Upload
jolaz26
View
58
Download
6
Tags:
Embed Size (px)
DESCRIPTION
CDP ELA ARMM
Citation preview
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in
A Manual on the Local Planning Process: Formulating the CDP andELA in ARMMCopyright 2009 Local Governance Support Program in ARMM(LGSPA)
All rights reserved.
The Local Governance Support Program in ARMM (LGSPA) encouragesthe use, translation, adaptation and copying of this material for non-commercial use, with appropriate credit given to LGSPA.
Although reasonable care has been taken in the preparation of thismanual, neither the publisher nor contributor, nor writer can accept anyliability for any consequences arising from the use thereof or from anyinformation contained herein.
ISBN 978-971-94065-1-8
Printed and bound in Davao City, Philippines
Published by:
The Local Governance Support Program in ARMM (LGSPA)Unit 72 Landco Corporate CentreJ.P. Laurel Avenue, Bajada8000 Davao City, PhilippinesTel. No. 63 2 227 7980-81www.lgspa.org.ph
This project was undertaken with the financial support of theGovernment of Canada provided through the Canadian InternationalDevelopment Agency (CIDA).
Technical Team
WriterJulie Catherine Paran
Technical AdvisorDivina Luz Lopez
Editorial and Creative DirectionMyn Garcia
Technical Review TeamAl Madal, Assistant Regional Director, RPDO-ARMMIsa Romancap, Provincial Director, DILG- MaguindanaoEva K. TanDivina Luz LopezMerlinda Hussein
Cecille IsubalMyn Garcia
ContributorRizal Barandino
Technical CoordinationMaya Vandenbroeck
Art Direction, Cover Design and LayoutJet Hermida
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in
A MANUAL ON THE LOCAL PLANNING PROCESS:
Formulating the CDP and ELA in ARMM
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in
ContentsLIST OF TABLES II
LIST OF FIGURES III
LIST OF BOXES IV
FOREWORD 1
ACKNOWLEDGEMENTS 3PREFACE 5
INTRODUCTION 7
Some Implications of ARMM Autonomy 7Autonomy, Planning and Responsive Service Delivery 8Rationalized Planning System 9The Major LGU Plans and Implementing Mechanisms 10
ABOUT THE MANUAL 13
GETTING STARTED 15
1.1 Orienting the Local Chief Executive and the Sangguniang Bayan/Panlungsod 151.2 Organizing and Mobilizing the Planning Team 171.3 Training the Planning Team 231.4 Conducting Preliminary Work 23
FORMULATING THE PLAN 272.1 The CDP and ELA 272.2 Legislation and Policy Issuances on CDP and ELA 292.3 The CDP and ELA Formulation Process 302.4 Integrating Plans 322.5 Updating the CDP and ELA 332.6 Formulating/Revisiting the LGU Vision and Mission Statements 342.7 Determining the Vision-Reality Gap 372.8 Formulating/Validating Goals and Objectives 502.9 Formulating Strategies 572.10 Identifying Programs and Projects 592.11 Determining CDP Legislative Requirements 61
GEARING UP FOR PLAN IMPLEMENTATION 65
3.1 Formulating the Executive and Legislative Agenda 65
3.2 Integrating Lower Level Plans 713.3 The Local Development Investment Program 713.4 The Annual Investment Program 913.5 Translating the AIP into the Budget 973.6 Determining Capacity Development Needs for ELA Implementation 101
ADVOCATING THE PLAN 107
4.1 The Communications Plan 1074.2 Developing the Communications Plan 1084.3 Implementing the Communications Plan 112
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in
II
MONITORING & EVALUATION 115
5.1 What is Monitoring and Evaluation (M & E)? 1155.2 Developing the M & E Strategy 1195.3 Effectively Communicating and Using M&E Results 121
ANNEXES 125
LIST OF TABLES
Table 0.1 Hierarchy and Relationship of LGU Plans 12Table 1.1 Sphere of Influence and Potential Contribution Table 20Table 2.1 The Six Development Sectors of ARMM 28Table 2.2 The CDP and ELA Process 31Table 2.3 Current Reality Rating Scale 44Table 2.4 Example of Vision-Reality Gap Analysis 44Table 2.5 LGPMS Performance Levels and Implications to Planning 45Table 2.6 Using the LGPMS Single Year Report 46Table 2.7 Interpreting the LGPMS Matrix 46Table 2.8 Using LGPMS Comparative Performance 47Table 2.9 Using LGPMS Performance Trends 47Table 2.10 CBMS Scores, Municipality of Labo, Camarines Norte 48
Table 2.11 Local Development Indicators, Sta Elena Camarines Norte 2003 49Table 2.12 Differences between goals and objectives 51Table 2.13 LGPMS Outcome Indicators for Social Services 52Table 2.14 Core Local Poverty Indicators (CLPIs) 53Table 2.15 Results and Success Indicators 54Table 2.16 Results and Targets 55Table 2.17 Setting Targets Based on LGPMS Comparative Performance 57Table 2.18 Setting Targets Based on LGPMS Performance Trends 57Table 2.19 Guide to Identifying Strategies 59Table 2.20 Identifying Programs and Projects Using LGPMS 61Table 2.21 CDP Legislative Requirements 62Table 3.1 Steps in Developing the ELA 68Table 3.2 Guide to Distinguish Projects from Non- Projects 75Table 3.3 Sifting Projects from Non-Projects 76
Table 3.4 Sifting Projects for Ownership 77Table 3.5 Time Series Record of Property Tax Revenue 79Table 3.6 Time Series Record of Revenue Other than Property Tax 80Table 3.7 Time Series Record of LGU Operating Expenditures 81Table 3.8 Obligated Debt Service Expenditure 81Table 3.9 Projection of Property Tax Revenue 82Table 3.10 Projection of Total Revenue 83Table 3.11 Projection of LGU Operating Expenditure 83Table 3.12 Projection of New Investment Financing Potential 84Table 3.13 Local Development Investment Program (LDIP) Project Summary 85Table 3.14 Reference Code by Sector and Sub-Sector 95Table 3.15 AIP Form 96Table 3.16 Sample of a Capacity Development Plan for ELA Implementation 103Table 4.1 Communication Plan Matrix 109
Table 4.2 IEC Implementation Plan Matrix 112Table 5.1 Salient Features of Monitoring and Evaluation 116Table 5.2 M&E Points in a Three-Year Term of Offi ce 118Table 5.3 M&E Strategy 120Table 5.4 Local Governance Performance Management System 121Table 5.5 Annual/End-Of-Term Accomplishment Report 123
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in
LIST OF FIGURES
Figure 1.1 Structure of the Planning Team 21Figure 1.2 Session Flow of the Training and Planning Workshop 24Figure 2.1 Simplified CDP and ELA Process 32Figure 2.2 GIS Map showing access of households to sanitary toilets 49Figure 2.3 Relationship Between Goals & Objectives: An Example 50
Figure 2.4 Strategy Formulation using SWOT 58Figure 3.1 Link of CDP Legislative Requirements and LA 70Figure 3.2 Local Funds for Development 72Figure 3.3. LDIP Process as a Link between Development Planning and Budgeting 73Figure 3.4 LGU Financing Options 86Figure 3.5 Plan-Budget Flow 91Figure 3.6 Local Planning and Budgeting Linkage8 92Figure 3.7 Timetable and Activity Flow of the AIP Preparation Process 94Figure 3.8 Budget Preparation Process 99Figure 3.9 Major Contents of the Executive Budget 100
LIST OF BOXES
Box 1.2 PICT as Functional Committee of the LDC in ARMM 17Box 1.3 Multi-stakeholder Participation in CDP and ELA Formulation: 18 The Buldon, Maguindanao Experience 18Box 1.4 Benefits of Training Elective Offi cials: The Case of Upi, Maguindanao 23Box 1.5 Formulating the CDP and ELA 25Box 2.1 Calanogas, Lanao del Surs Poverty Reduction Thrust: Working
Hand-in-Hand with National Government 33Box 2.2 Formulating the Vision 34Box 2.3 Examples of LGU Visions 35 Conflict Sensitive and Peace Promoting Vision 35 Turtle Islands, Tawi Tawi Vision: Ambitious yet Well-grounded 35 Basilans Shared Vision that Recognizes Diversity 35Box 2.7 Types of Vision Statements 36Box 2.6 Tips in Crafting the Vision 36Box 2.8 Conflict Sensitive and Peace Promoting Mission 37 Sumisip, Basilan Mission: 37 Achieving the Purpose through People Participation 37Box 2.11 Examples of ARMM Mission Statements 38Box 2.11 Examples of ARMM Mission Statements 39Box 2.12 SMART Criteria for Developing Goals and Objectives 52Box 2.13 Importance of Project Identification Phase 59Box 2.14 Adapting Good Practice: the Southwestern Liguasan Alliance of
Municipalities (SLAM), Maguindanao 60Box 3.1 Converging on a Blueprint for Development: Acting in Concert in Upi, Maguindanao 67 The ELA as Resource Mobilization Tool: The Kapatagan, Lanao del Norte Experience 67 Prioritizing Peace and Human Security in Kapatagan, Lanao del Norte 67Box 3.4 Sample Format Of The Executive And Legislative Agenda 69Box 3.5 The LDIP 71
Box 3.6 Preparing Project Briefs 78Box 3.7 Managing the Fiscal Gap in Barangay Sarmiento, Parang, Maguindanao 88Box 3.8 Example of a Financing Scheme for LGU Projects: 90 Local Urban Water Supply Project of the Development Bank of the Philippines (DBP) 90Box 3.9 Example of Capacity Assessment for a Revenue Goal 104Box 4.1 Pre-testing Methods for Communication Strategies 112Box 5.1 Conducting Orientation Meeting for the Monitoring Team 117Box 5.2 The 120 Days Governors Report of Shariff Kabunsuan 119Box 5.3 The State of Local Governance Report of the Municipality of Wao, Lanao del Sur 122 Measuring LGU Performance 122
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in
IV
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in
Assalamo Alaikum Warahmatullahi Wabarakatuho!
HE DEPARTMENT OF THE INTERIOR AND LOCAL
Government-ARMM (DILG-ARMM) congratulates the Local
Governance Support Program in ARMM (LGSPA) for publishing
A Manual on the Local Planning Process: Formulating the CDP
and ELA in ARMM.This manual is indeed a significant and timely
contribution to the Departments continuing efforts to enhance the
quality of local governance in the Autonomous Region in Muslim Mindanao (ARMM).
In a region like ARMM, the pursuit of peace and development through excellence in
local governance is an important, albeit, challenging endeavour. And it begins with
strong and effective leadership that sets a clear vision for the LGU, steering it to theright direction towards this vision and building multistakeholder ownership.
Alongside strategic and effective leadership is the crucial process of local develop-
ment planning, which is fundamental in equipping local chief executives in charting
the future of their localities in ARMM. Good governance is about building partner-
ships and engaging the participation of various stakeholders in promoting shared
ownership of plans and shared accountability of results. Convergence and participa-
tory approaches in local development planning foster transparency, accountability,
responsiveness and effectiveness in and of governance.
DILG-ARMM would like to thank the LGSPA for taking the LGUs in ARMM througha productive process in formulating and implementing their Comprehensive Devel-
opment Plans (CDPs) and the Executive and Legislative Agendas (ELAs) that rein-
forces efforts to make local autonomy more meaningful for the people of ARMM.
orewordF
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in-
2
This manual is undeniably a useful reference for the leadership and technical staff of
LGUs in ARMM. DILG will continue to promote its use to local governments as they
continue to respond to the provisions of the Muslim Mindanao Autonomy Act No. 25
in strengthening local autonomy in ARMM, empowering communities and improv-ing peoples lives.
More power and Wassalam!
Hon. Ansaruddin A. Adiong
Regional Vice Governor, Autonomous Region in Muslim Mindanao (ARMM)
Regional Secretary, Department of the Interior and Local Government in ARMM
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in-
HIS PUBLICATION WAS MADE POSSIBLE THROUGH THE
dedication and collective efforts of individuals and teams whohave willingly shared their ideas and valuable time in conceptual-
izing and developing this Manual.
The Local Governance Support Program in ARMM (LGSPA)
would like to thank
the Local Chief Executives, Vice Local Chief Executives, Provincial Inter-Agency
Coach Teams (PICTs), Local Planning and Development Coordinators, Local Legisla-
tive Councils, Local Government Operations Offi cers, Civil Society Organizations
and community representatives and the rest of the technical staff of local govern-
ments in ARMM who formulated and implemented their CDPs and ELAs and pro-vided the good experiences and content included in this Manual
Local Resource Partners and On-Site Coaches who helped local governments in
formulating and implementing responsive and relevant CDPs and ELAs. Without
their expertise, LGSPA would not have been able to successfully implement its initia-
tive in strengthening local development planning process in ARMM
The Technical Team of this publication who were so committed to developing and
seeing through the completion of the manual
LGSPA managers and staff who contributed in many ways to the completion of thisManual and in promoting an integrated local development planning process that is
able to make a difference in promoting good governance in ARMM
cknowledgementsA
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in-
4
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in-
MANUAL ON THE LOCAL PLANNING PROCESS:
Formulating the CDP and ELA in ARMMrepresents the collective
experience of some 118 local governments that were supported
by the Local Governance Support Program in ARMM (LGSPA) in
crafting and implementing their Comprehensive Development
Plans (CDPs) and their term based action plan, the Executive and
Legislative Agendas (ELAs). This manual is a synthesis of the insights and lessons
learned from these experiences. It is also another testament to the continuing
commitment of LGSPA to knowledge building and sharing in the arena of local
governance in ARMM.
This publication is aligned with LGSPAs efforts to promote meaningful local au-
tonomy in ARMM leading to genuine and people-centered development, which can
only happen if local governments are able to formulate and implement well though-
tout and consultative plans that recognize the political, economic, social and cultural
uniqueness of ARMM.
This manual is also in support of the Rationalized Planning System, being pursued
by the Department of the Interior and Local Government (DILG), which aims among
others to a) reduce the number of plans that LGUs must prepare, b) reconfigure the
planning process to make it more participatory and consultative, c) underscore the
importance of the legislative body as partners of the executive branch in planning for
their jurisdictions and d) promote the development of a medium term CDP and its
term-based action plan - the LGUs 3 year ELA. As well, this manual reinforces and
advocates the need for vertical and horizontal integration of local development plan-
ning including the interface between LGUs and regional government agencies and
complementation between and among the different LGUs in planning and budgeting.
refaceP
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in-
6
The CDP and the ELA have been shown to be powerful tools to guide local offi cials
in ARMM to become better development managers to help communities in the
region become self-reliant. This manual will assist them to sustain the changes theyhave begun to instill in their respective localities.
It is our hope that this publication will help local offi cials, the Provincial Inter-agency
Coach Teams (PICTs), local planners and other local government actors to engage
in local development processes that will result in improved and responsive gover-
nance in ARMM.
Local Governance Support Program in ARMM (LGSPA)
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in-
SOME IMPLICATIONS OF ARMM AUTONOMY
The 1987 Constitution explicitly bestows the granting of genuine
autonomy to Muslim Mindanao. Among the powers promised the
autonomous regions are the following:
Administrative organization1.
Creation of sources of revenues2.
Ancestral domain and natural resources3.
Personal, family, and property relations4.
Regional urban and rural planning development5.
Economic, social, and tourism development6.
Educational policies7.
Preservation and development of the cultural heritage and8.
Such other matters as may be authorized by law for the promotion of9.
the general welfare of the people of the region.
Prior to the Constitution of 1987, national policies were uniformly imple-
mented in all regions of the country that did not allow for variances in ap-
proach. The Local Government Code of the Autonomous Region in Mus-
lim Mindanao- Muslim Mindanao Autonomy Act No. 25 (MMA No. 25)
allows ARMM jurisdictions flexibility and more power to accelerate their
economic growth and upgrade the quality of life of the people of ARMM
(Sec 5c MMA No. 25). This has opened up opportunities for local govern-
ments in ARMM to experiment on what works best for their areas.
Likewise, the powers under the MMA No. 25 provide possibilities for the
territorial and political subdivisions of the Autonomous Region in Muslim
Mindanao (provinces, cities and municipalities) genuine and meaningful
local autonomy to enable them to attain their fullest development as self
reliant communities and make them more effective partners in the attain-
ment of regional goals.
7
Introduction
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in-
8
A strong argument that has been put forward in favor of local autonomy is its positive
effects to the more effi cient, effective and responsive delivery of services. It has been
argued that government efforts are seen as too sluggish largely because decision-making
is centralized in the national government (Tanggol, 1990). It has been surmised that
autonomy would rid the wariness among the Muslims, increase their trust in the govern-
ment and pave the way for the unhampered implementation of the development pro-grams in the region (Ibid).
AUTONOMY, PLANNING AND RESPONSIVE SERVICE DELIVERY
With all the arguments for autonomy, it is surmised that it is good. However, real au-
tonomy does not necessarily lead to development. Real development for the people of
ARMM can only happen if local governments improve their allocative effi ciency (de-
fined as spending on the right things) through the formulation and implementation of
well thought out plans that recognize the political, economic, social and cultural factors
unique to ARMM.
There is wide acceptance that local government units (LGUs) in ARMM need to formu-
late plans that fit the regions conditions without losing sight of the experiences and
lessons learned of other local governments outside ARMM.
The Phase II of the Local Government Support Programs (LGSP II) efforts to improve
the allocative effi ciency of ARMM LGUs started as early as 2002 when it assisted 23
LGUs in the ARMM develop their Executive Agenda. However, while the Executive
Agenda assistance was successful and groundbreaking, the tool itself proved to be inad-
equate in managing an LGU since it did not engage the legislative branch as partners in
the process. In 2004, 110 ARMM LGUs were assisted in coming up with their Executive-Legislative Agenda, which equally engaged both branches of government. In 2007, the
Local Governance Support Program in ARMM (LGSPA) introduced the CDP-ELA to 118
LGUs to help local governments manage their respective jurisdictions in the medium
and short term.
While the ELA proved to be effective in guiding how LGUs spent their budgets during
their term of offi ce, it was not suffi cient in ensuring continuity of funding for programs
and projects that go beyond the term of offi ce of elected local offi cials. Thus the need for
the introduction of the CDP as the medium term plan of the LGU. The introduction of
the CDP is in line with national governments effort to improve the link between plan-
ning and budgeting being promoted by Department of the Interior and Local Govern-ment (DILG), National Economic and Development Authority (NEDA), the Department
of Budget and Management (DBM) and the Department of Finance (DoF).
The Comprehensive Development Plan (CDP) and its three year component, the Execu-
tive Legislative Agenda (ELA) have been shown to be powerful tools for promoting
fiscal responsibility in the region. Through the ELA, LGUs are able to link their spend-
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in-
ing decisions to the real needs and priorities of their respective jurisdictions. These plans
can provide direction as well as the impetus for local offi cials to become effective manag-
ers of their resources in the service of their communities.
RATIONALIZED PLANNING SYSTEM
Local planning in the Philippines has been characterized as irrational and chaotic, with
LGUs developing as many as 27 plans. It is widely acknowledged that although LGUs
develop plans, many of these plans are not implemented. Experts admit that many local
plans are mainly done for compliance purposes and not really for guiding development
in their respective jurisdictions. This is partly due to the fact that planning has been a
highly technical undertaking with little or no participation from stakeholders. Moreover,
plans between different levels of government suffer from isolation and weak integration
that is inherent in the overall national planning process.
The Rationalized Planning System (RPS), presently being pursued by the Departmentof the Interior and Local Government (DILG), is intended to put order to the disjointed
state of local planning and rationalize local planning structures and processes in the
country (RPS 2005).
Among the recommendations being put forward in the RPS include the following points:
reducing the number of plans that LGUs must prepare to the two comprehensive1.
plans --- the Comprehensive Land Use Plan and the (CLUP) Comprehensive De-
velopment Plan (CDP) that are mandated in the Local Government Code. This has
implication for national government agencies (NGAs) promoting the formulation
of certain sectoral or thematic-based plans since in the RPS, it is recommended thatthese requirements be integrated into the CLUP or CDP, as the case may be;
reconfiguring the planning process from its traditional technocratic form into one2.
that accommodates the imperatives of multi-stakeholder participation and consulta-
tion. This entails simplifying 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;
emphasizing the importance of strengthening the Local Development Councils3.
(LDC) as the mandated structure to formulate development plans in the LGU. This
would mean the organization of sectoral or functional committees to assist the LDC
in the performance of its functions (e.g. SWM boards, GAD focal points, Local Hous-
ing Boards, Tourism Boards, among others);underscoring the importance of the legislative body as partners of the executive4.
branch in advancing the general welfare of its constituents, thus both have important
roles to play in planning for their jurisdictions
promoting the development of a medium term CDP (6 years) to align with the MT-5.
PDP and MTPIP, and a term-based action plan of the CDP (3 years) which becomes
the LGUs Executive-Legislative Agenda (ELA).
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in-
10
To further facilitate the interface between LGUs and national government agencies and the
complementation between and among the different levels of LGUs in planning and bud-
geting, the four oversight agencies namely the DILG, NEDA, DBM and DoF issued Joint
Memorandum Circular 1, s 2007 (JMC 1 , s 2007) that provided guidelines on the harmoni-
zation of local planning and budgeting. The JMC is further discussed in Section 2.2.
THE MAJOR LGU PLANS AND IMPLEMENTING MECHANISMS
Local governments are mandated to prepare two major plans --- the CLUP and the CDP.
These plans, although distinct from each other, follow an integrated and iterative process
of development. At the outset, it is important that LGUs be able to discern the relationship
of the various plans and planning requirements and see how each one builds on the other.
Ideally, the CLUP, which provides the long term guide to the management of the locality,
is developed prior to the CDP which presents the sectoral directions for the LGU. Howev-
er, the absence of a CLUP should not stop the LGU from developing a CDP. The CDP thenbecomes the starting point in the development of the ELA. Approved local development
plans are, in turn, made operational through the local budgets (Sec. 305 (i), LGC).
The CDP and ELA are powerful tools that LGUs can use to manage and utilize resources
effi ciently (allocative effi ciency). The ELA based LDIP and AIP are valuable instruments
for ensuring that desired results or goals of the local governments are achieved. Alloca-
tive effi ciency requires that LGUs establish and prioritise PPAs towards desired results.
Prioritisation of programs and projects in the ELA is a good move towards better link-
age of plan and budget. The LDIP is a major instrument for translating LGU priorities
into action (i.e. the LDIP is supposed to contain LGU priority PPAs). It is a tool to help
LGUs improve decisions on resource allocation.
The mandated plans and their implementing mechanisms are discussed in more detail
below:
Comprehensive Land Use Plan
The CLUP has the following salient features:
Long-term (10-15 years) management of local territory
Comprehensive because it encompasses the entire territorial jurisdiction of the
LGU such as determining the available supply of land resources, land requirementsof the various sectoral plans of the CDP as well as the most appropriate uses of land
and water resources within the entire LGU
Provides the skeletal framework which defines the desired physical pattern of growth
of the locality and identifies areas where development can and cannot be located and
directs public and private investments accordingly
Has four policy areas production, settlements, protection and infrastructure
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in-
Is the local equivalent or counterpart of the physical framework plan at the national,
regional and provincial levels
Is legally enforceable through the zoning ordinance.
Comprehensive Development Plan
The CDP has the following salient features:
Medium-term (six years) to coincide with the Medium Term Philippine Development
Plan (MTPDP) and the Medium Term Philippine Investment Program (MTPIP).
Comprehensive refers to its multi-sectoral coverage. The CDP includes five develop-
ment sectors prescribed by the DILG guidelines namely: social, economic, physical/
infrastructure, environmental and institutional. Particular to ARMM, another sector
on culture is added to highlight its importance in the region.
Provides a convergence mechanism to integrate all existing topical and thematic
plans required by NGAs such as disaster management plan, Local Poverty Reduction
Action Plan (LPRAP), Integrated Area Community Public Safety Plan (IACPSP) andthe Local Council for the Protection of Children (LCPC 4 gifts for children).
The Executive-Legislative Agenda
The ELA is the plan that contains the three-year priorities of the executive and legisla-
tive departments of the LGU. The medium term CDP serves as a take off point in the
development of the ELA with the ELA as the term based action plan of the CDP. The
ELA contains the prioritized programs, projects and proposed legislations from the CDP
based on an agreed set of criteria by the LGU. Being an agenda of elective offi cials, the
ELA may also contain other thrusts and priorities of the executive and legislative depart-
ments which may not have been identified in the medium term CDP to address pressingconcerns and new developments in the locality.
Local Development Investment Program and Annual Investment Program
The Local Development Investment Program (LDIP) is the principal instrument for
implementing the CDP and to some extent, certain aspects of the CLUP. The LDIP
links the plan to the budget, thus putting into effect the directive of the Code that local
budgets shall operationalize approved local development plans (sec. 305, RA 7160). The
LDIP assumes a timeframe of 3 years consistent with the ELA.
On the other hand, the annual investment program (AIP), taking off from the LDIP, is aprerequisite of the annual budget process. It contains a list of prioritized programs and
projects proposed for inclusion in the annual local budget.
The table below describes the hierarchy and relationship of plans that LGUs are expect-
ed to prepare in the context of the LGC and based on the guidelines issued by the DILG.
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in-
12
Plans Definition Main Contents Time-frame Legal Basis
CLUP Policy guide for the regula-
tion of land uses embracing
the LGUs entire territorial
jurisdiction
Policies on settlements,
protected areas, production
areas, and infrastructure
10-15 years Sec. 447, 458,
468 of LGC
CDP Multi-sectoral plan to pro-
mote the general welfare of
the LGU.
Sectoral goals, objectives,
strategies, programs, projects
and legislative measures
6 years Sec 476b (1)
and (5) of LGC
ELA Term-based component of
the CDP
Priority sectoral goals, objec-
tives, strategies, programs
and projects, legislative
measures
3 years Sec. 444, 455,
and 465
LDIP Principal instrument for
implementing the CDP and
ELA and to some extent, cer-
tain aspects of the CLUP
Prioritized PPAs and program
for planned financing
3 years Sec. 305
AIP One year slice of the LDIP Prioritized PPAs proposed forinclusion in the annual local
budget.
1 year Sec. 305444, 455,
465
Table 0.1: Hierarchy and Relationship of LGU Plans
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in-
1
AManual on the Local Planning Process: Formulating the CDP
and ELA in ARMMprovides a useful guide to help LGUs in theMuslim region be in a better position to identify peoples needs,
encourage peoples participation and ensure that appropriate programs
and projects are prioritized for their constituents. The manual veers away
from being prescriptive and encourages innovation on the part of ARMM
LGUs on what works on the ground in the formulation and implementa-
tion of medium term (CDP) and term based (ELA) plans.
This manual supports the DILGs continuing effort to enhance and
rationalize planning at the local level as well as strengthen the plan-
ning capacities of LGUs. It is an offshoot of an earlier manual on How to
Formulate an Executive-Legislative Agenda (ELA) for Local Governanceand Development, a project of the Department of the Interior and Lo-
cal Government (DILG) and the Canadian International Development
Agency funded program, Philippines-Canada Local Government Support
Program -Phase II (CIDA-LGSP II). The earlier manual has been modified
and updated to support the Rationalized Planning System (RPS) Project
currently being undertaken by the DILG.
The manual elucidates the relationship of CDP as the medium term plan
of the LGU and the ELA as the term based plan of local elective offi cials.
While the CDP and the ELA are two distinct documents, they are both the
products of an integrated planning process. This integrated process isdiscussed in detail in the manual.
This manual draws heavily on the positive experiences of local govern-
ments within ARMM who have successfully formulated and implemented
their CDP and ELA. Further, it reflects the experiences of other LGUs in the
country over the course of many years, and has been constantly updated
and expanded to show best practice. This revised edition- has been exten-
About the Manual
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in-
14
sively rewritten in consideration of distinctive characteristics of the ARMM, including the
use of formal and informal organizations in local planning. The manual has been prepared
to assist ARMM LGUs to develop plans that are attuned to the distinctive historical and
cultural heritage, and economic and social structures of the region.
The manual is a simple step-by-step guide to formulating the six year CDP and the ELAas its three year counterpart. It includes tools, templates and practical tips in plan-
ning and provides cross-referencing with other related manuals for more advanced and
detailed tools and techniques (detailed tools and techniques such as the NEDA Guide-
book on Provincial and Local Planning and Expenditure Management Volume 4). In ad-
dition, the manual features guidelines and tools on how local plans can be made more
poverty focused, conflict sensitive and peace promoting. These concerns are particularly
relevant to ARMM LGUs. It also links existing LGU databases such as the Local Gover-
nance Performance Management System (LGPMS) and the Community-Based Monitor-
ing System (CBMS) with the planning process and illustrates how these can be useful at
each planning stage.
The manual is designed for LGUs, more specifically the Local Planning and Develop-
ment Offi ce, as technical secretariat of the Local Development Councils (LDCs), the
main planning bodies of the LGUs at various levels. It is also intended for use by the
Provincial Inter-Agency Coach Teams (PICT) that can act as functional committees to
provide technical support and assistance to city and municipal local governments in
developing their CDP and ELA.
It could also be a valuable reference for developing orientation sessions for the LDCs
including their sectoral committees, as well as the local sanggunian members, who have
the mandate to approve local development plans and budgets.
The manual is structured to reflect the sequential steps in the CDP and ELA formulation
process covering getting started, formulating the plan, gearing up for plan implementa-
tion, advocating the plan, and monitoring and evaluation.
1The formation of PICTs in ARMM have been an innovative way of capitalizing on the technical expertise of the different line
agencies operating within the province.
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in-
1
The recommended process of developing the CDP and the ELA
diverts from a traditional expert-driven to a multi-stakeholderparticipatory approach. This requires preparations at the onset for
meaningful participation to happen.
Developing the CDP and the ELA is a challenging task and this can not
be done without the support of elective offi cials. The following steps are
necessary to help ensure a more collaborative effort between the executive
and legislative departments in the LGU as well as provide impetus for the
active participation of different stakeholders in the LGU. In ARMM, both
formal and informal groups and structures that recognize cultural and po-
litical diversities within the LGU and acknowledged by communities need
to be included from the start to come up with a realistic plan that is imple-
mentable as well as build commitment and support. Care has to be taken
to include influential groups such as Muslim religious scholars and leaders
(ulama), elders, traditional leaders (datu), and Islamic jurists (mufti).
1.1 ORIENTING THE LOCAL CHIEF EXECUTIVE AND THE
SANGGUNIANG BAYAN/PANLUNGSOD
Regardless of whether the local government unit (LGU) is preparing its
Comprehensive Development Plan (CDP) or the Executive and Legislative
Agenda (ELA) for the first time or embarking on a revision/updating of its
CDP or ELA, an orientation of the Local Chief Executive (LCE) and Sang-
guniang Bayan/Panlungsod (SB/P) should be the first order of the day.
Getting Started
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in-
16
Who will conduct the Orientation?
The orientation activity may be conducted by the
Local Planning and Development Coordinator
(LPDC) and the Local Government Operations
Offi cer (LGOO). Given the extensive experienceof PICT members in assisting LGUs in developing
their CDP and ELA in ARMM, it is recommend that
they be brought in to provide support in orienting
the LCE and the SP/SB.
What will the Orientation cover?
The orientation will involve a discussion on the fol-
lowing:
Overview of the Local Planning Process anda.the types of plans that LGUs are mandated to
prepare
The CDP and ELA as management toolsb.
The CDP and ELA formulation process withinc.
the context of the local budget cycle
Preparedness Check to assist the Local Chief Executive (LCE) and the Sanguniand.
Bayan/Panglungsod (SB/P) assess the LGUs capacity in preparing the CDP and the
ELA in terms of the availability of the following:
manpower with appropriate skills
financial resources
time to be devoted to the exercise anddata and other reference documents
Additional topics, such as development perspectives to set the context for planning, may
be included. For conflict-prone LGUs, it would be useful to have a session on conflict sen-
sitive and peace promoting planning as this is a critical factor to any development effort
in the area.
How long will the Orientation take?
A maximum of three hours should be enough to cover the salient points that the LCE
and the SB/P should know about the CDP and ELA formulation process.
Integration of special topics, such as conflict sensitivity and peace promotion for ARMM,
may entail an additional two to four hours of orientation.
Box 1.1
Additional Topics for ARMM
For conflict-prone LGUs, the orien-
tation topics need to be expandedto include sessions on conflict sen-
sitive and peace promoting planning
particularly:
Peace, violent conflict, struc-
tural violence and its many
faces at the local level, and
Human security and its require-
ments.
Early on, the LCE and the SB/SP
need to appreciate and understand
key concepts in human security
and conflict sensitivity and its ap-plications in local governance and
planning.
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in-
When should the Orientation take place?
Ideally, the CDP and ELA preparation should be anchored on the local budget cycle so
that the programs, projects and activities (PPAs) that are listed in the plan can be includ-
ed in the Local Development Investment Plan (LDIP), the Annual Investment Program
(AIP) and in the Budget or Appropriations Ordinance (AO). This is also consistent withthe updated Local Budget Operations Manual recently issued by the DBM that empha-
sizes the link of budget to plan.
The ELA rides on the term of the LCE. Therefore, the orientation for the CDP and ELA
preparation should take place immediately after the LCE is sworn into offi ce, preferably
before the convening of the LDC (not later than the first week of July of election year) or
not later than the third quarter of the year of his/her election. This is because planning
should be harmonized with the Local Budget Cycle, so that the budgetary requirements
for the implementation of the plan can be incorporated into the AIP and the Appropria-
tions Ordinance (AO).
Where should the Orientation take place?
There are no hard and fast rules as to where the orienta-
tion should take place. The venue may be in the offi ce of
the LCE or in the session hall of the SB, or any other place
convenient and agreed upon by the LCE and the SB.
1.2 ORGANIZING AND MOBILIZING THE
PLANNING TEAM
The Local Development Council (LDC) is the body that is
given the task of preparing the multi-sectoral development
plans. It is considered the mother of all planning bodies.
It is therefore critical to ensure that the LDC as well as the
functional and sectoral committees as providers of techni-
cal support and assistance are constituted and activated.
Sectoral committee members are drawn from various sec-
tors of the community the academe, religious, business,
government, non-government organizations, peoples
organizations and other civil society organizations. Inconflict-sensitive and peace-promoting planning, tradi-
tional security sectors (AFP, PNP) that are present in the
locality should be represented. To the extent possible,
both formal and informal structures that recognize cultural
and political diversities within the LGU and utilized by
communities need to be included to build commitment
Box 1.2
PICT as Functional Committee of
the LDC in ARMM
In ARMM, Provincial Inter-Agency
Coach Teams (PICT) were orga-
nized as functional committees
to provide technical support and
assistance to city and municipal
governments in developing their
CDP and ELA. Created through
Executive Orders issued by the gov-
ernors, the PICTs were composed of
technical staff of the different line
agencies operating within the prov-
ince. Equipped with coaching skills,
the PICT members augmented the
capacity of the Provincial Planning
and Development Office (PPDO) in
facilitating planning activities with
component LGUs.
Each LGU was assigned a trained
coach to provide handholding
assistance in the formulation of
their plans. PICTs convened regular
meetings to provide feedback and
updates on the progress of the CDP
and ELA
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in-
18
and support for the plan. Functional committees
should likewise be multi-sectoral. However, the life
of functional committees depends on the need for
its continued existence.
In preparing the CDP or ELA, a planning team maybe drawn from the sectoral committees and orga-
nized as a functional committee for the duration of
the CDP or ELA formulation. Said functional com-
mittee should be demobilized or de-commissioned
once the CDP or ELA has been completed, endorsed
by the LDC and approved by the SB/P. It may, how-
ever, be re-created as a support machinery of the
LDC for advocating ELA, or of the LPDO for moni-
toring and evaluating ELA implementation.
What is the minimum composition of theplanning team?
While the LCE is in the best position to determine
the size and composition of the planning team, it
is highly recommended that this activity be done
together with the vice mayor to build trust and
establish close rapport early on in the process. The
following is the suggested minimum composition:
Mayor as the chairperson and the vice mayor as co - chairpersona.
LPDC as the operations offi cer and secretariat headb.Department heads representing the six development sectors and/or agency headsc.
SB committee chairs of major sectorsd.
Representatives of the majority and minority blocs of the SBe.
Representatives of civil society (influential Muslim religious scholars and leadersf.
(ulama), elders, traditional leaders (datu), Islamic jurists (mufti), influential business
groups such as the Autonomous Basilan Islamic Chamber of Commerce and Indus-
try (ABICCI) in Lamitan City)
DILG LGOO as facilitator/coach.g.
What are the factors to consider in selecting planning team members?
The following criteria should be considered in the selection of the planning team members:
Membership in formal and legally recognized LGU structures for planning such as the:a.
LDC, which is the main body responsible for local development planning,
including its functional committees
SB/P, which has the mandate to approve local development plans and budgets,
including the sectoral committees
Box 1.3
Multi-stakeholder Participation in
CDP and ELA Formulation:
The Buldon, Maguindanao
Experience
Working hand in hand and with the
support of all stakeholders, I believe
that we can effectively implement the
programs and projects enunciated in
this CDP-ELA 2008-2013, was the
message of Mayor Fatima Tomawis
to her constituents.
The formulation of the CDP and ELA
of Buldon, Maguindanao involved the
participation of various stakehold-
ers of the municipality in the various
stages of its development.
Meetings and dialogues were under-
taken to come up with the various
elements of the plans. Representa-
tives of civil society groups that
participated included the Ulama
Council, women, and religious
groups.
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in-
key departments/ units within the LGU involved in program/project imple-
mentation
Local Government Operations Offi cer (LGOO) for technical assistance
LPDO for secretariat support and overall coordination of all related planning
efforts of the LGU.
Equitable representation from various stakeholder groups external to the LGU, andb. other civil society organizations
Gender balance This will not only promote and ensure the understanding of issuesc.
affecting women, men and other subgroups in the locality but also manifest the
LGUs adherence to and support for Gender and Development (GAD) mainstreaming
efforts in the bureaucracy
Capacity to absorb the plan formulation workload Plan preparation can be tediousd.
and pressure laden. Consideration for the existing assignments of the prospective
member should be made to avoid conflict in workload and schedules particularly in
the light of the ELA timeframe.
This set of criteria can be looked upon as basic considerations for planning team selec-tion. LGUs can, of course, add or substitute other criteria as they deem fit given their
respective situations and priorities.
A useful tool in selecting planning team members is the Sphere of Influence and Po-
tential Contribution Analysis (see Table 1.1). Putting scores and weights for eventual
ranking will certainly help but is not necessary. What is essential is that the analysis can
serve as an input to the Preparedness Check.
What are the qualities and qualifications of the planning team members?
To be able to effectively respond to the challenges and demands of the CDP formulationprocess, the members of the team should possess:
knowledge of:a.
the planning process
development and governance concepts and principles
skills in:b.
planning
problem analysis
technical writing, and
communications and networking
knowledge, understanding of and sensitivity to critical development themes such asc.poverty, environment, gender and peace which LGUs are mandated to incorporate in
their local plans
talent and proficiency in consultation processesd.
willingness to work with otherse.
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in-
20
Prospective Planning
Team MembersSphere of Influence Potential Contributions
MPDC Local Development Council
(MPDC is head of the secre-tariat of the LDC)
Access to LGU databases,
plans, and reports
Ulama Tawi-Tawi Knowledge of Koran teachings;
assist the LGU efforts in com-
municating and disseminating
information on the CDP and
ELA
Key heads of various
LGU offices
Various sectoral and multi-
sectoral committees set up to
implement national/regional
programs in the locality
Sector-based dataholdings;
tools for analyzing and planning
for their respective sectors
Table 1.1 Sphere of Influence and Potential Contribution Table
Sphere of Influence - indicates the individuals, groups or sectors, which a prospective planning
team member can influence or catalyze towards a productive or, even, an affirmative response toan issue or an undertaking.
Potential Contributions the expertise or resources which prospective members can share
towards the completion, approval and adoption of the Plan.
Who will set directions for the planning team?
The LDC shall set the course for the planning team. The LCE as chair of the LDC neces-
sarily takes the lead and guide the plan formulation effort. He/she may however, desig-
nate a focal person, like the LPDC, to act like an operations or executive offi cer who can
take charge of the teams day-to-day operations until the plan is completed and approved
by the SB/P. The SB/P, on its part may also designate a counterpart from among its own
members or from its sectoral committees.
How will the planning team be organized?
The planning team can be organized according to the structure as shown in Figure 1.1
below:
What is the role and function of the Chair/ Co-Chair?
Review the Work Plan and Budget and recommend its approvala.
Designate the members of the planning team and define their functions and assign-b.
ments/tasks
Monitor and oversee the conduct of team activitiesc.
Clarify directions set by the Chaird.
Resolve issues elevated by teame.
Present, with the LCE, the Draft CDP or ELA to the SB/P and to other stakeholdersf.
Ensure adherence to the work plang.
Motivate the teamh.
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in-
What is the role and function of the Secretariat?
Prepare the materials in connection with the presentation of the Work Plan and Bud-a.
get to the LCE and the SB/P;
Monitor the implementation of the approved work plan and budget;b.
Provide the LCE/LDC Chairperson the recommendations necessary for the effectivec.
management of the Planning Team and its activities;
Elevate to the Chair/Vice Chair any unresolved problems and issues encountered byd.
the Planning Team
Ensure the proper documentation and management of the Planning Teams activities,e.
working papers and outputs
What are the roles and functions of the planning team?
Prepare the CDP and ELA Work Plan and Budgeta.
Gather and review available plans and other secondary data sources required in theb.
development of the CDP and ELA
Plan, coordinate and facilitate the conduct of various multi-stakeholder consultation/c.
validation workshops
Assist the LCE in public hearings and other consultation sessions with the variousd.
LGU stakeholders and affected sectors like the LGU offi ces, LDC, Sanggunian and
other sectoral organizationsAssist the LCE and the LDC in drafting and finalizing the ELA to include the 3-Yeare.
LDIP, the current year Executive Budget and the AIP
Draft, package and finalize the CDP and ELAf.
Prepare presentation materials for various audiences of the CDP and ELAg.
Assist the LCE in his/her presentation of the Plan to various stakeholdersh.
Assist in organizing other planning sub-teams that may be required to carry outi.
other planning activities such as communicating/popularizing the Plan, mobilizing
resources, monitoring and evaluation
Figure 1.1 Structure of the Planning Team
Chair
Co-Chair
Secretariat
Sectoral
Committee
Sectoral
Committee
Sectoral
Committee
Sectoral
Committee
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in-
22
Develop the Performance Management System for plan implementationj.
Perform such other functions as may be required by the Local Chief Executive to-k.
wards the completion, adoption, popularizing, implementing and monitoring the ELA
What is the Role of the SB/P in the plan formulation process?
The CDP and ELA embody the policies of the LGU. The Sanggunian, as the highest
policy-making body in the LGU, needs to be involved more substantially in the planning
process. Their involvement in the CDP or ELA will also result in the following benefits:
Firmer grasp of local development thrusts and prioritiesa.
Better understanding of their role in steering the LGU into realizing its vision throughb.
appropriate legislative actions
Harmonization of executive and legislative actions towards a unified set of goals andc.
objectives for the LGU
Shared responsibility and accountability for the CDP or ELAd.
The SB needs to perform the following roles:
Issue a Sanggunian resolution supporting the planning process;a.
Review and approve the CDP and the ELAb.
Review, prioritize and approve budget allocation for plan-based PPAsc.
Identify and enact legislative measures to support and facilitate the implementationd.
of the plan.
What is the role of civil society organizations (CSOs)?
The CSOs in ARMM, both organized and informal groups such as the datus and ulamaare very influencial and have very strong potentials for supplementing or augmenting
LGU efforts in plan preparation process. They can:
bridge information gaps during plan preparationa.
serve as monitors for CDP or ELA implementation and provide LGU decisionmak-b.
ers unfiltered information
assist the LGU efforts in communicating and disseminating information on the CDPc.
or ELA
rally support for CDP or ELA implementation especially on programs which are heav-d.
ily dependent on citizen participation and cooperation
augment the various resources and expertise required in CDP or ELA preparation ande.implementation
link the CDP or ELA implementation with various resource organizations.f.
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in-
1.3 TRAINING THE PLANNING TEAM
Whether the planning team members have had previous experi-
ence or not, training should be undertaken prior to the start of
plan preparation.
Why is there a need for training?
For an LGU that will be doing a CDP or ELA for the firsta.
time, the training will enable the members to:
have an appreciation and clearer understanding of the
simplified sectoral and ELA planning process, as well
as the requirements for and implications of the plan
preparation exercise
learn from some of the experiences in the past plan
formulation exercises, so that they can adopt the good
practices and avoid the pitfalls that others experi-enced
appreciate new development paradigms and frame-
works that will provide the proper perspective in plan-
ning. This will include among others the following:
sustainable development, conflict sensitive and peace
promoting planning, poverty, gender and develop-
ment
For an LGU that had previously undertaken the CDP or ELA,b.
the training is an opportunity for both old and new members
to be introduced to the simplified sectoral plan and ELA
preparation process as well as to gain updates on planningconcepts and tools and new/emerging development issues
and trends.
There are two possible approaches in training the Planning
Team, the choice of which will depend on whether the team has
undergone a previous CDP or ELA formulation exercise or not.
The session flow for the training incorporating said approaches
are contained in Figure 1.2.
The indicative content of the Training and Planning Workshop
for the Planning Team is attached as Annex 1.1.
1.4 CONDUCTING PRELIMINARY WORK
The planning team needs to undertake preliminary work prior to the start of plan formu-
lation, to make the process run smoothly and effi ciently. The teams action will be shaped
by two major scenarios:
Box 1.4
Benefits of Training Elective
Officials: The Case of Upi,
Maguindanao
In August 2001, a month after new-
ly elected local chief executives have
been sworn into office, a training
program on Local Chief Executive
Development Management Program
(LDMP) was provided by the LGSP
for selected regions of the country
including the ARMM. The program
was essentially on new develop-
ment paradigms, strategic thinking,
planning, and target setting. It is in
this training
The training proved very valuable
for the newly elected mayor of
Upi, Maguindanao, Mayor Ramon
A. Piang, Sr. Looking back at the
experience, he said the training
provided me with tools that are
necessary to manage my municipal-
ity effectively. Going through the
planning workshop from situation
analysis, goal formulation, strategy
identification to the identification of
programs and projects proved to be
effective in building the capacities of
elective officials.
Three years on, the mayor was
given several awards for effective
management of his municipality,
including the Local Government
Leadership Award.
Taking off from the gains of the
LDMP, LGSPA also conducted Lead-
ership Development and Manage-
ment courses for LCEs and Legisla-
tors in the light of ELA formulation
and implementation.
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in-
24
If the LGU does not have a a six-year CDP, the logical starting point for the team is to
develop one. Once the CDP is developed, then the team can proceed with the prepara-
tion of the ELA.
If the LGU has an existing CDP, the team needs to evaluate implementation (see Chap-
ter 5 Monitoring and Evaluation) and update the plan before the team can proceed
with ELA preparation.
Figure 1.2: Session Flow of the Training and Planning Workshop
Leveling of Expectations
Work Planning
LCE & SB Hour
CLOSING
Reviewing past plan formulation experiences
Understanding the Planning Process
Organizing the Planning Team
Understanding the Planning Process
Team has previous
CDP/ELA
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in-
Once the group has considered this critical aspect, they can proceed
to the next stage of work planning. Depending on the LGU scenario,
activities to be undertaken by the team will differ.
Work Planning
Developing a work plan as a team is crucial to meeting the deadlines
for plan formulation. Planning is a tedious and time-consuming
process and the group can be easily bogged down by other LGU con-
cerns and tasks on hand, thus the necessity for a work plan. The work
plan basically helps the group manage their time and resources prop-
erly. Early on they have to agree on the different activities that will be
undertaken, timetable, responsibilities and resources needed. Once it
is finalized, this should be presented to the LCE and the Vice-LCE for
approval. Support from the LCE and the Vice-LCE is crucial so that
planned activities are given due importance. A Work plan template is
found in Annex 1.3.
The timetable should be properly synchronized with the budget cycle
in order for priority programs and projects to be integrated in the budget.
Box 1.5
Formulating the CDP and ELA
It is highly beneficial for the LGUthat a six-year CDP be prepared
to coincide with the medium-term
development plan of the na-
tional government and to ensure
the continuity of programs and
projects having timeframes longer
than the term of office of local
elective officials.
The medium term CDP then
becomes the starting point for the
development of the term-based
ELA.
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in-
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in-
2
Formulating the PlanP
lans at the local level should be developed in an integrated manner
so that they work towards the attainment of desired results. Ideally,
the Comprehensive Land Use Plan (CLUP), which provides a long
term guide to the management of the locality, is developed prior to the
preparation of the CDP which presents the sectoral directions for the LGU.
The CDP then becomes the starting point in the development of the ELA.
Planning at the local level is a results-oriented process, which starts with
the different stakeholders coming together to take part in the formula-tion of a vision for their LGU. The vision becomes the driving force that
guides the formulation of the various local plans, from the CLUP to the
CDP and the ELA.
Chapter 2 of the manual discusses in detail the process of developing the
CDP and the ELA.
2.1 THE CDP AND ELA
The Comprehensive Development Plan (CDP) is one of two plans that
LGUs are mandated to prepare to promote the general welfare of its con-stituents. It is a multi-sectoral plan that embraces six development sectors
namely: social, culture and peace2, economic, physical, environmental and
institutional. The six development sectors and their sub sectors are found
in Table 2.1 below. The multi-sectoral character of the plan allows easy
integration of all existing topical and thematic plans required by National
2A sector on Culture and Peace has been added to the traditional five development sectors recommended by the DILG
in the RPS to give due recognition to the role of the sector in ARMM .
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in-
28
Government Agencies (NGAs) such as Disaster Management Plan, Local Poverty Reduc-
tion Action Plan (LPRAP), Integrated Area Community Public Safety Plan (IACPSP),
Local Council for the Protection of Children (LCPC 4 gifts for children), among others.
The Executive-Legislative Agenda (ELA) is the term-based component of the CDP. It
contains the priorities of both the executive and legislative departments of the LGU dur-ing their term of offi ce. Most of the priority programs, projects, and legislative measures
in the ELA are already identified in the CDP. However, it does not limit the executive and
the legislative offi cials from identifying new programs, projects and legislative require-
Sector Subsectors
Social Development Education
Health
Social welfare
Housing
Culture and Peace Arts
Cultural heritage
Sports and Recreation
Public order
Human security
Economic Development Primary Industries
Agriculture (including livestock
Fisheries
Forestry
Secondary Industries
Mining
Quarrying
Manufacturing
ConstructionTertiary
Wholesale and retail trade
Service sector (i.e. banking)
Infrastructure Irrigation
Power
Roads, bridges, ports
Flood control
Water
Sewerage
Telecommunications
Environment Land
Water
AirWaste management
Institutional Local government management
Governance
Source: Compiled from multiple sources
Table 2.1: The Six Development Sectors of ARMM
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in-
ments that respond to new situations and take advantage of opportunities in its con-
stantly changing environment.
The recommended timeframe for the CDP is six years for two reasons, namely: (1) to
coincide with the plan of the national government (i.e. Medium Term Philippine Devel-
opment Plan) and (2) to ensure continuity of funding for programs and projects that gobeyond the term of offi ce of elected local offi cials. On the other hand, the ELAs time-
frame is necessarily three years to coincide with the term of offi ce of elective offi cials.
2.2 LEGISLATION AND POLICY ISSUANCES ON CDP AND ELA
Several important legislation and policy issuances support the development of the CDP
and ELA. These are discussed below:
Local Government Code
The LGC of 1991 mandates local governments to prepare two types of plans namely the
comprehensive land use plans and the comprehensive multi-sectoral development plans.
Under Section 106 of the Code, the Local Development Councils of the respective LGUs
are tasked to initiate the formulation of said plans and approved by the sanggunian.
Further, the Code mandates LCEs to:
present the program of government and propose policies and projects for consider-
ation of the sanggunian bayan(Sec 444 1iii)
Initiate and propose legislative measures to the sanggunian(JMC 444 1iv)
These provisions of the Code serve as legal basis for the development of the Executive-
Legislative Agenda, which serves as the term-based plan of the LGU.
DILG-NEDA-DBM-DOF JMC 1, s 2007
The Joint Memorandum Circular (JMC 1-2007) jointly issued by four oversight agen-
cies namely the DILG, NEDA, DBM and the DoF provided measures to strengthen the
interface between LGUs and the national government agencies as well as the comple-
mentation between and among different levels of local governments from the provincial
down to the barangay levels. Ito also provided guidelines to strengthen and synchronize
planning and budgeting at the local level.
Details of the JMC are further discussed in relevant sections of the manual.
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in-
30
2.3 THE CDP AND ELA FORMULATION PROCESS
The formulation of the CDP and ELA is an iterative and integrated process that involves
the performance of a series of steps. The sequence of steps identified in the process are
all critical in coming up with plans that are results oriented, thus the need to treat all the
steps with equal importance. Developing the CDP and ELA can be an overwhelming taskand is not easy, but following the recommended process will help ensure that programs
and projects identified have more chances at being funded and implemented. It is sen-
sible for the team to be guided by the timetable in the work plan to ensure that all the
steps are carried out with the same attention.
Table 2.2 presents the holistic scene that LGUs may go through if they are to develop
plans that are results oriented. It summarizes the necessary inputs needed in order to
undertake the steps to produce the outputs (CDP and ELA). Inputs are the necessary
data and information needed to undertake the steps. Steps are actions undertaken that
make use of the inputs to produce the elements of the CDP and the ELA (Vision, Mis-
sion, Goals, etc). A template that can aid the planning team in developing and aligningthe different elements of the plan is found in Annex 2.3.1.
The CDP should be developed prior to the ELA for the following reasons:
to coincide with the medium-term development plan of the national government
to ensure the continuity of programs and projects having timeframes longer than the
term of offi ce of local elective offi cials
The process utilizes participatory and consultative approaches. While a planning team is
formed by the LCE, mechanisms that facilitate collective planning and decision making
among the different stakeholders need to be identified and harnessed.A simplified view of the CDP formulation process is shown in Figure 2.1.
In developing the CDP and the ELA, proper timing is critical to maximize the likelihood
of the plan being implemented. The recommended timetable for undertaking the different
activities required for plan formulation as defined in DILG-NEDA-DBM-DOF JMC is:
Updating of planning database (January-March of every year)
Analysis of Planning Environment (April-May of every year)
Formulation of Development Vision, Goals and Strategic Direction (First week of July
2007 and every 3-6 years thereafter)
Identification and Prioritization of PPAs (July of every year)Identification of areas of complementation of PPAs (July of every year)
Budget Preparation, Authorization and Review (July to December)
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in-
Table 2.2 The CDP and ELA Process
INPUTS STEPS OUTPUTS
Vision element
Element descriptors
Success indicators
FORMULATION OF VISION & MIS-
SION STATEMENTS
Vision & Mission Statements
Vision Statement
Ecological profile/SEP
Local Development Indicators
LGPMS-SLGR
CBMS
DETERMINATION OF VISION
REALITY GAP
Vision Reality Gap
Vision Reality Gap FORMULATION OF SECTORAL
GOALS AND OBJECTIVES
Sectoral Goals and Objectives
SWOT/Streams Analysis FORMULATION OF SECTORAL
STRATEGIES
Sectoral Objectives Strategies
Sectoral Goals, Objectives and
Targets
CLUP Policies
Sectoral Strategies
IDENTIFICATION OF PROGRAMS,
PROJECTS, ACTIVITIES (PPAs),
LEGISLATIVE REQUIREMENTS
Comprehensive Development Plan
Comprehensive Development Plan
Financial Analysis
Time and Resource Constraints
(3-year term)
PRIORITIZATION OF PROGRAMS,
PROJECTS AND ACTIVITIES
PRIORITIZATION OF LEGISLATIVE
REQUIREMENTS
RANKING AND MATCHING OF
RANKED PPAs WITH AVAILABLE
FUNDS
Executive and Legislative Agenda
(ELA)
Local Development Investment
Program
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in-
32
FORMULATION/REVISITING OF VISION & MISSION
STATEMENTS
DETERMINATION OF VISION REALITY GAP
FORMULATION OF SECTORAL
GOALS AND OBJECTIVES
FORMULATION OF SECTORAL STRATEGIES
IDENTIFICATION OF PROGRAMS, PROJECTS,
ACTIVITIES AND LEGISLATIVE REQUIREMENTS
PRIORITIZATION OF PROGRAMS, PROJECTS,
ACTIVITIESS AND LEGISLATIVE REQUIREMENTS
IDENTIFIED IN THE CDP
6 YEAR CDP
3 YEAR ELA
Figure 2.1 Simplified CDP and ELA Process
2.4 INTEGRATING PLANS
Developing the CDP is not an isolated and straightforward undertaking, but must
consider other factors. In the Philippines, a complementary approach to planning that
combines top-down and bottom-up methods is utilized. Higher level plans provide
indicative guidelines for lower level plans in order to harmonize efforts towards common
national goals. This means that the Comprehensive Development Plan of a municipality
or component city must consider directions provided by provincial plans (e.g. Provincial
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in-
Development and Physical Framework Plan). Likewise, provin-
cial plans must take into account regional plans (e.g. ARMM
Regional Executive and Legislative Agenda, Halal Food Indus-
try Masterplan).
Similarly, lower level plans (barangay development plans) canalso be aggregated at the municipal or city level to form the
CDP. While this is ideal, this is diffi cult to do since this neces-
sitates that all barangay plans are completed before integra-
tion is done at the municipal or city levels.
Taking into account higher level plans can be very advanta-
geous for the LGU since it can increase the likelihood of the
projects being funded through other sources.
Integrating lower level plans is further discussed in relevant
sections of the manual.
2.5 UPDATING THE CDP AND ELA
At the minimum updating the CDP and ELA should be done
every three years as soon as the new set of LGU offi cials are
sworn in and the LDC has been reconstituted. This is an ap-
propriate time to re-examine the existing CDP and revisit the
strategic directions (Vision, Mission, Goals, Objectives, Strate-
gies) and take stock of what has been achieved by the previous
administration.
Evaluation reports (e.g. State of Local Governance Reports)
prepared by the previous administration contain useful infor-
mation that are beneficial in revising and updating the CDP
and ELA. The information allows the planning team to identify
the extent to which the objectives of the CDP and ELA have
been achieved or whether the plan has effectively addressed
the needs of the citizens.
Basically, updating the CDP and ELA go through the same process as illustrated in Fig-
ure 2.1 above. Some useful questions and recommendations that can assist the team inupdating the plans are enumerated:
What has been achieved by the previous administration? What are the significant
changes in LGU situation?
What is the existing situation? Are there new issues/problems faced by the LGU? Inte-
grate pressing issues into the new CDP.
Is the vision still relevant or is there a need to revise the statement?
Box 2.1
Calanogas, Lanao del Surs
Poverty Reduction Thrust:
Working Hand-in-Hand with
National Government
Taking its cue from the poverty
reduction thrust of the Philippine
government, the Calanogas, Lanao
del Sur CDP and ELA identified and
prioritized programs and projects
that directly address the problem.
The said plans have been for-
mulated in line with the Medium
Term Philippine Development Plan
(MTPDP) as well as its regional
and provincial counterparts.
In Calanogas, Lanao del Sur, 50%of households live below the
poverty line. Poverty is likewise
compounded by the lack of access
to basic social services like safe
water supply and sanitary facilities.
Corollary, there is high incidence of
malnutrition among children.
The plan recognizes that poverty
reduction can only be achieved
with the concerted efforts of the
local and national government in
partnership with all sectors of the
community including foreign insti-tutions. The CDP and ELA enunci-
ate that to address the problem of
poverty, development programs
and projects should be initiated by
the LGU in partnership with other
development partners.
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in-
34
Have any of the earlier goals and objectives been met? Are there new goals and objec-
tives for the LGU?
Have the strategies been effective in meeting the desired results? If not, is there a
need to change strategies?
What programs and projects identified in the previous CDP and ELA were not imple-
mented? Why they were not implemented?What are the new priorities of the incumbent? It is prudent to incorporate programs
and projects that have been part of the campaign platform of newly elected offi cials.
2.6 FORMULATING/REVISITING THE LGU VISION AND MISSION
STATEMENTS
What is a Vision?
The CDP process begins with the development of
a vision statement. A vision is the driving force be-hind an organization. It is the stakeholders shared
image of the LGUs future. As such, a vision serves
as an inspiration and a guide to action. The vi-
sion keeps the LGU in its course despite changing
demands of constituents and shifting political and
economic forces.
It is a desired state or scenario of the LGU and its
people. It describes what the LGU wants to become or where it wants to go. It answers
the question: How do you see your LGU in the future?
What is a good vision for a local government unit?
A good vision statement of an LGU reflects its desired role or the best contribution it can
make to the development of the nation. In short, the LGU vision should not deviate from,
but rather, should be a local variation of the very aspiration of the national government
that LGUs as political and territorial subdivisions attain their fullest development as self-
reliant communities and become effective partners in the attainment of national goals
(Sec. 2, a. RA 7160).
A good vision statement should possess the following characteristics:
Achievable.a. Though a vision is ambitious, it certainly must be achievable or well
grounded on reality.
Inspiring.b. It should encourage commitment and inspire enthusiasm. A good vision
should be powerful and compelling. The people concerned can relate to it and work
hard to achieve it. It should be a driving force even at trying times and should capture
the imagination, engage the spirit and inspire performance.
Easily understood.c. It uses simple language and presented in a manner that every
member of the organization/community can recall.
Box 2.2
Formulating the Vision
A vision should be as vivid as
possible, so that it can serve as an
inspiration as well as a challenge
for all stakeholders.
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in-
Distinctive.d. It should build on the distinct character of the LGU, i.e., Marikina City as
a river city so its vision highlights river resource for future development.
Complementarity.e. Neighbouring LGUs should have complementary not competing
visions, i.e., municipalities along the same zone do not all have to serve as ports.
Shared.f. A widely shared vision is the most powerful engine that drives people to
progress. It serves as the driving force that moves and guides the entire community
toward the achievement of common development direction. More importantly, a
widely-shared vision enables the LGU to present a picture and articulate the kind of
future it prefers for its people as individual citizens and as a community, the economy,
the natural and built environment, and the local leadership/governance (see Box 2.3
for an example of a widely shared vision).
Box 2.3
Examples of LGU Visions
Conflict Sensitive and Peace Promoting Vision
On top of the many possible aspirations that an LGU may have for their locality, a peace promot-
ing and conflict sensitive vision would show an LGUs aspirations for genuine peace and human
security, including the elimination of various forms of structural violence and cycles of violence in
peoples lives. An example is the vision of Tulunan, North Cotabato:
The LGU of Tulunan, envisions the attainment of an improved quality of life based on a viable economy,
balanced ecology and sustainable integrated human development in the culture of peace and unity
(Source: Tulunan, , North Cotabato).
Turtle Islands, Tawi Tawi Vision: Ambitious yet Well-grounded
We envision Turtle Islands Municipality as a model wildlife sanctuary and protected area, a world class
eco-tourism haven, maintaining a well balanced ecological system, sustainably managed by active and em-
powered constituents through good governance.
The vision is definitely grand but absolutely based on the strengths of the municipality. The mu-
nicipality is unique being the only nesting ground of the famous green turtle in the ASEAN region.
Possessing rich marine life and coral reefs, unique scenery and exquisite wildlife certainly make it an
ideal place for ecotourism.
Basilans Shared Vision that Recognizes Diversity
If we do not know where to go, we will not know how to get there, so goes the message of the gover-
nor of Basilan to her constituents.
The vision statement of the Province of Basilan reveals the collective aspirations of its people for
a future that recognizes the diversity of cultural practices, values and behaviour and the need to
preserve them. To wit:
A peaceful and progressive province, a center for commercial crops with a developed and sustained marine
industry, in a sound and ecologically balanced environment, improved quality of life, diversified and pre-
served culture, empowered citizenry, steered by committed, transparent, accountable leaders and supported
by a responsible bureaucracy (Basilan CDP-ELA 2007-2010).
5/27/2018 A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM) - ...
http:///reader/full/a-manual-on-the-local-planning-process-formulating-the-cdp-and-ela-in-
36
How is a vision developed?
There are