KEMENTERIAN KEMAJUAN TANAH DAN KEMAJUAN WILAYAH

B E RS A MA

UNITEDNATIONS CENTRE FOR R EG I O NA L DE V E L O P M E NT , NAGOYA,JAPAN

PERSIDANGAN KEBANGSMN KEDUDUKAN LEMBAGA-LEM BAGA KEMAJUAN WILAYAH SELEPAS TAHUN 1990

K E RTA S K ERJ A I 'The Regional Planning Entityand Regional - Perspectives on Relevence and lmplementability' UNCRD. oleh Dr. ShabbirCheema,

30hb.Juh - 2hb.Julai,1988 Holidaylnn City Centre, Kuala Lumpur.

.I'IIE

III]GIONNI, ENTIT'Y AND REGIONNL DEVBLOPMENI': PIIRSI'IIC'I'IVES ON RELEVNNCE AND IMPLBMEN'I'ABILI'I'Y

G.

Strabbir

Cheerna Planrter Regional

l)eveloyrrnent- Adminisbrat;iotr Unit;e<l Nal-ions Cetrt-re forNaqloya, Japan

Development

Vie ws expressed in btre p a p e r a re t -t t o s e o f b t re a u t -h o r a n d rt o t r r e ce ssari.Iy bhose of t-he Un ib e d Na L io n s Ce rt t -re f o r Re g io n a l De ve lo pment

ebk"h 0(,"hin
Lecturer
Dept. of Town & ReglonelPlrnnlng Schoolof Architectu;e,Phnnlng & $urvcyltlt MARA Institute of Tcchrlols3y Alam '10450 Sheh

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co u ntr ies of Asia and the Pacjfic have s - i n c et h e 1 95 0 s,d e ve l o p i n g give i sh f o p t'i ma lutjlization of r esour cesand to a cco mp h e e na t t e m p t ' i n g planning' The b y i n troducing development ,mdire c t i o n t o s oci e ta l ch a n g e in these countr ies could be atfo r p l a n n e dch a n g e th i f i1 1 r1 1e i tn ia l u s i asm the policyif f ir" . i b u tte od b o t h i n te rn a l a n d e xte rn al factor s' Inter nally' pressure to improvethe and practitioners were under tremendous unrmmilrers ,CI c m n r s n i c vocal gr oupsfor gr eater political s i t u a t . i o n so f j n cre a si n g 'l y per ceivedcontr ibutjon it im a c y a n d na t'i o n -b u i l d 'i n g . E xter nally, the o f soviet union as well as the inter est m ifp r la n n i n gt o t he tra n sfo rma ti o n planning' development in econom ic r6 1trrf h ei i n t e r n a t io n a l a n d d o n o r a g e n c ' ies in this r egar d' o f policym aker s th e e n th u si a sm t re ern g t h e n e d rf f iu u r ms th p' lanning'r egional planh l i t h i n t h e co n te xt o f n a ti o n a l developm ent m etr opolitanar eas' govrm r, ft ro no nk g s e v e r a l fo rms: p l a n n i n gfo r cities, ar eas' r esour ce depr essed m m m m u m ea nd ta . li ni stra ti ve a n d p o 1 i ti ca1 units, havewitre g i o ns. The last two decades re if f inr o n t i e r g i o n s, a n d e co n o mi c and pr actitioner s on the b y p o l icymaker s i n c r e a si n ge mp h a si s m| I rm sa sn ed fr om the r ap' id exsf d e ve l o p me n t.This is evident s p 6 t i a i d ' i m e n si o no m anagement; pmnsion o f s t a t uto ry b o d i e s fo r fro n tier r egion r esour ce and l adm' infu n cti o ns to lower gover nm enta' p l a n n 'i n g o f s o me de] e E a t i o n t f re gional I evel pl anning of f i ces; u n it s; e sta b li sh me n o if rs t, r a t i v e pr ojects; and the cr eatjon d e c e n t r a l j z a t i o no f b u d g e tsfo r small- scale ni strati ve systemto provide ttees wi th'in the admi coordinat'ion commi mifi sa etred vi ce s'to sp e ci fi c a re as' rf rn r r n l t e g r

T h i s p a p era tte mp tsto d j scu ssther egionalentityandanalysemajor in the fdir d 14or ld' The following ptl ann' ing enls i n r e g .i o n a ld e ve l o p me n m]|r0ibl on r egional planning' Thjs' is s e c t io n p r e s e ntsh .i sto ri ca l p e rsp e ctives for the r ecent focus on r egiona' lplann' ing nf re a so n s l I owed b y a d .i scu ss.i oo fim

2 pto l i cy re s ponses. The next section descr jbesinstitu a n d o f E o ve rn me n r egional planninggoals and identjfies to a ch 'ieve t j o n a l a rra n g e me n ts v a r i o us typ e s o f re g i o n s i n wh' ichr egional planningand im plementation issues ar e jden t'i - i' management a c t j v i tj e s a re ta ki n g p ]a ce. Fjpally' some f i e d f or d i scu ssi o ni n th e seminar .
,,

Re g i o n a lP l a n n i n g : H j stor jcal Per spect' ives

co u n tr ies the pr actice of r egional planningwas I n th e d e ve l o p e d It i n i t i a " l l y fo cu se do n i n fra str uctur e or physical envir onment' :' housing' pr ogr amm es, i n v o l ve d p u b fi c w o rks a n d resour cedevelopm ent r egional planner s u r b a nd e si g n , a n d i n d u stri a l developm ent.Obv' iously envjr onment' aspectsof phys' ica1 w e r e t r a j n e d a s sp e ci a l i sts in some .|9 3 0 s, the scopeof the fjeld has beenbr oadened h o w e ve r, s . i n c eth e '' ' ley Author i ty wer e i ni ti ated' In tr ai n- ' val su P r o g r a mn re sch a s T e n n e ssee sociologists, and other soc' ial sog i o n a l e conom ists, i n g p ro g ra mn tere wer e twofold:? s c i e n t.i sts w e re i n vo l ve d . The r easonsfor the change jn cities F i r s t , th e re w a s a n i n cre a s ingconcer nover quafity of life and low income. second,.' itwas felt a n d s ocj a l co sts o f u n e mp loym ent and r egions was t h a t a n a p p ro p ri a temj x o f pubfic poljcies for c' itjes and socjal envir onment' of phys' ica1 to th e tra n sfo rrnation c o n d u c'i ve .|9 5 0 s, gr adual 'l y planning "came th e conceptof r eg' iona1 !
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for a var iety of developfr am ewor k a s th e co o rd' inat' ive t o b e a cce p te d that r eg' ional n r e n tacti vi ti e s a t su b n a tionallevels."U It was r ecognized soc' ial econom jc, mo ree ffective coor dinationbetween p l a n ni n gre q u .i re d to be link ed needed dimension a n d p h ysi ca l p l a n n i n g ; th a t m acr o- r egional

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3 t o a r e a d e v e l o p me n ptl a n n i n g ; a n d that r esour ces needed to be tr ansfer r ed f ro n t r i c h t o po o r re g i o n s to e n su reequitable developm ent.in the countr y. Re g i o n a lp l a n n i n gw a s p e rce i ve dto be a m echanism to mor eeffectively in t e g r a t e n a ti o n a l sp a ce o n the basis of inter dependence.

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Mo r es p e c i f i c a l l y, w i th i n th e co n text of developed countr ies, the followin g w e r e c o n si d e re d to b e so me o f the topics to be emphas ized:U

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( 1) (2) (3)

e c o n o mi ca 'l 1 dy e p re sse d a nd declining r egions; p o l i t'i ca l re g i o n s ch a ra cter izedby socioeconomic dispar ities; s p a ti a l re o rg a n i za ti o no f settlem entand economic activity p a t te rn s;

( 4 ) e n v iro n me n tap l ro b 'l e ms a ssociated with r apid ur banjzation; and ( 5 ) o u t wa rdmo ve me n otf ce n tral city popu.lation.

R e g i o n a le co n o mi sts a n d re g i o na' lscientjsts utilized sever al nr odels and t e c h n i q u e s w h i ch p ro ve dto b e u s eful in the developed countr ies. Th e s ei n c l u d e r e g i o n a l i n p u t-o u tp u t analysis, cost- benefit analysis, t h e g r a v i t y m o d e l "re g i o n a l e co n o metr ic pr ogr am m ing m odels, m odels, s p a t i a ' l p r i c e a n a l ysi s, l o ca ti o n models,and r egiona' lgr owthm odels.

l l l i t h i n t h e co n te xt o f d e ve l o p i ng countr ies, r egional planningwas advocated f o r se ve ra l re a so n s. It would facilitate r egional coor dinat io n o f n a t i o n a l i n ve stme n t p o 'l i ci e s , utilization of natur al r esour ces o n t h e p e r i p h e rya n d th e 'i n co rp o ra tion of r egions into a sing]e national economic s y s t e m . F u rth e rmo re re , g i onal p]anningwouldbe conducjve to re d u c j n gd i s p a ri ti e s i n i n co me l e ve l s and standar dof living of people, s pati a l l y r e d i stri b u ti n g p o p u l a ti o nand utilizing hum an r esour cesfr om a l I p a r t s o f t h e co u n try.V

4 'Ih e cj rcu mstances in most newly independent developi ngc ountr i es In these countr ies, an over whel m i ng m a-

w e re si g n i fi ca n tl y differ ent.

j o ri ty o f th e p e o p le lived in r ur al ar eas. Adm' inistr ative cap abi l i ty to e ffe cti ve i y i mp l ement newpr ogr am m es was lim ited. Ther ewas a s er i -

o u s sh o rta g eo f tra i ned pr ofessionalsin r egional planningand r e1ated fi e l d s. In fra stru ctur e jnvestments in poor r egions wer e per cei v edto

a ctu a l l y b e n e fi t w ell- to- do gr oups. Or gan' izations to effective l y r epr ese n t th e vi e w s o f m ajor ity of the peoplefr om poor r egions were w eak . R e g i o n a lp ro b l e ms a ffected a lar ge segm ent of the populat' ion. T he pr i va te se cto r w a s e xtremelyweaknecessitatinggr eatelinter vention by th e g o ve rn me n t.S pat' ial distr ibution of popu' lation was a key p r obl em . A typ i ca l p ro b l e mregion in m ost develop' ing countr ies was an under dev el o p e dru ra l re g i o n . Final' ly, political institutjons in most of thes e co u n tri e s w e re i n e v olutionar y st.age.

r easons,ser ious doubtswer e r ai s ed about D u eto th e a fo rementioned pl anni ng a p p ro p ri a te n e ss a n d usefu' lness of hlester n r eg' iona1 developm ent a p p ro a ch e s, countr ies. In par co n ce p tsand m ethods to m ost developing
:

to dev el ti cu l a r, th e re l e va nceand applicability of r egional econom ics o p i n g co u n tri e s w a s questioned. Richar dson, in his analysis of the sever a l ar gua p p l i ca b i l i ty o f mor ecom m on of analysis, m akes m ethods of thes e m ethods me n ts.Y F i rst, a d equate data for the adoptionof some it is diffi c ul t a re n o t a va i l a b l e . Second, in m ost of these m ethods so"ci al, cultur al and poljt' ical var iables which pl ay a " a cco n rmo d a te pr ocess. Dueto the incr easing s' ign i fi c anc e vi ta l ro l e j n d e ve lopment pr ocess,this limitatjon needs o f n o n -e co n o mj fa c ctor s in developntent to b e re co g n i ze d . Thir d, ther e is a sever eshor tageof pr ofes s 'i onal s ski I l e d i n th e se n rethods. Ther efor e, in actual pr actice the to
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me th o d s o f re g i o n a i analysis have not beenused fr equently.

By t h e e a rl y 1 9 7 0 s,a si g n i fi cant change had taken place.in m eaning and g o a l s o f d e ve l o p rn e n t. S o me o f the alter natives which incr easingly att rac t e d t h e a t te n tj o n o f p o l i cyma ker s, planner sand r esear cher s gr owth wer e. v s d i s t n i b u t i o n ; a g ri cu l tu ra l vs i n dustr ial developm ent; ur ban vs r ur al dev e l o p m e n t c;a p i ta l vs l a b o u r i n te nsive techno' logies; and centr alization v s d e c e n t r a l i za ti o n .Z N e wd e ve l o pment concer ns wer e the r eduction of in t e r r e g i o n a l a n d ru ra l -u rb a n d i sp a r it' ies, impr oved. accessto gover nment f a c i l i t i e s , a n d g re a te r p a rti ci p a ti on of peopr e in deve' r opm ent pr ocess. T h e r ew a s u n i ve rsa l d i ssa ti sfa c tion with the ,,tr ickle- down effect,, a p p r o a c h . I n d e e d ,th e " re vo ru ti o n of r ising expectations,, of r 950swas re p la c e db y t h e " re vo l u ti o n o f fo l l o wing expectations,, in l9ZOs. Sever al newth e o r i e s a n d a p p ro a ch ew s e re su ggested for the socioeconom ic tr ansf o rm a t i o no f d e ve l o p i n g co u n tri .r.v Theseincr uded,,unified Appr oach,,, "BasicNeeds A p p ro a ch ," " A n o th e rD e v elopm ent,,, and,,Self_Reliance.,, The n e wa p p r o a c h eemp s h a si ze p l a n n i n gfo r the tar get populationconsisting of t he p o o r a n d u n d e rp ri v'i l e g e d g ro ups,and elim inatjon of illiter acy, maln u t r i t i o n , i r r-h e a rth ' a n d u n e mpl0yment. Fur ther m or e, .these aim at c reati n g s e l f - r e Ji a n ce , i mp n o vi n g th e ,,qua.lity of lifer ,,ensur ing m or e e q u ita b l e d i s t r i b u ti o n o f b e n e fi ts a ccr uing fr om gover nmental development a c t jo n s , r e d u c i ngi n te rre g i o n a l d i sp ar ities, and meaningfullyinvolv.ing a ll s e g m e n t o s f th e so ci e ty i n d e ve l opment pr ocess. Finally, thes,e ap_ proach e s e n r p h asi ze d i sa g g re g a ti o n o f dever opnr ent pr anning.
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I t w a s d u e to th e l a st a sp e ct o f the newappr oaches that r egional p lann i n gw a s i n c re a s'i n g l y e mp h a si zeand d disaggr egation in spacewas adv oc a t e d ' I t w a s fe l t to o mu chfo cu s on centr alized and sector al plann ing w o u l dn o t b e co n d u ci ve to a ch i e vingnewdeveJopment goals.

6 jt js pr acti c ed Re g .i o n ap l l a n n i n g , b o th as a discip]ine and the way as wel l pr ob' lems of development per cept' ion be e na ffe cte d b y ch a n ging have to solve these pr oblem s' The theor ies su g g ested re me d i e s a s s yste m'i c countr ies had s a se do n e mpir ical data fr om the W ester n a n d a p p ro a ch eb countr ies had to be d n d th e i r r elevanceto develop' ing t o b e re e xa mi n e a to jdentify e x p l o re d . A s a re su l t, in the l980s it is possible couns e v e ra l i n te rre l a te d tre n ds jn r egional planning in the developing tri es. der edas a vi tal component i s bejng consi ann' ing rst , I o ca l I e ve l p 1 F .i in the Inter nationa l o f r eg i o n a l p l a n n i n g . T h is point was emphasized which was held in l9Bl to o n R e g i o n a la n d Local Development c o n fe re n ce for RegionalDev el n r a r kth e te n th a n n i ve rsa r yof United NationsCentr e was that of the confer ence 0 rreo f the m ain conclusions o p n r e n(U t ru C n O). s.ignificant change'in t h e co n ce p to f re g i o n a l p ]anninghas under gone at on planningand im plementation o f g over nm ents p a r t d u e to e mp h a si s and loc al t h e su b re g i o n a l /l o ca ll e vel and on involv' ingthe conr nunities newpr ojects' i n p l anning and m anag' ing l e v e l o rg a n 'i za ti o n s in adm inistr ative r eg' ions' i s p l a n n i n ga n d implementation S e co n d , in developingcountr ies' Oneof the r eab e j ng i n cre a si n g l y e mp h asized development to im plement m achiner y s o n s fo r th i s i s th a t g o ver nmental ' in m os t as n d p ro j e cts ex' ists in such r egions. Fur ther m or e' p r o g ra mtn e re g ions coincide with c a se sa d mi n .i stra ti ve political r egions.

T h i rd ,re ce n tfo cu son' ' management,' or ' .pr ocess' .appr oachtor eg i o na l p l a n n i n g i sa co n sequenceof,,bluepr .int.' appr oachwhichwas of in sever al countr ies. The exper ience a fte r i n d e p e n d ence a d o p te d

developing co u n tri e s sh o w s th a t technocr aticplans wer e for nr ulated witho u t a d e q u a te a tte n ti o n to th e a p pr aisal of adm inistr ative capacities to imp l e m e ntthe se . T h e a d mi n i strative systemin most caseswer e char act e n i z e d b y po l i ti ca l i n te rve n ti o ns in r ecr uitm entand pr om otion. Cent r a l i z a t i o n o f d e ci si o n ma ki n gthwar tedlocal initiative. Monitor ing a n d e v a l u a ti o n syste ms w e re w e a k. Hor izontal and ver tical coor dination c o u l d n o t b e e n su re d . L i n ka g e s between planningand budgeting wer eweak. Th u s , r e g i o na l a n d l o ca l p l a n s fo r m ulatedby centr al p' lanner s could not b e i n r p l e m e n te bd y a d mi n i stn a ti vesysbems. Ihis has led to the emphas.is o n "m a n a g en i e n ot,' r ,'p ro ce ss " a p p r oach.

F o u r t h , th e re a p p e a rsto b e an incr easingemphasis on r elatively s r r r a l lp ] a n n i n gre g i o n s w h i ch se e ms to be a by- pr oductof the change in de v e l o p m e n t i n ki n g d u .i n g th e p ast thr ee decades. Gr owth th with equity, ba s i c m i n i m um n e e d s,p o p u l a r p a rticipation, and decentr alizationof p l a n n i n ga n d ma n a g e mea nre t so me of the policy goa' lsin m any developing c o u n t r i e s . T h u s, p ]a n n e rsa n d p o licym aker s ar e opting for smaller r eg io n s a n d s u b re g i o n s si n ce th e se :

(a)

a r e mo reco n d u ci ve to th e deliver y of basic m inimum needsto t h e va st ma j o ri ty o f th e r ur al poor ; l e ad to mo reme a n i n g fu par l ticipation of the peopleat the g r a ssro o tsi n th e i d e n ti fication of Jocal needsand implementa_ t j o n o f d e ve l o p me n ptro j ects; and f a ci l i ta te h o ri zo n ta l a n d ver tical coor dinationof developm ent a c t i vi ti e s.

( b)

/,-\

F i f t h , a no th e r tre n d co n ce rns the needto "integr ate" planningat t h e d r ' s t r i c t or e q u i va l e n t l e ve l . The pur poseis to attempt to incor -

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p o r a te a l I se cto ra l o r fu nctional com ponents of a plan by focusing on i n t e r re l a ti o n sh i p s b e tw e en these sector s wi thi n the r egion..9- l

planningand r elationship between S i xth l y, a re l a te d trend concer ns a d n r i n i stra ti o na n d th e ro l e of decentr alization in r elation to intr ar e g i on a l p l a n n i n g . It i s r ecognized that or ganizationalstr uctur es at r e g i on a l l e ve l p l a y a vi ta l r ole in the pr epar ationand, mor e' im por tant'l y , i n t he i mp l e me n ta ti o o n f these p1ans.

II.

The Need for Regional P la n n in g

T h e re ce n t fo cu s o n regional ( subnational)planning in developing c o u ntri e s co u l d b e a ttri buted to sever al factor s. Theseinclude:

(l )

r eand soc' ial d' ispar ities antong th e n e e dto re d uceeconomic g i o n s;' agencies at the r eEional l ev el ; to fa ci l 'i ta te coor dinationamong g reater par ticipation of peopleand com m unit i es to e n co u ra g e j n d e ve l o p me n ptr ocess;

(2 ) (3 )

(4 ) to d e ce n tra l i zecom m er cial and industr ial activities; (5 ) social, and physical planningat the to i n te g ra te e conom' ic, i n te rme d i a tel e v el; depr es s ed and economjcally th e gr owthof backwar d to e n co u ra g e re g i o n s; a n d pr oductiveactivities in spacefor the opti m al to d i sa g g re g a te within r esour cefr ont' ier r egions. u ti l i za ti o n o f resour ces

(6 )

(7 )

9 T o b e g i n w i th , th e re a re w i d e dispar ities am ong r egions in m ost of t h e s e c o u n t r ie s i n i n co me l e ve l s and social welfar e and infr astr uctur al f a c i l i t i e s . In Ma l a ysi a , fo r e xa mple, the states of Kelantan,Tr enggar u, dfid Kedah a r e t h e p o o re st re g i o n s. In 1970,the estim ated per centage of p o p u l a t i o nb e l o wth e p o ve rty l i n e in Kelantanand r r engganu was z6 and 69 p e r c e n t , re sp e cti ve l y. T h e tw o.r egions also had lowest per centage o f d w e l l i n g s wi th p i p e d -i n w a te r a nd electr icity and the highest r atio ' of p o p u l a t i o np e r d o cto r. T h e co n tinuationof wide dispar ities in inc ome a n d s t a n d a rdo f l i vi n g a mo n g v ar ious r egions ar e not conducive to nati o n a l i n t e gra ti o n a n d p o l i ti ca l unity. In such situations, ther efor e, re g i o n a ' lp l a n n i n gh a s b e e nco n si d er ed to be a useful m echanism to tr ansf e r r e s o u r c e s ' se rvi ce s, a n d fa ci ri ties fr om the centr e and to pr onr ote 'in c r e q s e d g . o wth , a n d e mp ro yme w n tithin poor r egions.

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R a p i de x pa n si o n o f th e p u b ri c sector in developing countr ies of A s ia a n d t h e P a ci fi c h a s l e d to p ro lifer ation of gover nm ent agencies at r e g i o n a l a nd su b re g i o n a l /l b ca ll evels. These agenciesinclude field of f ic e s o f c e ntra l mi n i stri e s a n d d epar tments, br anches of sem iautonomous orga n i z a t i o n s ,fi e l d o ffi ce s o f sta te gover nm ents, and local gover nm ent b o d i e s . M o s t of th e se a re o rg a n i zedhier ar chically, with their head of f ic e s e x e r c i si n g co n tro l o ve r a p p ointm ents, tnansfer s, pr omotions and, in s o m e c a s e s , i n p l a n n i n ga n d .ma naging development pr ogr am m es and pr ob_ le m s ' T h i s h a s re su l te d i n l a ck o f an adequate coor dinationamong these agen c i e s a n d i n i n co n si ste n cy o f g o v er nm ent actions at inter m ediateand loc a l l e v e l s . To va ryi n g d e g re e s,pr ob' lemof s hor izontal and vbr tical c o o r d i n a t i o ne x i st a t th e d i stri ct l evel in sr i Lanka, Malaysia,and P a k i s t a na n d t h e p ro vi n ci a l l e ve l i n Thailandand Indonesia.

l0 p l a n n 'i n g Re g i o n a 'l could be utilized to ensur ehor izont al fra mewor k a n d v e rti ca l co o rd i n a ti o nat the r egional level. As the Phjfippines

Councilsar e l of Regiona'Development e x p e ri e n ce sh o w s th e e sta bl' ishment pr ogr am m es and pr ojects at c o n d u ci ve to i n te g ra ti o n o f gover nm ental t e r m e d i a tel e ve l . of r egional coor dinati on. C e n tra l contr ol is the enem y

author ity t , l j t h ou t th e e sta b l i sh me n of t r egional author ity with adequate and pr ojects, it wouldbe re g i o n al level pr ogr am m es t o p l a n a n d ma n a g e difficult to re so l ve th e coor djnationpr oblem.

as a Pl a n n i n ga t re g i o n a l and local levels has also beenadvocated pr oces s . m e c h a n i srn to fa ci l i ta te p eople' s par ticipation in developm ent as n d p ro j e cts w hich ar e plannedat the centr e to be im plePr o g ra mme mented th ro u g hth e fi e l d o ffices of centr al ministr ies and depar tm ents m a yno t e l i ci t that meaningful shows p o p u l a r re s ponse. Exper ience

pr ocesstakes place in ar ticulation p e o p l e 's i n vo l ve me n itn d evelopm ent o f l o ca l a n d re g i o n a l n e e ds, identification of pr ior ities, and for mul awill not take n f pr ojects. Suchjnvolvement t i o n an d i mp l e me n ta ti o o for r egional and local level planp l a c e u n l e ss th e re e xi sts fr am ewor k financial and adm inistr an i n g . A n a p p ro p ri a testru ctur e with adequate thr oughwhich t i v e au th o ri ty w o u l d p ro vide an inst' itutional fr amewor k and could be aggr egated v i e w s a n d a sp i ra ti o n s o f gr oupsand cor nmunities to c o m mu n j ca te d h i g h e r a u thor ities.

w h i ch could be r esolvedby utilizing r egional planAn o th e rp ro b l e m i s th e co n centr ationof ur banpopulatjonand com m er c j al n i n g fra me w o rk a n d j nd u stri a l a cti vi ti e s jn a few lar ge cities. Bangk ok For example,

p o p u l a ti o ni s about 60 per cent of the total ur ban popua n d C o l o n i b o 's accountsfor l a t i o n o f T h a i l a n da n d S ri Lanka,r espectively. Bangkok a b o u t 3 0 p e r ce n t o f th e national pr oduct.

_________r

il Ap p r o p ri a teme a su re co s u l d b e under taken within subnationalplanning f ra m e w o r k t o e n co u ra g e g ro w thw i thin r ur al r egions and to decentr alize in d u s t r i a l a nd co mme rci aa l cti vi ti es.

R e g i o n alp 'l a n n i n g ca n fa ci l i tate integr ation of economic, physicai a n d s o c i a l p la n n i n g . T h e e xp e ri e nce in the EScAp r egion shows that d u r i n g t h e l a st th re e d e ca d e s th e focus in most countr ies has beenon eco n o m i c a n d ph ysi ca l p l a n n i n g . S ocial and admjnistr ative suppor t plannin g h a v e n o t re ce i ve da n a d e q u a te attention. Intr ar egional and inter -

reg i o n a ' ld e v el o p me n pt'l a n n i n g p ro videsa fr amewor k thr oughwhich var ious as p e c t so f d e ve l o p me n ptl a n n i n gco uld be m or eeffective' ly integr ated.

A n o t h e rr e a so nfo r re g i o n a l p lanning in these countr jes is that bac k w a r d r e g i o n s n e e dsp e ci fi c a p p r oach and tr eatmentto encour age gr owth in t h e s e r e g i o n s a n d to tra n sfe r p ublic investments fr om the centr e. Kel a n t a na n d Ke d a h i n Ma l a ysi a ,d i str icts in the Dr y Zonejn sr i Lanka, We s t e r n Mjndanao a n d B i co l i n 'th e Philippines, and Nor theastr egion in Th a i l a n da r e e xa mp l e s. L o ca t'i o n a advantages l of lar ge metr opolitan c en t r e s a n d o th e r d e ve l o p e d re g i o n s in the countr y necessitatepr efer ent i a l t r e a t m e n tfo r e co n o mj ca l l y depr essed and backwar d r egions.

F ' i n a l ' l y , d i sa g g re g a ti o n i n sp aceis nr or econducive to optimal util iz at i o n o f n e s ou rce fro n ti e r re g i o n s . Theser egions r equir e lar ge- scale in it i a l i n v e s tme n t. L i n ka g e s b e tw een developm ent activities in such

reg' i o n s a n d t h ose i n d e ve l o p e d re g i ons have to be pr oper ly under stood t o . e n s u r e f l o w .o f ca p i ta l , p ro vi si o n of infr astr uctuna] fac.ilities, av ai l a b i l i t y o f l a b o u r^ a n d ski l l e d manpower , adequate and utilization o f lo c a l e n t r e p re n e u rs.

12
Pto l i cY R esPonses I I I . Go ve rn me n to r egional pr obpolicy r esponses In d e ve l o p i n gco u n tr jes' gover nm ent r eflect pec uon spatial disaggr egation l e m sa n d th e d e g re eo f e mphasis uponthe context' ther efor e' l j a r si tu a ti o n o f e a ch co untr y. Depending differ en t a n d p l a n n e rsjn these countr ies haveem phas' ized p o ' l icyma ke rs obiec l e ve l o pnlent.To achiever eg' ionaldevelopment o f re $ o n ad a s p e cts havebeenemr f i n te rrelated policies and pr ogr anr nes t i v e s, a n u mb eo p l o y e d . T h e sei n cl u d e :
to Poor p o l i ci e s fo r th e tr ansfer of capital and technologY in o rd e r t o re g i o n s th ro u g hfiscal and m onetar yin c e n t iv e s g o o d s a n d s e rv i c e s stj mu l a te i n ve stm ent' inpr oductiono f w i th i n th e se regions; vocati onal fo s r extendinginfr astr uctur al facilit' ies' (2 ) p ro g n a n me tra i n j n g a n d social ser vices to poor r egions;

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(3 ) p o l .i ci e sfo rre dir ectingpublicinvestm entsandgover nm en t etxpenditur eto the per ipher al ar eas; d e ve l o p me h (4 ) the for functional integr ation between p o l .i ci e s a n d p rogr amm es co re re g i o n a nd the Per iPher ies; p ro g ra mn e sfor decentr alizat.ionandlocationofindustr ies ;

(5 )

gener ationand entr epr eneur ship fo sr income (6 ) p ro g ra mme d e ve o l p me n t; the cr eatjon of gr owthpoles; (7 ) p o 'l i ci e s co n cer ning (B ) p o i .i ci e sco n cer ningthegr owthofsm allandjnter m ed.iates i z e ci ti e sto re ].i e vethepr essur eon]ar gecjties,andpr omote p ro d u cti o na ctivities thr oughoutthe countr y; r es our c e p o l i c'i e s fa vo ur ing poor r egions thr oughinter r egional

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cr jter ia; a l l o ca ti o n a n d r evenue- shar ing of f jnancial author ity and decentr al i (to) p o l j c.i efo s r t}e devdut' ion za tj o n o f P l a nningand m anagement;

t3 ( 1 1) p ol i ci e s ftf tl * cre a fi o n of r egional development author ities; and ( 1 2 ) p o l i ci e s fo r ru ra l a n d agr icultur al development to discour age t h e to w n w a rd fl o w o f p opulation.

has to be seenwithin t h e c o n t e x t o f th e g o ve rn me n t's policy. Twoobjectives N ewEconom ic of t h e p o l i c y a re to (a ) " re d u cea n d eventually er adicate pover ty by r aisin g i n c o m e l eve rs a n d i n cre a si n gemploym ent oppor tunities for ar l M a l a y s i a n s ,irre sp e cti ve o f ra ce ,,and ( b) to ,,accer er ate the pr ocess o f r e s t r u c t u r j n g Ma l a ysi a n so ci e ty to cor r ect economic im balances, as t o r e d u c ea n d e ve n tu a 'l ]y e l i mi n a te the identification of nacewith eco n o m i c f u n cti o n 5 ." Jv T o a cco mpr ish the r egional dever opm ent object ive s ' g o v e r n me n t's p o l i cy me a su r es have incr uded( a) r esour ceand new lan d d e v e ' l o pme p n ro t g ra mme s; (b ) j n- situ r unar dever opment; ( c) indust ria l d i s p e r sa l p ro g ra mme s; (d ) creation of newgr owthcentr es; ( e) r edire c t i o n o f n e wd e ve l o p me n atn d g nowth to less developed r egions thr ough g re a t e r p u b l i c d e ve ro p me n et xp e n d itur es in these r egions; and ( t) .r e_ s e t t l e m e n ta n d re h a b i l i ta ti o n o f frontier ar eas and integr at.ionof perip h e r a l r e g i o n s w i th d e ve l o p me n tal activities at the national level.
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I n I n d j a ' se ve ra l d i re ct a n d i ndir ect policy m easur es havebeenunder t ak e n t o a c h i e veb a l a n ce d re g i o n a l develop,n.nt.]fl The for m ula for the dist rib u t ' i o n o f c en tra l a ssi sta n cefu n ds to state gover nments incJudesinver se o f s t a t e i n c o me p e r ca p i ta , th e re b y favour ing backwar d ar eas. Incentive polic ' i e s a r e d e si g n e d to d i re ct j n vestments to industrja1' ly backwar d distr icts. I n so m e c a s e sare a sp e ci fi c, p ro b l e m or iented sector al schem es ar e adopted a n d t h e e s t a b l ish me no t f g ro w thce n tr es has beenunder taken. In or der to a s s i s t t h e d i s a d va n ta g eg dr" o u p a s n d r egions, a basic needsstr ategy

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for "inter - state r eregional planningappr oach r n e n th a s a l so a tte mp te d local level planni ng ar eas and com pr ehensiVe g i o n s" a n d sp e ci a l p ro b l e m a t t he D i stri ct a n d B l o ck levels. Giventhe size of the countr y and the s'i tuation in Var iouspar ts of the countr y' the s e d j v e rsj ty o f e co n o mi c national p o l . i cyme a su re h s a ve b e e nseen to be an integr al par t of etffo rts. d e v e l o p me n j I and ar e aimedat checki ng the po]i c' ies i n Tha l p me nt R e g 'i o n ad 1e ve o of a n d l e s seningr egional dispapities' Four types p r i ma cyo f B a n g ko k to ( l ) Thosedes' igned p o lj c i e s i n th e co u n tri e s could be identi fied:Vl .i n l o w incom e ar eas; ( 2)those s eek i ng and special pr oblem a c c e l e ra teg ro w th pr oductionstr uctur es thr oughc r op and comm unity otf re g 'i o n a 1 i m p ro ve me n develop m ent d j v ersi fi ca ti o n , e ffi ci e n t use of land and water r esour ces, r efor m; ( 3) those on o f mi n e ra l a n d o th e r n a tur al r esour ces,and land infr astr uctur al facil i otf sp e ci a 'la reas to ensur eadequate d e v e l o p me n empl oy ( 4) those for pr om oting t j e s, so ci a l se rvi ce s a n d utilities; and such as p ubl 'i c a n d in' r ur al ar eas thr oughpr ogr amm es m e n to u tsi d e B a n g ko k of industr ies' w o rksa n d d e ce n tra 'l i za tion in the Phil jppines is to pr oent l o f re g 'iona'developm T h e p u rp o se of their ful l v . i d eo p p o rtu n i ti e s w i th i n r egions for optimal utilization and natur al r eeconomic p o te n t.i a lw i th re g a rd to their demogr aphic, poli c i es five types of r egional development s o urce s. h l i th th i s i n vje\,U, budgetdevelopm ent' w e re fo rn ru l a te d .l U T h esedealt with institutional settlements ' 'i n ce n tj ves,cr edit instr um ents,and human i n g, j n ve stme n t r egions and r eT h e co u n try w a s d j vi d e d into adm' inistr ative- planning ptl a n ningbodies wer e establishedto coor d' inate g i on a l d e ve l o p me n

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15 p l a n n i n ga n d i mp l e me n ta ti oo nf regional and local development.The policy

o n d e c e n t r al i za ti o n o f b u d g e tw as aimedat ensur ingthat r egional budget co r r e s p o n ds to th e re g i o n a l d e velopnr ent plan to acceler ate the paceof d e v e l o p m e nt a cti vi ti e s i n d e p re ssed r egions. Anintegr ated ar ea develo p m e na t p p no a ch w a s i n i ti a te d . Examples of such an appr oach ar e Bicor R i v e r Ba s i n De ve l o p me n pt ro g ra mme and Mindor oIntegr ated Rur al Developm e n tP r o i e c t' In ve stme n t i n ce n ti ves and cr edit policies wer e initiated f o r t h e d i s p e rsa 'lo f i n d u stri e s. The hum an setilement po' licies wer e f o r m u l a t e dt o a ssi st l o ca l g o ve n nnr ent units in for m ulating their plans, an d p r o v i d e h o u si n ga n d o th e r fa ci r ities to townsand cities. T o a c h i e ve re g i o n a r d e ve ropment objectives,

the gover nment in s r i L a n k ah a s i n i ti a te d se ve ra l pr ogr amm es and pr ojects.lv The M a h a w e lPr i o je ct w i 'i l d e ve ro p a b o ut r 60,000hectar esof newr and and s e t t l e a b o u t r 4 0 ,0 0 0fa mi ri e s. T h e pr oject seeksto Gr eatercor om bo in t e g r a t e t h e ma i n ci ty a n d i ts o u tlying subur bs. The Integr ated Rur al De v e l o p m e n Ptro g ra mme i n se l e cte d distr icts has beenstar ted. Another a s p e c t o f r e g io n a l a n d l o ca l d e ve l opm ent in sr i Lankaconcer ns human and s oci a l d e v e l o p me n t' In th i s re g a r^d, the m easur es taken by the gover nm ent in c l u d e p r o v i si o n o f h e a l th se rvi ces, consumer subsidiesand com m unity dev e l o p m e n t 'T o d e ce n tra Ji ze d e ve lopm ent plannir igand m anagement funct ion s ' t h e g o ve rn me n t h a s e sta b l i shedDistr ict Development com m ittees, app o i n t eD d i s t r ict Mi n i ste rs, a n d i n tr oduced Distr ict Budgetpr osnam m e. R e g i o n a lde ve l o p me n otb j e cti ve s in Fiji ar e the r eduction of spatial in c o m e i n e q u a l i ti e s, 'i n cre a se d sp a tiar integr ation of r egions, the de_ c e n t r a l i z a t i o n o f e co n o mi c a cti vi ti e s fr om suva and othen ur banar eas, andmaximuu mt j li za ti o n o f re so u rces of each r egion.J!/ The str ategies

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l6 gr owth centr es ' th e se o b i e cti v es include: r ur a' l development, t o ach 'i e ve opm ent. i n d u stri a l d e ce n tra l i za tion, and fisher ies devel policies of Indonesjaseek to ( a) pr omote T h e re g i o n a l d e ve l o pment ( b) r educeinter se cto ra l and r egional developm ent; b a l a n ceb e tw e e n local injtjative in developm ent gta p s; ( c) encour age r e g io n a l d e ve l o p me n p r o ce ss;a n d (e ) e ffe cti v ely link ur bancentr es and their hjnter lands
1Rl to divide the countr y ' into deve l opa n d re g i o n s.-:j :r A tte mp tswer e made Howeverth ' e m e n t re g i o n o n th e l i n e s of the gr owthcentr e str ategy' exists only at pr ov' incial fo r p l a n n i n ga nd im plementatjon m a ch i n e ry PlannjngB oar d ' l e ve l s. A t th e p ro vi n c ial level, Pr ovincial Developm ent

for stim uw a s e sta b l i sh e d . B u d g et allocation ar e usedas instr um ents Gtr ant' Developm en l a t i n g re g i o n a l d e ve l o p ment.Theseinclude Pr ovincial Gr ant opment ' t ant and Vi 1l age Devel D l p me n Gr M u n .i c.i p a l e veo have var ied fr om one policy r esponses In th e ca se o f A fri ca' gover nment countr ies m or ethan one str ategYwa s us edat c o u n try to a n o th e ra n d i n some jn A fr i c a' a g i ve n ti me . In h j s revjew of r egional and local develoPm ent i d e n ti fi e s fo ur str ateg' estW M ab o g u n jie of na ti onal T h e stra te g Y which involved r egional djsaggr egation or uti 'l i z i ng p1 a n s b y d i vi d' ing the countr y for planningpur poses Uganda; e xi st'i n g u n 'i ts as the r egions, e.g., Niger ia,

(t)

develoP m ent' physical r esour ces em phasized (2 ) T h e stra te g y wh' ich land p a rti cu l a rl Y land and water ' on r egional basis, .9., aimedat a c h ie v jn g a wid e ra n g e o f o b j e c t i v e s se ttl e me n tschemes i n S u d a n ;i n tegr atedr iver basindeveiopmentinNiger iaand Z 'i mb a b w e ; at the Iocation of industr ies i n a ( 3 ) T h e stra te g Ywhich was a' imed por t citjes, and s Pr eadi ng fe w ce n tre s other than caPital and/or to other Par ts of the countr Y; 'i n fra stru ctu ral develoPment

17 ( 4 ) T h e stra te g y w h i ch fo cusedon the str uctur al tr ansfor m ation of t h e e co n o my a n d se l f-reliant developm ent thr oughr estr uctur ing pro d u cti o no rg a n i za ti on, .9., Tanzania.

i n m o s t ca se s, h o w e ve r, th e abovepolicies could not be effecti vely im p l e m e n t e d .Ma j o r p ro b l e ms w h i c h im peded the im plementation of the afor eme n t i o n e d s tra te g i e s i n cl u d e d g l obal economic situation, data i nadequady, ntanpowe sn h orta g ea n d b u re a u cra ticcentr al.;5,x.J!y'

I n L a t in A me ri ca re g i o n a l p l anningwas intr oduceddur ing the .1940s and w a s a i n e d a t th e d e ve l o p me n otf river basins par ticular ly in M exicoand c o l u n l ba i ']/ va ri o u s co mmi ssi ons wer e establishedwith the objectives of f lo o d c o n t r ol , h yd ro e l e ctri c d e velopment, ir r igation and conser vation,colon i z a t j o n o f a g ri cu l tu ra l a re a s, th e development of depr essed ar eas and natur al re s o u r c e s m an a g e me n t. T h e l a rg e st number of r egional plans in Latin Am er ic a we r e a i m e da t i mo ro vi n gth e si tu a tion jn the depr essed r egions. Regional developmen t rp o ra ti o n sw e re e stablishedto coor dinate co activities under d i f f e r e n t p u b l i c p ro g ra mme a s, n d pr ovide incentives to pr ivate sector fr om o u t s i d e t h e r e g i o n to i n ve st i n the r egion. The exam p' les of such cor por ations we r e t h e L o s A n d e sco rp o ra ti o nfo r venezuela' s wester nAndean Region,the Ch o c o N a t i o n a l D e ve l o p me n Cto rp o rat.ion in Colom bia, and the Nor theastDevel_ o p m e nC t o u n ci l j n B ra zi l .

N a t u r a l ca ta stro p h i e sl e d to the establishm ent of r egional p' lansin s e v e r a l L a t i n A me rj ca n co u n tri e s such as in Mexico,Ar gentina, per u and Ch i l e ' 0 t h e r p o l i cy re sp o n se s w e r e the pr omotion of newgr owthpoles, and c ol o n i z a t i o n a n d e xp l o i ta ti o n o f rar ger y unsettr edar eas. It is w.idely reco g n i z e d b y p l a n n e rs' p ra cti ti o n er s and pof icym aker s in Latjn Amer ica

IB t h a t re g i o n a l p l a n n i n g i s essential for achieving the obiectives of n a t io n a l d e ve l o p me n t.In thjs r egar d, the issues which ar e cur r entl y b e i n g e mp h a si zeb dy re g i onal planner sinclude:

(l )

re g i o n a 'lp l a n n ing fr om below;

(2 ) si ze o f re g i o n s; (3 ) sq u a tte r se ttl ementsas one of the solutions to popular ho us 'i ng; ' in r egional development; (4 ) th e ro l e o f municipal gover nments (5 ) institutions at national, i n tro d u ctj o n o f r epr esentat' ive re g i o n a l a n d l ocal levels;

(6 ) a g ra ri a n re fo rm; and and political pow er ' r esour ces (7 ) b e tte r d j strj b ution of economic

I V.

D e l j n e a ti o no f R e g ions

p' lanshas to focus itse l f on T h e fo rmu l a tj o no f r egional developm ent w j th i n p ar ticular developingcountr ies as to what cons ti tutes t h e p e rce p ti o n s actjvities shou l d tak e nj th j n wh' ichr egional development s p atj a l d .i me n si ow p 1 ace . T h e d e l j n e a ti o n of the r egional entity' is the fir st step befor e activitjes ar e to be initiated' r e gi o n a l a n d l o ca l d e ve lopm ent

definjtion of a r egion. Th e del i neaT h e rei s n o u n j ve rsally r ecognized uponpeculiar situation' in the c ountr y ' t j o n o f a re g i o n a l e n ti ty would depend th atthe defjnjt' ion of the r egion var jed as betw een sh o w s T h e e xp e ri e n ce d efi ni c o u n trj e s a n d a cco rd i n gto par ticular policy objectives for which tak e t j o n w a s b e i n g so u g h t.ry In pr act' ice, r egional planningact' iv.itie s p l ace i n se ve ra l tY P eo f r egion.

*'&*

t9 T a b l e 1 p re se n tstyp e s o f regions jn developing countr jes in which re g i o n a l p l a n n i n ga n d i mp l e me n tation activities ar e taking place. sever al o f t h e s e t y pe s a re to b e fo u n d i n ever y countr y. As their char acte' istics sh o w ,t h e r e a re si g n i fi ca n t va ri ations among these r egions concer ning their e v o l u t ' i o na nd ra tt'o n a l e , l i n ks w i th politico- adm inistr ative str uctur es at t h e n a t i o n a l l e ve l , th e i r o rg a n i zationa'str l uctur es, sour cesof their r even u e , t h e s c op eo f th e i r a cti vi ti e s, and the cr iter ia for their delineation. Y e t ' n o t a l l o f th e se a re mu tu a l ly exclusive dnd the pr oposed types ar e mea nt t o f a c i l i t a t e o u r u n d e rsta n d i n o g f the cor nplexity of r egional planningand nranageme ant cti vi t j e s.

L i n g u i sti c, e th n i c a n d re l i g i ons divisions in the countr y ar e, in most c a s e s ' r e f l e c te d i n a d mi n i stra ti ve r egionswhich usually cor r espond to tr adit io n a l a n d h isto ri ca l b o u n d a ri e s. Thesecould also the basis for delineation of a u t h o n m o u s g i o n s. w h e reth e ethnic, linguistic and r "eligious re boundar je s correspond w j th a d mi n i stra ti ve a n d/or autonom ous r egions, the pr ocessof r eg io n a l p l a n n i n gte n d s to b e h i g h l y politicized and inter r egional dispar .ities be c o m e t n ce rno f regional planningactivities. In t h b p r e d o mi n a nco such s itu a t j o n s ' go ve rn me n pto l i cy re sponses to r egional pr oblems r eflect politic a l s t y l e s i n th e co u n try a n d th e degr eeand type of pr essur evar ious r egio n a l e n t i t i e s a re a b l e to e xe rt.

T h e r ei s n o u n i ve rsa l l y a cce pted cr iter ia basedon whjch var ious types of r e g i o n s a r e cre a te d . A d mi n i strativer egions ar e usually the legacy of t h e p a s t a n d , i n u n i ta ry syste ms,their boundar jes ar e usually demar cated f o r a d m j n i s t ra tj ve co n ve n i e n ce .P lanningand coor dinationr egions might d e l i n e a t e db a se do n se ve ra l fa cto rs such as phys' icalchar acter istics or geo g r a p h i c afl e a tu re s, a d mi n i stra tive and plan im plementat.ion factor s, economic f a c t ors, a n d e th n i c a n d socio- cultur al factor s. In the case of be

: t=-

20

Table

jn Developing Countr ies T yp esof Regions es Exam pl S ta tes in India and ia Ma ays' l , Pr ovi.nces 'in Kenyaand adml n1sjn tra tive r egions E thi opia Char acterst' i ics
T h e s e re g io n s h a v e g o v e r n n i s t ra t ' iv e me n t ' s a d mi f o r t h e d e l 'i v e r Y ma c h ' in e rY o f s e rv ic e s a n d in mos t c a s e s 1 i n g u is t ' ic a n d et h n ' i c o f t h e P oP u l a c e h o mo g e n e iiY T h e s e mig h t b e c h a ra c t e r i z e d b y e x t re me lY 1 o w in c o m e o P P or t u n i le v e ls , e c o h o m' ic s t ' ie s a n d s o c ' ia l e rv ' i c e s v i s -' a -v i s t h e n a t i o n a l a v e ra g e T h e re g io n s h a v e u n t a P P e d re s o u rie s wh ic h a re t o b e u t il iz e d f o r s o c io e c on o m i c d e v e lo p me n to f t h e a r e a

Types

t.

A d mi n 'istra ti ve r e g io n s

2.

l Yl Eco n o mi ca and b a ckw a rd d e p re sse d r e gi o n s

Drou q h t -P ro n ea re a s in Iid ia . , ra in -f e d areas in P a k is t a n d e B a h ia Rec o n c a v o s regi o n a ' l c h e mei n S alv a d o r ' in P ah a n gT e n g g a ra h Mal a y s ia , t h e s u P e r'inte n d e n c Yf o r t h e deve lo P me n o tf in A ma z o n ia B ra z il Met ro -Ma n ila , B a n g k o k nj smet ro P o i l t a n a d mi trati o n

3.

R eso u rce f r on ti e r r eg io n s

4.

U r b a n /me tro po1 i ta n re g 'i o n s

T h e re g io n s a re d e line a t e d t o e providiurban serv'icestothe peopl o f a n d c o o rd in a t e a c t iv it i e s jties v a rio u sa g e n c ' ie sjn c T h e re q io n s a re d e ljn e a t e d b a s e d cn d o n -. . o io t i c , d e mo g ra P h ' ia 'i of j tY ementari soc a I comPl .i zts ' aiu b u nj t s f b r o P t i ma 1 u t ' i I t io n o f re s o u rc e s

5.

Eco n o mire c gions

in E conom' zones ic C hjna, inter state re qions jn lndia' 'i n dustr ial estates nes i n the Ph'Ii i PPi a nd KatunaYake e x por t Pr ocessing zo ne ' in Sr i Lanka in the R egions P hilippines

6.

P l a n n i n ga n d n a ti o n co o rd i r eg i o n s

Units w' ith Planning and c oor di author i tY and nat' ionm achiner Y abov eadi.. tup.tinr Posed ts str m' in' i ati ve uni i n the countr Y

!':t[i

21

Types
7. Pl an n in g regions

Examp I es Regions abovepr ovi n ce s i n ThaiI and a n d In d o nesia

Char acter istics In_these, !h..m achiner rfor y pr an for m ulation and i;pi;_ mentationdoes not exisi.Thr ough the nationui"piinni no agency,an atter nptis ,iJ. "'" to ensur econsir t.n.u in- gover nment activitiei in the ar ea Suchr egions havem or e aylglom vthan other r egions yitUn.the sam e countr y ar " to,their ' l inguistic, ethnii, iases ,"ti9ior J' lld in som e i dentity
!, 'i

i t I

8.

Autonomous regions

W esternMin a n a oa n d Central Min d a n a oin the P hilipp in e s a n d larawak and S a b a h in Malaysia

9.

R i v e r b a si n r e gi o n s

B i co l R i ver Basin re g i o n i n the P h i1i p p i n es, M ekon R l ve r B a si n in T h a i l a n d , c or nm js_ sl o n s a u th or ities fo r ri ve r basins in Me xj coa n d Niger ia Mi n d o roIn tegr ated nrea Deve'l opment rro g ra n rme a nd Palawan In tegr ated l tre a D e ve 'l opm ent in th e P h i l i p p jnes Regions i n Guyana

Regions ar e delineatedfor the.developm ent of the r ^iu.r ^ basin and r iver basir - O.r .i_ opm ent author ities ar e cr e_ Objectives inctuJe3I.d. r lv9r contr ol, pr ovis ion or ' tnr i gation water and over alI economic developnr ent Thesear e delineatedfor the deve' lopment of an ar ea and .oy]q be single pur pose or m ul ti - pur posi

li,

ll

iil

lri '-i

10. Area develop_ m e n t r e g i on s

1 1 . p l a n n i n sa n d i m p l e m e i t ati o n r e g io n s

Regions.ar e delineatedand ar e given financiat, admir iit..iiu. and politicat author iti- ;;- "' ' = and imptement r .gi.onit l]ll" oevetopm ent under the- guidanc e of RegionalDemocr atic"Coun.i i Though not necessar ilydelin_ eated for this pur pose,these r egions withdr awab.iiion- - "" m ak i ng. power s ana economi' c potential fr om ttr e per ipfr Jr u and spr eadinnovatibnsr "- ' r

12. Coreregions

Me tro -Ma n i. Ia Ja ka rta Me trop o li ta n R e g i on

! ! I l

22

T yp e s 1 3 . S i n g l e p u rp o se d e ve o l p me n t r eg io n s

es Exampl regi on i n MADA Ma laysia

Char actersti i cs Thesear e deli neatedto developa Par t' icular natur al r eiour ce or to Pr om ote acti vit" i es develoPm ental ' in one sector Thesear e cr eated after dr asti c natur al catas tr oohe to m eet the emer genc y situation and often g r aduas an ins tr ud11y develoP ' menl f or regi ona'l Powel establis hed ihese become i nsti tut' ions i n the cour s e of tjme and PlaY an i m Por tant par t in the dev e'l oPmentof the ar ea an, c oor di to P1 An agencY dev el oPnut.l ani imPlemen t v el Yati r el i n ;;;i' pr oiecti sub nati onal above iito.' ar 6a adm inistr ative units i s cieated. The m ain o bj ec ti v e oPm ent c dev el is- socjoeconomi cooPer ati on in ar ea of the agenc i es with r elevant a R'par i ian countr ies m ak e agr ifor effor t ve loi t ecti al ndust r i i and tur al iul explo' itation of water

1 4 . D 'i sa ste rp r o n e re g i o n s

off i ces of R e q' ional N a [ional DeveloPment after C or por ation ln i 9 60 ear thquake basin C hile, r iver co, ss' co m m i ionsi n M exi ann' ing ve Pl co mpr ehensi metr oe ffbr t for the p o fi tan ar ea of San S alvador

1 5 . Si n g l e a g e n cy ma crore g i o n s

in Br azil S UDENT

'l6 .

l t'i nati ona Mul b a si n r i ve r co n mi ssi o n s

R iver Niger Com m ission

1e 'i d b Y th e a uthor' S o u r ce : C o mP

\ utrr*

23
t l t e Ph ilip p in es, for example, the f o llo win g f a c t o rs we re c o n s id e re d in t h e p r o ce ss of de lineating planning and c o o rd in a t io n re g io n s in t h e c o u n t ry .

(I ) (2) (3) (4) (5)

c o n tin g u ity a n d g e o g n a ph i caI featur es ; t r a n sp o rta ti o n a n d co mmunication facilities; c u l tu ra l a n d l a n g u a g e g roupings; l a n d a re a a n d p o p u 'l a ti o n;

e x i s ti n g re g i o n a l ce n tre s com m only adopted by sever al agencies; ( 6 ) s o c i o e co n o mid ce ve ro p ment pr ognamm in es the r egion; and ( 7 ) n u mb eo r f p ro vi n ce sa n d cjties.

T h e c r i t e ri a fo r th e d e l i n e a ti on of m ost other types of r egion ar e usuall y le s s c o m p l e x . E co n o mj ca l 'l ya ckw ar d b and depr essed r egions could be m or e eas i l y i d e n t i f i e d b a se do n p e r ca p i ta incom e and social ser vices and faciljt ies ' T h e m a jn d e te rmi n a n o t f a u to nomous r egions is political and cultur al id e n t i f y o f t h e p e o p l e . D i sa ste r-pr one r egions ar e usual.lythose ar eas af f ect e d b y n a tu ra l ca ta stro p h e .

I
!

T h e n a t u r e a n d d i stri b u ti o n o f power s between the natjonal and r egional ent it i e s d e p e nd s u p o nth e re g i o n a 'ltype. In the case of autonomous r egions, t he r e g ' i o n a le nti ty w o u l dh a ve l e g a l and/or constitutional guar antees of its a re a s o f j u r i s d i cti o n . In fe d e ra l sy stems,both the centr e and autonom ous re g io n s a r e e x t re me ]yco n sci o u s o f the' ir power s j I j ties. The and r esponsib powe r s 'a u t h o r i ty a n d re sp o n sj b i l i ti es of administr atjve r egions ar e also c lear l y d e l i n e a te d , th o u g hi n u n i ta ry system s these ar e cr eated at the conv e n ie n c e o f t h e ce n tre . In th e ca se of m ost othen types of r egions, the nos it j o n o f t h e n a ti o n a l e n ti ty i s p redominant and the r egiona' lentity f '; nc ti o n s a s m o reo r l e ss a n e xte n si onof the centr al author ity. planning

a n d m a n a g e m eacti n t vi ti e s i n mo st o f these r egions ar e under taken by

24 s emi a u to n o mop uu sb l i c e nter pr ises wh' ichar e establishedby the nati onal and/or elimination of i nter e n ti ty fo r o p ti n ta l u ti l i zation of r esour ces r e g i o n a l so ci o e co n o mjc dispar ities. fr ontjer r egions, depr es s ed Resour ce

r egions and singl e agenc y r e g i o n s, a re a d e ve l o p ment r egions, d' i' saster - pr one of this type of centr a' l- r egionalr elations hi ps . ma cro -re g i o na s re e xa mples

and djvision of fun c ti ons and D e sp i teth e fo rmal distr ibutjon of power s countr ies is towar dsgr eater c enr e sp o n si b i l i t'i e s, th e tr end in developing and r esour ces. To var yi ng degr ees ' t r al i za tj o n 'i n th e d i str ibution of power s r egional entities, com pl ex i ty i t h a s b e e na ttrj b u te d to sm all sjze of some colonial legacy of the past, attitudes of c entr al ma o f d e ve l o p me n t n a g em ent, a dmi n i stra ti ve a n d p o l i tical el jtes and countr y specific soc' ial and polj ti c al f acto rs

T h e i ssu e o f re g i onal dispar ities is one of the key policy is s ues i n the I ts s i gnif i canceand the degr eeto w hic h p r o ce sso f re g 'i o n1 a d e ve' lopm ent. it'is uponthe type of r egion. In the depend p o l i ti ci ze d i h o wever wou' ld ,

wit h the r egions which cor r espond c ase o f a d mi n i stra ti ve and autonomous e th n i c a n d 'l i n g u i sti c divisions in the countr y, r egional dispar iti es m i ght b e h i g h l y p o lj ti ci ze d . Political par ties and inter est gr oupsnlight be

to r egional boundar ies. C ontj nui ng o r g a n i ze di n a w a y th a t these cor r espond and the r egional entity affec ts th e n at' ional gover nment c o n fl i ct b e tw e e n p ol i ti ca l sta b 'i 1 i ty i n the countr y. The types of pr essur esfr om the r egi on uponpolitical styles jn the c ountr y fro m th e centr e depend a n d re sp o n se s a n d th e ch a ra cte ri sti cs of the political system. The issue of r eg i onal r eg' ions ' ar ea d isp a ri tj e s j s a l so si gnificant in the case of depr essed re d eve l o p me n t g i o n s a n d djsaster - pr oner egions.

*.b*U

25 l { h e r ere g i o n a l e n ti ti te s withjn a countr y ar e char acter ized by wide di s p a r i t i e s in e co n o mi w c e a l th , a nd level of living, the poljtical balanceof p o w e ru s u a l l y te n d s to b e i n fa vour of the econom ically pr edominant r egion s . T h e e x p e r i e n ce sh o w s th a t w h e neconomic and political poweris concentr ated i n o n e r e gi o n a l e n ti ty w i th i n the countr y, r esentment against the centr al a u t h o r i t y te n d s to b e h i g h a n d o' in som e cases, the issue of econom ic disp a r i t i e s i s n o t d i scu sse d ra ti o nal ly but within an antagonistic fr am ework . I n p o l i t j c a l syste ms i n w h i ch .r egionaldispar ities ar e wide, jt is extr emel y d i f f i c u l t to stri ke a b a l a n ceb etween political consider ations and econom i c al l y r a t i ' o n a l c r j te ri a i n a l l o ca ti n g public development r esour ces. In such situ a t i o n s , P o l i ti ca l sta b i l i ty a n d der nocr atic political pr ocessar e mor econd uc j v e t o b a l a n c.i n g co n f.l i cti n g i n ter ests.

In developing co u n trj e s w h ile var ious types of r egional entities ar e d e l i n e a t e d , th e p ro ce sse s o f p l a nningnad budgeting ar e char acter ized by s e c t o r a l o r i e n ta ti o n . D u eto l a ck of an adequate devolutionof financial a u t h o r i t y , th e n a ti o n a l l e ve l ministr ies and depar tm ents play an impor tant p a r t i n d e te rmi n 'i n g a l l o ca ti o n o f pub' lic developm ent expenditur e. It shoul d b e n o t e d ' h o w e ve r, th a t re g i o n s i n feder al system s have gr eater powerin th e p r o c e s so f p l a n n i n ga n d b u d getingthan do those in the unitar y systems . F o r a va ri e ty o f re a so n s,a dministr ative r egions ar e mor eoften the f o c u s o f r e gi o n a l a n d l o ca l p l a n ningactivities jn Asia and the pacific. A s n o t e d e a r l 'i e r, th e a d mi n i strativem achiner y for for mulat.ing,.imple_ ment'ing a n d mo n j to ri n gd e ve l o p ment p' lansand pr ogr am m es exjsts in such u n i t s ' T h e sere g i o n s ma yco rre spond with poljtjcal entjties and mavbe

26 ac e' i c and cul tur al i dentity of the pop ul ze d b y e th n ic , I j ngu'sti c h a r a cte ri planninga c ti r eg' iona1 T h i s n ra ke s.i tp o l i ti ca l l y expedientto under take of such units. v i t i e s w i th i n b o u n d a ri e s
u'
1, r l.i
I

T a b l e 2 p re se n tsth e cr oss- nationalpr ofiles of existing admin i s coun tr i es ' t r a t ive u n 'i ts fo r re g i o n al and local planning in selected ESCAP such as India' t a tte rn s emer ge: The feder al system s T w op re d o mi n a np 1y which have constitut' iona 'l pak j sta n a n d Ma 'l a ysi a h a ve states/pr ov' inces g u a ra n te e d i u rj sd j cti o n . d j s trj cts. Belowthis ar e divisions, djstr icts and su b-

:
:!

such as Indonesjaand Thailand, pr ovinc es In u n j ta ry systems Howeverpl , an-

subr egionalunits. l a n d d i stri cts co n st'i tu tereg' iona'and

exist abovepr ovinces ' n i n g re g i o n s w i th o u t a d m inistr ative m achiner y jn selecte d T a b l e 3 p re se n tstY Pesof or ganizational str uctur es tYPesof ur ban r egions with their char acte r i s u r b anre g i o n s. It sh o w s t ' i c s.

r efor m to plan and manage T h e re'i s n o u n i ve rs al or ganizat' ional since ther e ar e djffer ent types of r egi ona'l g i o na l a n d l o ca l d e ve l o pment djffer ent objectives' F ur ther to ach' ieve ds esjgned ptro g ra mme d e ve l o p me n involv i ng m o re , re g i o n a l p l a n n i n g i s m ult' isector al,m ultilevel activjty countpiesin As i a of developing a t e a ch l e ve l . The exper ience a g e n ci e s th at sever al or ganizationalfor ms havebeenu s ed, a n d th e P a ci fj c sh o w s r egion al j n mo st ca se sw i th i n th e same countr y, to plan and intplem ent d e v e l o p me n t.T h e sei n cl ude:

(I )

at the centr al I evel; i bod' ies I .in e min i stri es and pl ann'ng

and the' ir f i el d of f i ces; i gover nnents (2 ) re g io n a l/p ro vi nc' al

27

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3.

io n s i z a t io n a I S t ru c t u re s i n Urb a n Re g Types of Org a n

EXAMPLES Shanglrai, Beijing CHARACTERISTICS The central ly controls ernmenT. government directmetropol itan gov-

TY P E
I I I I

Centra | | y confrol led

Q noc ie I

prov i nce

Bangkok, Jakarfa, SeouI

The metropol itan area is designated as a special province in which local governments and prov inc ia I governnrent are merged into one. The metropol iian area is mani ss i onlcounc i I aged by a comm comprised of representatives of state and muni c i oa I qovernments. While local governments continue to exisf, some of their key functions are transferred to a metropo I i tan organ i zai ion whlch is empowered to control and superv i se I cca I governrnents in the area. with Develooment authorities metropo I i fan-w i de juri sd iction are created by statute i n order to underta ke reg i ona I p I ann i ng, and coord i nate muI t i sectora I programmes. The me'tropolitan area is tnanaged by the c i ty governmen't.

State ( subrra'lional)municipal ity commission/ counc i I Two-t i er system

Rio de Janeiro, Mexi co

Mani la, Tokyo

DeveI opment author i ly

Delhi, Bombay, Karachi, Colombo, Ch i ttagong

Single-tier c i tylmetropoli-lan government

rlli
1l

KuaI a Lumpur, Surabaya, Nai rob i

lr

Intermunicipal ity cooperat i on

Ca I cutta,

Bogota

Munic i pa I i ties coopera-fe w i'f-h each otlrer in prov id ittg some serv i ces .

. f, r.te"

\-..
an LJ

(3)

r e g i o n a l d e ve l o p me n t uncjls super im posed co uponexjsting subn a ti o n a l u n i ts/p ro vi n ce sor subnationalplanningboar ds; s p eci a l u n i ts cre a te dw i thin m inistr ies and delegatedwith the a u t ho rj ty to stre a ml j n ethe im plementation of m ultisector al, i n t eg ra te d d e ve l o p me n ptr ojects; and s e mi a u to n o mop uu sb i c e n ter pr ises.

(4)

(5)

A t t h e n ati o n a l l e ve l , th e e xam ples of bodjes for r egional plan f o n m u l a t i o na re : th e E co n o n rip cl a nning unit ( Epu) and the National

Deve l o p m e n t a n n j n gC o mmi tte(f'ID Pl e PC) in M alaysiai the planning Comm iss io n a n d I ' l ajto n a l D e ve 'l o p meC no t u nci I ( NDC) in Ind' ia; the Nat.!onal Economi ca n d S o c i a l D e ve l o p me n Bto a rd (NESDB) in Tha.iland; and National f lc o n o m j a c n d D e ve l o p me n Atu th o ri ty (NEDA) in the philippines. At the reg ' i o n a 1 a n d s u b re g i o n a ll e ve l s, th e task of plan for m ulat' ionis under t a k e n b y r e g i on a l p l a n n i n gu n i ts, the br anches of natjonal planning bod i e s , l i n e d e p a rtme n ts a n d o th e r gover nm ent agenc.ies. in Malaysia, t he S t a t e Pl a nn j n gU n i t a n d th e S ta te Developm ent PlanningConr m ittee at t he s t a t e l e v el a n d th e D i stri ct D evelopm ent Comm jttee at the djstr ict le v e l a r e e x a mp l e s. si mi l a rl y, i n sr i Lankaand Thajland, these funct jon s h a v e p a r ti a 'l l y b e e nd e l e g a te dto the Distr ict PlanningDepar tm ents a n d Pr o v i n c j a l P l a n n j n gC o mrn i tte e s, r espectively.

Though t h ere e xi st me ch a n i sm s coor dinationin planningand for impl e r n e n t a t i oa nt e a ch l e ve l , j t j s wjthin lower levels of adm jnistr at iv e h j e r a r c h y th a t re g i o n a l a n d l o cal developm ent pr ojects ar e actually inrpe l n r e n t e d .Th e sea re d i stn 'i ct a n d thana I evels i n Bangl adesh; the djs t r j c t a n d b lo ck l e ve l s i n In d j a ; the distr jct and divjsional levels jn s r i L a n k a ,an d p ro vi n ci a l a n d d i str ict lever s in Thailand.

30 h av e or ganizatjonsand coor dinationbodies se ve ra l se mi a u to n omous boundar i es . cr oss political and admin' istr ative fre q u e n t.r y e r n e rg ew d h .i ch cr eated for the developm ent T h e sei n cl u d e co rp o ra tetype or gan' izat' ions Developm ent Tenggar ah fro n ti er r egions such as Pahang o f re so u rce -r.i ch , of econo m 'i c al l y developm ent Au th o ri ty i n Ma l a ysi a ; or ganizationsfor the in e Ind' ia; o r gani Ar ea Pr ogr amm re g i o n s su ch as Dr ought- Pr one d e p re sse d Ag r i c ul ' ar eas such as Mada z ati o n s d e a l 'i n gw i th o ne sector in specified j nati on for the coor d j ty ' in Mal ays'a i ; and bod' ies t u th or l p me nA t u ra l D e veo Boar dfor the develo pm ent o f .i n te rre g i o n a l p l a n s s uch as Joint Planning o f so u th e a stre so u rceregions in India'

V.

Issues M anagement i t Wo rk: Some Ma k'i n g

per the r egional development T h e re i s a w i d e b ody of liter atur e on "is beyond the scopeof thi s o f d e ve l o p i n gcountr ies.Zf/ It f o rma n ce the im pact of past r e gi onal p a p e r to re vi e w th i s l 'iter atur e or to assess d e ve l o p me n tp o l i ci e sandpr ogr am m es.However ' com par ativestu d.i es under ( UNC R D dur ) i ng for RegionalDevelopm ent t ake n b y th e U n i te d N ations Centr e and policy' issues w hi c h management t h e p a st tw e l ve ye a rs pojnt to sever ai and planner s in de se rvei n cre a se da tte ntion of policym aker s solutions to these issues and pr obl em s de ve l o p i n gco u n tri e s.?2/ Though context of individual count r i es ' wo u l d i n e vi ta b l y b e found within the their ownexper i enc es to exchange th e se mi n a rp a rti ci p a nts might like of c om better under standing w i th re g a rd to th e se 'issuesto facilitate planning' pl e xi ti e s o f re g i o n a l development

,ii

J I

,i

i
l

31

I t i s wi d e l y re co g n i ze d th a t national and r egional p' lansshould be eff e c t i v e l y li n ke d a n d th a t re g i o nal plans should be for m ulatedwithin t h e o v e r a l l p l a n n 'i n g fra n e w o rki n the countr y. But the extent to which re g i o n a l p l a n n i n g sh o u l d b e to p -d own or bottom - up is an im por tant issue f o r d j s c u s s i o n . sh o u l d th e n a ti o nal plan be disaggr egated into r egiona' l p l a n s ? s h o u l d re g 'i o n a 1 p l a n s b e for m ulatedfir st to be aggr egated into t h e n a t i o n a l p l a n ? S h o u l dth e n a tional p]an be disaggr egated to a cer _ t a i n p o i n t a n d re g i o n a l p ]a n s b e aggr egated to a cer tain point? what a re t h e i n s t i tu ti o n a r re q u i re me n ts for these ' r inkages?

i!

planning L o c a l a n d C o mmu n i ty

if
l.

The

r e a l i ty

of

th e si tu ation

in

dever oping countr ies exam ine appr opr iate-

s ho w s t h a t

re g i o n a l p l a n n e rshave to cr itically

ness o f r e g i o n a l p l a n n i n g fra me w or ks and techniquesfor r esolving the im n r e d i a t n e e e d so f co mmu n i ti ea s n d r esponding to their aspir ations. E f f e c t i v e r e g i o n a l d e ve l o p me n pt'l anning should pr ovide mechanism for p a r t i c i p a t i o n o f i n d i vi d u a l s a n d comm unities in developm ent pr ocess, f ac i l i t a t e a c ce sso f th e p e o p l eto gover nm ent pr ogr amm es, and ensur e t h e p r o v ' i s i o no f b a si c h u ma n n e e d sto the people.

T h e r ea r e se ve ra r i ssu e s co n cer ning r oca' rand com m unity planning wh i c h n e e dt o be d i scu sse d . !{h a t should be the scopeof such plans? S h o u l dt h e s e b e re stri cte d to a fe w social sector s or be compr ehensive 'in s c o p e ? H o wsh o u l d th e se p 'l a n s b e linked with r egional and national pla n s ? H o wt o e n su n e th a t i n te re sts of the r ur al and ur banpoor ar e

t. -.,.

+:

32 for suc h th ro u g hth e se plans? what is an appr opr iatelevel s a f e g u a rd e d be involved in these? what should b e p l a n s? H o w sh o u l d 'co mmunity pr ojects? W hatshoul d t h e c r j te ri a fo r se l e cti o n and location of local 1oca1gover nmen t' gr assr oots bur eaucr acy, b e t h e re l a ti o n sh 'i p b e tw e en for pr epar ingthese plans? a n d pe o p l e ,svo l u n ta ry o rgan' izations

I i zati on for [e-g:gg-1--QgJ9]9 nt Plannin Decentra jzation of p l annecessjtatesdecentr al plann' ing d e ve l o p me nt R e g i o n a 'l to nu t th or ity and devolution of financial r esour ces n i n g a n d ma n a g e mea r e g i o n a 'l a n d I o ca l u n its . to planning ' is not conducive o f re g ional development T o p -d o wmo n de of for a1' lsegm ents pr ocess' access i n v o l ve me no t f p e o p l e i n development ser vjces, and equitable djstr jbution of benet h e s o ci e ty to g o ve rn me nt countr jes' howe v er 's how in develop' ing o f d e ve l o p me n t. Exper iences fits and that ar e diffjcult to be im plemented t h a t d e ce n tra l i za ti o np ro gr am m es might be mor eappr opr iate' a p p ro a ch a n i ncre me n ta l in deve i opT h e i ssu e s fo r. re g i onal planning ar e: W hatactivities at each level? what cr iter ia for the m e nt p ]a n n i n gsh o u l db e under taken ar e appr opr iate? Howcan pl ant r a n sfe r o f re so u rce sa n d r evenue- shar ing and local l ev el at r eg' iona1 ca n tp acity of or ganizat' ions n i n g a n d ma n a g e rn e t' egionaland local pl anb e stre n g th e n e d ? Wh a tshould be the r ole of the n ' i n g u n i ts?

33 Interagency Co o rdn i a ti o n

O n eo f th e cri ti ca r i ssu e s i n r egionar and r ocar r ever p.r anning and im p l e m e n t a ti o i n s h o wto e n su reh or izontal and ver tical coor dination a n r o na g g e n c i e sa t re g i o n a r a n d l o c ar r ever s. Though var ious coor dinat io n a g e n c i e sh a ve b e e ncre a te d , str ong sector al or ientation of m ost a g e n c i e sh i n d e r co mp l e me n ta ri ty o f actions by tne concer ned or ganiza_ t ion s ' T h e mo st se ri o u s p ro b l e m e xists at the subr egional /locat level. some o f t h e i ssu e s i n th i s re gar d ar e: Howcan the r or e of the re g i o n a l / p r o vi n ci a l co o rd i n a to r i n unitar y systems be str engthened? Howc a n a s y s te mo f ch e cksa n d b a rances be cr eated between gover nment age n c i e sa n d p e o p l e 's o rg a n i za ti o n s? l^/hat ar e the al ter native appr obches to stnengthen th e ro l e o f l o ca l co or dinator sat distr ict and subdistr ict lev e l s ?

i! l

ll

GrowthCentres

T h e r e i s an i n cre a si n gd i si i l u si onm ent with the conceptof gr owth c ent r e s . T h e c on ce p th a s b e e ncri tj cized for its am biguity, its r eliance. on c a p i t a ' l i n t e n si ve a cti vi ti e s, i ts assumption that benefits will spr ead t o hin t e r l a n d ' an d i ts n e g l e ct o f a d equate linkages with national developme n p t o ] i c y ' Y e t, th e co n ce p t mi g ht have potential to be utilized in s it ua t i o n s i n w hi ch ca p i ta l i n te n si ve activities ar e nota major constr ajnt. Ho wc a n t h e c o n ce p tb e mo d i fi e d to makeit m or er er evant to the Thir d ! {orld s i t u a t i o n s? H o wca n su ch ce n tr es be m or eeffectively r inked with th e ur b a n , a r e a a n d n a ti o n a l d e ve l o p ment policies?

D e velopm ent R u r a l q n d " A q ro p o l i ta n f' l anner shave , r eg' iona'pl I n th e se a rchf o r aI ter natj ve appr oaches a n i n cre a se dfo cuSon r ur al and "agr opo' litan"r egions in order a d v o ca te d r esourc es ru ra l to u rb anm igr ation, utilize land and human t o d ' isco u ra g e social and infr astr uctur al dew i t h ' in ru ra l a re a s, a n d p rovide adequate could be r a 'i s ed: v e l o p me nse t rvi ce s to th e r ur al pdople. Sever alquestions r egi ons ? W h a tsh o u l d b e th e n a tu re and the scopeof r ur al and agr opolitan ar eas is to H o wt he re so u rcea n d te ch nologytr ansfer fr om ur banto r ur al t a k e pl a ce ?

countr ies which T h e re i s su ffi ci e n t evidencefr om the developing gr oupshave j n r e v e al s th a t ru ra l a n d u rban poor and the disadvantaged and their inter ests have not beenadequatel y m o s t ca se s,b e e n b yp a sse d of r egional and local planninghas to s a f e g u a rd e d . l h e n e wp a radigm on' t a k e th i s re a l i ty i n to co ns' ider ati pr othat planningand im pler nenting shows th e e xp e ri ence H o w e ve r, r easonsdue to g r a mmefo s r th e p o o r a re the m ost difficult for the same a r e: p o ve rty e xi sts. P er tinent questionswhich r equ' ir edjscussion w h . ich themto put pr es W h a ta re th e stra te g i e s to or ganizethe poor to enable what or ganjzatjonalar s u r e fro m b e l o wo n re g i o nal and loca' l planner s? needsand jnter ests of the di s fo r com m unjcating a re n e e d e d r a n g e n l e n ts Howshould pr o a d v an ta g eg dro u p sto re g i onal and national planner s? sjtuation of the to im pr ovesocioeconom ic g r a mmea sn d -p ro j e ctsd e signed p o o r b e i n co rp o ra te di n the r egional plan?

35

T h e n e e dfo r p l a n n i n g fo r smar l geogr aphic aneasor subr egions e m a n a t ef sr o m th e n e e dfo r i n vo l vi ng the people in developm ent pr ocess, pro v i d i n g b a si c h u ma n n e e d s,a n d i dentifying and im plementing pr ojects mo s t r e l e v a n t to i mme d i a te n e e d so f com m unities. what shour dbe the s iz e o f t h e s e a re a s o r su b re g i o n s which facilitates both m eaningful par t i c i p a t ' i o n o f l o ca l p o p u l a ti o nand integr ation of govennment pr o_ g ra m t n e s p,r o j ects a n d a cti vi ti e s?

I de n t i f y i n

i o n a l a n d L o ca l p l a nner sfor Tr ainin

A l a r g e n u mb e o r f p l a n n e rsa t national, r egional and local levels are u s u a l l y i n vo l ve d , d i re ct'l y o r i ndir ectly, in r egional and localplanning adt iv i t i e s . H o w e ve r, so me o f th e mplay m or eactive r oles in for mulating, imp l e n r e n t i nig nd co o rd i n a ti n gre g i o nal and local plans. It is this cor e grou p o f p l a . n ne rs w h i ch n e e dtb b e i dentified and tr ained in r egional pla n n i n g i s s u e s, co n ce p tsa n d te ch n iques. The questions her e ar e: who a re k e y r e g i o n al a n d l o ca l p l a n n e rsto be tr ained? what is it that they needt o l e a r n t hro u g htra i n i n g to e nable themto per for m their r esponsibilit i e s m o r eeffe cti ve l y? l ,l h a ttra ining m ethodologiesar e r elevant?

Re g i o n a Bu l d g eti n q

Bu d g e ti s th e ma i n i n stru me n tfor im plementing and coor dinatingr egio n a ' l a n d l o c a l d e ve l o p me n ptro g ra mr nes and pr ojects. planning- budgeting int er f a c e a t t h e re g i o n a l l e ve l , th e r efor e, is a necessar y condition for irnple m e n t i nrg e gi o n a l a n d l o ca l p ro g r am m es and pr ojects. Howshould the

36 m1 n i stry, finance min' istr y, and r egional planning c e n t ra l p 'l a n n i n g budgeted? b e l i nke d to e n su reth a t plannedr egional pr oiects ar e uni t

I'
I
{l tl

:I

t.

trn d u stri e s D j s p e rsa l o f-'' 9 !- tside the Cor e Region r egions is one w h .i l eth e d i sp e rsa l of industr ies outside the cor e planning' th e p o l i cy i n stru mentsfor r egional development o f t he n ta 'i n the actual ' inr pl em enth a t d u e to locational disadvantages sh o w s e x p e r.i e n ce The issue has beenextr em elydifficult' t a t j on o f th i s p o i i cy me asur e m or eattr active for the di s r egions be m ade i s : H o wca n th e b a ckw a rd and ' industr iesar e c onp e r sa l o f i n d u stri e s? w hat types of incentives o f such a pol' icy? d u c i ve to th e su cce ss

r!

' i.

T h e R o l e o f In fo rn ra lS e rvice Se deficienc' iesin ur ban R a p i dg ro w tho f u rb an populatjonhas led to financ' ial r esour ceand do not haveadequate Go ve rn me nts s e r vi ce s. for ur banser vices ' demand a d m i n i stra ti ve ca p a ci ty to m eet incr easing sectolis per for mingin w h at i s th e ro l e w h j ch the infor r nal ser vice to fur ther str engthenthis r o' le? s r e needed c i t .i e s? w h a t me a su re a

VI .

u si o n C o n cl

the theor y and pr actice of r eg' io na1 D u ri n g th e p a st tw o decades, significant changes' Newdevel opm ent pt l a n n i n g h a s under gone d e ve l o p n re n ization hav e decentr al su ch a s e q u 'i ty , par t' icipation' accessand c o n ce rn s j on on spatia1 d' isaggr egat i s by poli cym aker s n g e mphas I e d to a n j n cre a s'i

37 a n d p l a n n i n ga t re g i o n a l a n d l o cal levels. Exper iences of countr jes in d e v e l o p i n gco u n tri e s p o i n t to tw o per sistent them es which might be r elev a n t f o r r e gi o n a r p l a n n e rs i n th ese countr ies to keep in view. Fir st, t h e r e l e v a n cea n d a p p ro p ri a te n e ss of conventionaland technocr atic approaches t o r e g i o n a l p l a n n i n g n e edto be ser iously r eexam ined.second, .|9 8 0 s t h e c h a l ] e n gei n th e i s to ensur ethe im plementability of r egionat an d l o c a l p r an s b y ta ki n g n e ce ssar y m easur es to r esor ve key m anagement iss u e s .

--,.4

FO OTNOTTS

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A ppl i t- lt io n Ti 'Ti tl ot.u"uno

P la n n in 9 : T h e P ro g re s s o f a John Friedman, "Reg'io n a IDe v e lo p me n t

nI""" i"a;:r'..fqqi';gltPFll!{; in Frira'l'il'.'o zor Decade" iB?Eii'f;1 M' a s s : wlll ( c a r n b r id s e

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and ApplicabiIitv of Regional Rglgyance H a rn yW. R i ch a rd so n,."Thg 0ialogue' ng- Countr t"t;- ii"Reg!bnalUevelbpment to D e ve l opi E co n o mi cs ' 1980' vo i - f , N o . i , sP ri ng of Developntent ( eds' ) ' .Chalgilq Per cept' ions R . P . Mi sra a n d H ' Honio 7/ Asj a ' l9Bl ) ' qrulfgrni til ngupott Maruzen ' The Sear chfor a NewLocal and to the tse n j a mi H n i g g i h s, " Jh:.T1:!- th:ud' pr esented Str ategy ]' i"in"' igg0i; [pup"t ' Ueveiopm ent R e q i o n a lD e ve ro p ment the in ntsionit on tocaf"unO In i e rn a ti o n a l C o n fer ence lg8ll' Japantr oil,' tt' io i6 t' tovem Uer l 9 B 0 s h e l d a t N a g o ya, Nor th and South: Towar ds Between ql D i a n aC o n ye rs," B ri dging the Gap - iiiinning, " Th.ir d d Planning An p p ro a cito' ' inir u- n.Si5nui a C o n rmo ' ,,or l i .u i u " , v,i i . 6 , N o ' 4, l9B4' ( Kuala Lum Pur : Ma la Y s l ' -g Ma l a ys s' ia, of o f .MalaJ l 0/ Governntent ia ' ,Second Ptrinter, I g i |)' P ' |' Govprnment Go ve rn me n SouthAsia: in l and Regiona'Development' to the 1 1 1 K . V . S u n d a ra m" 'Locat pr esented "in the Ma i n l ssues ..;"i;;;;..iiutt' ' ' ,IPaper Oevblopm ent E xp e r.i e n ce s, on"fotul' inO Regioial' i n te rn a t'i o n a lC o n fer enc" 19811' Japan;ffi ti io 16 Nover noer l 9 8 0 s h e l d a t N a g oya' ( ed' flational 1 2 /E d B .P ra n ti l l a ,,,R e gional' Deve]opm ente^o]]ciesandPlanhjng in pr aniiita "' M;;t;;; ) ' Ou.tui.i;;- in N o u n i ri es: nnF o u r A S E AC nsiu' tEelT' poii.V' iiinsupotti p e veo t p n re na n d R e s' ionul t)31 W Ib i d . o P ' ci t' S u n d a ra m,

39 1Y H' M ' Gr nu:9!9.l ur "R eg"i onar _ p r a n p no i!r 9 ic ie s in F iji" I p a p e rp r e se n te d to A S E AS Nemi nar p ia ntn in it - S t a t e on R eg io n a l- De v e lo p m en and s hari ns E x pe.i 6 n c e , z t z s . ib p t e m u e r a z i B a r j, tg ? l;l!:-tl tta. in oones
Ed B . P r a n til 1 a , o p . c.i t. A k i n L ' Ma b o g u n j e",L o ca l a n d RegionalDevelopm ent in Afr ica: Exper ie n c e s , M a i n Issu e s a n d p e rsp e c tiies,'( Nagoya:'uNCRD, lgBs) ( mimeo) .

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An t o n o g t h e rs,se e Jo rg e .E . H a rdoy,"Regionaland Ur banDevelopment Problems i n L a ti n A me rj ca ,,' q.u.iogg&_!1sf!S!g, Vut. R e gional N o . 2 , 1 9 B2 ;a n d Wa l te rS to h rl @ .QeyelopmentExper iencesand :, Pr o s p e c t s i n L a ti n A n re ri ca lnar R e p o r to f th e .E xp e rtGro u pMe etjngon ,,The Role of public Enter _ p r i s e s i n R e g i o n a lu g u g l o p me nt in- Developing countr i;r ,' ;- tnter n a t i o n a l c e n tre fo r p u b l i t E n ter pr ises, 7- 1' | Decem ber l9gl, L j u b lj a n a , Y u g o sl a vi a .

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A n r o no gt h ers, s9 e A l b e rt w a te rs ton,!g_velopment plannjnq: Lessons N a o mc ' i a i de n a n d A a ro nw i l d a vsky, planningand Budqetjnq in poor

york: Wi ley, rv74).. S,oy!!llgr,.(NeT N atr on aI Deye'loprnent and Region a I p o lic y , o p . c it ; a nd F u -c h e n L o enA-R .-TellFfe d-JffiATffi; Jha n.si oni i oui. ropre nt Po l i cy ( Ox ford:
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D u r i n g t h e l a st te n ye a rs, th e united Nations centr e for Regional Developmen t NCRD (U h) a s u n d e rtaken sever al r elevant cr oss- nationat r e s e a r c hp ro j e cts re l a te d to so me of these issues. some of these a r e : "l n s tj tu tj o n a l for Regional Developm ent, F;;;; _ ca p a b i l i ty on coordi n a ti o n" ; " Imp e 1 me n ti n g Decenlr a t i zati on pblj cj es and Pr o g r a m m e s"" ; R u ra r-u rb a n R e raiion"; "The Ror e of smar r and - i;n.gionit I n t e r m e d j ateS i ze d C i ti e s j n N ationa' iDevelopmentt' ; D g v e I o p m eA nt l te rn a ti ve s i n p re dom inantly Rui^aI soiietj.i"; und "u r b a nM a na g e mea nn t d p o l i ci e s.', Fjnoingsof most of these r e_ se a r c hp r o je cts h a ve b e e np u b l i shedin tdn volumes of Regional Deve l o p m e nS t e rj e s b y Ma ru ze n A s .iai n Singapor e in cooper ation with UNCRD.