Policy Paper on Localization of Anti-Poverty Strategies in Bicol Region

The Regional Context

Bicol is one of the regions in the Luzon island and the fifth administrative region under the
Integrated Reorganization Plan (IRP). It is located at the midsection of the country or at the
southern tip of Luzon, bounded northwest by Quezon province, east by the open seas of the
Pacific, southeast by Samar Sea and southwest by Sibuyan Sea. The region is composed of
four mainland provinces and two island provinces. It has seven cities and 107 municipalities
subdivided into 3,471 barangays.

Demographic Trends

Based on the 2015 census of population, Bicol region reached 5,796,989 and accounted for
about 5.7 percent of the Philippine population. Among the six provinces, Camarines Sur had the
biggest population in 2015 with 1.95 million, followed by Albay (1.31 million), Masbate (892
thousand), Sorsogon (793 thousand), and Camarines Norte (583 thousand). Catanduanes had
the smallest population with 261 thousand.

In terms of growth, Camarines Norte was the fastest growing province in the region with an
average annual population growth rate (PGR) of 1.38 percent during the period 2010 to 2015. It
was followed by Camarines Sur (1.32%), Sorsogon (1.3%), Masbate (1.28%), and Albay
(1.22%). Catanduanes posted the lowest PGR of 1.11 percent.

Table 1. Population and Population Growth Rate by Province: Bicol Region: 2000, 2010, and
2015

Population (in thousands) Population Growth Rate

Province
2000 2010 2015 2010-2015 2000-2010
Albay 1,091 1,233 1,315 1.22 1.23
Camarines Norte 471 543 583 1.38 1.44
Camarines Sur 1,552 1,822 1,953 1.32 1.62
Catanduanes 215 246 261 1.11 1.35
Masbate 708 835 892 1.28 1.66
Sorsogon 651 741 793 1.30 1.31
TOTAL 4,688 5,420 5,797
Source: PSA Region 5

Among the cities and municipalities in the region, the largest in terms of population size is
Legazpi City, Albay with 196,639 persons. It was followed by Naga City, Camarines Sur
(196,003) and Sorsogon City, Sorsogon (168,110). The least populous municipalities were
Gigmoto (8,368 persons) and Panganiban (9,287), both in Catanduanes; and San Vicente in
Camarines Norte (10,396). Attached as Annex A are the profile sheets of the 6 provinces with
its corresponding demographics and socio-economic dataset.

Economic Trends

The Bicol region is basically an agri-based economy. Figures show that the economy of the
Bicol region, as compared to the national, was stronger in agriculture, hunting, forestry and
fishery (AHFF). Among the subsectors, the region’s fishing industry was leading followed by
agriculture and forestry. The region’s average location quotient implied that the region was
producing AHFF products more than what it needs, thus, the region is an exporter of agri-based
and marine products. The region was also stronger in mining and quarrying registering which
was brought about by mineral production of several large mining companies present in the
region such as Rapu-rapu Minerals, Inc., Ibalong Resources and Development Corporation,
UBS Marketing Corporation, all in Albay; Filminera Resources Corporation in Masbate; and
other small mining companies in Camarines Norte and Camarines Sur. Most of these mining
companies, however, are no longer operating, except for Filminera in Masbate.

Coconuts, abaca, banana, coffee and jackfruit are the top five permanent crops in the region.
Rice and corn are among the chief seasonal crops. Coal mining is also one of the contributors
to the region's economy. Commercial fishing is also important with thirteen major fishing
grounds supplying fish markets in places such as Metro Manila.

In terms of statistics, the region’s economy, as measured by the Gross Regional Domestic
Product (GRDP), grew at an average rate of 5.8% from 3.5% in 2010 to 8.4% in 2015 (PSA
Region 5, 2015). Services accounted for the biggest share of the region’s economy with an
average share of 56% over a six-year period, followed by agriculture, hunting, forestry and
fishery (AHFF) at 24%, and industry at 20% (Table 2).

The region’s economy grew the fastest among all regions of the country in 2015 at 8.4% which
is almost double the growth of 4.3% in 2014, and more than the 6.7% plan target.

Table 2. GRDP Growth Rate by Industry and Sub-Industry, Bicol Region: 2010 – 2015 (At
Constant 2000 Prices, In Percent)

Ave.
2009- 2010- 2011- 2012- 2013- 2014-
Industry/Year Growth
2010 2011 2012 2013 2014 2015
Rate
I. AGRICULTURE, HUNTING, FORESTRY AND
0.8 0.8 8.7 4.3 1.1 (2.3) 2.2
FISHERY
a. Agriculture and Forestry 5.9 1.2 2.3 5.3 1.9 0.4 2.8
b. Fishing (11.9) (0.5) 28.3 2.0 (1.1) (9.4) 1.2
II. INDUSTRY SECTOR 8.3 (2.6) 14.8 11.0 5.3 23.7 10.1
a. Mining and Quarrying 17.8 (4.0) 13.0 (5.4) (19.1) 8.5 1.8
b. Manufacturing 14.6 24.4 5.0 9.6 19.0 3.7 12.7
c. Construction 4.7 (12.6) 22.4 15.1 1.9 39.7 11.9
d. Electricity, Gas and Water Supply 7.3 3.2 9.3 13.2 14.7 13.9 10.3
III. SERVICE SECTOR 3.1 3.9 7.0 9.0 5.4 7.5 6.0
a. Transportation, Storage &
1.4 6.5 9.2 5.2 3.9 10.1 6.1
Communication
b. Trade and Repair of Motor Vehicles,
Motorcycles, Personal and Household 12.2 3.3 9.7 11.5 10.1 7.7 9.1
Goods
c. Financial Intermediation 0.5 (0.1) 10.9 14.7 7.5 7.1 6.8
d. Real Estate, Renting and Business
1.8 3.5 2.8 17.2 3.5 3.2 5.4
Activities
e. Public Administration and Defense;
5.6 0.2 4.7 4.4 5.6 2.7 3.9
Compulsory Social Security
f. Other Services 0.3 7.0 6.2 4.1 3.7 12.1 5.6
GROSS DOMESTIC PRODUCT 3.5 1.9 8.8 8.2 4.3 8.4 5.8
Source: PSA Region 5

In 2018, the Bicol Region’s economy grew the fastest among the 17 regions in the country.
The growth of the economy was demonstrated with the improved agriculture and fishery
services, more economic opportunities in industry and services, and improved social
services.

The increased access to economic opportunities for micro, small, medium enterprises
(MSMEs) is vital in increasing income earning abilities of the people, hence decrease the
level of social inequalities. The Department of Trade and Industry (DTI), through its
Internationalization of MSMEs program, encouraged participation in the Trade and
Business Mission to the 2018 MIHAS trade fair in Malaysia and the 2018 Hongkong
International Home Textile and Furnishing Fair which generated at least US$0.0714 million
in sales. The 2018 Orgullo Kan Bikol or OK Bikol Regional Trade Fair generated PhP28.01
million in sales which was participated by 164 exhibitors including new MSMEs.

Poverty Trends

Poverty incidence among population or the proportion of the population living below the
poverty line to the total population in the entire region has substantially decreased to 26.8
percent in 2018 from 39.5 percent in 2015. This means that 27 in every 100 Bicolanos
were considered poor in 2018. Around 678,000 Bicolanos eased out of poverty in 2018
from 2015. This shows that the region is on track in meeting its poverty targets under the
current Bicol Regional Development Plan (RDP) which is to reduce poverty incidence
among Bicolanos to 26.0 percent by 2022.

On the poverty incidence among families or the proportion of the families living below the
poverty line to the total families, the Bicol Region also registered lower poverty incidence
at 19.9 percent from 30.8 percent in 2015. Around 120,000 families eased out of poverty in
2018 from 2015 (Table 3). 

Table 3. Bicol Region Poverty Statistics, 2015 and 2018

2015 2018
Poverty Poverty Annual Poverty Poverty Annual
Location Incidence Incidence Per Capita Incidence Incidence Per Capita
Among Among Poverty Among Among Poverty
Families Population Threshold Families Population Threshold
Bicol 30.8% 39.5% 22,409 19.9% 26.8% 24,404
Catanduanes 33.6% 43.4% 21,668 14.4% 20.3% 24,380
Albay 18.3% 26.0% 22,261 14.8% 20.9% 24,783
Sorsogon 45.5% 55.9% 23,065 19.5% 26.0% 26,025
Camarines
28.5% 36.8% 22,789 20.6% 28.1% 24,209
Sur
Camarines
34.4% 42.3% 23,863 22.4% 30.5% 24,994
Norte
Masbate 35.5% 45.4% 20,406 25.8% 33.0% 22,907
Source: PSA

The critical factors that contributed to the improvement in Bicol’s poverty situation are (a)
sustained economic growth, (b) increase in the salaries and wages, (c) improved labor
market conditions, and (d) implementation of newly-enacted laws like the Universal Access
to Quality Tertiary Education Act, the Tax Reform for Acceleration and Inclusion (TRAIN)
Law, among others. 

Bicol Region managed to grow over the years despite of the occurrence of calamities,
weather disturbances, volcanic eruption, rising prices of goods and services and
depreciation of the peso. The government and private sectors implement programs,
projects, and policies that may lead to a more robust poverty reduction especially in
accelerating human capital development and expanding economic opportunities.

It is desired that every Bicolano will be one in effort to sustain and enhance this
improvement in Bicol’s poverty situation noting that the vision of a matatag, maginhawa, at
panatag na buhay para sa lahat includes ending poverty by 2040. 

The Basic Sector Organizations

The engagement and participation of the basic sectors, Civil Society Organizations (CSOs),
Peoples Organizations (POs), and the like, in the region’s socio- economic development are
very evident. One concrete case in point is the active involvement of the CSOs in the Regional
Development Council (RDC).

As provided in Section 23 Article II of 1987 Constitution, the state shall encourage non-

governmental, community-based, or sectoral organizations that promote the welfare of the
nation. The RDC affirms the mandate of the law in the region and recognizes the role of CSOs,
as partners in achieving regional development and autonomy provided in EO 325 and EO 30,
constituting one fourth of the members of the council.

The new RDC Chairperson, Legazpi City Mayor Noel E. Rosal, anticipates the appointment
of a co-chairperson who will lead the private sector in the region towards the realization of
the development priorities of the RDC. Under his leadership together with all the members
of the council, including the CSOs, Chairperson Rosal aims for the following:
(http://nro5.neda.gov.ph/rosal-takes-oath-as-bicol-rdc-chair/)
1. development of its tourism industry with the tourism alliances between and among
the provinces of Albay, Masbate, and Sorsogon (ALMASOR) and between and
among the provinces of Camarines Norte, Camarines Sur, and Catanduanes (Triple
C).
2. Small and medium enterprises and the development of high value crops like pili and
cacao, supported by appropriate technologies and innovation, shall also be given
attention through convergence of the government and private sectors. These
industries will provide jobs to the Bicolanos to address high underemployment rate. 
3. Completion of major infrastructure projects. Among these are the Bicol International
Airport, New Naga Airport, and Masbate Airport; the North-South Railway Project
(South Long Haul), the Quezon-Bicol Expressway Project with extension to Legazpi
City; and the Bicol Circumferential Road. 
4. Improvement and modernization of Matnog port and all its ancillary facilities and
services, onsite and offsite, will be pushed to prepare Matnog for the Sorsogon-
Samar Bridge Link Project. 

Further, the Department of Social Welfare and Development (DSWD) Bicol Regional Office
had also made efforts to push for the accreditation of the CSOs based in the region to ensure
that government programs and projects are properly, efficiently, and effectively carried out.
The accreditation is being pursued for the government agencies to properly monitor and
safeguard the proper use of funds on programs and projects carried out in partnership with
CSOs.

Garcia explained that the measure is aligned with Section 34 and 35 of RA 7160, otherwise
known as the Local Government Code, which mandates local government units (LGUs) to
promote the formation and operation of CSOs to become active partners in the pursuit of local
autonomy especially in the delivery of basic services, capability-building, livelihood projects
and development of local enterprises designed, among others, to enhance the well-being of
the people.

He furthered that the CSOs likewise play critical role in preparing the communities not only to
receive government funds but eventually manage and implement government projects
themselves.

In terms of participation in policy-making and development planning, amongst the 6 provinces,

Naga stood out as the one exhibiting the highest degree of stakeholders’ participation. It
initiated a system of partnership through the Naga City People’s Council (NCPC), a local
federation of close to 100 non- government organizations (NGOs) and POs in the city. The
NCPC engages in deliberation, conceptualization, implementation, and evaluation of the city
government’s projects, activities, and programs.

In the crafting of the provincial development plans, CSOs and POs, as members of the
Provincial Development Council (PDC) were also involved in the process. Same as with the
municipalities, the process has all department heads submitting their plans to the municipal
planning and development center (MPDC). Then the MPDC collates and consolidates these
plans for submission to the Municipal Development Council (MDC), composed of NGOs, POs,
and others, for deliberation and approval. In Naga, the process starts with a review of the socio-
economic or ecological profile of the city to come up with sectoral studies. At this stage,
concerned NGOs are consulted for data-gathering purposes. The crafted ecological profile is
then presented to a sectoral consultation for direction-setting and project-program identification.
The output is integrated in the city’s development plan.

As to the presence of NAPC basic sector representatives, there are 2 Sectoral Representatives
(SRs) and 12 Council Members (CMs) resided in the region representing the children,
cooperatives, artisanal fisherfolk, indigenous people, NGO, PWD, senior citizens, urban poor,
victims of disaster and calamities, workers in the informal sector, youth and students and
women sectors. Annex B is the consolidated database of the NAPC SRs and CMs and the
CSOs in the Bicol region culled out from the previous NAPC activities.

The National Anti-Poverty Commission in the Region

The agency, as mandated to serve as the coordinating and advisory body for the
implementation of the social reform and poverty alleviation agenda, plays a vital role to
strengthen the partnership between the government and the poor and marginalized sectors of
society. The Local Affairs Coordinating and Monitoring Service (LACMS) which is one of the
units in NAPC has the function to promote the integration of the national poverty reduction
strategies and thrusts into the policies, programs, and systems/mechanisms of regional
government structures and local government units; initiates, strengthens and sustains the
convergence mechanism at the local level in accordance with the convergence policy stipulated
under RA 8425.

The LACMS is primarily responsible for promoting the integration of the national poverty
reduction strategies and thrusts into the regional and local governance structures. It is also
responsible for the monitoring of the implementation of anti‐poverty programs and priorities of
the government.
The LACMS undertakes the following:
1. Organize, synchronize and mobilize technical and fund support for inter‐LGU
cooperation; inter‐agency and multi‐stakeholders partnerships at the regional, provincial
and municipal level for implementation of priority poverty reduction strategies as
identified by the Cabinet Cluster; NAPC En‐banc; and other inter‐agency technical
working groups.
2. Implement pilot‐tests of new poverty reduction strategies and programs for possible
acceleration and expansion.
3. Ensure the active participation of the basic sectors in local convergence mechanisms.
4. Conduct capacity building training for basic sectors, local government units, local
government agencies and other stakeholders necessary for implementation and
monitoring
of priority poverty reduction programs.
5. Monitor the implementation of poverty reduction programs and projects of the regional
government agencies and local government units; and set up grievance and redress
mechanisms for basic sectors and local government units.
6. Provide inputs for policy recommendations and solution concepts generated from
documentation of local experiences to address gaps in implementation of priority poverty
reduction projects.

Under the organizational structure of LACMS, there are Regional Focal Persons (RFPs) who
handle all the concerns in the assigned region/s. The roles of the RFPs are always in
accordance to the functions mentioned above and may be modified if there are flagship
programs of the new administration, as an incremental task. Under the leadership of Secretary
Noel K. Felongco, particularly in Region 5, targets (consultative and convergence platforms) set
were duly accomplished. Attached as Annex 3 is the consolidated accomplishments in Region 5
from Quarter 4 of 2019 to Quarter 1 of 2020.

Overall, the main tasks of RFPs are to monitor the execution of poverty reduction programs and
projects, and to recommend policy changes or new policies to pursue poverty reduction and to
ensure meaningful basic sector participation in decision –making that affects them so that social
reform, poverty alleviation policies, plans and programs to address their needs.

Other tasks include, but not limited to the following:

- Prepares technical reports and resource materials, provides inputs on documents,
conducts qualitative and quantitative data analysis and formulates strategic policy
recommendations and operational strategies.
- Provides capacity building to LGUs/CSOs/POs in the assigned regions on thematic and
programmatic areas.
- Acts as Resource Person/Trainer and organizes the conduct of such trainings/capacity
building activities.
- Coordinates with government agencies, LGUs and organizes BS/CSO/PS assemblies.
- Represents the agency/participates in the inter-agency committees/TWGs/Division
Activities.
- Distributes/delivers information and/or resource materials.
- Prepares and submits monitoring and feedback reports.
- Perform other tasks as maybe assigned by the Supervisor.

Pressing Operational Concerns vis-a-vis Current Plans

For Region 5, no major operational concerns were faced by the RFP. The partnership among
the LACMS, basic sectors, NGAs/RLAs and LGUs is exemplary and all forms of coordination
and official transactions were done efficiently and effectively.

But to cite some, one minor dilemma that may be considered, which is inevitable in a way, is
during the transition period of the new administration, in which new flagship programs are
introduced and old programs are being disregarded. This problem leads to unsustainable
programs, without proper analysis of its long-term impact that make it somehow just a waste of
government’s resources. The agency should stick with its mandate and core programs to avoid
possible issues on reliability and to uphold its vision to uplift the country from poverty and
inequality.

Another concern is the unharmonized directives from the management which may lead to
confusion and may create negative feedbacks from the partners and stakeholders in the region.
It is always significant to finalize all operational tracks prior the actual implementation, these
should be backed up by official documents, i.e. signed and approved guidelines, before
presenting to the ground.

And lastly, possible operational concern that may hinder the progress of work is the plan of
regionalization, wherein the RFPs will be based in their respective regions. This move needs an
empirical objective and an in-depth exploration. It is always better to weigh in the pros and cons
of this possible action, because it will definitely affect the operational scheme in the long run.
This needs further and concrete operational framework and mechanisms prior the
implementation, cost-benefit analysis may be applied, if necessary.

Strategic Anti-Poverty Response as a Recommendation

Integrated Planning Framework

This framework outlines the structure and associated timelines for the agency’s planning,
budgeting and reporting processes. Through defining and adhering to the Integrated Planning
Framework, the agency seeks to develop and refine long, medium and short term plans to guide
work efforts and resources to achieve agency-level strategic outcomes.

Aligning individual activities with operational objectives, managing employee performance,

developing staff capabilities and supporting the growth and advancement of individuals is
facilitated by the Integrated Planning Framework, specifically through Work and Development
Planning.

Through this process there is established relationship between strategic planning, operational
planning, work development planning and reporting.

Strategic Planning details agency-level outcomes and services together with broad strategies to
deliver the outcomes over the next three to five years. The agency conducts an annual review
in the context of government policy commitments, risk analysis and collective obligations.

Operational Planning implies higher level direction translated into operational plans with short
term, one-year, deliverables by a given unit, divisions. The operational plan objectives for the
financial year are identified together with associated resources, performance measures and
milestones.
Work and Development Planning denotes organizational planning extended to the individual
level. The process relies on completion of operational plans and is integral to ensuring both the
operational objectives and an individual’s learning and development and career planning needs
are captured and addressed.

It is also vital to do progress reporting at two levels – against implementation of operational

plans and completion of the stages of the Work and Development Planning cycle.
Tracking, reviewing and/or reprioritizing of activities is monitored at divisional management
level. Monitoring completion of Work and Development Planning ensures staff learning and
development needs are also being recognized.

Convergence Strategy Development Framework

Specifically for Region 5 operations, the framework below may be adopted to cater more
stakeholders and accomplish the target activities efficiently and achieve outstanding results.
 Define Define the desired outcomes and success measures

Conduct a needs analysis to understand the

Analyze
operational needs

Develop Establish the program framework (including options)

Build Develop the program and determine the most

efficient and effective method

Execute Execute the program, manage the operations and

evaluate the outcomes

Feedback Feedback mechanism, impact assessment and

benchmarking

References:

Bicol Standard. 28 May 2016. DSWD pushes for accreditation of civil society organizations.
Retrieved on April 12, 2020 from http://www.bicolstandard.com/2016/05/dswd-pushes-for-
accreditation-of-civil.html.
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Retrieved on May 8, 2020 from http://www.dmp.wa.gov.au/AnnualReport2017/disclosure-legal-
compliance/governance-disclosures/integrated-planning-framework/index.html.

Lim, Cristina. Improving Local Resources & Management Capacity of LGUs. Rapid Field
Appraisal of Decentralization: Region 5. Retrieved on April 26, 2020 from
https://asiafoundation.org/resources/pdfs/07Bicol.pdf.

NAPC. The Commission. Retrieved on April 26, 2020 from http://napc.gov.ph/commission.

NAPC. Manual of Operations. Retrieved on April 26, 2020 from

http://napc.gov.ph/sites/default/files/documents/transparency/NAPC%20MANUAL%20OF
%20OPERATIONS%20(consolidated)%20-%20including%20CLMP%20and%20AFMS.pdf

NEDA R5. Bicol Regional Development Plan 2017-2022. Retrieved on March 25, 2020 from
http://www.neda.gov.ph/wp-content/uploads/2018/02/5-Bicol-RDP-2017-2022.pdf.

NEDA R5. Rosal takes Oath as Bicol RDC Chair. Retrieved on April 7, 2020 from
http://nro5.neda.gov.ph/rosal-takes-oath-as-bicol-rdc-chair/

NEDA R5. The Regional Development Council. Retrieved on April 7, 2020 from
http://www.neda.gov.ph/wp-content/uploads/2018/11/FAQs_Regional-Development-Council.pdf

NEDA R5. 28 January 2020. 27 in Every 100 Bicolanos were Poor in 2018. Retrieved on April 7,
2020 from http://nro5.neda.gov.ph/27-in-every-100-bicolanos-were-poor-in-2018/.

Philippine Statistics Authority Region 5. Retrieved on March 25, 2020 from

http://rsso05.psa.gov.ph.

Regional Focal Person Terms of Reference