RegV RDP 2011-2016 PDF

Table of Contents
Message of the President i

Message of the NEDA Director General ii
Message of the RDC Chairman iii
Foreword iv
Map of Bicol v
Map of the Philippines vi
Chapter One – Development Challenges 1
1. Regional Situationer 1
2. Macroeconomy 3
3. National and Global Trends 5
4. Development Vision 8
Chapter Two – Providing for Basic Needs 10
5. Education 10
6. Health 12
7. Housing 14
8. Social Welfare 16
Chapter Three – Ensuring Economic Growth 17
9. Agriculture, Fishery and Forestry 17

10. Mining and Quarrying 20
11. Manufacturing 21
12. Trade 22
13. Tourism 23
Chapter Four – Improving Infrastructure 25
14. Transportation 25
15. Communications 27
16. Energy 28
Chapter Five – Sustaining Development 30
17. Land Use Management 30

18. Good Governance 31
19. Disaster Risk Reduction and Climate Change Adaptation 32
20. Plan Implementation 34
List of Acronyms 36
MALACAÑAN PALACE
Manila
Message
I commend the Regional Development

Councils and all stakeholders in the 17 regions
for coming together to formulate your
respective Regional Development Plans. May
this partnership among regional and local
institutions, the private sector, and civil society
ensure the continued success of these
programs and the distribution of their benefits
throughout the country.
Along with the Philippine Development

Plan, the RDPs will guide our development
efforts in the next five years, and will act as a
common roadmap for our country’s
development and for the establishment of the necessary infrastructure
that will help us achieve our goal of increasing economic and social
opportunities for our people. Guided by our commitment to the UN
Millennium Development Goals, our concerted efforts will not only help
accelerate economic growth, but will also give our provinces improved
access to quality education, health, and social services.
We came to government with a mandate to eradicate poverty and

create a better future for our nation. As we carry out key reforms in the
bureaucracy, we also strive to set in place an environment of sustainable
and equitable progress in the coming years. Together, let us fulfill the
potential of our great nation.
President
Republic of the Philippines
MANILA
May 2011
i
NATIONAL ECONOMIC AND DEVELOPMENT AUTHORITY
12 Saint Josemaria Escriva Drive, Pasig City
Message
The Regional Development Plans (RDPs)

represent the aspirations of Filipinos in different
areas of the country. As accompanying
documents of the Philippine Development Plan
(PDP) 2011-2016, the RDPs also provide the
spatial dimension to the national plan by
identifying the region’s contributions to our goal
of a high, sustained and broad-based growth.
This “inclusive growth” involves rapid economic
expansion that must reach population groups
throughout the country through provision of
productive employment opportunities, thereby
reducing poverty.
The attainment of our goals requires massive investments in

infrastructure, social services and other productive activities. The PDP,
along with the RDPs are the key instruments that will guide the proper
and equitable allocation of resources to ensure improvements in the
welfare of our people. Likewise, our plans shall direct our efforts in
protecting the environment, reducing climate and disaster risks, promoting
good governance and ensuring peace and stability.
The RDPs provide the framework for local development. We thus

enjoin the local government units to align their local plans and programs
with the RDPs. We likewise seek the support of regional institutions and
the private institutions in the realization of the plans which many of them
helped prepare. We need to strengthen multistakeholder cooperation
particularly as we promote public-private partnership to improve the
provision of services for our people.
I thank the Regional Development Councils (RDCs) for spearheading

the preparation of the RDPs and we count on their continued leadership in
coordinating development efforts in the regions.
ii
REGIONAL DEVELOPMENT COUNCIL
(Bicol Region) Arimbay, Legazpi City
Message
The Regional Development Plan (2011-

2016) is the guide to attain our vision of
making Bicol the most livable region in the
country. It supports the attainment of the
nation’s Millennium Development Goals and
the President’s social contract with the
people.
The Bicol regional development plan is

composed of three volumes. This is Volume 1
or the plan summary; Volume 2 contains the
detailed sectoral plans; Volume 3 is the
regional development investment program.
The plan pursues four major development goals: provide for basic
needs, ensure economic growth, improve infrastructure, and sustain
development. The provision of basic services (education, health, nutrition,
housing, and social welfare) shall be prioritized to help the poor and
vulnerable groups. The expansion of Bicol’s primary economic growth
drivers (agriculture and fishery, mining and quarrying, manufacturing,
trade and tourism) shall provide jobs and increase family incomes. The
improvement of infrastructure facilities and utilities shall increase the
productivity and competitiveness of the region. All of these undertakings
shall be sustained through good governance, peace and security
measures, land use management, improving productivity in the public and
private sectors, adapting to disaster risks and climate change, and people
participation.
I call on the stakeholders to help in the implementation of the plan.

Let us all make a big difference for Bicol and the country.
iii
NATIONAL ECONOMIC AND DEVELOPMENT AUTHORITY
Regional Office No. 5 Arimbay, Legazpi City
Foreword
The preparation of the Regional

Development Plan was guided by RDC
Memorandum Circular No. 2 (S. 2009) and
OP Memorandum Circular No. 3 (S. 2010)
issued by the President directing all national
government agencies and local government
units to formulate medium term development
plans and investment programs. NEDA
Region 5 coordinated the preparation of the
plan in consultation with the stakeholders in
the region.
Discussions were held during inter-agency technical working group

sessions and RDC sectoral committee meetings. Multi-sectoral
consultations were conducted in the six provinces of the region. A
meeting with the Bicol congressmen was held to solicit their inputs.
We thank all those who participated in formulating this plan:

regional line agencies and their attached offices; provincial, city, and
municipal governments; state universities and colleges; government
financial institutions; government owned and controlled corporations;
private and business organizations; non-government organizations; and
various civil society groups. Their knowledge, ideas, opinions, and
suggestions will help build the desired future for all Bicolanos.
Dios mabalos!
ATTY. ROMEO C. ESCANDOR

Regional Director
15 March 2011
iv
Bicol Region
v
Bicol Region and the Philippines
vi
Chapter One
DEVELOPMENT CHALLENGES
1. Regional Situationer
The Bicol region is rich in cultural and spiritual heritage. It has a
wealth of natural resources suitable to agriculture, fishing, forestry,
manufacturing, mining, and tourism. However, there is widespread poverty
in the region. Almost half of the Bicolanos are poor. They earn below the
minimum amount required for food and other basic needs. Most families
depend on rural employment as source of income. Many Bicolanos are
unemployed. Most professionals, skilled, and unskilled workers look for
jobs outside the region and abroad.
School age population continues to increase. But not all children are
in school. Many do not finish basic education. Students perform below
average in the National Achievement Test. Most graduates of technical,
vocational, and college courses are not gainfully employed.
Although Bicolanos have longer life expectancy and infant deaths in

the region have decreased, maternal mortality is still high. There is high
incidence of tuberculosis, malaria, and lifestyle related illnesses such as
diabetes mellitus, hypertension, and cardiovascular diseases. Malnutrition
among schoolchildren is prevalent. The health situation is aggravated by
expensive medicines and inadequate health services.
Half of the poor families in Bicol do not own the home lots they
occupy. Many families live in makeshift houses located on public lands,
along riverbanks, railroad tracks, and in high disaster risk areas. Many
houses do not have potable water and sanitation facilities.
Some population groups are susceptible to abuse and are most

vulnerable to disaster risks. These are the poor families, women, children,
indigenous peoples, the elderly, persons with HIV/AIDS, disabled persons,
landless farmers, and overseas workers.
Agriculture, fishery, and forestry employ the most number of

persons. Most families dependent on this sector are poor. Only half of the
irrigable land is covered by inefficient irrigation systems. Many
agricultural areas are not served with roads. Illegal and abusive fishing
and forestry practices threaten the sustainability of these resources.
Although mining contributed substantially to the economic growth of

the region in 2009, the industry is constrained by issues related to
1
environmental protection, child labor, and risks to life and health. There is
also strong opposition to mining in the region.
Manufacturing activities in Bicol are mostly small scale. Many are

agriculture and mineral based. Several manufacturing establishments
have stopped operations due to high cost of doing business, low labor
productivity, unreliable power supply, and lack of raw materials.
Wholesale and retail trade is a major economic activity within the

region. But the exchange of goods outside the region is hampered by
inadequate infrastructure and logistics. Prices of most commodities in
Bicol are higher than in Metro Manila. Export sales have decreased.
Tourism and its related service industries play an important role in

the region’s economy. The whalesharks in Donsol, Sorsogon and the Pili
watersports complex and Caramoan beaches in Camarines Sur have put
Bicol region in the domestic and international tourism map. Jobs have
been created by tourism. But investments in tourist destinations are
inadequate and tourism activities are not integrated.
Bicol is connected to other parts of the country through land, water,

and air transport. Movement within the region relies heavily on the local
road network which needs a lot of improvement. Farm to market roads are
in very poor condition. Rail transport service has not been restored after
Typhoon Reming destroyed the railroad tracks. Water transport is
underutilized. The Pantao regional port and some municipal ports have no
ship calls. National ports need to be improved to accommodate more and
larger vessels. All airports operate only at daytime and are unreliable in
poor weather conditions.
The liberalization of the telecommunications industry allowed the

entry of more telephone and internet service providers in the region.
Telecommunications has become more affordable and efficient. But the
development of this sector is constrained by vulnerability of cell sites and
telephone lines to strong typhoons and sabotage, pilferage of telephone
cables, and power outages.
Bicol is a major geothermal energy supplier. Energy generated by

power plants in Bicol is more than the demand of the region. However,
there are frequent brownouts in Bicol and cost of electricity is high.
The quality of Bicol’s natural environment (land, water and air) has
been deteriorating as a result of conversion of prime agricultural lands
into residential and commercial uses, proliferation of informal settlers in
urban areas not suitable for housing, encroachment of settlements in
protection areas, improper disposal of wastes, illegal cutting of trees, and
2
improper practice of slash and burn agriculture. Most LGUs do not have
comprehensive land use plans.
Bicol is vulnerable to climate and geological related hazards such as

typhoons, floods, landslides, storm surge, earthquakes, and volcanic
eruptions. The increased frequency and intensity of these hazards,
aggravated by changes in climatic conditions, have brought damages to
life and property. Most LGUs and majority of the population are not
prepared for hazards and communities are not organized for disaster risk
reduction. There are houses and other structures that are built in high
disaster risk areas and in waterways.
Most LGUs lack technical capability and financial resources to

manage and implement devolved programs. They lack the capability to
mobilize communities when there are impending disasters. Peace and
security is threatened by high crime incidence, low crime solution
efficiency, illegal drugs, insurgency, and human rights violations.
Productivity both in the government and private sectors is low.

Business transactions take a long time. People have become indifferent
and complacent to what is going on around them and are not aware of
their rights and responsibilities as citizens.
In summary, the region faces the following challenges:
1. Sustaining high and more inclusive economic growth

2. Providing for the basic needs of the poor and disadvantaged groups
3. Creating stable and adequate paying jobs for the labor force
4. Ensuring adequate supply of basic goods and services
5. Maintaining low population growth and promoting small family size
6. Balancing utilization and protection of natural resources
7. Adapting to disaster risks and climate change
2. Macroeconomy
The region’s resources should be used to provide employment and
ensure rapid economic growth. The benefits of economic growth should be
distributed equitably. The region’s economic performance can be
assessed using the following indicators: gross regional domestic product,
employment, inflation, and poverty situation.
Bicol’s population was 5,109,798 in 2007. It grew annually at 1.23

percent starting 2000. Bicol’s share to the country’s population is 5.7
percent, the sixth largest region in terms of population. Population is
expected to double in 56 years. Population density stood at 290 persons
per square kilometer, lower than the country’s density of 295.
3
Although Bicol is an out migration region, its population continues to
grow because of a high birth rate, estimated in 2009 to be 21 births per
1000 population. The fertility rate of four children per woman is higher
than the desire of most women to have only three children.
Based on the 2000 census, average household size is five persons.

Seventy two percent of the population is in the rural areas. Around 46
percent of Bicolanos are within the dependent age brackets of 0-14 and
65 years old and above. Thus the dependency ratio is 85 dependents for
every 100 persons in the working age bracket of 15-64 years. The high
dependency ratio implies a greater burden on the working age population,
thereby lowering the region’s capability for savings and investment. As a
result, most of public expenditures are allocated for the delivery of basic
social services.
GRDP grew by 8.2 percent in 2009, the fastest growth among all
regions. The high growth was due to mining and quarrying which grew by
64.6 percent. Construction grew by 7.6 percent while manufacturing grew
by one percent. Electricity and water contracted by 4.2 percent. The
services sector, the biggest contributor to GRDP at 41.8 percent share,
expanded by five percent. Growth in private services, mainly from tourism,
accelerated to 7.6 percent. Transport and communication services grew
by 4.2 percent, dwellings and real estate services by 3.9 percent and
trade services by 2.8 percent. Finance services grew by 8.5 percent while
government services grew by 7 percent. Growth in the agriculture and
fishery sector accelerated to 4.1 percent. Per capita GRDP increased from
P7,210 in 2008 to P7,650 in 2009. This improved the rank of Bicol from
third lowest to fourth lowest in the country in terms of per capita GRDP.
However, the high GRDP growth did not create enough jobs for the
region’s labor force. The number of persons in the Bicol’s labor force was
2.155 million in 2009. Of this number, only 2.029 million or 94.2 percent
were employed. Compared to the previous year, the number of employed
persons increased by only 30,750. Despite the increase, regional
employment rate still decreased from 94.4 percent in 2008 to 94.2 percent
in 2009. This shows that employment generation was not able to keep up
with the increasing labor force.
About 43 percent of the employed persons are in the agriculture

sector. Another 45 percent are employed in the services sector, mostly in
trade, transport, and communication. Tourism is a major employment
generator due to its impact on the other sectors, such as transport,
communication, trade, hotels, restaurants, and personal services. The
industry sector employs the remaining 12 percent of the region’s workers.
4
Under this sector, manufacturing and construction generate more
employment than electricity, water, mining, and quarrying.
Underemployment rate in the region went up from 35.8 percent in

2008 to 36.2 percent in 2009, which is the highest in the country. This is
because 37 percent of the employed persons are laborers and unskilled
workers and the number even increased by 8,000 from the previous year.
About 41 percent of the employed persons only reached or finished
elementary, while 38 percent reached or finished high school. Only 21
percent reached or finished college education.
The benefits of economic growth were not equitably distributed.

Poverty incidence was 45.1 percent in 2009, the third highest in the
country. Although this was slightly lower than 45.2 percent in 2006, the
magnitude of poor Bicolanos still increased by 86,583 thus bringing the
total number of poor Bicolanos to 2,422,267. Per capita poverty threshold
was pegged at P17,146 per year or about P47 per day. A Bicolano family
of five members should earn at least P85,730 a year or P235 a day so as
not to be considered poor. Poverty incidence among Bicolano families was
36 percent in 2009, the fourth highest in the country. Masbate had the
highest incidence of poor families at 42.5 percent, followed by Camarines
Sur at 38.7 percent, Albay at 36.5 percent, Camarines Norte at 32.3
percent, Sorsogon at 31.3 percent, and Catanduanes at 22.0 percent.
Bicolano families earned an average of P152,000 in 2009, lower

than the country’s average of P206,000. Income inequality among
Bicolano families as measured by the Gini coefficient was 0.4164 in 2009,
better than the country’s Gini coefficient of 0.4484. Adjusted for inflation,
however, average family income in Bicol increased by only P3,000 from
P92,000 in 2006 to P95,000 in 2009 at 2000 prices. Inflation rate in Bicol
averaged 4.6 percent in 2009, higher than the country’s 3.2 percent. The
purchasing power of the peso in the region decreased to P0.62, lower
than the country’s P0.63. Price increments in food, fuel, light, water, and
services items contributed largely to the increase in inflation rate.
3. National and Global Trends

Recent developments at the national level pose new challenges to
the Bicol region. Emerging national and global trends provide
opportunities and threats to regional development. They provide the
environment where Bicol can find its most strategic position given its
natural resources and capability of its people.
The Department of Education is proposing the transition to a 12 year

basic education program that is comparable to the rest of the world.
Elementary and secondary schools in Bicol face the challenges brought by
5
the transition such as lack of school buildings, classrooms, textbooks, and
teachers. Another development in the education sector is the decreasing
budget for state universities and colleges which affects the region’s
capacity to produce professionals.
The Philippine government is expanding public health insurance

cover to the poor and vulnerable groups which is a welcome development
for Bicol, being the fourth poorest region in the country. Aside from health
insurance, interventions include conditional cash transfers, food for work,
livelihood projects, microfinance, and marketing assistance. More
evacuation centers and provision of medical assistance are being
proposed for funding. These interventions are intended to contribute to
poverty alleviation in the region and the attainment of the country’s
Millennium Development Goals.
While the country in general recorded a decline in tourist arrival in

2009, Bicol recorded an increase of 75 percent. Foreign tourists comprise
an increasing portion of tourist arrival in the region. To sustain this
growth, other tourist destinations should be developed to cater to
emerging interests of the global tourism market. These include medical
and wellness tourism, farm tourism, sports tourism, retirement villages,
and culinary tourism. The challenge is to make the tourists stay longer
and visit more provinces.
The government intends to implement key infrastructure projects

through public private partnership. Local government units in the region
should provide an enabling environment for private sector investments.
They should attract investors for undertaking priority infrastructure
projects. These include intermodal transport systems that will facilitate
movement of goods and people at lower cost. LGUs will be encouraged to
go into joint ventures with private sector investors.
Developed countries around the world show a declining growth in

population and size of families. While these countries have an ageing
population, developing countries like the Philippines have a relatively
young population. As a result, developed countries accept migrants and
overseas workers to supply the needs of the ageing population and the
economy. Overseas Bicolanos work as skilled workers, information
technology experts or technicians, seafarers, scientists, professionals,
teachers, service providers, and domestic helpers. While this provides an
opportunity for Bicolanos to migrate to developed countries, it may also
lead to a shortage of professionals in the region. The education sector is
losing a lot of good teachers.
Many companies in developed countries are outsourcing jobs in

countries like the Philippines to lower labor cost. This opened up business
6
and job opportunities for businessmen, professionals and skilled workers
in the region. More establishments and jobs are being generated from
business process outsourcing, call centers, telemarketing, and other
online services. The increased demand for telecommunication and
internet services has encouraged providers to make their facilities
comparable with other countries.
The global concept of manufacturing is component specialization,

i.e., components are produced in different countries and assembled in
strategic locations. Trade agreements among nations are now being
implemented, resulting to the influx of low cost and low quality products in
the country. New economic powers have emerged and have gained
competitive advantage in manufacturing. These countries provide stiffer
competition to manufacturers and exporters in the Philippines.
The increase in the price of gold in the world market spurred mining
activities in the region, contributing substantially to Bicol’s economic
growth in 2009. But mining depletes the resources of the region. There is
a need to ensure that mining companies adhere to the conditions stated in
the Environmental Compliance Certificate and implement social
development programs in host communities.
There is an emerging global partnership on disaster risk reduction

and climate change adaptation. The incidence of disasters is increasing
and the cost of damages due to disasters is also increasing. The region
should step up efforts to minimize the negative effects of climate change
and make use of its beneficial aspects. These include the establishment
of a disaster risk management office in each LGU, vulnerability
assessment, formulation of relocation and evacuation plans, engineering
interventions, and farming systems adaptation. Watershed, river basin,
and natural parks management approaches and bio-engineering measures
for environmental management and flood control and drainage may be
adopted.
Renewable energy sources such as wind, hydrothermal and solar,

and biofuel sources are promoted at the global and national level.
Tapping these energy sources will generate employment and local
revenues for the region and will contribute to climate change mitigation.
These national and global trends highlight the need to transfer more
power, authority, and resources to the regions. Undertaking steps toward
more meaningful autonomy, devolution of powers, and allocation of
resources to the regions will boost their development efforts.
7
4. Development Vision
Bicol will be the country’s most livable region in 2020. This vision
will guide the development objectives, strategies, and interventions
contained in the plan.
The number of poor Bicolanos is reduced by more than half to meet

the MDG on poverty reduction. Adequate paying jobs are available for all
Bicolanos and they enjoy their right to work without discrimination.
Livelihood opportunities are available for families who want to have other
sources of income. Bicolanos will want to stay and live in the region. They
do not have to migrate to other regions and countries to have more decent
lives. Those who are living in other regions and countries will be inspired
to relocate back to Bicol.
Every Bicolano’s right to education is fulfilled. Each child is

provided with early childhood care. Elementary and high schools achieve
100 percent enrolment. School drop out rates decline and achievement
test results are higher than the national average. Elementary graduates
possess a high degree of competence in reading, writing, and
mathematics. High school graduates are equipped with occupational skills
in agriculture, trade, and entrepreneurship. All families have graduates in
tertiary education who have skills required by government, business, and
emerging global industries. All schools are accessible and safe. Males
and females have equal participation in all levels of education thus
achieving the MDGs on universal primary education and gender equality.
Every Bicolano’s right to the highest attainable standard of health is

fulfilled. Modern and affordable health services are accessible to all
Bicolanos. Health indicators improve, i.e., reduced infant and maternal
mortality, decline in morbidity, and increased life expectancy. The
incidence of communicable diseases, such as polio, tuberculosis, and
malaria, is eliminated. There is a continuous decline in malnutrition cases,
as most of the households are able to meet the minimum nutritional
requirements of family members. Each province has a tertiary hospital
located in a safe area and is provided with modern equipment. All health
care providers and workers are competent. Health insurance coverage is
expanded to the poor, disadvantaged and vulnerable groups. Bicol has
achieved the MDGs on child mortality reduction, maternal health
improvement, and elimination of all major communicable diseases.
Every family’s right to adequate housing is fulfilled. Homeless

families are provided with decent and affordable homes in safe areas.
Families squatting on public lands have security of tenure, while those in
disaster risk areas have been relocated to safe communities. All houses
are typhoon resistant, provided with potable water supply, sanitation
8
facilities, and electricity. Vulnerable groups are covered by social
protection to empower them to engage in productive activities.
Economic activities produce sufficient goods and services for home

consumption and export. The region’s economy generates enough jobs to
increase family incomes. The benefits of economic growth are distributed
equitably among the Bicolanos. Outputs from research and development
are widely disseminated to entrepreneurs. Quality Bicol products are sold
locally and internationally. Bicol is a primary tourist destination for
ecological, agricultural, educational, and medical tourism in the country.
Every Bicolano’s right to adequate food is satisfied. Food and other

basic commodities are available and affordable. Sustainable use of
agriculture, fishery, forestry, and mineral resources is maintained. There
is sufficient supply of raw materials and other production inputs for
manufacturing and other economic activities. Crop production systems are
resilient to changes in weather patterns.
Education and health facilities, production and market centers, and

tourist destinations are accessible in all weather conditions. Bicol has a
well developed network of paved roads connecting all barangays.
International, national and regional ports and facilities are comparable to
other countries. Alternative low cost inland water transport facilities are
available. Efficient rail transport is available. Transport systems are
interconnected and are able to handle increased volume of passengers
and cargo. All barangays are covered by telecommunication and internet
facilities. Bicol enjoys a reliable power supply and cost of electricity is
lower than in other regions. Critical infrastructure facilities are located in
areas that are safe from disasters and sabotage.
Bicol’s natural environment is clean and healthy. Forests, wildlife,

and water resources are protected despite increase in population. Air and
water bodies are not polluted. The degradation of land and forest
resources has been reversed to halt soil erosion, restore nutrients to crop
lands, and rehabilitate forest lands.
Local government units are implementing land use plans that ensure
disaster risk reduction and climate change adaptation. There is a
conscious concern for ozone depleting substances. The MDG on
environmental sustainability is achieved.
Good governance is a shared responsibility of the government, the

private sector, and civil society. There is transparency and accountability
in all three sectors of governance. Government takes a proactive role as
facilitator and catalyst in charge of bureaucracy, peace, justice, and
security. The private sector introduces new technologies, provides
9
financing to implement infrastructure projects, and integrates social
programs in business plans as part of corporate responsibility. Civil
society and other voluntary associations serve as partner and link of the
government to the communities. All the other human rights of Bicolanos
are fulfilled, i.e., right to participate in government, freedom of opinion
and expression, right to peaceful assembly and association, and right to
social security. Corruption in the public sector and in the private sector is
eliminated.
Chapter Two
PROVIDING FOR BASIC NEEDS
5. Education
Every Bicolano has the right to education. The goal of education is
to produce good and productive citizens. Two of the MDGs are universal
primary education and equal ratio of girls to boys in basic education. Not
all Bicolano children are provided with early childhood care. A total of 356
barangays or 10 percent of the barangays in Bicol have no day care
centers. In 2009, only 64 percent of pupils in grade 1 had early childhood
care. Not all school-age children are enrolled in schools. A low
percentage of pupils reached grade 6, but a high percentage of
elementary graduates made it to high school. Low participation and
survival rates in basic education are due to unstable economic condition
of families, poor health and nutrition among the learners, lack of schools,
and distance of schools from the residence of learners.
Results of the National Achievement Test for elementary and high

school indicate below average performance in all subject areas. A growing
number of graduates of technical, vocational, and college degree courses
are not gainfully employed. Passing rate in licensure examinations is low.
Some skills acquired through education and training do not match the
skills required by the domestic and global labor market. Accessible and
affordable learning opportunities are inadequate for special clientele
groups like women, disabled persons, and indigenous peoples.
Objectives
1. To provide access to quality education for all Bicolanos

2. To improve education outcomes at all levels
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Strategies
1. Implement reforms to enhance the quality of basic education, e.g.,

universal pre-school, 12 year basic education, mother tongue
instruction, internet-based educational methods, re-introduction of
vocational education in public high schools, competency based
teacher standards, and school based management.
2. Ensure universal access to quality basic education. Expand the

conditional cash transfer program. Provide alternative learning
schemes to the disabled and indigenous peoples. Encourage public
private partnership in education.
3. Implement a private sector led and market-driven technical-

vocational education and training program with emphasis on
proactive job and skills matching.
4. Improve quality of tertiary education. Prioritize program offerings of

higher education institutions. Phase out programs that are not viable
and with zero passing rate in board examinations. Accredit
academic programs and upgrade equipment and facilities of HEIs.
Provide more resources to Centers of Excellence.
5. Broaden access and equity in higher education. Expand tertiary

education equivalency accreditation program. Establish additional
agriculture training centers. Expand education voucher system.
6. Make higher education responsive to industry needs. Develop

innovative programs in science and technology. Reinforce higher
education research in aid of regional development. Strengthen
graduate education in science, engineering, and agriculture.
Targets
1. 100 percent of Grade 1 enrolees with ECCD experience

2. Better performance in the National Achievement Test
3. 100 percent elementary participation rate
4. 100 percent elementary cohort survival rate
5. Equal ratio among boys and girls in elementary and secondary
6. Increased number of educational centers of excellence
7. 50 percent increase in enrolment in priority program areas
8. 50 percent increase in graduates from priority courses
Major Programs and Projects
1. Early Childhood Care and Development
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2. Basic Literacy Program
3. Adopt a School Project
4. Private Education Student Financial Assistance Program
5. Training for Work Scholarship Program
6. Ladderized Education Program
7. Assistance to Students and Teachers in Private Education
8. Expanded Tertiary Education Equivalency/Accreditation Program
9. Centers of Development and Centers of Excellence
10. Social Infrastructure Program
Proposed Policies/Legislation
1. Institutionalize pre-school in basic education

2. Implement the 12 year basic education
3. Restore the trade secondary education
6. Health
Every Bicolano has the right to the highest attainable standard of
health. Healthy Bicolanos will have more economically productive life.
Improvements were noted on the average life expectancy, infant mortality
rate, maternal mortality rate, crude birth rate, access to safe water and
sanitary facilities, and health insurance coverage. However, Bicol is
lagging behind in terms of achieving the MDGs on maternal mortality,
immunization coverage, and incidence of deaths due to tuberculosis and
malaria. Other problems in the health sector include high cost and
inaccessibility of health services, lack of logistic support for medicines,
food supplements and medical supplies, and inadequate funds for
PhilHealth coverage.
Nutrition problems include protein and energy malnutrition,

micronutrient deficiencies, obesity, and diet related non-communicable
diseases. Underlying causes are low intake of nutrients, wrong beliefs and
practices on nutrition, and lack of medical services. These are
compounded by insufficient family incomes to provide minimum nutritional
requirements. The unmet need for family planning is still high.
Contraceptive prevalence rate remains low, with those not using any
contraceptive method outweighing those using modern and traditional
methods. This is because of inadequate knowledge on population and
family planning and lack of access to contraceptive materials and
commodity support.
Objectives
1. To provide access to health and family planning services

2. To improve health, nutrition, and family planning outcomes
12
Strategies
1. Enhance capability of LGU health personnel to administer devolved

health, nutrition, and family planning services. Localize health laws
that respond to specific health issues in the area. Encourage
provincial governments to implement health programs.
2. Expand the national health insurance program among LGUs and

employers and sustain membership to social health insurance.
3. Upgrade facilities of rural health units to the level of accreditation

by health maintenance organizations and PhilHealth.
4. Emphasize preventive health services and promote integrated

programs for the prevention of communicable diseases.
5. Ensure the availability of low priced quality medicines and drug

packages in hospitals and Botika ng Barangay.
Targets
1. Maternal mortality reduced to 0.32 deaths per 1,000 livebirths

2. Under-five mortality reduced to 15.9 percent
3. Infant mortality reduced to 8.4 percent
4. Fully immunized children increased to 95 percent
5. Underweight children under 5 years reduced to 34.2 percent
6. Zero incidence/mortality due to malaria and tuberculosis
7. Life expectancy increased to 71 years for males
8. Life expectancy increased to 77 years for females
9. Protein energy malnutrition reduced to 16.8 percent
10. Decreased gap between desired and actual family size
11. Improved hospital bed population ratio
12. Improved hospital manpower population ratio
13. Reduced cost of medicines commonly bought by the poor
14. 100 percent health insurance coverage
1. Maternal and Child Health Program

2. Communicable/Non- Communicable Disease Control Program
3. National Health Insurance Program
4. Nutrition PPAN Interventions Program
5. Accelerated Hunger Mitigation Program and other projects
6. Responsible Parenthood Movement
7. Adolescent Health and Youth Development Program
8. Population and Development Integration
13
1. Integrate maternal and child health/nutrition in medical curriculum

2. Establish a revolving drug fund for indigent patients
3. Reactivate LGU nutrition committees and nutrition officer items
4. Pass the Reproductive Health Bill
7. Housing
Every Bicolano family has the right to adequate housing. The need
for housing increases as the population continues to grow. From 2004 to
2009, the government provided housing to 56,770 families. This was more
than the plan target, but is only one-fifth of the total estimated housing
need. Of the total housing output, 82 percent benefited the poor and
victims of disasters. Security of land tenure is a problem among poor
Bicolanos. Four proclamations declared parcels of public land in Bicol as
socialized housing sites for informal settlers. These benefited a total of
2,102 families or 52 percent of the plan target.
Most LGUs lack funds to provide for the housing needs of homeless
constituents as mandated by the Urban Development and Housing Act of
1992 and the Local Government Code of 1991. They lack the capability to
tap fund sources from housing agencies, government banks, the
President’s Social Fund, local appropriations for housing, bond flotation,
calamity funds, and non-government organizations like Habitat for
Humanity and Gawad Kalinga. The 2007 Annual Poverty Indicators Survey
showed that 47 percent of poor families do not own the house and the lot
they occupy. They live in makeshift homes located on public lands, along
river banks, railroad tracks and in high disaster risk areas.
Access to potable water is a human right. About 85 percent of

households in Bicol have access to safe water, making the region on track
in achieving the MDG target of 67.5 percent. A total of 49 water districts
serve the households in urban areas. Households in areas not served by
water districts get their drinking water from unprotected wells,
undeveloped springs, rivers, streams and lakes. Only 68 percent of
households have access to sanitary toilets, still short of the MDG target of
79.2 percent.
Objectives
1. To provide affordable, decent, and safe houses to the homeless

2. To provide potable water to households
3. To provide sanitation facilities to households
14
Strategies
1. Make decent housing more available and affordable to the homeless

through socialized housing. Strengthen cooperation among shelter
agencies, government financing institutions, and private developers
to invest in housing delivery.
2. Relocate families in high disaster risk areas to safe communities

with climate-resilient houses, adequate services and employment
opportunities. Speed up the process of providing security of tenure
to families occupying public lands declared as socialized housing
sites.
3. Promote new technologies to lower construction cost such as

standardized housing components.
4. Encourage investments in water supply and sanitation facilities

through public private partnership.
5. Integrate small and medium scale water utilities to improve their

viability. Provide technical assistance and institutional support to
water utilities and water service providers.
6. Minimize contamination of water systems by strengthening water

pollution monitoring systems, instituting “polluters pay” principle on
waterways, promoting best management practices for pollution
control and solid waste management, and engaging communities in
protecting water systems and waterways.
7. Regulate the volume of water extraction from the aquifer, so as not

to exceed the recharge capacity.
Targets
1. Completion of 10,917 housing units for the poor

2. Relocation of 13,210 poor families in resettlement sites
3. Regularization of tenure of 3,748 informal settler families
4. Local Housing Boards established in 19 LGUs
5. 90 percent of households provided with water supply facilities
6. 85 percent of households provided with sanitation facilities
1. Resettlement Programs of NHA and LGUs

2. Community Based Housing Program
3. Core Shelter Assistance Program
15
4. Slum Upgrading Program
5. Housing Materials Assistance Program
6. Medium House Rising
7. Abot Kaya Pabahay
8. Community Mortgage Program
9. Pag-IBIG Housing Loan Program
10. Expansion/Improvement of 49 water districts
11. Establishment of eight new water districts
12. Water Supply and Sanitation Projects in rural areas
1. Cities and municipalities to establish local housing boards

2. Reactivate the Presidential Housing Assistance One Stop Center
3. Rationalize water supply and sanitation services tariff regulation
4. Develop standards of water supply and sanitation
5. Develop standards for basic dwelling unit
8. Social Welfare
Certain population groups are vulnerable to abuse and disaster
risks. These are the poor families, women, children, indigenous peoples,
the elderly, persons with HIV/AIDS, disabled persons, landless farmers,
contractual workers, and overseas Bicolano workers. They are vulnerable
to temporary or permanent loss of employment, high cost of basic
commodities, illnesses, physical injury, violence, natural disasters, and
man made calamities.
Government has the primary responsibility to provide social welfare

services to these population groups. Government should ensure that their
basic rights are not impaired, and they have access to opportunities that
would improve their well-being and empower them to participate in the
development process.
Objective
To provide social welfare services to the poor, vulnerable and

disadvantaged groups
Strategies
1. Enhance the capability of LGUs to partner with NGOs, civil society

groups, international organizations and the business sector in
providing social welfare services. Improve infrastructure in remote
areas to provide indigenous peoples access to markets and
livelihoods.
16
2. Adopt a community-based or center-based approach in providing
social welfare services. Focus on family-oriented programs, such as
rehabilitation of youth offenders, protection of abused women and
children, care for the elderly and persons with disabilities, and
reform of dysfunctional parents.
3. Strengthen community based support for families of overseas

Filipino workers. Facilitate the re-integration of returning OFWs
through favorable terms of investment, tax incentives, and other
benefits that are offered to foreign investors.
1. Pantawid Pamilyang Pilipino Program

2. Disaster Relief and Rehabilitation Programs
3. Self-Employment Assistance Kaunlaran Program
4. Scholarship and Skills Training Programs
5. OFW Reintegration Programs
6. Project Jobs Fit
1. Review the policy of deployment of workers abroad

2. Reform the labor arbitration and adjudication systems
3. Provide institutions catering to persons with disabilities
Chapter Three
ENSURING ECONOMIC GROWTH
9. Agriculture, Fishery, and Forestry

The agriculture, fishery and forestry sector contributes 30 percent to
GRDP. Persons employed in this sector comprise 44 percent. Agriculture
and fishery are the main sources of food for the population. An adequate,
affordable, safe and stable food supply is needed for a healthy citizenry.
Average yield of the region’s major agricultural crops is lower than

the national average. Supply of raw materials for agribusiness is
inadequate. Landholdings are small and most farmers do not practice new
farming technologies. Extension work is hampered due to devolution. The
budget for agricultural research is inadequate. Only half of the potentially
irrigable area is covered by irrigation systems. These are generally
17
inefficient due to poor canal maintenance, inequity in water distribution,
untimely water deliveries, insufficient water, extreme weather conditions,
and poor management. Other problems are lack of farm to market roads,
irrigation facilities, flood control and drainage systems, and post-harvest
facilities.
Bicol has ten major fishing grounds and contributes five percent to
the national catch. Fishery resources are threatened by a growing
population in coastal areas, illegal fishing practices, and habitat
destruction. Inland fishing is affected by pollution and sedimentation.
These are aggravated by frequent typhoons that visit the region, thus
putting food security at risk.
Bicol’s forest lands comprise 31 percent of the total land area.

Classified forest lands cover 511,316 hectares and timberlands account
for 81 percent of the classified forest. Minor forest products are bamboo,
vines and nipa leaves. There are open alienable and disposable lands fit
for tree farming. Due to declining forest cover, there is total log ban in the
region. Illegal logging remains a problem.
Objectives
1. To increase GVA from agriculture, fishery and forestry

2. To increase the income of farmers and fishers
3. To attain self-sufficiency in basic food commodities
4. To provide raw materials needed for agribusiness and exports
Strategies
1. Promote cultivation of idle lands for the production of pili and other
high value crops. Encourage plantation farming and organize small
farmers into nucleus farms. Establish convergence agro-enterprise
clusters in agrarian reform communities and upland areas.
Revitalize the abaca industry through better site selection and
planting materials.
2. Use high yielding varieties and productivity improvement

technologies in crop production. These include genetically modified
varieties of corn, asexual propagation of quality pili seedlings,
hydroponics and protective culture to allow year-round growing of
vegetables, and mechanized pineapple production. Provide trainings
to extension agents and farmers on advanced production
technologies.
18
3. Provide support facilities and services, such as farm to market
roads, composting facilities, tissue culture laboratories and
nurseries, credit and marketing facilities. Improve marketing
services through electronic information access, i.e., prices of farm
inputs and produce shall be uploaded in the internet.
4. Promote integrated water resources management to improve water

recharge, reduce run-off and soil erosion and address competition
on water use. Adopt volumetric water pricing in national and
communal irrigation systems. Promote drip irrigation in vegetable
farms.
5. Focus research and development agenda on: developing rice

production systems to counter the effect of rising temperature and
changing weather conditions; propagating high yielding coconut
varieties tolerant to strong winds; producing embryo-cultured
coconut seedlings; and developing new products from pili and
prolonging its shelf life.
6. Promote investments in chicken and egg production using advanced

technologies like tunnel ventilation of growing houses and highly
mechanized operations. Use cattle breeds like Murrah buffalo and
improve goat breeds for the production of halal meat. Encourage
commercial hog production.
7. Increase the number of marine reserves and sanctuaries. Promote

fish hibernation technology in the transport of live fish. Introduce
pangasius for fillet production in freshwater aquaculture. Regulate
inland lakes to avoid over stocking. Revive prawn production and
open mariculture parks in new sites. Intensify sea weeds farming.
8. Promote tree farming among private land owners. Utilize indigenous

tree species, bamboo and rattan for reforestation. Sell tree
seedlings at cost to interested farmers and landowners. Conduct
research on the use of minor forest species like salago, buri and
caragumoy.
1. Commodity specific programs

2. Irrigation Development Program
3. Mariculture and Aquaculture Development Program
4. Private Lands Tree Farming Program
19
10. Mining and Quarrying
Bicol is rich in mineral resources. Copper, silver, gold, lead, iron,
manganese, marble, chromite and bauxite deposits abound in most parts
of the region. Also in abundance are guano and rock phosphate. Three
large mining/quarrying projects operate in the region: Quarry and Cement
Plant Project in Camalig Albay; Rapu-Rapu Polymetallic Project in Rapu-
Rapu, Albay; and Masbate Gold Project in Aroroy, Masbate. There are
also four small mining operations in Bicol. From 2004 to 2009, gross value
added from mining and quarrying increased at an average of 22 percent
and contributed 6.7 percent share to GRDP. Workers in this sector
comprise less than one percent of total employed persons in the region.
Huge reserves of commercially available mineral deposits can be
developed. There are large deposits of quality aggregates around Mayon
Volcano that can be quarried and exported to other countries. Small scale
illegal mining operations and treasure hunting are still rampant. The
sector is also faced by protests from anti-mining and environmental
groups.
Objectives
1. To increase gross value added from mining and quarrying

2. To minimize risks to life, health, and the environment
Strategies
1. Promote responsible mining and quarrying by monitoring the safety,

health and environmental commitments of mining companies.
Ensure that biodiversity conservation is integrated in environmental
management systems of mining companies.
2. Apprehend illegal mining and treasure hunting in coordination with

the LGUs and law enforcement agencies. Strengthen the Provincial
Mineral Regulatory Board.
1. Mineral Industry Development Program

2. Rapu-Rapu Polymetallic Project
3. Masbate Gold Project
4. Paracale Gold Project
5. Exploration of Mineral Deposits
Proposed Policy/Legislation:
Review the issuance of quarrying permits
20
11. Manufacturing
From 2004 to 2009, gross value added from manufacturing

increased at an average of 3.6 percent and contributed 1.3 percent share
to GRDP. Workers in manufacturing comprise six percent of total
employment. Manufacturing industries are mostly small scale. These
include food preservation, furniture making, fiber craft, shell craft, pottery,
pili confectionery, coco-based products, minerals and marine products.
The industry is constrained by high power and transport cost, lack of
access to financing, high tariffs on inputs, and bureaucratic red tape.
Funds for R&D in support of the manufacturing sector are inadequate.
Other problems are unreliable supply of raw materials and low productivity
of micro, small and medium enterprises.
Objectives
1. To increase investments in manufacturing industries

2. To strengthen existing small scale manufacturing industries
Strategies
1. Promote investments in the production of raw materials for

manufacturing, such as coconut, abaca, pineapple, pili, marine and
mineral products. Support the fabrication of agricultural machines.
Encourage Bicolanos abroad and returning OFWs to invest in
manufacturing industries.
2. Focus research and development on manufactured products and

disseminate results and new technologies. Conduct market
researches to identify new products.
3. Reduce the cost of doing business by upgrading infrastructure,

lowering power cost, simplifying business procedures, and improving
productivity levels of manufacturing companies.
4. Improve education curricula to produce graduates with skills

required by the manufacturing industry. Provide entrepreneurship
training programs to existing and potential entrepreneurs.
1. One Town One Product Program

2. One-Stop Action Center in each LGU
3. Industry Clusters and Special Economic Zones
4. LGU training programs on investment promotion
21
5. Trainings for MSMEs on productivity and quality improvement
6. Common service facilities for processing and packaging
Proposed Policy/Legislation
Review the Foreign Investment Act to remove constitutional and

legal constraints for foreign investors
12. Trade
From 2004 to 2009, wholesale and retail trade services grew at an
average of 3.8 percent and contributed 12 percent share to GRDP.
Workers in this sector comprise 18 percent of total employed persons in
the region. Goods and commodities in Bicol are more expensive compared
to those in NCR and CALABARZON. In 2009, the region’s average
inflation was 4.6 percent, the fourth highest among the regions. It is
higher than the national average of 3.2 percent and the NCR’s average of
1.6 percent. Higher inflation was noted for food items, which constitute
the biggest component of the consumer basket. The rise in prices of
goods is due largely to the high cost of transportation.
Bicol contributes less than one percent to the country’s total

exports. Exporters are faced with high cost of shipping, scarcity of raw
materials, costly and unreliable power supply, low productivity levels,
poor technology transfer, and high cost of financing. These problems are
aggravated by stiff competition from other regions and countries and weak
penetration in new markets like Eastern Europe and other ASEAN
countries.
Objectives
1. To increase investments in wholesale and retail trade services

2. To make goods available at lower prices throughout the year
3. To increase the share of Bicol to the country’s total exports
Strategies
1. Promote investments in wholesale and retail trade. Enhance the

capability of LGUs and the private sector on export and investment
promotion. Simplify business registration procedures and make them
more transparent. Encourage Bicolanos abroad and returning OFWs
to invest in this sector.
2. Modernize the physical infrastructure and logistics system through

public private partnership.
22
3. Strengthen collaboration among the government, research
institutions, and the private sector to make exporters more
competitive through:
a. Continuous product development and market research to

identify new products and create market niches.
b. Strengthening of traditional products and looking for new
markets.
c. Application of appropriate technologies to increase production
of raw materials, lower production cost and increase
productivity.
d. Credit facilitation and financial intermediation to allow
business expansion, product diversification, and technology
improvement.
e. Compliance with international standards on product quality.
f. Aggressive promotion of Bicol exports through all forms of
media and product branding for easy name recall in the global
market.
1. One-Stop Action Center in each LGU

2. Special Economic Zones
3. Rural Micro-enterprise Promotion Program
4. Establishment of trade facilities in strategic locations
5. LGU training programs on export and investment promotion
6. Trainings for MSMEs/exporters on productivity and quality
improvement
1. Amendments to PD 930 (Simplifying Export Procedures by

Realigning Functions of Certain Government Agencies Involved in
Processing Export Documents)
2. Amendments to RA 7844 (Export Development Act)
3. Amendments to RA 9280 (The Customs Brokers Act of 2004)
13. Tourism
Tourism is one of the most promising and resilient sectors in the
region. The beautiful islands in Bicol, year round fine weather, local
cuisine, available workforce with the ability to speak, write and
understand English, and the hospitality of Bicolanos make tourism a major
economic growth driver for Bicol.
23
From 2004 to 2009, tourist arrival grew at an average rate of 39
percent. In 2009, the number of tourists registered a record high of
2,287,365 or a growth of 75 percent from the previous year. Foreign
tourists increased by 80 percent and domestic tourists by 74 percent.
Among the provinces in the region, Camarines Sur had the most number
of tourists with 1,566,447 and ranked second among the top 15
destinations of the country. The whalesharks of Donsol, Sorsogon has
also attracted a large number of tourists to the province. However, there
is no spill over of tourists to other areas of the region, particularly
Catanduanes and Camarines Norte. Provinces have various destination
products that are not integrated. This limits the length of stay and average
spending of visitors. Other provinces also lack investments in the 4As of
tourism (attractions, access, accommodation, and activities) that are at
par with international standards. LGUs lack the capability to promote
tourism and provide an environment conducive to private sector
investments. Other challenges include maintaining peace and order,
instilling tourism culture at the community level, and curtailing
opportunistic practices of tricycle, jeepney drivers, and ambulant vendors.
Objectives
1. To increase investments in tourist destinations

2. To increase tourist arrival in all provinces
Strategies
1. Enhance the capability of LGUs on investment and tourism

promotion and facilitation, packaging of tourism destinations, project
development for ODA and BOT/PPP funding, and social preparation
of the community on tourism-related activities.
2. Promote private sector investments in new tourist destinations,

accommodation facilities and amenities, particularly in ecotourism,
sports and recreation tourism, medical tourism, and culinary
tourism.
3. Prioritize infrastructure projects that would provide access,

communication, power and water supply in tourist destinations
comparable with international standards.
4. Improve the basic education system to lay the foundation for

building necessary manpower skills for the tourism industry. Ensure
quality education and competencies of graduates of tourism-related
courses. Provide training programs for tourism service providers to
ensure quality service to visitors.
24
5. Maintain peace and order for the security of tourists and tourism
facilities and amenities.
1. LGU Capability Building Programs

2. Training programs for tourism service providers
3. Development of New Tourism Destinations
4. Construction/Upgrading of Tourism Infrastructure Facilities
5. Tourism Promotion Programs
Review the Foreign Investment Act to remove constitutional and

legal constraints to foreign investors
Chapter Four
IMPROVING INFRASTRUCTURE
14. Transportation
Bicol needs an efficient intermodal transport network that will
connect its four mainland and two island provinces to other regions. An
integrated transport network will open up new economic opportunities,
reduce transportation cost, and increase access to social services. It will
support the development of the countryside and strengthen the
socioeconomic, cultural and political linkages between and among
regions. The region's transport system relies heavily on the road network
which resulted in the fast deterioration of the roads and high cost of
goods. Maharlika Highway is the main trunkline road that connects the
Bicol mainland to Metro Manila. Most of the local roads need improvement
to efficiently link them to arterial or national roads. Generally, barangay or
farm to market roads are in very poor condition. Rail transport has not
been fully rehabilitated. Water transport is not maximized. The nine
national ports in the region do not have adequate and comfortable
passenger terminals, warehouses, parking areas, berthing facilities, and
other appurtenant facilities needed to accommodate more and large
vessels. The 36 municipal ports are underutilized. Air transport is
unreliable during inclement weather. Most airports are not equipped with
adequate navigation systems to allow aircraft landing at night and during
adverse weather conditions. Most airports need improvement and
upgrading of their passenger terminal buildings and amenities.
25
Objective
To establish an integrated and efficient intermodal (land, water and

air) transport system that will support the domestic and industrial
transportation requirements of the region
Strategies
1. Prioritize strategic roads that need upgrading like diversion roads

and those leading to RORO ports, tourism and investment areas.
Implement BOT projects on mass transport systems and one-
ticketing system. Pursue online transactions among regulatory
agencies.
2. Adopt a standard gauge railway system for PNR south rail line and
extend railway line to Matnog, Sorsogon. Encourage private sector
participation in railway development. Develop a new and modern
double-track electric rail system for PNR south rail line harnessing
the power generated by geothermal plants in Laguna, Albay and
Sorsogon.
3. Partner with the private sector in upgrading national port facilities,

improving municipal ports, and implementing RORO port projects
identified in the proposed central and eastern nautical highways.
4. Develop new ports along the western seaboard of the region which
are easily accessible to Manila Harbor, Batangas Port and Cebu
Port. Enhance maritime safety especially for passenger vessels and
small sea craft.
5. Upgrade domestic airports to international standards to attract more

domestic flights. Undertake measures to restore Category 1 status
of air transportation. Prioritize airport development projects to
support the growth of industries, trade and tourism. Convert
underutilized airports to military air bases.
1. National Roads and Bridges Improvement Project

2. Circumferential, coastal, by-pass, FMR and other roads
3. GUICADALE Road Projects of Albay
4. Central and Eastern Nautical Highway Projects
5. Main Line South and Sorsogon Railroad Extension Project
6. RORO Ports Development along nautical highways
7. BRBWMP Flood Control and Mitigation, Watershed Protection
8. Strategic RORO Ports Development linking Catanduanes
26
9. Comprehensive Disaster Prevention around Mayon Volcano
10. Port Terminal Facilities Improvement Projects
11. Bicol International Airport
12. Naga Airport Runway Re-orientation Project
13. Masbate Airport Relocation Project
14. Old Legazpi Airport Re-development Project
15. Airport Terminal and Air Navigation Facilities Improvement
1. Privatize PNR
2. Convert Quirino Highway into a toll road
3. Convert idle airports into military air bases
15. Communications
The liberalization of the telecommunications industry allowed the
entry of more telephone and internet service providers in the region.
Competition among service providers resulted to cheaper and more
efficient communication services. Major telephone operators in Bicol are
Bayantel and Digitel, which offer cable and wireless systems, as well as
internet services. There is wide cellular phone coverage in the region.
Most investment centers, tourism and production areas are accessible by
mobile phones. The sector is threatened by vulnerability of cell sites and
telephone lines to strong typhoons and sabotage, pilferage of telephone
cables, and power supply interruptions. Another concern is the wide
disparity between the price of a voice call and the price of a text message
for mobile phone services. There is also a need to reduce the cost of
connectivity among telephone service providers to further lower user
costs. The telephone and telegraph services of the Telecommunications
Office and private telegraph companies have become obsolete. The
viability of the Philippine Postal Corporation is also threatened, with
private courier services displacing the government postal services
especially in urban areas.
Objective
To provide effective and efficient communication facilities and

services that are universally accessible, interconnected and affordable
Strategies
1. Establish a regulatory environment conducive to the sustainable

growth and development of the information infrastructure and
services.
27
2. Encourage investments on physical infrastructure for high-speed
connectivity, high capacity and secured services at low cost.
3. Support the initiatives of the private service providers in

safeguarding their facilities against man-made and natural
calamities.
1. National Standards Certification System for ICT professionals

2. Development of typhoon-proof telecommunication facilities
1. Rationalize/Privatize TELOF.
2. Re-engineer the Philippine Postal Corporation to make it more
financially viable by considering the following: a) abolishing the
Postal Bank; b) stopping of franking privileges; c) providing courier
services in rural areas; d) serving as payment and remittance
centers; e) selling school and office supplies; and f) operating
internet café or coffee shop.
16. Energy
The maximum capacities of the region’s geothermal generating

plants were not achieved because of shutdowns due to the usual wear and
tear and damages brought by Typhoons Reming and Milenyo. Only Tiwi
Geothermal Power Plant units 1 and 2 contributed 1141.124 GWH or
30.66 percent of total geothermal energy supplied to the Luzon Grid. But
this is more than enough to supply the region’s total power demand of
740.50 GWH. The electric cooperatives have energized 223 barangays or
99.9 percent of the potential barangays as of 2009. Only 3 barangays are
not yet energized. Off-grid barangays in the province of Masbate were
energized by the National Power Corporation-Small Power Utilities Group
through its Philippine Rural Electrification Project. A total of 114
barangays in Masbate island and 14 barangays in Ticao island have been
energized. Another 26 barangays in the island municipalities of Claveria,
San Pascual, San Fernando and San Jacinto are for energization.
Despite being a major contributor to the Luzon grid, Bicol is faced

with high power cost and frequent brownouts. This is primarily due to the
inefficiency and mismanagement of electric cooperatives. Power pilferage
reflected as systems loss is a perennial problem of the cooperatives
which is passed on to the consumers’ bill. The super typhoons that
frequent the region cause damages to the generation facilities,
transmission lines and distribution facilities.
28
Objective
To provide sufficient, stable, secure, accessible, affordable power

supply to all domestic and industrial users
Strategies
1. Promote private investments in energy development. Harmonize

environment and socio-cultural concerns in prospective areas which
are either protected or ancestral lands.
2. Develop alternative and renewable energy sources, innovative

technologies, and non-power applications of geothermal energy
resources, such as spa resorts, balneology, and crop drying.
Strengthen advocacy on energy conservation measures.
3. Improve the efficiency of local electric cooperatives.
Targets
1. Power rate in the region one of the lowest in the country

2. Minimal incidence of brownouts in the region
3. Single-digit systems loss
4. Energization of 100% barangays and 49% sitios
1. Development of Renewable Energy Sources

2. Plasma Gasification
3. Rehabilitation of BacMan Geothermal Power Plants
4. Masbate and Catanduanes interconnection to the Luzon Grid
5. Barangay and Sitio Energization Program
6. Providing dedicated power supply for Bicol consumers
7. Upgrading of power distribution lines and substations
1. Separate power grid for Bicol

2. Review ER 1-94 and royalty benefits
3. Impose no limit on bilateral contracts
4. Stop charging systems loss to consumers
5. Amend the EPIRA Law
6. Use pre-paid cards for paying electric bills
7. Study the privatization of power distribution and interconnection of
island provinces to the Luzon Grid
29
Chapter Five
SUSTAINING DEVELOPMENT
17. Land Use Management
Land use planning and management ensures the sustainability of

our natural resources to meet the needs of the present generation and the
future generations. It promotes the proper allocation of land according to
various uses that would minimize the ill effects of development on the
state of the natural environment. A comprehensive land use policy will
provide for cohesive and consistent strategic interventions on the use of
the land. For the past 15 years, however, the national land use bill has
not been passed in Congress. At the regional level, the Regional Physical
Framework Plan provides land use policies on protection, production,
settlement, and infrastructure. To determine the extent of implementation
of these policies, a review and updating of the RPFP is necessary. At the
provincial level, the preparation of the Provincial Development and
Physical Framework Plan is underway with assistance from the NEDA-
PLPEM project. Some provinces are constrained by insufficient and not
updated data, lack of capability of planning staff, and other priority work.
At the local level, there are only about 50 percent of LGUs with approved
and/or updated Comprehensive Land Use Plans. Aside from the reasons
mentioned above, the LGUs lack manpower and financial resources for
land use planning.
Objective
To ensure the sustainable allocation of land for development and

environmental protection
Strategies
1. Provide technical assistance to LGUs in the preparation of CLUPs

and PDPFPs. Ensure that CLUPs and PDPFPs are consistent with
the RPFP and national land use policies.
2. Monitor the implementation of policies and strategies contained in

all land use and physical framework plans.
1. Pass the National Land Use Act

2. Include spatial framework in local plans
3. Devolve forest protection
30
18. Good Governance
Good governance ensures efficient delivery of public services. It
provides an environment of less bureaucracy that is favorable to
investments. It is characterized by transparency, responsibility,
accountability, participation, and responsiveness to the needs of the
people. It is an effective participation of all development stakeholders that
guarantees full respect of human rights, increased productivity and
competitiveness, and peace and security. According to the 2009 World
Competitiveness Yearbook, the Philippines ranked low in government and
business efficiency due to corruption, inability to adopt new technologies,
and weak LGUs. It is also attributed to low productivity and poor
compliance to international standards. Government and private
organizations in the region should strive to be more productive and to be
globally competitive. Peace and security is threatened by weak law
enforcement, high crime incidence, low crime solution efficiency,
insurgency, and human rights violations.
Objectives
1. To improve the delivery of public services

2. To create an environment of transparency and accountability
3. To make productivity improvement a way of life in Bicol
4. To ensure peace, order, and security in the region
5. To eliminate corruption in the public and private sectors
Strategies
1. Strengthen the collaboration among the government, civil society,

and business groups in eliminating corruption in the public and
private sectors. Promote transparency in all government and private
transactions. Enforce anti-red tape measures.
2. Simplify, automate, and make online all business licensing and

registration procedures. Provide online information on available
credit facilities to private investors. Assist LGUs in formulating
investment incentive code and creating an investment promotion
center that can be accessed online.
3. Improve the capability of LGUs in development planning, investment

programming, project development and monitoring. Provide trainings
on participative leadership, community-based resource
management, basic social service delivery, tourism and investment
promotion, and disaster risk management.
31
4. Encourage government and private institutions to establish
productivity improvement units. Implement continuing productivity
improvement programs and aim for international standards
certification.
5. Strengthen the five pillars of the justice system to address the root
causes of conflict. Strengthen the management of peace and order
in terms of manpower, institutions development, and equipment.
Upgrade qualification standards for law enforcement officers.
Protect vital installations, places of convergence, tourism and
business areas.
1. Programs Promoting Transparency and Accountability
a. Local Government Performance Management System

b. Honor and Awards System in the Civil Service
c. Good Practices on Local Governance
d. Community Based Management System
e. Electronic New Government Accounting System
f. Electronic Treasury Operations Management System
g. Regional Resource Center
h. Online Business Licensing and Registration
2. Capability Building Programs for LGUs

3. Productivity Improvement in the Public and Private Sectors
4. Peace and Security Programs
1. Develop a system of cross-posting between senior public and

private sector officials as a mechanism for sharing of management
expertise.
2. Review policies, executive orders, ordinances and other directives
regarding peace, order and security.
19. Disaster Risk Reduction/Climate Change Adaptation
Disasters undermine development, impoverish people, and impede

the achievement of the MDGs. Climate change is a global threat that puts
developing island nations like the Philippines at greatest risk. Bicol has
one of the highest risk environments in the country. About 20 tropical
cyclones visit the region annually. Mayon and Bulusan volcanoes threaten
residents in Albay and Sorsogon. The El Niño phenomenon has dried up
areas in the highlands and resulted in agricultural losses. Flooding has
32
intensified due to increased impermeable areas, loss of forest cover,
changes in land use, rapid urbanization, increased population, removal
and alteration of natural drainage features, increased storm water
volumes and increased peaks. With a population of five million, almost
half of whom live below poverty line, there is a pressing challenge for all
Bicolanos to implement disaster risk reduction and climate change
adaptation measures. Mainstreaming DRR/CCA in local development
planning is imperative. Efforts to shift from flood control to flood
mitigation were pursued in the Bicol River Basin and Watershed
Management Project. The CCA and the Disaster Risk Reduction and
Management laws emphasize the need for increased preparedness and
adaptation measures, rather than just response mechanisms. This
requires the collective efforts of all stakeholders in building effective
DRR/CCA institutions and capacities at the barangay, municipal, city and
provincial levels.
Objective
To achieve zero casualty and minimum damage to property during

emergencies and disasters
Strategies
1. Provide technical assistance to LGUs in mainstreaming DRR and

CCA in local development planning. Ensure that all LGUs complete
their DRR/CCA-enhanced CLUPs and PDPFPs.
2. Maximize the use of information technology tools such as GIS,

remote sensing, REDAS and the SimCLIM software in hazard
mapping, risk identification, and vulnerability assessment.
3. Enhance the capability of communities, LGUs, and concerned

agencies in all aspects of disaster risk management, i.e, mitigation,
preparedness, response and rehabilitation.
4. Establish DRR/CCA training institutions and include disaster

preparedness and climate change adaptation in the school
curriculum. Increase public awareness on DRR/CCA measures.
5. Provide safe and well equipped evacuation shelters with programs

and services responsive to the psycho-social needs of the internally
displaced persons. Ensure that hospitals can effectively deliver
health services during disasters.
6. Conduct massive tree planting and reforestation. Promote the

establishment of eco-parks and urban gardens.
33
1. Establishment of DRMO in all LGUs

2. Preparation of DRR/CCA-enhanced PDPFPs and CLUPs
3. Mangrove & Forest Reforestation Project
4. Solid Waste Management Programs of LGUs
5. Establishment of Eco-Parks and Urban Gardens
6. Low Cost Housing Project/Core Shelter Assistance Project
7. Integrated Livelihood Program
8. BRBWMP Flood Mitigation and Watershed Component
9. Emergency and Educational Preparedness Programs
Review the design of flood control structures and other engineering

mitigating measures to meet the changes in the intensities and
occurrences of natural hazards
20. Plan Implementation

The Regional Development Council shall coordinate the
implementation and monitoring of the implementation of the regional
development plan. The plan shall be communicated and advocated to
stakeholders to encourage them to participate in plan implementation.
The plan shall be translated into a regional development investment

program consisting of public sector programs, projects, and activities. The
RDIP shall be the basis for preparing the annual budget proposals of
regional line agencies and state universities and colleges. Given the
limited resources of the government, the most feasible projects shall be
prioritized for funding and implementation during the plan period. The
Bicol Project Development Committee shall provide technical assistance
to LGUs in project development.
Funds for the implementation of programs, projects and activities

shall be sourced mainly from government revenues generated by the
Bureau of Internal Revenue and Bureau of Customs. Other sources of
revenues are official development assistance, government owned and
controlled corporations, government financial institutions, local
government revenues, and bond flotation. The private sector shall also be
tapped for public private partnership projects. The implementation of the
strategies, programs, projects and activities in the plan shall be
undertaken by the regional line agencies, GOCCs, GFIs, LGUs, SUCs,
and other concerned agencies. An annual regional development report
shall be prepared to assess plan implementation.
34
The Regional Project Monitoring and Evaluation System shall be
used for monitoring and evaluating programs and projects implemented in
the region. These include all foreign assisted projects, all area
development projects, nationally funded projects, and those considered
critical by the Office of the President, the RDC, and planning boards. This
is to ensure that plan objectives and targets are attained, strategies are
undertaken, stakeholders are informed, and resources are mobilized.
Monitoring and evaluation processes shall be carried out with the active
participation of government agencies, LGUs and non-government
organizations. The Regional Project Monitoring Committee shall prepare
quarterly project monitoring reports.
The figure below shows the hierarchy of development plans

prepared at different levels. At the national level, the National Framework
for Physical Planning (NFPP) provides long term policies on the
allocation, use, and management of the country’s land and other physical
resources. The Philippine Development Plan (PDP) is prepared every six
years to coincide with the term of the President. The medium term public
investment program (MTPIP) is an accompanying document of the PDP.
NFPP/PDP MTPIP
RPFP/RDP RDIP
PDPFP PDIP
CDP/CLUP M/CDIP
The Regional Physical Framework Plan (RPFP) is in accordance

with the NFPP. Likewise, the regional development plan (RDP) is
consistent with the PDP. The RDIP should be included in the MTPIP. The
Provincial Development and Physical Framework Plan (PDPFP) should
also be consistent with the RDP and the RPFP. The PDPFP shall be the
basis for the Comprehensive Development Plans (CDPs) and
Comprehensive Land Use Plans (CLUPs) of component cities and
municipalities.
35
List of Acronyms
AIDS Acquired Immune Deficiency Syndrome
ASEAN Association of Southeast Asian Nations
BOT build-operate-transfer
BRBWMP Bicol River Basin Watershed Management Program
CALABARZON Calamba-Laguna-Batangas-Rizal-Quezon
CCA climate change adaptation
CLUP Comprehensive Land Use Plan
DRMO Disaster Risk Management Office
DRR disaster risk reduction
ECCD early childhood care and development
EPIRA Electric Power Industry Reform Act
ER Energy Regulations
FMR farm to market road
GFI government financial institution
GIS geographic information system
GOCC government owned and controlled corporation
GRDP gross regional domestic product
GUICADALE Guinobatan-Camalig-Daraga-Legazpi
GVA gross value added
GWH gigawatt-hour
HEIs higher education institutions
HIV Human Immunodeficiency Virus
ICT information and communications technology
LGUs local government units
MDGs Millennium Development Goals
MSMEs micro, small and medium enterprises
NCR National Capital Region
NEDA National Economic and Development Authority
NGOs non-government organizations
NHA National Housing Authority
ODA official development assistance
OFWs overseas Filipino workers
PD Presidential Decree
PDPFP Provincial Development and Physical Framework Plan
PhilHealth Philippine Health Insurance Corporation
PLPEM Provincial/Local Planning and Expenditure Management
PNR Philippine National Railways
PPAN Philippine Plan of Action for Nutrition
PPP public private partnership
R&D research and development
RA Republic Act
RDC Regional Development Council
RDIP Regional Development Investment Program
REDAS Rapid Earthquake Damage Assessment System
RORO roll-on/roll-off
RPFP Regional Physical Framework Plan
SUC state university and college
TELOF Telecommunications Office
36

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Table of Contents

Message of the President i

Chapter One – Development Challenges 1

Chapter Two – Providing for Basic Needs 10

Chapter Three – Ensuring Economic Growth 17

9. Agriculture, Fishery and Forestry 17

Chapter Four – Improving Infrastructure 25

Chapter Five – Sustaining Development 30

17. Land Use Management 30

I commend the Regional Development

Along with the Philippine Development

We came to government with a mandate to eradicate poverty and

The Regional Development Plans (RDPs)

The attainment of our goals requires massive investments in

The RDPs provide the framework for local development. We thus

I thank the Regional Development Councils (RDCs) for spearheading

The Regional Development Plan (2011-

The Bicol regional development plan is

I call on the stakeholders to help in the implementation of the plan.

The preparation of the Regional

Discussions were held during inter-agency technical working group

We thank all those who participated in formulating this plan:

ATTY. ROMEO C. ESCANDOR

Although Bicolanos have longer life expectancy and infant deaths in

Some population groups are susceptible to abuse and are most

Agriculture, fishery, and forestry employ the most number of

Although mining contributed substantially to the economic growth of

Manufacturing activities in Bicol are mostly small scale. Many are

Wholesale and retail trade is a major economic activity within the

Tourism and its related service industries play an important role in

Bicol is connected to other parts of the country through land, water,

The liberalization of the telecommunications industry allowed the

Bicol is a major geothermal energy supplier. Energy generated by

Bicol is vulnerable to climate and geological related hazards such as

Most LGUs lack technical capability and financial resources to

Productivity both in the government and private sectors is low.

In summary, the region faces the following challenges:

1. Sustaining high and more inclusive economic growth

Bicol’s population was 5,109,798 in 2007. It grew annually at 1.23

Based on the 2000 census, average household size is five persons.

About 43 percent of the employed persons are in the agriculture

Underemployment rate in the region went up from 35.8 percent in

The benefits of economic growth were not equitably distributed.

Bicolano families earned an average of P152,000 in 2009, lower

3. National and Global Trends

The Department of Education is proposing the transition to a 12 year

The Philippine government is expanding public health insurance

While the country in general recorded a decline in tourist arrival in

The government intends to implement key infrastructure projects

Developed countries around the world show a declining growth in

Many companies in developed countries are outsourcing jobs in

The global concept of manufacturing is component specialization,

There is an emerging global partnership on disaster risk reduction

Renewable energy sources such as wind, hydrothermal and solar,

The number of poor Bicolanos is reduced by more than half to meet

Every Bicolano’s right to education is fulfilled. Each child is

Every Bicolano’s right to the highest attainable standard of health is

Every family’s right to adequate housing is fulfilled. Homeless

Economic activities produce sufficient goods and services for home

Every Bicolano’s right to adequate food is satisfied. Food and other

Education and health facilities, production and market centers, and

Bicol’s natural environment is clean and healthy. Forests, wildlife,

Good governance is a shared responsibility of the government, the