A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM)

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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



A MANUAL ON THE LOCAL PLANNING PROCESS:

Formulating the CDP and ELA in ARMM



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



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



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



IV



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


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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



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



4



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



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)



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



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-



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).



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



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.



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



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



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.



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



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.



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



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.



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.



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.



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



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.



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.



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



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.



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 .



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



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.



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)



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



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



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



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.



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.



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).



36

How is a vision developed?

There are

A Manual on the Local Planning Process (Formulating the CDP and ELA in ARMM)

Documents

local planning process

processformula manual

planning team

ela formulation process

rationalized planning

cdp andela

local chief executive

armm lgspaunit