THE LOCAL PLANNING STRUCTURE

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1.0 INTRODUCTION

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

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

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

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

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

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

1.1 Components of the Local Planning Structure

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

Figure 1.1 COMPONENTS OF THE LOCAL PLANNING STRUCTURE

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

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

1.1.1 The Political Component

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

of the inherent weakness of Philippine planning in the past. Philippine planning
has traditionally been a technical exercise in need of political support.
Technocrats in both national and local levels prepare more or less elegant
plans but it is common knowledge that these plans merely adorn the
bookshelves of office executives. The main reason for this unfortunate reality

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

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

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

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

1.1.2 The Technical Component

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

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

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

For a truly comprehensive coverage of every conceivable aspect of local

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

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

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

4
See Sec. 112, RA 7160

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Box 1 DEVELOPMENT SECTORS AND SUB-SECTORS

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 Box 2 STRUCTURE OF LDC

Primary Functions
LDC:
Formulate development plans and policies;
LDC Formulate public investment programs;
In Plenary Appraise and prioritize programs and projects;
Formulate investment incentives;
Coordinate, monitor and evaluate implementation
of development programs and projects.
Barangay Development Councils:
Mobilize people’s participation in local development
functions;
Prepare barangay development plans;
Executive Monitor and evaluate implementation of national or
Committee local programs and projects.
Executive Committee:
Represent the LDC when it is not in session;
Ensure that the LDC decisions are faithfully carried
out and act on matters needing immediate
attention by the LDC;
Formulate plans, policies and programs based on
Secretariat principles and priorities laid out by LDC.
Secretariat:
Provide technical support to the LDC;
Document proceedings;
Prepare reports;
Other support functions as may be necessary.
Sectoral or Functional Committee:
Assist the LDC in the performance of its functions;
Sectoral or Functional Provide the LDC with data and information
Committees essential to the formulation of plans, programs and
activities;
Social Define sectoral or functional objectives, set targets
Economic and identify programs, projects and activities;
Infrastructure Collate and analyze data and conduct studies;
Conduct public hearings on sectoral planning,
Environment and
projects and activities;
Natural Monitor and evaluate programs and projects; and
Resources Perform functions assigned by the LDC.
Institutional

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 Box 3 SECTORAL COMMITTEE COMPOSITION
Sectoral Core Technical Expanded Technical Full-Blown Sectoral
Committee Working Group Working Group Committee
(Must be there) (Nice to have around) (The more the merrier)
1. SOCIAL MPDO Staff Police Chief Sports Organizations
DEVELOPMENT SWDO Fire Marshall Religious Leaders
MHO Local Civil Registrar Labor Groups
POSO Population Officer Senior Citizens
LDC Rep (brgy) PCUP Media Reps
LDC Rep (CSO) Nutrition Officer YMCA/YWCA
District Supervisor Housing Board Rep Inner Wheel Club
PTA Federation NSO School Principals
Sanggunian Rep Manager GSIS/SSS Charitable Organizations
2. ECONOMIC PESO DTI Representative Lions Club
DEVELOPMENT Agriculturist Chambers of Commerce Jaycees
Tourism Officer & Industry Rotary Club
Coop Devt Officer Trade Unions Academe
MPDO Staff Bank Managers Other interested groups
LDC Rep (brgy) Market Vendors and individuals
LDC Rep (CSO) Sidewalk Vendors
Sanggunian Rep Cooperatives
Transport Orgs
3. PHYSICAL/ Municipal Engineer Electric Coop Rep Other interested groups
LAND USE Zoning Officer Water District Rep and individuals
DEVELOPMENT MPDO Staff Real Estate Developers
LDC Rep (brgy) Professional
LDC Rep (CSO) organizations
Sanggunian Rep Telecommunications
Municipal Architect companies
Academe
4. ENVIRON- MPDO Staff Sanitary Inspector Environmental
MENTAL LDC Rep (brgy) CENRO Advocates
MANAGEMENT LDC Rep (CSO) PENRO Other interested groups
General Services Head FARMC Reps and individuals
LG-ENRO BFAR Rep
Sanggunian Rep Heads of private
hospitals
Academe
5. INSTITUTIONAL MPDO Staff HRDO Religious groups
DEVELOPMENT LDC Rep (brgy) Treasurer Good Governance
LDC Rep (CSO) Budget Officer advocates
LGOO Assessor Other interested groups
Local Administrator Academe and individuals
Sanggunian Rep
CORE TECHNICAL WORKING GROUP – composed of Local Government officials and functionaries
whose tasks and responsibilities address the concerns of the particular sector directly or indirectly.
“NICE TO HAVE AROUND” – other LGU officials, national government agencies operating in the
locality, and important non-government organizations with functions and advocacies touching on
the concerns of the particular sector. When added to the core TWG the resulting body becomes
the Expanded TWG.
“THE MORE THE MERRIER” – other groups and individuals, mainly from non-government sectors,
who have a stake in local development in whatever capacity, enrich and enliven the full-blown
committee’s deliberations with their varied views, agendas, and advocacies.

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

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

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

1.2 Functions of the Local Planning Structure

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

1.2.1 Local Development Councils

1) Composition

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

a. All mayors of component cities and municipalities;

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

panlalawigan;

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As summarized in Article 182, Rule XXIII of the Implementing Rules and Regulations of RA 7160.

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 c. The congressman or his representative; and

d. Representatives of NGOs operating in the province, who shall

constitute not less than one-fourth (1 /4) of the members of the fully
organized council.

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

a. All punong barangays in the city or municipality;

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

panlungsod or sangguniang bayan concerned;

c. The congressman or his representative; and

d. Representatives of NGOs operating in the city or municipality, as the

case may be, who shall constitute not less than one-fourth (1/4) of the
members of the fully organized council.

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

a. Members of the sangguniang barangay;

b. Representatives of NGOs operating in the barangay, who shall

constitute not less than one-fourth (1/4) of the members of the fully
organized council.

c. A representative of the congressman.

2) Representation of NGOs

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

3) Functions of LDCs

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

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

development plans and policies;

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

c. Evaluate and prioritize socioeconomic development programs and

projects;

d. Formulate local investment incentives to promote the inflow and

direction of private investment capital;

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

programs and projects; and

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

authority.

(2) The barangay development council shall:

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

b. Prepare barangay development plans based on local requirements;

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

and projects; and

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

authority.

4) Meetings

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

1.2.2 Executive Committee

The provincial, city, municipal, or barangay development council shall, by

resolution and within three (3) months from the date of reorganization of the
LDC, create an executive committee to represent and act in behalf of the LDC
when the latter is not in session.

1) Composition

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

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

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

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

2) Powers and Functions.

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

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

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

priorities set by the LDC; and

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

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

1.2.3 Sectoral and Functional Committees

1) Organization

The LDCs may form sectoral or functional committees to assist them in the
performance of their functions. Each member of the LDC shall, as far as
practicable, participate in at least one sectoral or functional committee.
Also, it is highly desirable for each Sanggunian member to select at least
one sectoral committee to join in and act as the champion or sponsor of
that sector’s programs and projects in the legislative council.

2) Functions

To ensure policy coordination and uniformity in operational directions, the

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

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 Consistent with national policies and standards, the sectoral or functional
committees shall:

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

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

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

c. Collate and analyze information and statistics and conduct related

studies;

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

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

projects, and activities within each sector;

f. Monitor and evaluate programs and projects; and

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

1.2.4 Secretariat

There shall be constituted for each LDC a secretariat responsible for

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

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

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

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

barangay secretary who shall be assisted by the city or municipal planning
and development coordinator concerned.

1.2.5 The Local Planning and Development Office

1) Organization

An organizational structure of the LPDO that is responsive to the

multifarious tasks assigned to it has the following salient features:

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

aided by a deputy coordinator who shall coordinate the activities of the

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 three functional divisions to allow the LPDC to attend to external
matters and inter-departmental linkages.

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

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

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

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

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

2) Functions

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

development plans and policies;

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

c. Integrate and coordinate all sectoral plans and studies;

d. Monitor and evaluate the implementation of the different development

programs, projects, and activities;

e. Prepare comprehensive development plans and other development

planning documents;

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

recommend fiscal plans and policies;

g. Promote people participation in development planning; and

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

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 Figure 1.2 FULL-BLOWN ORGANIZATIONAL STRUCTURE OF THE
LOCAL PLANNING AND DEVELOPMENT OFFICE
Chart by E.M. Serote

3) Grouping of Functions

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

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

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

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 function falls the task of building up and maintaining the Local
Development Indicators system.

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

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

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

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

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

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

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

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

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

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

1.2.6 Non-Government Sector Participation

The Local Government Code explicitly directs LGUs to promote the

establishment and operation of people’s and non-governmental organizations

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

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

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

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