designed to improve productivity
and incomes, diversify agriculture, spur rural industrialization, promote
ecological balance, and promote the economic and social well-being of the
people. (Sec. 35).

Probably the most ample avenue for NGO/PO participation in local planning
and development is the allocation to non-governmental organizations of one-
fourth of the total membership of the Local Development Council. Entry,
however, is not open to all POs/NGOs. They have to go through an
accreditation procedure. Those that gain accreditation get to enjoy access to
other local special bodies like the local bids and awards committee, the local
health board, and selected functional and sectoral committees.

Those that are not favored with formal membership in the LDC however, do
still have opportunities for participation, that is, through the sectoral
committees. By actively participating in sectoral planning and programming
activities, POs/NGOs may in fact equalize representation with the government
sector and to that extent influence public policies.

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