Guidelines on Provincial/Local Planning and Expenditure Management Volume 2
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Volume 2: Provincial Development and Physical Framework Plan
This is part of the Guidelines on Provincial/Local Planning and Expenditure Management produced under the NEDA-ADB Technical Assistance on Strengthening Provincial and Local Planning and Expenditure Management. The Guidelines consist of:
Volume 1: Integrated Framework Volume 2: Provincial Development and Physical Framework Plan Volume 3: Investment Programming and Revenue Generation Volume 4: Tools and Techniques on Budgeting and Public Expenditure Management Volume 5: Project Evaluation and Development
Any part of this volume may be used and reproduced, provided proper acknowledgement is made.
Published by the National Economic and Development Authority and the Asian Development Bank.
For inquiries, please contact:
Susan Rachel G. Jose, Director III Regional Development Coordination Staff National Economic and Development Authority Tel. Nos. (+63-2) 6313743 | 6389307 Email: rdcsmailbox@neda.gov.ph, sgjose@neda.gov.ph
Book Design and Lay-out: Jet Hermida, creativejet
provincial development
physical framework plan
PRoVINCIAl DeVeloPmeNT AND PHYSICAl FRAmeWoRK PlAN
PART I. INTRODUCTION
B. Analytical Approach
C. Plan Structure and Organization
D. Methodology
E. Data Requirements
F. Planning Process and Linkages
PART II. GUIDELINES FOR THE PREPARATION OF THE PDPFP
A. Introduction
1. Historical Background
2. Plan Objectives and Context
3. Coverage of the Plan
4. Outline of the Plan
B. Vision
C. The Planning Environment
1. Location, Land area, and Political Subdivisions
2. Population and Settlements
3. Physical Resources
5. Transportation and Access
6. Income, Employment, Service Access, and Poverty
7. Land Use and Physical Framework
D. Development Issues, Goals, Objectives/Targets
1. Development Issues and Problems
2. Development Goals, Objectives/Targets
E. Strategies, Programs, Projects, and Activities
1. Strategies, Programs, Projects, and Activities
2. Summary of Strategies and PPAs
REFERENCES ANNEXES ANNEX A Urban-Rural Analysis ANNEX B Migration Analysis ANNEX C Computing Annual Population Growth Rates
GUIDELINES ON PROVINCIAL/LOCAL PLANNING AND EXPENDITURE MANAGEMENT
ANNEX D
ANNEX E
Defining a Hierarchy of Settlements
ANNEX F
ANNEX G
ANNEX H
Probability Analysis
Core Indicators for Population and Development (PopDev)
ANNEX J
Planning at the Local Level; Selected Population and Development Indicators Poverty Indicators
ANNEX k
Measures of Poverty
ANNEX L
Basic Guidelines for the Identification of Strategies and
Projects Consistent with Poverty Reduction Objectives (Causes of Poverty, Policy Responses to Poverty Alleviation, Local Policy Framework for Poverty Reduction) ANNEX M Urban-Regional Planning and Disaster Mitigation in the Philippines
Case Study 1: Misamis Oriental, Population and Settlement Analysis
Case Study 2: Central Luzon Provinces, Project Ideas for Economic Growth in the W Corridor
LIST OF MAPS*
Map 1 (Example, Camarines Norte, Region V) Regional Location Map: map of administrative region showing location of province, with a reference inset map of the Philippines
Map 2 (Example, Iloilo) Province Map: map of the province, showing provincial, district and city/municipal boundaries, major water features (lakes, streams, coastal areas), major roads, the capital city and other settlement centers
Map 3a (Example, Iloilo, 1990) Density Map, by city/municipality, latest and previous census
Map 3b (Example, Iloilo, 2000) Density Map, by city/municipality, latest and previous census
Map 4a (Example, Iloilo) Annual Population Growth Rates, by city/municipality:
Map 4b (Example, Iloilo) Annual Population Growth Rates, by city/municipality:
Map 6 (Example, Isabela) Slope Map
Map 7 (Example, Bulacan) Geologic Map
Map 8 (Example, Isabela and Region II) Climate Map
Map 9 (Example, Bulacan) Land Classification Map
Map 10 (Example, Bulacan) Land Suitability Map
Map 14 (Example, Batangas) Map of the province showing external linkages and internal circulation routes (existing and proposed)
Map 24 (Example, Bulacan) Existing Land Use
Map 24 (Example, hypothetical province showing settlements hierarchy) Existing Land Use
Map 25 (Example, hypothetical province) Initial Settlements Growth
Map 26 (Example, hypothetical province) Initial Settlements Growth and Protection
Map 31 (Example, hypothetical province) Physical Framework
Map 32 (Example, hypothetical province) Project Location
*Maps not listed here are just presented as map title in the text. There are no actual map/figure.
NATIONAL ECONOMIC AND DEVELOPMENT AUTHORITy
Figure 1 Core Elements of Analysis
Figure 2 Structure of the PDPFP Guidelines
Figure 3 Typical Structure of Section/Subsection
Figure 4 Provincial Development Planning and Expenditure Management System
Figure 5 (Example) PDPFP Preparation and Approval Schedule
Figure 6 (Example, Pie Chart) Overall Distribution of the Regional Economy
Figure 7 (Example) Share Diagram
Figure 8 (Example) Histogram
Figure 9 Decision Tree on Identification of Industries with Local Economic Growth Potential
Figure 10 Physical Framework Process
Figure 11 Potential Land Use Conflicts
Figure 12 The Planning Environment, Development Issues/Problems, Strategies and PPAs
LIST OF TABLES*
Table 1 Core Elements and Sectors
Table 2 Data Requirements
Table 4 (Example, Region X, 1990-2000) Latest census population size, annual population growth rate (latest intercensal period), land area, density:
Philippines, region, provinces in region
Table 5 (Example, Lanao del Norte, 1990-2000) Latest and previous census population size, annual population growth rate during last intercensal period, land area, density, by province, cities/municipalities within the province
Table 6 (Example, Lanao del Norte, 1990-2000) Population shares, latest and previous census population, cumulative population shares, additional population (latest-previous census), by city/municipality
Table 7 (Example, Lanao del Norte, 2006) Estimated population, density, and additional population at the end of the plan period
Table 11 (Example, Region II) Data Matrix Table Sectoral/industrial distribution of regional economy by value of production, employment, or income, by province
Table 12 (Example, Region II) Joint Probability Table Shares of total value of production, employment, or income, by sector/industry, by province
Table 13 (Example, Region II) Concentration
Table 14 (Example, Region II) Specialization
Table 15 (Example, Region II) Location Quotients
Table 17 (Example, Region V) Average family income, total family income, latest and previous survey data, and growth rate, for the province, selected cities/ municipalities within province, the region, Metro Manila, Philippines
Table 18 Local Service Standards
Table 20 Summary Description and Comparison of Vision, Goal, Objective, Strategy, Program and Project
Table 21 Example of Issues/Problems, Goals, and Objectives/Targets
Table 22 Examples of Strategies, Programs, and Projects derived from Income/ Access to Services
Table 23 Examples of Strategies, Programs, and Projects derived from Land Use
Table 24 Summary Matrix
*Tables not listed here are just presented as table title in the text. There are no actual figures/content
Alienable and Disposable
Execom
ETC/S
Existing levels, Trends,
Annual Investment Program
Comparisons, Significance
APGR
Annual Population Growth Rate
Family Income and
BSWM
Bureau of Soils and Water
Expenditure Survey
Forest Management Bureau
Climatology and
GRDP
Gross Regional Domestic
CBMS
Agrometeorology Branch Community-Based Monitoring
Product Human Development Index
Household Head
CLUP
Comprehensive Land Use Plan
IPDF
CLPI
Core Local Poverty Indicators
Community Mortgage Program
IPDP
CPDO
City Planning and Development
ITCZ
Inter-Tropical Convergence
Census on Population and
LDIP
DepEd
Investment Program
DENR
Department of Environment and
LGU
Local Government Unit
Location Quotient
DILG
Department of the Interior and Local Government
LPRAP
Local Poverty Reduction Action Plan
Millennium Development
DOTC
and Communications
Mines and Geosciences
DPWH
and Highways
MPDO
Municipal Planning and
DSWD
Department of Social Welfare
and Development
MTPDP
Medium-Term Philippine
MTPIP
Medium-Term Public
NAMRIA
Investment Program National Mapping and
PDPFP
Investment Program Provincial Development and
Resources Information Authority
PHIVOLCS
Physical Framework Plan Philippine Institute of
NSCB
National Statistical
Volcanology and Seismology
Coordination Board
Philippine Health Statistics
National Economic and
PopCom
Commission on Population
PopDev
NDHS
National Demographic and
Programs, projects, and
NFPP
Health Survey National Framework for
PPDO
activities Provincial Planning and
Physical Planning Non-Government Organization
PPFP
Development Office Provincial Physical Framework Plan
National Integrated Protected
Republic Act
Areas System
NLUC
National Land Use
Regional Development Plan
National Statistics Office
RDIP
Philippine Atmospheric,
Geophysical, and
RPFP
Regional Physical Framework
Astronomical Services Administration
SAFDZ
Plan Strategic Agriculture and
Presidential Decree
Fisheries Development Zones
Socioeconomic Profile
N EDA, with assistance from ADB, formulated the Guidelines on Provincial/Local
Planning and Expenditure Management comprising of (1) Integrated Framework,
(2) Provincial Development and Physical Framework Plan, (3) Investment
Programming and Revenue Generation, (4) Tools and Techniques on Budgeting and Expenditure Management, and (5) Project Evaluation and Development.
Basis for PPAs
The second volume aims to provide provincial planners the basis for identifying programs, projects, and activities (PPAs) towards achieving the development objectives of the province. The output of the guidelines is the PDPFP, which identifies strategies and corresponding PPAs that serve as primary inputs to provincial investment programming, budgeting and implementation. The PDPFP also links provincial development objectives with regional and national policies and priorities.
Many guidelines have already been written for the preparation of development plans. This set of guidelines will build on—and not replicate—this body of work. However, it is not intended to be a compilation of existing guidelines. It offers a specific structure and approach to development planning, integrating or referring to other guidelines consistent with its structure and approach.
Analytical Approach
The overall emphasis of the guidelines is on following basic planning logic rather than on prescribing specific planning tools and procedures.
The guidelines are premised on three basic ideas. First, provincial resources should be viewed in terms of their potential benefits to the people of the province. Second, development invariably requires material resources. To be sure, development is not defined solely or even principally by material factors; but one way or another, it will require material support. And third, a province has a unique set of physical resources defined by its specific location. No
other province can occupy the same location and thus no other province can have the exact same set of resources.
The core elements of the planning environment analysis, therefore, deal with population, economic activity, and physical resources. These elements interact and result in a local environment that ultimately defines quality of life. This is manifested through the income, expenditures and services enjoyed by the community and its members. All of these are physically expressed in the way land and other physical resources are utilized.
Plan Structure and Process
The components and structure of the PDPFP come straight out of the analytical approach and follow a process familiar to most planners:
Stage 1: Visioning Output: Governor/Provincial Development Council (PDC) inputs, vision
Stage 2a: Situation analysis: organization, data, initial analysis Output: consultations, data and other inputs, initial analysis
Stage 2b: Situation analysis: plan environment Output: Governor/PDC inputs, plan environment (socioeconomic profile or SEP) with development issues/problems
Stage 3a: Development objectives, strategies, PPAs Output: consultations, development goals, objectives, strategies, PPAs
Stage 3b: Draft PDPFP Output: Draft PDPFP (subject to public hearing)
Stage 4: PDPFP approval Output: Sanggunian-approved PDPFP
Summary of the Guidelines for the Preparation of the PDPFP
A. Introduction. The Introduction provides a brief background on the province, the planning context and policy environment, and the objectives and coverage of the plan.
B. Vision. The vision provides a long-term view of the province that reflects local aspirations. It also serves as an inspirational guide for the rest of the PDPFP. As a general rule, the vision describes a long-term ideal state of the province.
C. The Planning Environment. The planning environment describes the physical, economic,
and social environments of the province as inputs to the identification of strategies and PPAs:
Location, Land Area, and Political Subdivisions: A brief description of the location, land area, and political subdivisions of the province.
Population and Settlements: A range of demographic characteristics including regional/ national comparisons; the distribution of the population and settlement patterns.
Physical Resources: Land and water resources; existing land uses, trends, and conflicts as key considerations in identifying development directions and specific PPAs.
Economy: The economic base, sectors, and industries that drive the provincial economy; potentials, and opportunities for economic growth; local growth factors.
Transportation, Access, and Circulation: Transportation conditions and facilities, and how they affect interactions among population, economic, and other social activities.
Income, Employment, Service Access, Poverty: Links between economic growth, employment, income, expenditures, access to goods and services, and poverty conditions.
Land Use and Physical Framework: A full picture of the way land and other physical resources are being utilized and a physical framework to guide the identification of PPAs.
Development Issues/Problems, Goals, Objectives and Targets. Development issues and
problems (following the analysis of the planning environment), along with corresponding goals, objectives, and targets are identified.
E. Strategies, Programs, Projects, and Activities. For each identified development goal and
objective, and guided by the vision, strategies, and PPAs are derived and identified.
NEDA, with assistance from ADB, formulated the Guidelines on Provincial/Local Planning and Expenditure Management comprising of (1) Integrated Framework, (2) Provincial Development and Physical Framework Plan, (3) Investment Programming and Revenue Generation, (4) Tools and Techniques on Budgeting and Expenditure Management, and (5) Project Evaluation and Development.
The second volume aims to provide provincial planners with the bases for identifying specific programs, projects, and activities (PPAs) towards achieving the development objectives and targets of the province. The output of the guidelines is the Provincial Development and Physical Framework Plan (PDPFP) which identifies strategies and corresponding PPAs that serve as primary inputs to the provincial investment programming process. The resulting PDPFP also serves as a key vertical influence in linking provincial development objectives with regional and national policies and priorities.
The guidelines recognize the following:
• The active support of the Provincial Governor is the single most important factor that can enhance the quality of the PDPFP and the implementation of its proposed PPAs. Consequently, many PPAs are intended to be implemented within the short- to medium- term, considering the three-year minimum term of the political leadership.
• While the overall state of development among provinces varies, relatively high population growth rates, wide gaps between desired and actual levels of services, and limited funding require a strategic approach to project identification, prioritization, and implementation.
• Only a few large-scale projects can be implemented within a term of office. It is important, therefore, that these projects have a positive and catalytic impact on local development.
• Many guidelines have been written for the preparation of development plans in general and of specific sectoral plans. This set of guidelines will build on—and not replicate—this body of work. However, it is not intended to be a compilation of existing guidelines. It offers a specific structure and approach to development planning and it integrates or refers to other guidelines consistent with its structure and approach. Thus, it is advisable to consult sector- specific planning guidelines (such as those on population, gender, and poverty) with respect to analytical tools, benchmarks and targets.
The overall emphasis of the
guidelines is on following
basic planning logic
rather than on prescribing specific planning tools and algorithms.
• The guidelines have to be simple and easy to follow in order to be useful. Providing comprehensive descriptions and methodologies of the complexities of development problems may yield a more academically accurate set of guidelines, but this is unlikely to be useful to its intended users. The guidelines, therefore, simplify development concepts and methodologies to a reasonable extent as far as balancing comprehensiveness and practical application is concerned.
The overall emphasis of the guidelines is on following basic planning logic rather than on prescribing specific planning tools and algorithms. The latter are necessary components of the guidelines but they are intended to support rather than define the planning process. A firm understanding of basic planning logic provides an approach applicable to a wide variety of planning situations. And while the technical aspects of the approach may change as new ones are learned and applied in the course of planning practice and as changing conditions lead to corresponding adaptations, the core logic of the approach—how an issue is viewed, analyzed and responded to—will endure.
The guidelines are premised on three basic ideas.
• First, provincial and other development resources should be viewed in terms of their
potential benefits—short-, medium-, and long-term—to the people. Ultimately, for example, we cannot talk of how physical resources should be utilized or protected without talking about the people who will utilize them or the people from whom the resources need
since their access to resources and benefits from development varies. Thus, cultural diversity, age, and vulnerability of population groups (e.g., children, elderly, indigenous
peoples) should also be taken into account in the analysis.
Furthermore, people as resources and users of resources are not homogenous
• Second, development invariably requires material resources. To be sure, development is not defined solely or even principally by material factors; but one way or another, especially in
the extended term, it will require material support. In terms of poverty reduction, for example, economic growth is a necessary (but not always a sufficient) condition.
• And third, a province has a unique set of physical resources defined by its specific location. No other province or entity can occupy the same location, and thus no other province or entity can have the exact same set of resources.
Figure 1. Core Elements of Analysis
INCOME &
(Based on Losch, 1954; Jones, 1983)
The core elements of the planning environment analysis, therefore, deal with population, economic activity, and physical resources. These elements interact and result in a local
environment that ultimately defines quality of life. This is manifested through the income, expenditures, and services enjoyed by the community and its members. All of these are physically expressed in the way land and other physical resources are utilized (Figure 1).
Population, economic activity, and physical resources may be viewed as drivers of development while income, extent of poverty, access to services, and land use may be simplistically referred to as symptoms or indicators of development. The lack of housing, for example, is a symptom of the lack of affordability, driven by the lack of income, employment, and economic growth. And while the lack of housing can be addressed by developing more mass housing projects, this can be sustained only if there is economic growth to support such investments.
In reality, physical elements cannot be separated from sectoral elements (population, economic activities, social services, etc.) and therefore physical planning should be integrated with sectoral planning. For example, transportation plans should be guided by the mobility and access requirements of people, industries and services; likewise industrial development plans need to consider the opportunities and constraints of location and geography. Thus, in this set of guidelines, location and therefore maps are integral components not just of physical plans but also of sectoral analysis. This also means that a physical framework plan is inherently an integrating plan because physical space contains all the sectors all at once. For this reason, the discussion on land use is the last section in describing the planning environment—because unlike any single sector, it is able to pull together all the sectors and elements of the planning environment into a common framework.
Given the above, the major outputs of the PDPFP are a matrix of PPAs and a map showing how they are located and physically integrated in the province.
The structure of the PDPFP is derived directly from the analytical approach and follows a process familiar to most planners.
Figure 2. Structure of the PDPFP Guidelines
Physical Resources/
Land Use and Physical Framework
Development Issues, Goals,
Objectives/Targets
Strategies and PPAs
As illustrated in Figure 2, an assessment of the current situation, including trends, takes place during the analysis of the planning environment (composed of the development drivers and indicators and a physical framework) after which development issues, problems, goals objectives, and targets are identified. This leads to proposed strategies and PPAs that eventually become primary inputs to the investment programming process. These are all preceded by the formulation of a vision that serves as an overall guide to the planning process.
Vision. Where do we want to go? The provincial community's long-term vision for the province serves as an overall guide for the formulation of the rest of the plan.
Planning Environment. Where are we right now? Descriptions and analyses of the social, economic, and physical conditions and trends of the province serve as basis for identifying development issues and subsequent goals and courses of action (strategies, programs, projects, and activities).
Development Issues, Goals, Objectives, and Targets Given our knowledge of the planning environment, what are the development issues and constraints and what goals, objectives and targets should we set to address these issues towards the attainment of our vision?
Development issues, constraints, problems, and corresponding goals, objectives, and targets serve as basis for identifying strategies and plans, programs, and activities intended for implementation.
Strategies, Plans, Programs and Activities. How do we get there? Specific strategies, programs, projects, and activities to address development issues and accomplish objectives are the outputs of the PDPFP and become the primary inputs to the preparation of the Provincial Development Investment Program (PDIP) as the overall process shifts towards implementation.
As shown in the example in Figure 3, the typical section/subsection of the Guidelines starts with a key figure outline showing where the section topic is located relative to the entire PDPFP. This is followed by a statement of the specific objective of the section, a very brief explanation of how the objective is approached and/or a summary outline, and a step-by-step description of the recommended process. Required maps, figures and tables are listed; additional (optional) maps, figures, tables and other illustrative materials are also mentioned. Examples of most (not all) of the required maps, tables, or figures are also provided, along with clarificatory notes and planning tips, in separate boxes. More detailed descriptions of specific references and methodologies may also be provided as annexes.
As described in greater detail in the guidelines, and to the extent possible given available data, analysis of the planning environment involves four basic lines of inquiry that are summarized as ETC/S:
Existing levels: Where are we? Examine existing levels that describe the current state of the population, economic activities, physical resources, and service access.
Figure 3: Typical Structure of Section/ Subsection
D Development Issues, Goals, Objectives
Approach/Summary:
a. Step 1
b. Step 2
c. Step 3
Map, Table, Figure
Development Issues, Goals, Objectives/Targets
Trends: Where are we headed? Analyze trends—determine the future direction or historical trajectory of existing levels given certain scenarios and assumptions.
Comparisons: How do we compare with desired conditions and/or other benchmarks? Compare levels and trends internally (e.g., inter-municipal), externally (e.g., inter-province or relative to the country as a whole) or with other benchmarks of provincial performance.
Strategic significance: So what? What do the existing conditions and trends mean with respect to our vision, needs, and available resources?
Assess the significance of the levels, trends and comparisons in terms of identifying what needs to be done and how these can be achieved given limited resources. The basic intent of the ETC/
S format is to steer analyses into specific courses of action that take into account the strengths and weaknesses of the province and other strategic considerations.
For each of the sections of the planning environment, therefore, the focus is on deriving planning implications given current trends and scenarios.
Development Issues, Goals, Objectives, and Targets
The assessment of the planning environment reveals problems in each sector and indications of the extent of each problem relative to benchmarks and standards. This allows the identification of development issues or the most pressing problems facing the province. From these issues, overall goals and corresponding objectives and targets may be derived, guided by the long-term vision of the province.
While goals, objectives, and targets are firmed up and formalized after the assessment of the entire planning environment, they can already be identified as each sector is analyzed. Thus, for example, if elementary school student survival is identified as an important issue during the analysis of the education sector (because provincial elementary cohort survival rates are below nationwide levels and/or are further declining), then improving elementary school student survival may be identified as an objective. And in this case, an improvement of the nationwide survival rate may be identified as the target. This objective and its target may then be firmed up after the planning environment assessment process, taking into consideration other development issues and the overall vision of the province.
Data gathering and multi-stakeholder consultation should take place throughout the planning process. Although consultation is obviously necessary during the initial data-gathering stage, the formulation of the vision, and as part of the final approval stage, it should take place as often as necessary, whether formally or informally. Data and information should be compiled in both text and map forms, whenever applicable.
The guidelines recognize the lack of data that hinders straightforward technical analysis. It
is assumed, therefore, that planning decisions will be made with incomplete information.
Still, some data are essential to the use of the guidelines. For example, some data that are disaggregated by gender may improve the identification of strategies and PPAs. It is also expected that the amount of available data will increase in the future as monitoring, data gathering, processing, and documentation mechanisms and facilities improve.
Historical coverage
The proposed PPAs of the PDPFP are intended to form part of a six-year medium-term development plan with firmed up targets for the first three years to align with the priorities of elective officials. This facilitates the identification of clear, focused, and implementable PPAs during the incumbency of the Governor. Thus, following the previous example, specific levels of improvement in school survival rates are targeted for each of the first three years of PDPFP coverage.
After the first three years, the plan is subject to a mid-term review, in part to establish targets for the second half of its coverage. The PDPFP is also intended to coincide with two three-year political terms of the Governor, aligned with a full term of the national leadership. It is guided by a long-term (e.g., 30-year) vision. The physical framework of the plan may also extend beyond the medium-term period.
While the PDPFP is a medium-term plan, its planning analyses extend beyond the medium- term to consider longer-term trends. This is especially evident in analyses dealing with the core elements of the planning environment.
Much of the analyses will depend on available census data and thus on 10-year intercensal periods. As a minimum, therefore, the latest and at least the previous census data will be utilized, although for some sectors, e.g., land use area distribution, production value, and service infrastructure coverage, etc., comparable historical data may not be available and therefore only the latest (i.e., no historical comparison) will have to suffice. If they are available and analytically comparable, local data will also be utilized.
The political boundaries of the province define the primary level of geographical analysis. Other provinces in the host region as well as the host region itself, and the country as a whole, are also included as benchmarks (as part of the comparative analytical methodology).
Cities and municipalities within the province serve as the major level of analytical disaggregation, although barangay-level data are recommended for selected population analysis. Groups or clusters of municipalities as well as geographically delineated areas (e.g., metropolitan areas, districts, watersheds, river basins) may also be utilized as required.
References to land and land use should include water and water use, unless otherwise specified.
Sectoral coverage
The planning environment of the PDPFP can include all major sectors relevant to the development of the province, with actual coverage depending on planner and stakeholder
priorities and assessments. It is not necessary, therefore, to discuss all sectors equally, even
the guidelines suggest a basic set of analytical steps for initial consideration. As much
possible, and in order to establish comparability and context, sectoral data should be
consistent with regional/national and city/municipal data. Economic data, for example, should try to follow the major sectoral classifications of the GRDP, which reflects the aggregate gross value added of all productive sectors of a region during an accounting period.
In terms of the traditional sectors that typically serve as templates for public sector planning
analysis and implementation, the core elements correspond as shown in Table 1:
Table 1. Core Elements and Sectors
Core element
Agriculture, fisheries, forestry
Trade, industry, services
Environment, natural resources
Transportation and communication
Income/access to services
Public works (water supply, drainage, solid waste)
Other services and facilities (for community groups such as the elderly, children, indigenous peoples, etc.)
(Physical integration of all sectors)
is useful to reiterate that the discussion of each sector involves the spatial characteristics
that sector—e.g., the location of key production areas and facilities, or the water supply
distribution network, or the location of schools and other educational facilities. The discussion on land use and the physical framework, however, as previously pointed out, integrates all of the sectors into a common physical setting defined primarily by the province.
A summary of the data requirements and their likely sources is shown in Table 2 below. As
much as possible, the gender perspective should be integrated in data collection in order to come up with a more objective identification of strategies and PPAs.
Table 2. Data Requirements
Core Element/ Sector
Geographical unit
• Size, density, growth rate
• Philippines, Region, Province
Latest, previous
NSO, NCSB,
• If available: age-sex, urban-rural distribution; migration
• If available: other province in region, cities/municipalities in province, barangays
LGUs
Environment, natural
• Land area
• Province
Latest census
sectoral
resources, protection
• Characteristics of land resources
• If available: region, other province in region, cities/
agencies,
• Land use, land suitability, land classification
municipalities in province
By transport mode or industry if available:
• Existing and proposed facilities, routes, levels of
• If available: region, other provinces in region, cities/
Transport and
By subsector or industry if available:
• Employment, income, or value of prod by sector
NSO,
• If available: other province in
• Agriculture, fisheries, production forestry
• Export products, markets, volumes by sector (if
region, cities/municipalities in province
• Manufacturing
available)
• Trade, industry, services
• Existing, proposed
support infrastructure
Income and Services
• Employment/
Latest,
NSO, NCSB
• Income and poverty
• Average family income
• Poverty indicators
• If available: other
• Map (if available)
provinces in region, cities/ municipalities in province
• Housing, Health, Education, Sanitation, Security
• Existing and proposed facilities
• Region, Province
• Levels of service of basic
• Public works: roads, water supply, solid waste, drainage
social services (health, education, sanitation, security), public works
• Power; other sectors
• Land Use
• Location/maps of above sectors
LGUs,
• If available: cities/ municipalities in province
As mentioned earlier, the PDPFP is a key link in the network of plans covering the national, regional, provincial, and city/municipal levels. At the provincial level, the PPAs derived from the PDPFP are the bases for a multi-year Provincial Development Investment Program (PDIP) and the annual investment program (AIP); the AIP is the basis for budgetary allocations for PPAs. (Figure 4)
Figure 4. Provincial Development Planning and Expenditure Management System
Project Eavaluation
MTPDP/NFPP
RDP/RPFP
Technical lead:
Policy lead: Gov/PDC
Programming &
Technical lead: PPDO
City /
Delopment
C/MPDO
Medium-term revision
Impact and
Information Base
Budgeting &
PDIP/AIP
sources of
City/ Municipal
• Multi-yr
expend plan
• Annual budget
• Disbursement
The entire process, from the preparation of the PDPFP to the approval of the annual budget, may take place over a period of one year.
For the process covering the preparation and approval of the PDPFP:
• The Governor and the Provincial Development Council (PDC) provide overall policy direction.
• The Provincial Planning and Development Office (PPDO) has overall responsibility for the technical preparation of the PDPFP, including the consultation and approval processes.
• Key vertical linkages:
- The Regional Development Council (RDC) , NEDA Regional Offices, with policy and other document inputs provided through the Regional Development Plans (RDPs), Regional Physical Framework Plans (RPFPs), Regional Development Investment Programs (RDIPs), the Medium-Term Philippine Development Plan (MTPDP), and National Framework for Physical Planning (NFPP).
- City/Municipal Planning and Development Offices of cities and municipalities in the province, with document inputs from the Comprehensive Land Use Plans (CLUPs) and other local development plans, which use data provided by the Barangay Development Councils.
- Technical Working Groups (TWGs) involving the above as well as other regional and national agencies such as the Department of Public Works and Highways (DPWH), Department of Environment and Natural Resources (DENR), Department of Agriculture (DA), Department of Transportation and Communications (DOTC), Department of Education (DepEd), Department of Health (DOH), and Department of Social Welfare and Development (DSWD), National Commission on the Role of Filipino Women (NCRFW), and National Anti-Poverty Commission (NAPC).
• Key horizontal linkages:
- Forward linkage: Provincial Finance Committee with the PPAs as inputs to the investment programming process.
- Backward linkage: Provincial Department Heads and their Monitoring and Evaluation Units in providing feedback and other inputs for the medium-term revision or re- planning of the PDPFP.
As a whole, and especially for vertical linkages, the process goes back and forth with national and regional plans and policies guiding provincial and other local plans while receiving feedback and inputs from the latter.
The vertical integration process requires constant coordination by the PPDO with counterpart planning agencies at the regional, city, and municipal levels as well as with concerned national government agencies to ensure consistency in vision, goals and objectives, strategic thrusts, and, to the extent possible, complementarity among PPAs. Similarly, it is expected that the Governor will articulate the provincial vision, goals, objectives, targets, and PPAs in the PDC and RDC, in order to harmonize them with those of component cities/municipalities and other provinces in the region, respectively. Towards this objective, pooling resources with other provinces as well as with component cities and municipalities may be undertaken in planning and implementing mutually beneficial PPAs.
The preparation and approval of the PDPFP involve several stages as follows, described here with an emphasis on their institutional linkages.
Stage 1: Visioning The vision reflects the provincial community's aspirations for the long-term future of the province and serves as an overall guide to the planning process. Like the rest of the planning process, the visioning activity is spearheaded by the Governor and the PDC, is organized and managed by the PPDO, and includes all sectors and stakeholders of the province.
Stage 2a: Situation analysis: organization, data, initial analysis Stage 2a covers the initial organization and meetings of TWGs. The PPDO is responsible for organizing the TWGs that form the Sectoral Committes of the PDC. Each TWG is composed of stakeholders of a sector or a related group of sectors, including NGO and other private sector representatives. Its primary role is to assess the sector (or group of sectors) it represents, providing inputs to the PPDO during the assessment of the planning environment (situation analysis). The activities during this stage involve identifying responsibilities, setting up timetables, discussions on the development thrusts and priorities of the Governor and the PDC/Execom, initial consultations within and outside the TWGs, (including city/municipal, regional and, if necessary, national level consultations), and consolidation of data inputs, reference information, and other requirements.
Stage 2b: Situation analysis: plan environment Stage 2b covers much of the technical analysis and the identification of key issues, problems, and constraints. This stage includes updates to the Governor and PDC/Execom, particularly regarding priority issues and their alignment with current or proposed government priorities. Consultations with concerned public agencies and private groups continue as required. (The output of this stage also comprises the main elements of the provincial socioeconomic profile.)
Stage 3a: Formulation of development goals, objectives/targets, strategies, and PPAs Stage 3a covers the identification of development goals, objectives/targets, strategies, and PPAs in consultation with TWGs and key sectoral representatives, especially for sectors with identified priority issues. This stage relies on the outputs of the assessments of the planning environment.
Stage 3b: Draft PDPFP Stage 3b involves drafting the revised PDPFP, updates to the Governor, the PDC/Execom, and other key stakeholders with respect to proposed strategies and PPAs, and a public hearing on the draft PDPFP. This stage can take place while much of the previous stage is ongoing.
Stage 4: Sanggunian approval Stage 4 involves the submission of the draft PDPFP, with appropriate revisions according to the public hearing, to the Sanggunian for approval.
The stages described above are valid for drafting a new PDPFP or for simply reviewing and updating one. In the latter case, however, Stages 1 and 2 may be less intensive and oriented towards validation rather than formulation.
An indicative summary of the activities and schedule of the planning and approval process is shown in Figure 5. The actual duration of the process may vary according to local priorities and conditions but should meet the Local Government Code-prescribed budgetary timetable which is also espoused in the DILG-NEDA-DBM-DOF Joint Memorandum Circular No.1, Series of 2007. In the example below, the entire process takes place over a period of four months.
Figure 5. Example: PDPFP Preparation and Approval Schedule
Week>
STAGE 1: Visioning
Gov/PDC inputs, vision
• Governor and PDC/Execom directions (for
vision and PDPFP preparation in general)
• Visioning activity
STAGE 2a: Situation analysis:
organization, data, initial analysis
consultations, data, other inputs, initial analysis
• TWG: organization, schedule, development
thrusts, data gaps, responsibilities
• Data gathering/consolidation
• Stakeholder consultations
• Consolidate data, other inputs
STAGE 2b: Situation analysis: plan
Output: Gov/PDC inputs, plan environment/socioeconomic
profile with development issues/problems
• TWG: Identification & prioritization of
issues/problems
• Governor & PDC/Execom update, directions
• Draft plan environment (basis for SEP) with
development issues
STAGE 3a: Development goals/
objectives, strategies, PPAs
Output: consultations, development goals, objectives,
strategies, PPAs
• Formulate goals, objectives, and targets
• Formulate strategies, PPAs
• TWG: draft strategies, PPAs
STAGE 3b: Draft PDPFP
Output: Draft PDPFP
(subjected to public hearing)
• Draft PDPFP
• Governor and PDC/Execom update
• Public hearing and other consultations
STAGE 4: PDPFP approval
Sanggunian-approved PDPFP
• Final draft
• Sanggunian approval
guidelines for the preparation of the
guidelines for the
preparation of the pdpfp
The PDPFP aims to provide a brief background on the province, the planning context and policy environment, and the objectives and coverage of the Provincial Development and Physical Framework Plan (PDPFP). The background will serve as an introduction to the vision.
1.1. Provide a brief historical background of the province. This may include:
1.1.1. Origin (e.g., how the province was created and from which area or areas the province originated).
1.1.2. The year the province was founded.
1.1.3. The etymology or origin of the name of the province and other interesting historical features of the province.
1.2. State the number of cities/municipalities and the total population of the province.
2.1. Identify the objectives of the plan. These objectives should include the following:
2.1.1. Define the vision for the province.
2.1.2. Provide the analytical basis for understanding existing conditions and identifying key development issues, goals, objectives, and targets of the province.
2.1.3. Translate the vision into strategies that can be implemented to attain the goals, objectives, and targets.
2.1.4. Identify programs and projects consistent with the strategies and which serve as inputs to the PDIP.
2.1.5. Other objectives identified by the province.
2.2. Describe briefly the context of the plan within the overall hierarchy of plans. (Refer to Part 1, Section F, "Planning Process and Linkages.")
2.3. Describe key policy and legislative mandates for the plan.
Example of objectives (2.1) and context (2.2)
Objectives of the PDPFP
The PDPFP is the primary technical guide to the development of the province. Its specific objectives are to:
a. Derive the overall vision for the province.
b. Provide the analytical basis for understanding existing conditions and identifying key development issues, problems, opportunities, goals, objectives, and targets of the province.
c. Translate the vision into implementable strategies towards the attainment of goals, objectives, and targets.
d. Guided by the vision, identify programs, projects, and activities consistent with the proposed strategies.
Context of the PDPFP
The PDPFP is a key link in the network of plans covering the national, regional, provincial, and city/municipal levels.
Plans and investment programs at the provincial level must have vertical connections to corresponding plans at the regional and city/municipal levels. In turn, regional plans and programs must relate to corresponding plans at the national level. The resulting PDPFP, therefore, serves as a vertical link between local development objectives and regional and national priorities. At the provincial level, the PPAs derived from the PDPFP are the bases for a multi-year investment program (PDIP--a prioritized list of PPAs with cost estimates) and an
annual investment program (AIP or the current year "slice" of the PDIP). In turn, the AIP serves as the basis for budgetary allocations for PPAs.
As shown in the figure below, investment programming, budgeting, and subsequent implementation involve project evaluation and development, which eventually provide feedback into the next planning cycle.
PDIP/
Monitoring and
3.1. Describe the historical coverage of the plan.
3.2. Describe the geographical coverage of the plan.
3.3. Describe the sectoral coverage of the plan
Example of description of coverage (3.1, 3.2, 3.3)
3.1. Historical Coverage
The PDPFP is a six-year medium-term development plan, guided by a long-term vision. It is intended to coincide with two three-year political terms of the Governor, and can be aligned with a full term of the national leadership.
Planning analyses, however, extend beyond the medium-term to consider longer-term trends. These are necessary inputs to the identification of strategies and PPAs for the six-year plan period.
3.2. Geographical coverage
The political boundaries of the province define the primary level of geographical analysis. Other provinces in the host region as well as the host region itself, and the country as a whole, are also included as benchmarks in some of the analyses.
Cities and municipalities within the province serve as the major level of analytical disaggregation, although barangay-level data are recommended for selected population analysis. Groups or clusters of municipalities as well as geographically delineated areas (e.g., metropolitan areas, watersheds) may also be utilized as required.
References to land and land use will include water and water use, unless otherwise specified.
3.3. Sectoral coverage
The planning environment of the PDPFP includes all major sectors relevant to the development of the province. As much as possible, and in order to establish comparability and context, sectoral data should be consistent with regional/national and city/municipal data.
In terms of the traditional sectors that typically serve as templates for public sector planning analysis and implementation, the core elements correspond as follows:
Agriculture, fisheries, forestry, trade, industry, services, tourism
Environment, natural resources, transport
Health, education, housing, social welfare, public works, energy, security, other services and facilities (for community groups such as the elderly, children, indigenous peoples, etc.)
Physical integration of all sectors
Briefly describe the contents of the rest of the plan:
4.1. Vision
4.2. Planning Environment
4.3. Development Issues/Problems, Goals, Objectives, and Targets
4.4. Strategies, Plans, Programs, and Activities
Example of description of outline
The rest of the PDPFP is organized as follows:
4.1. Vision: The provincial community's long-term vision for the province, as expressed through its leadership in consultation with stakeholders.
Planning Environment: Descriptions and analyses of the social, economic, and physical
environment of the province that serve as basis for identifying development challenges and issues and subsequent courses of action (strategies, plans, programs, and activities).
Development Issues/Problems, Goals, Objectives, and Targets. Issues, challenges, and
opportunities facing and accompanying the task of accomplishing the identified development goals, objectives and targets.
Strategies, Plans, Programs, and Activities. Specific strategies, plans, programs, and
activities to address development issues and accomplish objectives.
a. Primary: To provide a long-term view of the province that reflects the aspirations of its leadership and citizens and which will serve as an overall inspirational guide for the rest of the PDPFP.
b. Secondary: To solicit inputs from constituents regarding perceived problems, issues, opportunities, and other plan directions.
While the visioning process is not intended to include a comprehensive assessment of development conditions in the province, it is nonetheless a good opportunity to find out how provincial community members perceive the state of the province and the development directions they have in mind. These perceptions and other ideas derived during the visioning process need not be included in this part of the plan document but they should serve as initial inputs to the rest of the planning process.
State the vision for the province. As a guide, note that:
1. The vision describes the desired state of the province 30 years or so hence.
2. The vision should be a non-financial statement that describes the people, economy, the natural and physical environment desired for the province.
3. While idealistic, the vision should not be impossible to attain.
4. The vision should serve as an inspirational guide in identifying general and specific strategies in response to the analysis of the planning environment.
5. The vision should be crafted under the initiative and guidance of the Provincial Governor, reflecting the Governor's appreciation of the conditions and potentials of the province, in consultation with members and leaders of the provincial community.
Examples of Vision:
(Source: Respective LGU websites)
Leyte:
By year 2010 and beyond, a progressive province of Leyte will emerge whose empowered citizens live within a healthy and peaceful environment, serving as the country's production center for industrial crops; a jump-off point for commerce and trade; a seat for medium and heavy industries; a geothermal power production and technology center; and a major tourism destination point for history, culture, and nature travel.
Ilocos Norte:
The Provincial Government of Ilocos Norte envisions that the province will be self-sufficient in terms of its food requirement and become an agro-industrial center in the northern Luzon Growth Corridor.
Davao Oriental:
Davao Oriental will be developed into a socially and economically progressive province in agriculture, fishery, forestry, eco-tourism, industry, and human resource-based activities in the context of a balanced ecosystem through effective governance.
Overall objective:
To describe the province's physical, economic, and social environments in order to understand its current state of development, potentials, and constraints as inputs to the identification of appropriate strategies, programs, projects, and activities.
1. Describe and assess the development drivers (population, physical resources, and economic activities).
2. Describe and assess indicators of development (income and access to services).
3. Describe and assess land uses; define a framework for the physical development of the province.
A brief description of the location, land area and political subdivisions of the province should precede the assessment and serve as an introduction.
Describe the location, land area, and political subdivisions of the province. The text description should include:
1.1. The island and administrative region where the province is located.
1.2. The location and boundaries of the province.
1.3. The political subdivisions of the province (districts and corresponding cities and municipalities); the total number of barangays.
1.4. The location of the capital city and other landmark features within the province.
Map 1. Regional Location Map: a map of administrative region showing the location of province, with a reference inset map of the Philippines.
Map 2. Province Map: a map of the province, showing provincial, district and city/ municipal boundaries, major water features (lakes, streams, coastal areas), major roads, the capital city, and other settlement centers.
Table 3. Table of land area of cities/municipalities in the province, by district.
Example of Map 1: Region V, Camarines Norte
Region V
Example of Map 2: Iloilo province
To describe basic demographic characteristics and settlement patterns.
Approach and summary:
Understanding the main characteristics of the population is key because the people of the province are the principal intended beneficiaries of the PDPFP. The following analysis covers a range of demographic characteristics starting with a regional/ national comparison followed by an assessment of internal characteristics. The distribution of the population is then considered by looking at the existing settlement pattern. (For an example of an analysis following the steps described in this section, see Case Study 1.)
2.1. Regional and national context: population size, density, and growth rate
2.2. Demographic characteristics of the province: population size, density, growth rate, spatial distribution (hierarchy)
2.3. Existing settlement pattern
2.4. Summary and overall trends
The topics above provide a basic appreciation of the size, distribution, and trend of the provincial population and may be considered as the minimum requirement. It is advisable, however, that additional topics are covered along with a more comprehensive assessment following the PopDev framework. This framework describes demographic characteristics according to population outcomes (size, age-sex, and spatial distribution) and population processes (fertility, mortality, and migration). See "Guide to Gender-Responsive PopDev Planning," 2005. Two recommended additional topics are:
• Urban-rural characteristics (See Annex A)
• Migration (See Annex B)
2.1. Population: regional and national context
2.1.1. State the population size and density of the province (latest census), and average annual population growth rate (APGR) during last intercensal period. (Sources:
National Statistics Office, PPDO)
2.1.2. Provide external benchmarks. Compare:
a. The population size of the province with those of the other provinces in the region and the largest province of the country.
b. The provincial growth rate and density with those of the country, the region and other provinces in the region.
c. The population doubling time of the province with the doubling time of the region and the country.
There are alternative to NSO population data such as local civil registration data. But this and other alternatives may not necessarily provide more accurate population estimates. Any data set, whether census- or civil registration-based, will not be able to capture the actual number of people in a city, municipality or province because this number changes constantly. In addition to population growth based on natural increase and medium- to long-term migration, actual population fluctuates within a year (seasonally), within a week or within a day. Such fluctuations are more apparent for large urban centers and for provinces with urban centers that are regional destinations, especially those close to provincial boundaries. In the latter case, for example, daytime population can be double that of nighttime. In general, locally- generated data may provide better estimates for local service requirements but they are unlikely to be comparable to NSO data. This makes comparisons with other provinces, the region, and the country as a whole problematic. Comparative analysis is key, however, for competitive assessments. Having both sets of data is ideal, but NSO data should be the minimum.
Doubling time is the number of years a population will double given a constant growth
rate. It is not intended to be a planning target; rather, it is an illustrative example of the growth rate, showing what will happen if the rate does not change. It can be estimated by dividing the constant number "69" by the population growth rate. For example, assuming a 2% growth rate, the population of a province will double in 69/2 = 34.5
Table 4: Latest census population size, annual population growth rate (latest intercensal period), land area, density: Philippines, region, provinces in region. (See Annex C for guidance in computing growth rates)
Example of Table 4: Region X, Population, Annual Population Growth Rate, Density, Area, by Province, Philippines, 1990, 2000
Pop 1990
% Share
(sqkm)
Misamis
Lanao del
Region X
Source: based on NSO
2.2. Population size, density, and growth rate
2.2.1. Size and distribution
Describe the population distribution among provincial settlements:
a. Identify the largest city/municipality in terms of population and its percentage share of the provincial population. Compare the population of the largest city with benchmark cities and municipalities in the region/country (e.g., regional center, Metro Manila).
b. State the population and percentage share of the provincial population of the five largest cities/municipalities.
c. State the population and percentage share of the rest of the provincial population (from the sixth largest to the smallest). State the number of municipalities that account for the rest of the population.
d. Describe the behavior of the percentages (increasing or decreasing) mentioned above over the past census periods. This will indicate whether population is clustering towards the largest settlements or towards the rest of the province. (Table 6)
Table 5: Latest and previous census population size, annual population growth rate during last intercensal period (e.g., 1995-2000), land area, density, by province, cities/municipalities within the province. (See Annex C for guidance in computing growth rates.)
Table 6: Population shares, latest and previous census population, cumulative population shares, additional population (latest-previous census), by city/municipality.
Note: Cities/municipalities may be listed by district with district totals.
Example of Table 5: Lanao del Norte Population, Annual Population Growth Rate, Density, Area, by City/Municipality, 1990, 2000
City/
Tubod
kapatagan
karomatan
Baloi
kulambugan
Baroy
Maigo
Ragat Pantao
Poona-Piagapo
Munai
kauswagan
Sapad
Linamon
Nunungan
Matungao
Tagoloan
Tangkal
Example of Table 6: Lanao del Norte Population Shares, by City/Municipality, 1990, 2000
CumPop 1990
Source: based on NSO Note: Cumulative population shows the percentage share of populations of successive cities/municipalities
2.2.2. Density and urbanization
a. Identify the city/municipality that has the highest density in the province. Identify the other cities/municipalities that have high population densities (substantially higher than the provincial average).
b. Compare the highest density city/municipality with:
i. The province as a whole;
ii. Other cities/municipalities in the province; and
iii. Benchmark cities and municipalities in the region/country (e.g., regional center, Metro Manila).
c. Based on density maps (Maps 3a, 3b), describe how city and municipal densities have been increasing historically. Note the location of high and low-density cities and municipalities for each census and describe any observed spatial pattern.
d. If data is available, describe urbanization trends based on the density maps. (See Note below.)
Maps 3a and 3b: Density maps, by city/municipality, latest and previous census. (Additional maps may be included, using previous census data.)
It is recommended that the density categories used in density maps include 5 persons
per square kilometer (or 500 persons per hectare) as the upper limit of the first
or second category. For example, a density map could have the following density
categories: 0-5, 5-10, 10-15, 15-20, and 20 & above persons per square kilometer.
As explained in Annex A, a density of 5 persons/sqkm is an estimate of the lower
density limit of urban areas such that areas that fall below this limit (0-5 persons/
sqkm) may be considered rural while those above it (5 and above persons/sqkm) may
be considered as urban areas. However, urban and rural interpretations of densities
are best limited to barangay-level data (maps showing barangay boundaries) because
classifying an entire municipality as urban or rural is too general and sweeping.
Nonetheless, even if density data is available only for the city or municipal level, the
0-5 persons/sqkm is still useful as an indicator of overall urbanization trends. This is
especially relevant since official census data on urban and rural areas are historically
inconsistent (and are therefore not historically comparable) if not unavailable. (See
Annex A for further discussion on the interpretation of urban and rural populations
using density maps.)
Example of interpretation of density maps:
In the case of Iloilo province example (above), the 1990 and 2000 density maps show increasing densities around the capital city. By 2000, densities in Pavia, Sta Barbara, Oton, Leganes, Tigbaua, and San Miguel, increased to an extent suggesting that Iloilo City's metropolitan influence has