12

PHILIPPINE POLITICS

AND GOVERNANCE
2nd Quarter: Module 2

Mary Ann C. Doctor

Rogelio D. Burce
Module Writer

Department of Education • Republic of the Philippines

 12
Philippine Politics
and Governance
Quarter 2 – Module 2
Decentralization and the Local Government

This instructional material was collaboratively developed and

reviewed by educators from public and private schools, colleges, and
or/universities. We encourage teachers and other education stakeholders to
email their feedback, comments, and recommendations to the Department of
Education at action@deped.gov.ph.

We value your feedback and recommendations.

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Content Standard

The learners demonstrate an understanding of the historical background of Philippine

democratic politics, the executive, the judiciary, and decentralization and local governance.

Performance Standard
The learners shall be able to explain the roles of different political institutions.

Most Essential Learning (Week 12)

Explain the roles and functions of the Local Government Unit (LGU)

Learning Competency

 explain the roles and functions of Local Government Unit.

 examine how decentralization affects governance.

 evaluate the performance of a local government unit.

EXPECTATION

 This module is intended to you learners of Grade 12 Social Science classes specifically
in your course subject Philippine Politics and Governance.
 The lessons included in your module teach you the definition and basic concept about
local government unit.
 It also helps you to understand the roles, powers and structures of local government
unit and examine how decentralization affects governance and;
 Furthermore, it helps you appreciate the dynamics of local governance from pre-
colonization up to re-enactment of LGU Code of 1991.

Are you ready and excited? Let’s start…

PRE-TEST

True or False: Write T if the statement is TRUE and F if the statement is FALSE.

1.________Autonomous regions are excluded in the enumeration of territorial and political

subdivisions in the Philippines.
2.________Decentralization means that political or governmental power is concentrated at
national level.
3.________ The monolithic type of governance was popularized from 1565-1898 was influence
to us by the Spaniards.
4.________ The Local government serves as the “bridge” to bring the goods and services
coming from national government to the people.
5.________ The bureaucratic system which was introduced by the Americans is the structured
of our present government’s organization.

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 LOOKING BACK:

Fill up the Bubble Map the necessary information needed.

Notable Chief https://www.education.com

Justices
/worksheet/article/bubble-
map/

INTRODUCTION OF THE LESSON

Empower Yourself

“Building sustainable cities - and a

sustainable future - will need open
dialogue among all branches of national,
regional and local government. And it will
need the engagement of all stakeholders -
including the private sector and civil
society, and especially the poor and
marginalized.”
-Ban Ki-moon-

(https://www.google.com/search?q=autonomy&safe=active&rlz=1C1RLNS_enPH905PH906&hl)

BRIEF INTRODUCTION

The three branches of the government are not able to administer the whole system nor
quickly convey its programs and benefits of the citizen to the different areas of the country
when they do it alone. They need associates in the different communities with almost the
same capacity and competence so that the services will be similarly and simultaneously
provided to all citizens.
The Local government is another structure of the entire political system with several
components such as provinces, cities, municipalities and barangays. In United States of
America, they call it as “states” and “cantons” in Switzerland, and “country” in Australia and
Canada. The Local government serves as the “bridge” to bring the goods and services coming
from national government to the people.
In the diverse, geographical, and cultural context of the Philippines, a decentralized model of
government anchored on the establishment of strong local governments in an essential aspect
of governance. Historically speaking, numerous attempts of decentralizing power from Manila,
which was established as the economic and political center of the Philippines during Spanish
colonial period for easier governance, have been done prior to the institution of the Local
Government Code of 1991.
During Spanish colonization the monolithic type of governance was popularized from
1565-1898. They managed the local government directly even though there were City
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government called “Ayuntamiento” and the provincias are different from towns. No elections
at that time and the friars intervened government affairs with their powerful influence
because of the “Union of Church and State”.
In American colonial period, they introduced the bureaucratic system which lasted for
almost 50 years. In this system, we pattern our government’s organizational structure. It has
been said, there were perils or disadvantages in the bureaucratic model that can result to;
a. syndicated corruption
b. duplication of powers and;
c. pinpointing syndrome where one person pinpoints another person to save his/her office.
(Valenzuela,2016)
During the time of Emilio Aguinaldo and the Malolos Constitution in 1898, the idea of
effective local governance was proposed by Apolinario Mabini. Mabini believed that the
strength of a democracy rested on the municipal governments but this was not thoroughly
implemented because of the precarious situation of the young republic amidst tensions
between Filipinos and Americans. Local government units were established during American
period and carried on by the Philippine government as mandated by its constitution.
In 1991, the Congress passed Republic Act No.7160, the Local Government Code. The law
constitutes the most radical decentralization measures with regards to the powers,
responsibilities, resources, and personnel devolved to the LGUs.

What is it

1991 Local Government Code of the Philippines

Local government in the Philippines, often called local government units or LGUs, are divided
into three levels – provinces and independent cities; component cities and municipalities; and
barangays. In one area, above provinces and independent cities, is an autonomous region,
the Autonomous Region in Muslim Mindanao. Barangays in some cities and municipalities
are sitios and puroks. All of these, with the exception of sitios and puroks, elect their own
executives and legislatures. Sitios and puroks are often led by elected barangay councilors.
Provinces and independent cities are organized into national government regions but those
are administrative regions and not separately governed areas with their own elected
governments.
The local government is the lowest level of territorial organization within a state that has
dual function of providing local public services and implementing national welfare policies,
(Atienza2016).
According to the Constitution of the Philippines, the local governments "shall enjoy local
autonomy", and in which the Philippine president exercises "general supervision". Congress
enacted the Local Government Code of the Philippines in 1991 to "provide for a more
responsive and accountable local government structure instituted through a system of
decentralization with effective mechanisms of recall, initiative, and referendum, allocate
among the different local government units their powers, responsibilities, and resources, and
provide for the qualifications, election, appointment and removal, term, salaries, powers and
functions and duties of local officials, and all other matters relating to the organization and
operation of local units.

A. Levels of local government

1. Provinces
Outside the lone autonomous region, the provinces are the highest-level local government.
The provinces are organized into component cities and municipalities. A province is governed
by the governor and a legislature known as the Sangguniang Panlalawigan. The governor,
vice-governor and members of Sannguniang Panlalawigan are elected by voters.

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2. Cities and municipalities
Municipal government in the Philippines is divided into three – independent cities, component
cities, and municipalities (sometimes referred to as towns). Several cities across the country
are "independent cities" which means that they are not governed by a province, even though
like Iloilo City the provincial capitol might be in the city. Independent city residents do not
vote for nor hold provincial offices. Far more cities are component cities and are a part of a
province. Municipalities are always a part of a province except for Pateros which was
separated from Rizal to form Metro Manila. Cities and municipalities are governed by mayors
and legislatures, which are called the Sangguniang Panlungsod in cities and the Sangguniang
Bayan in municipalities.
Essential services, such as primary health care, lighting of streets, collection and disposal of
garbage, construction of local roads, and operatio of public markets are directly provided by
these local governement units.

3. Barangays
Every city and municipality in the Philippines is divided into barangays, the smallest of the
Local Government Units. Barangays can be further divided into sitios and puroks but those
divisions do not have leaders elected in formal elections supervised by the national
government.
A barangay's executive is the Punong Barangay or barangay captain and its legislature is the
Sangguniang Barangay, composed of barangay captain, the Barangay Kagawads (barangay
councilors) and the SK chairman. The SK chairman also leads a separate assembly for youth,
the Sangguniang Kabataan or SK.

(https://en.wikipedia.org/wiki
/Local_government_in_the_Phil
ippines)

The constitution also provides for a bigger political unit like autonomous region in the
Cordillera and Muslim Mindanao. Autonomous regions have more powers than other local
governments. The constitution limits the creation of autonomous regions to Muslim
Mindanao and the Cordilleras but only one autonomous region exists: the Bangsamoro,
which replaced the Autonomous Region in Muslim Mindanao (ARMM). In 1989, a plebiscite
established the ARMM. In 2001, a plebiscite in the ARMM confirmed the previous
composition of the autonomous region and added Basilan (except for the
city of Isabela) and Marawi City in Lanao del Sur. Isabela City remains a part of the province
of Basilan despite rejecting inclusion in the ARMM. In 2019, another plebiscite confirmed the
replacement of the ARMM with the Bangsamoro, and added Cotabato City and 63 barangays
in Cotabato.
A Cordillera Autonomous Region has never been formed because two plebiscites, in 1990 and
1998, both resulted in just one province supporting autonomy; this led the Supreme Court
ruling that autonomous regions should not be composed of just one province.
Each autonomous region has a unique form of government. The ARMM had a regional
governor and a regional legislative assembly, mimicking the presidential system of the
national government. The Bangsamoro will have a chief minister responsible to parliament,
with parliament appointing a wa'lī, or a ceremonial governor, in a parliamentary system.

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B. Offices
Local governments have two branches: executive and legislative. All courts in the Philippines
are under the Supreme Court of the Philippines and therefore there are no local-government
controlled judicial branches. Nor do local governments have any prosecutors or public
defenders, as those are under the jurisdiction of the national government.

1. The executive branch- is composed of the regional governor for the

Autonomous Region in Muslim Mindanao, governor for the provinces, mayor for
the cities and municipalities, and the barangay captain for the barangays.

2. The legislatures branch- review the ordinances and resolutions enacted by

the legislatures. Aside from regular and ex-officio members, the legislatures of
the barangay level also have three sectoral representatives, one each from
women, agricultural or industrial workers, and other sectors.

C. Responsibilities
Among the social services and facilities that local government should provide, as stipulated in
Section 17 of the Local Government Code, are the following:
1. Facilities and research services for agriculture and fishery activities, which include
seedling nurseries, demonstration farms, and irrigation systems;
2. Health services, which include access to primary health care, maternal and child care, and
medicines, medical supplies and equipment;
3. Social welfare services, which include programs and projects for women, children, elderly,
and persons with disabilities, as well as vagrants, beggars, street children, juvenile
delinquents, and victims of drug abuse;
4. Information services, which include job placement information systems and a public
library;
5. A solid waste disposal system or environmental management system;
municipal/city/provincial buildings, cultural centers, public parks, playgrounds, and sports
facilities and equipment;
6. Infrastructure facilities such as roads, bridges, school buildings, health clinics, fish ports,
water supply systems, seawalls, dikes, drainage and sewerage, and traffic signals and road
signs;
7. Public markets, slaughterhouses, and other local enterprises;public cemetery;
tourism facilities and other tourist attractions; and
8. Sites for police and fire stations and substations and municipal jail.
(https://en.wikipedia.org/wiki/Local_government_in_the_Philippines)

D. Budget and Allocation

1. Allotment of Internal Revenue Taxes (Section 284 of the LGC of 1991)

Local government units shall have a share in the national internal revenue taxes based on
the collection of the third fiscal year preceding the curent fiscal year as follows:
a. On the first year of the effectivity of this Code, thirty percent (30%);
b. On the second year, thirty-five percent (35%);and
c. On the third year and thereafter, forty percent (40%).

2. Allocation to the Local Government Units (Section 285 of the LGC of 1991)
The share of the local government units in the internal revenue allotment shall be allocated in
the following manner:
a. Provinces-twenty three percent (23%);
b. Cities- twenty three percent (23%);
c. Municipalities-thirty four percent (34%);and
d. Barangays-twenty percent (20%)
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Provided, however that the share of each province, city, and municipality shall bw determined
on the basis of the following formula:
a. Poulation-fifty percent (50%)
b. Land Area-twenty-five percent (25%)
c. Equal sharing- Twenty-five percent (25%)
According to Section 290 of the LGC of 1991, LGU units shall, in addition to the internal
revenue alltment, have a share of forty percent (40%) of the gross collection derived by the
national government from the preceeding fiscal year from mining taxes, royalties, forestry and
fishery charges, and such other taxes, fees or charges including related surcharges, inerests,
or fines, and from its share in any co-production, joint venture or production sharing
agreement in the utilization and development of the national wealth within their territorial
jurisdiction.

3. Involvement of NGO’s

The Code encouraged active and direct participation of civil society, non-governmental
organizations and the private sector in the process of local governance by making them
formal members of several local special bodies such as local development councils as
stipulated in Section 34 and 35 0f LGC of 1991.
Section 34 states that Local government units shall promote the establishment and operation
of people’s and non-governmental organizations to become an active partners in the pursuit
of local autonomy. The Code encourage LGUs to enter into joint ventures and partnerships
with private sector such as build-operator-transfer arrangement annd bond flotation.
Section 35 stipulated that, Local government units may enter into joint ventures and such
other cooperative arrangements with people’s and non-governmental organizations to engage
in the delivery of certain basic services, capality building and livelihood projects, and to
develop local entreprises designed to improve productivity and income, diversify agriculture,
spur rural industrialization, promote ecological balance, and enhance the economic social
well-being of the people.

Decentralization

Decentralization refers to the transfer of powers from central government to local levels in a
political-administrative and territorial hierarchy. This process allows the participation of the
people and the local government. It hands over political, financial and administrative
authority from central to local governments, so that the government can facilitate and
gurantee better public services for the people.
Components of Decentralization:
1. Political Decentralization
2. Fiscal Decentralization
3. Instituional Decentralization

Political Decentalization- It empowered Local Leaders to take greater control over their
region’s destinies. Local leaders, citizens and other stakeholders are given more freedom in
determining their development paths. Political decentralization delegated some powers from
the central authority to the local authorities, who are much familiar with the cultural, social
and economic aspects of their respective regions. The main objective is for rhe provinces,
cities and municipalities to use their financial resources more efficiently, generate additional
resources and tap alternative resources.

Fiscal Decentralization- Improved financial management including qualification of

particiapants in areas of financial management, strengthening cooperation on different levels,
promoting exchange of experiences, formulating strategies for an improved integration of the
business sector and civil society in social and economic programs. A large part of the
operations of the fiscal decentralization focused on the optimization of administrstive
processes and the standardization of the aplication of the law for the local taxes with help of
information technology.
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Instituional Decentralization- Better service delivery is a matter of coordination and
collaboration. Bridging and empowering the public and private sectors of different regions in
the country through forums, seminars, workshops, studies and researches. Exchange of
ideas and mutual understanding among local chief executives, police and military is crucial
in achieving sustainable peace and development.

What’s More!
Activity1: LGU Caloocan Organizer: Use the acronym LGU Caloocan to name projects or
programs initiated by your local government to fight against the covid-19. The first letter is
done for you.

L ex. Linkages to different hospitals

G
U
C
A
L
O
O
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A
N
Guide Questions:

1. Which among the listed project you write in activity 1 done by your local government is
the most effective during this time of pandemic? Why?
___________________________________________________________________________________________
____________________________________________________________________________________________
____________________________________________________________________________________________
2. What are the differences between a monolithic and bureaucratic type of administration?
____________________________________________________________________________________________
____________________________________________________________________________________________

Activity 2: Evaluation Form: Make an evaluation of your local government either

municipality or barangay regarding their projects and how this project help the community.
Use check ( ) in scoring.
Scoring Guide:
3- Absolutely visible
2- Moderately visible
1- Never been visible
Then form a group of five. Each member must identify three best practices of your barangay
and discuss them with your group. Present it in class.

Projects 3 2 1
Health services,
which include access
to primary health
care, maternal and
child care, and
medicines, medical
supplies and
equipment.

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 Social welfare
services, which
include programs
and projects for
women, children,
elderly, and persons
with disabilities, as
well as vagrants,
beggars, street
children, juvenile
delinquents, and
victims of drug
abuse.
A solid waste
disposal system or
environmental
management system
including collection
of garbage
Sites for police and
fire stations and
substations and
municipal jail.
Information services,
which include job
placement
information systems
and a public library

CHECKING YOUR UNDERSTANDING

Direction: Complete the graphic organizer. Write the provinces included in the two
autonomous units. Then write the similarities of the two units.

CAR
ARMM

Guide Questions:
1. What are the advantages and disadvantages of a decentralized government?

____________________________________________________________________________________________
____________________________________________________________________________________________
2. Does decentralization achieve more positive or more negative effects? Explain your answer.
____________________________________________________________________________________________
____________________________________________________________________________________________

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 POST TEST

A. Modified True or False: Write TRUE if he statement is correct and False if its incorrect.

1._________Decentralization refers to the transfer of powers from central government to local

levels in a political-administrative and territorial hierarchy.
2._________The American introduced the bureaucratic system to the Filipinos.
3._________The barangay is the smallest unit among LGU structure.
4._________Autonomous regions have more powers than other local governments.
5._________Basilan is an example of the CAR provinces.

B. Fill in the Blanks: Write the correct answer on the space provided.

6.__________ It hands over political, financial and administrative authority from central to
local governments, so that the government can facilitate and guarantee better public services
for the people.
7._________It reviews the ordinances and resolutions enacted by the legislatures.
8._________ During Spanish colonization this was the type of governance that we have,
wherein the friars intervene in all government affairs.
9.________In cities and municipalities, who is in the executive branch?
10._______ Kinds of cities that are not governed by a province. The residents in this city do not
vote nor hold provincial offices.

Remember

 The Local government serves as the “bridge” to bring the goods and services coming
from national government to the people.
 Local governance means the management of political, economic, and administrative
affairs of the territorial and political subdivisions of the state.
 Local governance can be historically traced to the barangay of ancient Filipinos.
 In 1991, Congress passed Republic Act No.7160 or the Local Government Code, which
constitutes the most radical decentralization measure with regards to powers,
responsibilities, resources and personnel devolved to LGUs.
 Decentralization refers to the transfer of powers from central government to local levels
in a political-administrative and territorial hierarchy.
 Federal system of government the sovereignty is shared between the central (federal
government) and peripheral institutions (states governments). The states government
are not politically subordinate to the federal government.
 Unitary Government the sovereign power is vested in a single, national institution.
Under this system, there is an obvious hierarchy between the national and local levels.

ENRICHMENT

Answer the following questions;

1. Based on the functions and nature of the different LGU units, is there really a need to
maintain such level of governance in society? Explain your answer.
_________________________________________________________________________________________
_________________________________________________________________________________________

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2. Are you in favor to the proposal in abolition of Sangguniang Kabataan? Yes or No? Why?
________________________________________________________________________________________
________________________________________________________________________________________

3. List down at least 3 positive and negative effects of decentralization on governance. You
may ask you parents or guardian.
____________________________________________________________________________________________
____________________________________________________________________________________________

Answer Sheet ( Q2-Module 2)

Pre-Test Looking Back Post-Test

1.______ 6._______ 1_________ 6._______ 1.__________ 6.___________

2.______ 7._______ 2._________ 2.__________ 7.___________

3.______ 8.________ 3._________ 3.__________ 8.___________

4.______ 9.________ 4._________ 4.__________ 9.___________

5.______ 10.________ 5._________ 5.__________ 10.___________

Activity 1.1

L ex. Linkages to different hospitals

G
U
C
A
L
O
O
C
A
N

Guide Questions:

1. Which among the listed project you write in activity 1 done by your local government is the most
effective during this time of pandemic? Why?

_____________________________________________________________________________________________________
_____________________________________________________________________________________________________
2. What are the differences between a monolithic and bureaucratic type of administration?

_____________________________________________________________________________________________________
_____________________________________________________________________________________________________

Activity 2: Evaluation Form Check your Understanding

Projects 3 2 1
Health services, which
include access to primary
health care, maternal and
child care, and medicines,
medical supplies and
equipment.
Social welfare services,
which include programs
and projects for women,
children, elderly, and
persons with disabilities,
as well as vagrants,
beggars, street children,
juvenile delinquents, and
victims of drug abuse.
Guide Questions: JOVANNYCORNELIA28@GMAIL.COM
Pol.Gov. Qr.2.Wk12
1. What are the advantages and disadvantages of a decentralized
government?________________________________________________________
____________________________________________________________________
 A solid waste disposal
system or environmental
management system
including collection of
garbage
Sites for police and fire
stations and substations
and municipal jail.
Information services,
which include job
placement information
systems and a public
library

Referrences:

Pawilen, Reidan M, Philippine Politics and Governance,Rex Book Store, 2018

Tabajen, Dr.Rheane C et.al, Philippine Politics and Governance, JFS Publishing Services, 2016

Valenzuela, Edwin E, Module in Philippine Politics and Governance,GBT Trading, 2017

(https://en.wikipedia.org/wiki/Local_government_in_the_Philippines)

(https://en.wikipedia.org/wiki/Local_government_in_the_Philippines)

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