TABLE OF CONTENTS

CHAPTER 1. APPROACHES AND TOOLS IN ORGANIZING

PLANNING TEAMS 10-19

1. Status of Plan Charts (with Figures)

2. Sectoral Committee Composition (with Table)
3. Tools in Identifying Stakeholders
A. Checklist for Identifying Stakeholders
B. Checklist for Drawing Out Stakeholder Interests
C. Sphere of Influence and Potential Contribution Analysis (with
Table)
D. Stakeholders List (with Table)
4. Sample Work Program (with Table)
5. 5.1. Basic Methods of Technology of Participation (TOP)
A. Discussion Method
B. Workshop Method
C. Action Planning Method
5.2. Conducting Effective Meetings
6. Orientation-Training Workshop (with Box)

CHAPTER 2. APPROACHES AND TOOLS IN ASSESSING THE PLANNING

ENVIRONMENT 19-78

1. 1.1. Sources of Data and Indicators

A. Community-Based Monitoring System (CBMS) (with Table)
B. Local Development Indicator System (LDIS)
C. Minimum Basic Needs (MBN) Survey
D. Cross-Sectoral and Special Concerns
1.2. Financial Profile
A. Revenue Profile
B. Expenditure Profile
1.3. List of Data Requirements
A. Maps and Data Requirements for Land Use Planning (with 2
Tables)
B. Data Requirements for the Provincial Development and Physical
Framework Plan (with Table)
C. List of Indicators for the Ecological Profile (with Table)
1.4. Preparation of Base Maps
1.5. Density Categories for Density Maps
1.6. Slope Categories
1.7. Slope Criteria for Land Suitability Maps

1
2. 2.0. General Tools
Problem Analysis
Problem-Finding Analysis (with Figure)
Solution-Finding Analysis (with Table)
ECT/S
Fishbone Analysis
Problem Tree
SWOT Analysis Technique

2.1. Approaches in Analyzing the Planning Environment

A. Core Elements of the Planning Environment.
B. Socio-economic Profile (SEP) or the Ecological Profile
C. Local Development Strategy Approach and Guiding
Principles
Describing Economic Activities and Economic Conditions
Identification of High Potential Industries
Probability Analysis (with unlabeled Box that contains 6 Tables and 2
Figures)
Factors Influencing Competitiveness and Efficiency
Local Service Standards
Core Indicators for Population and Development (PopDev) Planning at
the Local Level (with Table)
Poverty Indicators (with Table)
Measures of Poverty
A. Means-Based (with unlabeled Table)
B. Outcome-Based (with unlabeled Table)
Poverty Profiling and Analysis
Causes of Poverty
Policy Responses to Poverty Alleviation
A. Pro-Poor Economic Growth
B. Social Development
C. Good Governance
Local Policy Framework for Poverty Reduction

2.2. Demand-Supply Balancing Process Tools

A. Methods for Projecting Future Demand for Urban
Development
B. Methods for Assessment of Land Supply
C. Methods for Catching Demand for Land with Available
Supply

Methods of Land Use Survey

A. Foot Survey
B. Windshield Survey (with Table)
C. Global Positioning System
2
 Pace Factor and Frontage Distance
Migration Analysis
Urban-Rural Analysis
Land Classification Diagram (with unlabeled Box)
Tools Used in Defining a Hierarchy of Settlements
A. Histogram (with Figure)
B. Scalogram (with Figure)
C. Population Bubble Map (with Figure)
Densities and Growth Relationship
Tools for Land Use Planning
A. Developability Analysis
B. Perceptual Analysis
Other Supplemental Land Studies in CLUP Formulation
A. Vacant Lands Study
B. Flooding Areas Study
C. Structural and Environmental Quality Survey
D. Land Values Study
E. Studies of Aesthetic Features of the Planning Area

3. Guide Questions on Perceived Causes or Sources of Degradation

Development Issues
Participatory Issue Identification
Public Consultations

CHAPTER 3. APPROACHES AND TOOLS IN SETTING OF GOALS, OBJECTIVES

AND TARGETS 78-87

1. 1.1 General
Description and Comparison of Vision, Goals, Targets and Objectives (with
Table)
Characteristics of a Good Vision
A. Features
B. Major Components (with Figure and Table)
Tools in Visioning and Goal-Setting Exercise
A. Guide Questions for Evaluating the Vision
B. Vision Elements and Descriptors
C. Success Indicators
D. Goal as Inverse of a Problem
E. Table Planning
F. Issue-Driven Planning Process
G. Objectives Analysis/Objective Tree (with Figure)
H. Vision-Reality Gap Analysis
I. Current Reality Rating Scale
Sources of Development Goals
3
 A. General Welfare Goals (with Box)
B. Universal Concept of Public Interest
C. Regional Physical Framework Plans (RPFP)
D. National Framework for Physical Planning (NFPP)
E. Local Communities
1.2 Approaches to Participatory Goal Formulation
A. Barangay Consultations
B. Brainstorming
C. Household Surveys
D. Visualization Card System
E. Nominal Group Technique
F. Round-Robin Inter-Sectoral Consultations (with Figure and Table)
G. Seminar-Workshops

CHAPTER 4. APPROACHES AND TOOLS IN THE FORMULATION OF

STRATEGIES AND POLICES 87-107

1. 1.1. Technical Approaches

Fishbone Analysis
Flowchart
Force Field Analysis
Objective or Policy Tree (with Figure)
Decision Tree (with Figure)
Problem Tree/Problem Analysis
SWOT Analysis

1.2. Participatory Approaches

Affinity Diagram
Nominal Group Technique
Participatory Issue Identification
Conflict Resolution Tool

1.3. Spatial Strategies

Development Thrusts
A. Agricultural Development
B. Industrial Development
C. Tourism Development
D. Commercial Development
E. Forestry Development
F. Coastal Development
G. Combined Development
Alternative Spatial Strategies
A. Designing Alternative Urban Forms
B. Basic Urban Form Conceptual Frameworks (with Figure)
4
 C. Characterizing the Urban Form (with 2 Tables)
Structure Map

2. 2.1. Evaluation and Selection of Preferred Strategy

The Cost-Benefit Analysis (CBA) (with Table)
Social Cost-Benefit Analysis (SCBA) (with 4 Tables)
Planning Balance Sheet (PBS) (with Table)
Goal-Achievement Matrix (GAM) (with 2 Tables)

2.2. Ranking of Strategies

Simple Ranking
Pairwise Ranking

2.3. Suggested Presentation Formats

Sample Table Linking Programs, Projects, Services to Legislations and
Strategies (with Table)
Summary Matrix of Strategies and PPAs (with Table)
Executive Summary Matrix (with Table)

CHAPTER 5. APPROACHES AND TOOLS IN THE IDENTIFICATION OF

PROGRAMS, PROJECTS AND ACTIVITIES 106-109

1. Action Planning Flowcharts (with Figure)

Activity Network Diagram (AND)
Affinity Diagram
Project Identification Sources
Gantt Charts
Types of Investments

2. City Consultation Method

CHAPTER 6. APPROACHES AND TOOLS IN SETTING THE LEGISLATIVE

AGENDA 109-110

Checklist in Generating Regulatory Measures

Fishbone Analysis (with Figure)
Sample Table of Legislative Requirements (with Table)
Sample Matrix of the Executive and Legislative Agenda (ELA) (with Table)

5
CHAPTER 7. APPROACHES AND TOOLS IN PUBLIC CONSULTATIONS PRIOR TO
PLAN APPROVAL 110-112

Executive Summary Matrix and Public Consultations

Flow Chart of Public Hearings for CLUP and ZO (with Figure)

CHAPTER 8. APPROACHES AND TOOLS IN PLAN IMPLEMENTATION 112-116

1. Capacity's Three Levels of Classification

Capacity Development's Key Objectives
Modes of Capability Enhancement
Capacity Development Program
A. Suggested Steps
B. Capacity Development Planning, Tips
C. Tools (with Table)
2. LGU Regulatory Devices or Authority Levers in Plan Implementation
A. Zoning
B. Taxes on Real Property
C. Eminent Domain Proceedings and Land Banking
D. Public Investment Programming
E. Guided Private Investments
F. Co-Management of Other Domains

CHAPTER 9. APPROACHES AND TOOLS IN MONITORING AND EVALUATING

PLAN IMPLEMENTATION 116-131

1. Local Governance Performance Management System (LGPMS)

Core Indicators for Gender Responsive Population and Development (POPDEV)
M & E Strategy Template (with Table)
Annual/End-of-Term Accomplishment Report (with Table)
Community Based Monitoring System (CBMS)

2. Quality of Life Assessment

Land Use Changes
Schedule of Conducting Plan M&Es
A. Short Term M&E (with Table)
B. M&E for the Three-Year CDP/ELA
C. M&E for Long Term Planning
Participatory Decision Making Process
Regular Feedback Mechanisms

6
TABLES
1.1 Sphere of Influence and Potential Contribution
1.2 List of Stakeholders Affected by the CLUP
1.3 Suggested Sectoral Committee Composition
1.4 Sample Work Program for Plan Formulation
2.1 CBMS Data / Information by Sector / Sub-sector
2.2 Offices that are Potential Sources of Barangay-Level Information
2.3a List of Maps and Data Requirements for Land Use Planning
2.3b Selected Maps Held by Agencies
2.4 Data Requirements for the Provincial Development and
Physical Framework Plan
2.5 List of Indicators for the Ecological Profile
2.6 Sample Output of Problem- and Solution-Finding Analyses
2.7 Local Service Standards|outline
2.8 Formula for Selected PopDev Indicators
2.9 Core Indicators (CLPI) for Population and Development (POPDEV)|outline
2.10 Bases for Projecting Demand for Urban Land Use
2.11 Existing Land Uses Area, Distribution, and Percent to Total
2.12 Estimation of Supply of Urban Land (Land Accounting)
2.13 Suitability Analysis for Future Development Areas
2.14 Land Use Categories and Color Coding
3.1 Summary Description and Comparison of Vision, Goal, Objective, Strategies,
Program and Project
3.2 Sample Vision Supported by Success Indicators
3.3 Current Reality Rating Scale
3.4 Economic-Social Inter-Sectoral Issues
4.1 Sample Development Thrust
4.2 Characterization of Alternative Urban Forms
4.3 Comparative Performance of Alternative Strategies
4.4a Evaluation of Alternative Development Options
4.4b Rating Scales in Evaluating Alternative Development Strategies/Options
4.4c Worksheet of Assessment of Alternative Options
4.5a GAM Format
4.5b Summary of Scores, GAM
4.6 Sample Strategy, Program/Projects, Services and Legislations
from Objective Tree
4.7 Summary Matrix of Strategies and PPAs
4.8 Executive Summary Matrix Template
6.1 Sample Table of Legislative Requirements
6.2 Typical ELA Format
8.1 Sample Format of a Capacity Development Plan
8.2 Organizing Framework for New Zoning
9.1 M & E Points in a 3-Year Term of Office (Short Term)
9.2 M & E Strategy
9.3 CY(?) Annual /End-of-Term Accomplishment Report
7
9.4 Core Indicators for Gender-Responsive Population and Development
(POPDEV) Planning at the Local Level

FIGURES
1.1 Status of Existing CLUP and Zoning Ordinance
1.2 Status of Existing CDP
1.3 Scenario Without CDP
1.4 Suggested Training Session Flow
2.1 Problem Finding Analysis
2.2 Sample Hierarchy of All Cities and Municipalities in the Country (Excluding
Metro Manila), 2000 Census
2.3 Sample Histogram Indicating Scalogram-Defined Hierarchy
2.4 Sample Population Bubble Map (Existing Settlement Hierarchy)
3.1 Sample of a Vision Statement Showing the Outward- and Inward- Looking
Components
3.2 Sample Objective Tree of Deteriorating Forest Condition
3.3 Inter-Sectoral Consultations
4.1 Sample Objective Tree
4.2 Sample Decision Tree
4.3 Basic Urban Forms
5 Action Planning
6 Identifying Legislations Using the Fishbone Analysis
7 Flow Chart for Conducting Public Hearing for CLUP and ZO

BOXES
1 Suggested Training Session Flow and Indicative Content of the Orientation-
Workshop
2 Steps in Conducting Land Suitability Analysis
3 General Welfare Goals (Section 16, RA 7160)

8
9
 CHAPTER 1. APPROACHES AND TOOLS IN ORGANIZING PLANNING TEAMS

Status of Plan Charts. These charts show the proper form of intervention for existing
plans depending on whether or not these are found compliant in form or content.
Interventions can be in the form of revision or iteration into other documents if found non-
compliant, formulation if non-existent, and monitoring and evaluation if already found
compliant.

Sectoral Committee Composition. The various committees may be composed of the

following members: (a) core technical working group (TWG)-local government officials and
functionaries whose tasks and responsibilities address the concerns of the particular sector
directly or indirectly, and hence whose presence are indispensable; (b) expanded technical
working group – the core TWG members plus other LGU officials, NGAs operating in the
locality, NGOs with functions and advocacies touching on the concerns of the particular sector
and who, therefore, would be 'nice to have around'; and the (c ) full blown sectoral committee-
other groups or individuals mainly from the non-government sectors who have a stake in local
development in whatever capacity and can therefore enrich the committee's deliberations.

Tools in Identifying Stakeholders

A. Checklist for Identifying Stakeholders. (a) have all primary (directly affected)
and secondary (indirectly affected) stakeholders been listed?; (b) have all potential
supporters and opponents of the plan been identified?; (b) has gender analysis been used to
identify different types of female stakeholders (at both primary and secondary levels)?; (c)
have primary stakeholders been divided into user/occupational groups or income groups?; (d)
have the interests of vulnerable and disadvantaged groups (especially the poor) been
identified?; and (e) are there any new primary or secondary stakeholders that are likely to
emerge as a result of the plan?

B. Checklist for Drawing Out Stakeholder Interests. A rule of thumb is to relate

each stakeholder to the problems which the plan is seeking to address. Interests may be
drawn out by asking: (a) what are the stakeholders’ expectations of the plan?; (b) what
benefits are there likely to be for the stakeholders?; (c) what resources will the stakeholder
wish to commit (or avoid committing) to the plan?; (d) what other interests does the
stakeholder have which may conflict with the plan?; and (e) how does the stakeholder regard
others in the list?

C. Sphere of Influence and Potential Contribution Analysis. Information may be

organized using a table where each prospective team member is assessed according to their
(a) sphere of influence – indicates the individuals, groups, or sectors that he/she can
influence or catalyze towards a productive, or, even, an affirmative response to an issue or
undertaking; and (b) potential contributions - the expertise or resources which prospective
members can share towards the completion, approval and adoption of the Plan. Putting
scores or weights for eventual ranking will also help but is not necessary.
10
 Table 1.1 Sphere of Influence and Potential Contribution

Prospective Planning Sphere of Influence Potential Contributions

Team Members

D. Stakeholders List. Stakeholders can be divided into two very broad groups: (a)
primary stakeholders are those who are ultimately affected, i.e. who expect to benefit from or
be adversely affected by the planned interventions; and (b) secondary stakeholders are those
who are indirectly affected by the impact of the plan but may possess a particular knowledge
and/or play significant roles related to its formulation, implementation, and/or evaluation. A list
with these categories could aid in identifying key stakeholders.

Table 1.2 List of Stakeholders Affected by the CLUP

Groups/Individuals Interests +/-Effects

A. Directly Affected

B. Indirectly Affected

Work Program. This could be presented using a Gantt chart1 that details the plan
formulation activities and their corresponding indicative schedules. Note that the entire CDP
preparation is estimated to take at least four (4) months, assuming that the planning process
is targeted to also yield a CLUP, with the latter ideally to be completed before the CDP. This
time period may be adjusted should the LGU focus on the CDP formulation alone.

Basic Methods of Technology of Participation (TOP). These methods may be

applied to an infinite number of situations and purposes. Creatively combined and adapted,
these methods can serve as powerful tools for both satisfying and empowering group
experiences.

A. Discussion Method. This is a method of facilitating group conversations and

discussions which allows a group to deepen its insights and creativity on a common topic or
experience. It allows the members of the group to share the many and diverse perspectives in
a non-confrontational manner, revealing the bounds of consensus the group is willing to draw.

1 A tool also used in Project Identification and Analysis; see Appendix 1.5.
11
Figure 1.1 Status of Existing CLUP and Zoning Ordinance

CLUP

YES NO PREPARE
EXISTENT? CLUP & ZO

WITH YES NO
ZO? COMPLIANT? REVISE

YES NO
PREPARE ZO

ZO YES
MONITOR &
COMPLIANT? EVALUATE

NO
REVISE

STATUS INTERVENTION

Figure 1.2 Status of Existing CDP

WITH CDP

WITHOUT WITH LDIP/ WITH NGA-

WITH ELA WITH AIP
ELA AIP MANDATED PLANS

M&E
PREPARE ELA M&E
MAKE LDIP ITERATE INTO
W/IN CDP/LDIP ITERATE INTO M&E
ITERATE INTO CDP PROCESS
PROCESS CDP / LDIP
LDIP

STATUS INTERVENTION

Figure 1.3 Scenario Without CDP

WITHOUT PREPARE CDP

CDP & LDIP

WITH AIP ONLY WITHOUT

WITH EA/ ELA
ELA

M & E M & E PREPARE ELA WITHIN

PREPARE CDP & LDIP ITERATE INTO CDP / CDP / LDIP
ITERATE AIP LDIP PROCESS

STATUS INTERVENTION

12
 Table 1.3 Suggested Sectoral Committee Composition

Sectoral Core Technical Expanded Technical Full-Blown Sectoral Committee

Committee Working Group Working Group (“The More the Merrier”)
(“Must be There”) (“Nice to Have Around”)

1. SOCIAL • MPDO/CPDO Staff • Police Chief • Sports Organizations

DEVELOPMENT • SWDO • Fire Marshall • Religious Leaders
• MHO • Local Civil Registrar • Labor Groups
• POSO • Population Officer • Senior Citizens
• LDC Representative (Brgy.) • PCUP or its local • Media Representatives
• LDC Representative (CSO) counterpart • YMCA/YWCA
• District Supervisor • Nutrition Officer • Inner Wheel Club
• PTA Federation • Housing Board Rep • School Principals
• Sanggunian • NSO • Charitable Organizations
Representative • Manager GSIS/SSS

2. ECONOMIC • PESO • DTI Representative • Lions Club

DEVELOPMENT • Agriculturist • Chambers of • Jaycees
• Tourism Officer Commerce & Industry • Rotary Club
• Coop Devt Officer • Trade Unions • Academe
• MPDO Staff • Bank Managers • Other interested groups and
• LDC Representative • Market Vendors individuals
(Brgy.) • Sidewalk Vendors
• LDC Representative • Cooperatives
(CSO) • Transport
• Sanggunian Organizations
Representative

3. PHYSICAL / LAND • Municipal Engineer • Electric Coop • Other interested groups and
USE • Zoning Officer Representative individuals
DEVELOPMENT • MPDO Staff • Water District
• LDC Representative Representative
(Brgy.) • Real Estate
• LDC Representative Developers
(CSO) • Professional
• Sanggunian organizations
Representative • Telecommunications
• Municipal Architect companies
• Academe

4. ENVIRONMENTAL • MPDO Staff • Sanitary Inspector • Environmental Advocates

MANAGEMENT • LDC Representative • CENRO • Other interested groups and
(Brgy.) • PENRO individuals
• LDC Representative • FARMC
(CSO) Representatives
• General Services • BFAR Representative
Head • Heads of private
• LG-ENRO hospitals
• Sanggunian • Academe
Representative

5. INSTITUTIONAL • MPDO Staff • HRDO • Religious groups

DEVELOPMENT • LDC Representative • Treasurer • Good Governance advocates
(Brgy.) • Budget Officer • Other interested groups and
• LDC Representative • Assessor individuals
(CSO) • Academe 13
• LGOO
• Local Administrator
• Sanggunian
Representative
Table 1.4 Sample Work Program
Table 1.4 Sample Work Program (continued)
 B. Workshop Method. This method is a way of facilitating a group’s thinking about a
particular topic into focused decisions and action. It is an effective way of building group
consensus and moving it to joint resolve and action.

C. Action Planning Method. This method, which combines both the discussion and
workshop methods, is an effective structure for moving a group from a good idea to a
concrete plan of action within specific time periods and with specifically outlined assignments
and responsibilities.

Conducting Effective Meetings. An effective meeting addresses the most critical

task in consensus building - that is to bring together the team or assembly and establish the
purpose, process and measures of the tasks ahead. One important characteristic of
conducting an effective meeting is being participatory, or one that promotes maximum
participation of all stakeholders in building consensus. The conduct of effective meetings
requires, among others, detailed preparatory activities and outputs prior to the meeting, e.g.,
developing a meeting plan and distributing the proposed agenda; the presence of a presiding
officer and a recorder during the meeting; formally beginning the meeting by agreeing on an
agenda list; observing meeting etiquette during meeting discussions; and ending with action
items and with a schedule of follow-up meetings. The preparation and distribution of the
meeting activity report and follow-ups on action items are conducted after the meeting and
prior to the next meeting.

Orientation-Training Workshop. The workshop should orient participants on the

CDP and ELA formulation process and train them on how to use the various tools,
instruments, as well as methodologies for each step of the process. The training program
may be patterned after the CDP formulation process with each major planning stage or topic
presented per session, grouped into modules. This will be ideal after an election year when
some team members are new, but the content or modules may vary in subsequent exercises.

16
Figure 1.4 Suggested Training Session Flow

LEVELING OF
EXPECTATIONS

TEAM WITH
PREVIOUS
CDP
EXPERIENCE?

REVIEW OF PAST PLAN

FORMULATION
EXPERIENCE

UNDERSTAND THE
SIMPLIFIED CDP
PROCESS

PREPARE WORK PLAN

LCE / SANGGUNIAN
HOUR

CLOSING PROGRAM

17
Box 1 INDICATIVE CONTENT OF THE ORIENTATION-TRAINING- WORKSHOP

The training program will contain five modules, as follows:

Module 1: Introduction

Session 1: Surfacing and Leveling of Expectations

Session 2: The Rationalized Local Planning System
Session 3: Understanding the Planning Team’s Structure and
Functions
Session 4: Revisiting Past Planning Experiences

Module 2: The Comprehensive Development Plan

Session 5: Overview of the CDP Process

Session 6: Visioning Process,
Session 7: Situational Analysis and Determination of Vision –
Current Reality Gap; Goal and Objective Formulation
and Target Setting
Session 6: Identifying Solutions: Developing Strategies,
Programs, Projects and Activities
Session 7: Sifting of Projects (Projects versus “Non – Projects”;
By Ownership)

Module 3: Tools for Implementing the Plan

Session 8: The Local Development Investment Programming

(LDIP) Process
Session 9: The Capacity Development Program
Session 10: The Legislative Agenda

Module 4: Plan Monitoring and Evaluation

The culminating activity of the training program is the conduct of an LCE-

Sanggunian Hour where previously unidentified major potential problems in
the planning exercise can be discussed and addressed.

18
CHAPTER 2. APPROACHES AND TOOLS IN ASSESING THE PLANNING
ENVIRONMENT

Sources of Data and Indicators

A. Community-Based Monitoring System (CBMS). This system was designed to

address existing data gaps for diagnosing the extent and causes of poverty at the local level,
formulating appropriate responses to problems, identifying eligible anti-poverty beneficiaries
and requirements for development planning and monitoring that are disaggregated at the
household level. While it is poverty-focused, it yields a wealth of disaggregated and
geographically-defined data and information that cuts across the development sectors
represented in the Ecological Profile.

Table 2.1 CBMS Data / Information by Sector / Sub-sector

SECTOR / SUB – DATA / INFORMATION

SECTOR

POPULATION AND • Total population, by sex and sex ratio, by barangay

SOCIAL SERVICES • Total number of households, by barangay
• Average household size, total municipality, by barangay
• Number of households with income below the poverty threshold
(municipal and provincial average)
• Number of household below the food threshold (municipal and
provincial average)
• Number of households who experienced food shortage (municipal
and provincial average)
• Members of the labor force who are unemployed (municipal and
provincial average)
• Migration rate in purok, barangay, municipality/city and province.
• Total population, by sex and sex ratio, by barangay
• Total number of households, by barangay
• Average household size, total municipality, by barangay
• Number of households with income below the poverty threshold
(municipal and provincial average)
• Number of household below the food threshold (municipal and
provincial average)
• Number of households who experienced food shortage (municipal
and provincial average)
• Members of the labor force who are unemployed (municipal and
provincial average)
• Number of OFWs

a. Health • Magnitude and proportion of malnourished children 0 – 5

years old vs. total children 0 – 5 years, by sex, by barangay
• Number of malnourished children 0 – 5 years old (municipal

19
 and provincial average)
Magnitude and proportion of children 0 – 5 years old who died vs. total
number of children 0 – 5 years, by sex, by barangay
• Number of children 0 – 5 years old who died (municipal and
provincial average)
• Total number of child births (less than 1 year old)
• Magnitude and proportion of women who died due to
pregnancy related causes vs. total pregnant women
• Number of women who died due to pregnancy related causes
(municipal and provincial average)
• Magnitude and proportion of households without access to
safe drinking water vs. total number of households
• Magnitude and proportion of households without access to safe
water vs. total number of households
• Number of households without access to safe water (municipal and
provincial average)
• Magnitude and proportion of households vs. total number of
households, by source of drinking water
• Magnitude and proportion of households with access to sanitary
toilet facility vs. total number of households, by barangay
• Magnitude and proportion of households, by type of toilet facility vs.
total number of households
• Number of households without access to sanitary toilet facilities
(municipal and provincial average)
• Number and proportion of households that access health facilities, by
type of health facilities
• Number and proportion of couples that practice family planning
methods, by type of family planning methods
• Number and proportion of households with access to:
• Supplemental Feeding
• Health assistance program including Philhealth
• Number of persons who died, by sex, by cause of death

b. Education • Magnitude and proportion of children 6 – 12 years old not attending

elementary school, by sex, by barangay vs. total number of children
6 – 12 years old, by sex, by barangay.
• Number of children 6 – 12 years old not attending elementary school
(municipal and provincial average)
• Magnitude and proportion of children 13 – 16 years old, by sex, by
barangay who are not attending high school vs. total number of
children 13 – 16 who are not attending high school, by sex, by
barangay
• Number of children 13 – 16 years old not attending high school,
(municipal and provincial average)
• Number of households with access to Education /scholarship program
• Number of persons with disability, by type of disability
c. Social Welfare and • Number of senior citizens (60 years old and above), with and without
Development identification cards
20
d. Housing • Magnitude and proportion of households by tenure status vs. total
number of households
• Magnitude and proportion of households living in makeshift housing
vs. total number of households, by barangay
• Number of households living I makeshift housing (municipal and
provincial average)
• Magnitude and proportion of households who are informal settlers
vs. total number of households, by barangay
• Number of households who are informal settlers (municipal and
provincial average)
• Number of households with access to Housing program
• Number of households with electrical connections
• Average monthly electrical consumption
• Types of materials used for walls and roofs dwelling units
e. Public order and • Magnitude and proportion of households with victims of crime, by
Safety sex, by barangay vs. total number of persons, by sex, by barangay
• Number of persons victimized by crime (municipal and provincial
average)
• Number of persons victimized by crime by type of crime, by sex
• Number and proportion of households with access to programs
ECONOMIC • Comprehensive Land Reform Program
• Skills or livelihood training program
• Credit program
• Number of persons employed by sector (primary, secondary, tertiary)
• Net household income from various sources
• Solid waste disposal system, by type (municipal/city garbage
ENVIRONMENT collection, composting, burning, waste segregation, etc.)
• Frequency of garbage collection
• Number and proportion of persons with membership in community
INSTITUTIONAL organization, by type of community organization
• Number and proportion of registered voters vs. total population
• Number and proportion of registered voters who voted in the last
elections vs. total number of registered voters

B. Local Development Indicator System (LDIS)2. The Local Development Indicator

System is an intermediate analytical tool for purposes of building a consolidated database of
indicators relevant to local planning. The LDIS goes beyond profiling although the sectoral
headings are the same as used in the SEP or Ecological Profile. The different indicators
which national government agencies are requiring LGUs to consider through the various
programs such as the NAPC’s core local poverty indicators, the MDGs, or the localization of
PA 21, can be entered completely into the LDI matrix. If properly constructed, the LDIS is
most useful in the diagnosis of development issues through the use of problem-finding and
solution-finding analyses (as described below).

The portrayal of data in three dimensions - sectoral, temporal and spatial – enables

2 Chapter 2 Part II of the CDP Guide shows the LDIS matrix. Similarly Annex 3.1 of the RPS shows the LDIS matrix with description
of each Indicator of Development or Underdevelopment.
21
more meaningful observations, systematic identification of problem situations and formulation
of area-specific solutions. The sectoral-temporal presentation of the data allows an in-depth
characterization of the planning area by enabling the analyst to appreciate changes in certain
attributes over time. The sectoral-spatial data display allows the analyst to appreciate the
differences between the planning area and the larger area within which it is nested (e.g., city
and the province), and the planning area and its smaller component parts (e.g., city and the
barangays). The table below shows the key municipal and national offices that have excellent
potential for generating barangay information.

Table 2.2 Offices that are Potential Sources of

Barangay-Level Information

Office Indicator
1. City/Municipal Planning and • Ecological Profile
Development Office • All types of information-being the LGUs one
stop info shop
2. Mayor's Permit and Licenses • Number of establishments operating in the
Office LGU
• Bases for classifying establishments, e.g.,
amount of capitalization, number of
employee, location of business
3. Assessor's • Real property tax
• Land area
• Area coverage of specific land uses and their
boundaries
• Ownership of individual parcels (public and
private)
• Changes in land values over time

4. Treasurer's Office • Barangay income and expenditure

5. Rural Health Unit
• Infant mortality rate
• Extent of malnutrition by age group
• Households with/without sanitary toilets
• Proportion of households served by safe
drinking water
• Crude birth and death rates

6. National Agencies
a. The District Supervisor
• School enrollment by place of residence of
pupils so that the service area of a particular
school facility can be determined, and the
school participation rate of certain age
groups can be computed, among others.

b. The City/Municipal Census • Authoritative information on population such

Officer as demography and migration
22

c. The City/Provincial Engineer
d. Utility Companies
• Survey of establishments
• Other relevant data
• Inventory and condition of roads and bridges
• Extent of service of potable water systems in
rural areas
• Extent of service of electric power supply
• Extent of service of telecommunications
systems
• Extent of coverage of domestic water supply

e. The LGOO, DILG • Information on barangay political activities

f. Local Election Registrar
7. Non-Government Organizations
• Monitoring of barangay projects
• Barangay voting-age population
• Registered voters by barangay (not only by
precinct)
• Micro-level information for specific purposes

C. Minimum Basic Needs (MBN) Survey. An annual survey tool for poverty analysis
that helps LGUs establish “who are the poor?, where are the poor?, why are they poor?, how
do they live?, etc.” Regular conduct and updating of the LGUs MBN Survey would help
design more focused interventions.

D. Cross-Sectoral and Special Concerns. To make planning truly comprehensive,

the most extensive array of data should be generated that cover cross-sectoral and special
concerns which include, but are not limited to: disaster risk management, poverty reduction
and the Millennium Development Goals and gender-responsiveness. 3

Financial Profile. Part of the analysis of LGUs current situation involves the
examination of its financial profile which shows the state of the LGUs finances and its current
ability to manage its funds. It consists of the revenue profile and the expenditure profile4.

A. Revenue Profile. A financial report that shows the trends and patterns of the LGUs
revenue from all sources, whether locally- or externally-generated. It is prepared for
evaluation of past revenue performance and for planning and decision-making, and provides
the basis for revenue forecasts. The revenue profile ideally covers a period of five years and
shows revenues classified according to sources, local or external and further disaggregated
by major categories.

B. Expenditure Profile. An expenditure profile is a financial report showing the trends

and patterns of expenditures, by function/sector and by allotment classification, incurred by
the city over a period of at least five (5) years. It serves as the basis for the evaluation of the
city’s utilization of income in the past, for planning and decision-making, and/or projecting the

3 The CDP Guide enumerates this long list of indicators in a matrix found in Chapter 2 of Part II.
4 The LGUs financial profile as a tool in the overall planning process will be discussed in detail in Volumes III, IV, V.
23
city’s future expenditures.

List of Data Requirements. Before conducting an assessment of the natural/

physical/ environmental features and existing land uses of the LGU, data and maps should be
collected as outlined in the list.

A. Maps and Data Requirements for Land Use Planning. The lists of maps and
data requirements for land use planning are presented with their corresponding sources.

Table 2.3a List of Maps and Data Requirements for Land Use Planning

Data Requirements Sources

A. Geographical,Administrative/Political Profile

1. Geographic location of municipality Coordinates • NAMRIA/Topo Map

(longitudinal/latitudinal location)
2. Location and significant role in relation to the local • LGU/PPFP/RPFP (other
province, region and country, if any. national, area plans)
3. Municipal land area & boundaries
4. Political Subdivisions ( Urban-Rural Barangays) • DENR-FMB & LMB, LGU
5 Alienable and disposable land • DENR

B. Natural and Physical Characteristics

1. Climatological conditions-type of climate-prevailing • Philippine Atmospheric,

winds, average annual rainfall & mean temperature- Geophysical
tidal current patterns (for coastal areas) • and Astronomical
2. Topography Services
• topographic relief • Administration(PAG-
• elevation ASA)
• slope • NAMRIA
• surface drainage (bodies of water within the
city/municipality)
3. Vegetation/Vegetative cover
4. Soil
- type/classification • BSWM & LGU
- soil suitability • BSWM
- land capability (if any)
5. Hydrogeologic Features
- groundwater resources
- fault lines, etc. • DENR – MGB,
- volcanoes PHIVOLCS
- bedrock foundation
6. Conservation areas and other Special Interest Areas
• Protected Areas (NIPAS and non-NIPAS) both
terrestrial and marine
24
 • Ancestral domains
• DENR
• Prime Agricultural Lands (NPAAAD)
• Primary Forests and other forest types • National Commission on
• Fish Sanctuaries Indigenous People (NCIP), DENR
• Historical, cultural and natural heritage sites • DA
• Wetlands (lakes, rivers, coral reefs, mangroves, • DENR, FMB
seagrass beds, marshes, etc.) • DA-BFAR, PCMRD
• Critical watersheds
• NHI, NCCA, DENR
• Geothermal Sites/ Plants
• DENR, BFAR
• Mining and Quarrying Areas

• DENR, NIA, PNOC

C. Land Use5 including the following Special Interest
Areas: • PNOC
• DENR, MGB, Provincial
- Ancestral Domain Government

- Historical and cultural heritage areas Primary Survey

- World heritage areas
- Location of manmade structures e. g. dams, National Commission on Indigenous
reservoirs, if any People (NCIP)
- Location/extent of mining/quarrying activities,
such as sand, gravel, etc. NHI/DOT/PTA/NCCA, LGU
- Previous land use maps (10-20 yrs. ago, if any NHI, NCCA
- Previous land use plan, if any
LGU
D. Environmental Condition LGU/DENR-MGB/Provincial Office

1. Location/distribution/condition of: LGU

- fish sanctuaries LGU
- coral reefs
- mangroves
- seagrass beds
2. Classification of rivers/bodies of water within the DENR, Project Studies, surveys,
municipality interview with community
3. Quality of rivers, marine waters, etc. (polluted or not:
degree of pollution)
4. Probable sources of pollution, if any DENR, Project studies, surveys,
5. Geological/environmental hazard areas interviews
- fault zones
- volcanoes -do-
- tsunami prone areas
- areas susceptible to landslides, erosion,
subsidence, sinkholes, etc. PHIVOLCS, DENR/MGB; interview
- areas prone to noise, air pollution with community: surveys, special
- probable causes of hazards or risk studies, if any.

5 Refer to Annex 4-3 of CLUP on Land Use Categories

25
E. Other Land Related Data:

1. On-going and pipeline projects: type, location, area

covered
2. Policies covering Production, Protection,
Infrastructure and Settlement areas as defined in the
Provincial Physical Framework Plan (PPFP) NGAs (i.e. DPWH), LGU

PPFP

Table 2.3b Selected Maps Held by Agencies

MAP TITLE AND DATA/INFORMATION

AGENCY
SCALE OBTAINABLE

NAMRIA Topographic Map Point elevations, major road network, built up areas, water
(1:50,000; 1:250,000) bodies, other surface features.

NAMRIA Land Classification Map Alienable and disposable lands, timberlands, unclassified
(varying scales) public forests.

NAMRIA Land Cover Map Extent of vegetative cover by type, other land uses (extensive
(1:250,000) and intensive).

DENR Legal Status Map Reservations covered by proclamations, DENR projects, other
(1:50,000; 1:250,000) protected areas.

BSWM Slope Map Standardized slope categories & area in hectares covered by
(1:50,000) each slope category.

BSWM Present Land Use and Land uses, mainly agricultural and forest, generalized built up
Vegetation Map areas, major roads, and stream networks.
(1:50,000; 1:250,000)

BSWM Protected Areas for Highly restricted, moderately restricted, conditionally restricted
Agriculture Map areas from conversion, areas marginal to agriculture.
(1:50,000)

BSWM Key Production Areas Map Areas suitable to agriculture & the recommended crops or
(1:50,000; 1:250,000) activities for each area.

BSWM Geographic Flow of Production and market areas for major agricultural crops.
Commodity Map
(1:250,000)

DEO, DPWH Road Network Map Existing and proposed road network by administrative
(1:10,000) responsibility and surface type.

MGSB, DENR Geological Map Subsoil structure, fault lines, rock types.
(1:250,000)

26
 PHIVOLCS Seismic Hazard Map Areas prone to hazards associated with ground shaking
(1:1,000,000 or smaller) (earthquake, volcanic eruption, etc.), danger zones of varying
degrees.

HLRB; LGU Existing Land Use Map City or municipality-wide distribution of major categories of
(1:10,000) land uses.

HLRB; LGU General Land Use Plan Proposed land uses for the entire city/municipality.
(1:10,000)

HLRB; LGU Zoning Map Proposed land uses for the urban and potentially buildable
(1:10,000 or larger) areas.

B. Data Requirements for the Provincial Development and Physical Framework

Plan. Data requirements are shown following the core elements of the planning environment
used in drafting the PDPFP.

Table 2.4 Data Requirements for the Provincial Development and

Physical Framework Plan

Core Element/ Data Geographical Unit Period Source

Sector
Population
Population • Size, density, • Philippines, Region, Latest, NSO,
growth rate Province previous NCSB,
• If available: age- • If available: other census LGUs
sex, urban-rural province in region, cities/
distribution; municipalities in province,
migration barangays
• Map
Physical Resources
• Environment, • Land area • Province Latest Sectoral
natural • Characteristics of • If available: region, census agencies,
resources, land resources other province in region, LGUs
protection • Land use, land cities/ municipalities in
forestry suitability, land province
classification
• Map
By transport mode or • Existing and • Province Latest Sectoral
industry if available: proposed facilities, • If available: region, other census agencies,
• Transport and routes, levels of province in region, cities/ LGUs
communication service municipalities in province
• Map

Economic Activity
By subsector or industry • Employment, • Philippines, Region, Latest NSO

27
If available: Income, or value of Province previous Sectoral
• Agriculture, prod by sector • If available: region, other census agencies,
fisheries, production • Export products, province in region, cities/ LGUs
forestry markets, volumes municipalities in province
• Manufacturing by sector (If
• Trade, Industry, available)
services • Existing, proposed
• Tourism support
infrastructure
• Map
Income and Services
Employment • Employment/ Philippines, Region, Latest NSO,NCS
Unemployment Province previous B
rates census
Income and Poverty • Average family • Philippines, Region, Latest NSO,NCS
income Province previous B,
• Poverty indicators • If available: region, other census LGUs
• Map province in region, cities/
municipalities in province
• Housing, Health, • Existing and • Region, Province Latest Sectoral
Education, proposed facilities census agencies,
Sanitation, Security • Levels of service LGU
• Public works: roads/ of basic social
water supply, solid services (health,
waste, drainage education,
• Power; other sanitation,
sectors security), public
works
• Map
Land Use • Location/maps of • Province Latest LGUs,
above sectors • If available: cities/ available, sectoral
municipalities in province previous agencies

C. List of Indicators for the Ecological Profile. The list of indicators for the
Ecological Profile which will become part of the Comprehensive Development Plan are
presented, already with their corresponding description and formula. Some of these
indicators or data requirements are also used in the PDPFP.

Table 2.5 List of Indicators for the Ecological Profile

Indicators Definition/Formula
1. Population and Social Services or Social Sector
1a. Population Size. If estimates
about the population in a particular year
other than a census year are desired,
use of calculation methods is resorted

28
to.
1b. Age-Sex Distribution. A very
important input in the planning of
specific social services and facilities,
since they cater to specific segments of
the population. Other variables related
to the age-sex structure:
1b(i). Sex Composition. Sex affects Sex Ratio = No. of Males __ X 100
the incidence of births, deaths and
marriages. It has also implications on
spatial mobility, work participation and
occupational structure. Sex composition
is indicated by the sex ratio.
1b(ii). Age Composition. The age
structure of the population is determined
in part by levels of births, deaths and
migration. Age distribution is usually
depicted in a table that groups the
population into clusters of 5-year
intervals.
1b(iii). Age Dependency Ratio. This
indicates the extent to which those who
are too young or too old to earn a living
depend for support on those who work.
In the Philippines, those who are below
15 years old are considered too young,
and those 65 years old and above too
old, too work.
1c(i). Household. The NSO defines a
household as consisting of a person
living alone or a group of persons who
sleep in the same housing unit and
have a common arrangement for the
preparation and consumption of food.
For example, dependent age (0-14, 65 and above) would
require specialized health services and facilities; school
age groups (3-6, pre-school; 7-12, elementary; 13-16,
secondary) with school facilities; labor force (15-64) will
have to be provided with jobs; or, females of reproductive
age (10-45) may be the target of family planning
programs. The age-sex distribution is usually presented in
a bar graph that is as symmetrical as a pyramid.
No. of Females
The age group’s, say 5-9 year, percentage share to total
municipal population is computed as follows:
= Population 5-9 years old_ x 100
Total municipal population
The population is said to be (a) Expansive – where large
numbers of the population are in the younger ages; (b)
Constructive – where a smaller number are in the younger
ages; or (c ) Stationary – where roughly equal numbers of
people are found in all age groups with slight tapering off
in the older ages.
Total Dependency Ratio =
Popn<15yrs + Popn 65&above x 100
Population 15-64 years
Young Dependency Ratio =
Population below 15 years x 100
Population 15-64 years
Elderly Dependency Ratio =
Population 65 years & above x 100
Population 15-64 years
Types of Households
1. a) One-person household
2. b) Nuclear family household
3. c) Horizontally extended family household
4. d) Vertically extended family household
5. e) Horizontally and vertically extended
household
29

1c(ii). Family. A group of persons
living in the same household related by
blood, marriage or adoption.
1d. Population Growth. This is the
change in the population size between
two points in time. It is the effect of
events that tend to add, or take away
members from the population such as
births, deaths and migration.
1d(i). Migration. Migration is made up
of in-migration and out-migration, two
processes that bring about contrasting
results. A positive change is the effect of
in-migrants outnumbering out-migrants.
Migration is indicative of the relative
attractiveness of an area as a place of
employment and corollarily, as a
residential area.
1e. Doubling Time. Doubling time is
the number of years a population will
double given a constant growth rate. It
is not intended to be a planning target;
rather, it is an illustrative example of the
growth rate, showing what will happen if
the rate does not change.
1f(i). Population Distribution or
Density.
6. f) Household of related persons
7. g) Household of unrelated persons
Types of Families
a) Nuclear family, with the following variations:
• Father, mother or one spouse only
• Father and mother
• Father, mother and unmarried children
• One spouse and unmarried children
b) Extended family, i.e. in addition to nuclear family
• Horizontal (same generation, e.g., cousin,
brother)
• Vertical , e.g., father or mother of either
spouse
• Horizontal – vertical, e.g., father and
brother of either spouse
{(Population t / Population t-n)-1} x 100
where:
t – current year
n – number of years past the current year
Rate of Migration. Assume that the difference between
the actual growth rate in the local area for a particular time
period and the national growth rate for the same period is
due to migration alone. NSO census data could also be a
source of migration data
This is estimated by dividing the constant number “69” by
the population growth rate. For example, assuming a 2%
growth rate, the population of a province will double in
69/2 = 34.5 years.
a) Gross Population Density =
Number of Persons / Land Area (hectares or sqkm)
The above indicator is not very meaningful because
there are portions of the municipal territory which are not
habitable. A refinement is:
b) Net Population Density =
Population / Area of Arable Lands
An arable land is the total area of lands classified as
30

1f(ii). Extent of Urbanization
1f(iii). Measures of Population
Distribution and Urbanization
1g. Status of Well-Being of the
Population
6 An alternative formula using employment as a measuring unit is presented in 2c.
“alienable and disposable”.
The NSO defines an urban area as follows:
a) In their entirety, all cities and municipalities having a
population density of at least 1,000 persons per square
kilometer.
b) Poblaciones or central districts of municipalities or cities
which have a population density of at least 500 persons
per square kilometer.
c) Poblaciones or central districts (not included in 1 & 2)
regardless of their population size if they have the
following:
(c1) street pattern, i.e. network of streets in either parallel
or right-angel orientation;
(c2) at least six establishments such as commercial,
manufacturing, recreation and/or personal services;
(c3) at least three of the following:
• town hall, church or chapel with religious services
at least once a month;
• public plaza, park or cemetery;
• market place or building where trading activities
are carried on at least once a week;
• a public building like school, hospital, puericulture
and health center or library.
d) Barangays having at least 1,000 inhabitants which meet
the conditions in c above and where the occupation of
inhabitants is predominantly non-agricultural.
a) Level of urbanization (urbanity) in percent6 =
Combined population of urban barangays x 100
Total municipal population
b) Tempo of urbanization in percentage points =
Population growth rate(urban) – population growth rate (rural)
c) Urban density = Total urban population
Total area of urban barangays
Mere presence or absence of a service (an input) is not a
reliable indicator of the state of well-being of the people in
the area as this assumes that all social services are
equally available and accessible to all. Hence the use of
output morbidity rates, malnutrition rates, maternal
mortality rates and the like are better indicators of health
status rather than the number of hospital beds; likewise,
literacy rates, educational attainment, participation rate,
rather than the number of school houses, etc. are more
meaningful measures of well - being; or
31

1h. Population Projections.
Estimates of the size of the population
is an essential information in the
planning exercise because it indicates,
among other things, the amount of
goods and services that must be
provided as well as the resources that
will have to be utilized or maintained or
reach a certain level of acceptable
human well – being.
1h(i) Geometric Rate. Assumes that Pn = Po (1 + r)t
the population grows in a manner
analogous to the growth of money
deposited in the bank, where the annual
interest on a principal is capable of
yielding additional interest in the
following year.
Average Household Income. A good catch-all or proxy
indicator of well-being because its shows whether or not a
family can afford the goods and services that the members
need.
Three basic methods for projecting the future level of
population:
a) Mathematical method - uses formulae such as the
geometric rate, exponential growth rate and the
participation or proportion method; and
b) Economic method - considers the relationship between
changing economic circumstances and population growth.
This method depends on projections on future
employment opportunities or job-population ratios in the
future.
c) Component or cohort-survival method - projects the
future population by various demographic components
such as age and sex, using information on births, deaths
and migration.
where:
Po: base of population the area
Pn: population of the area t years later
t: length of time interval in calendar years;
a and fraction thereof, between Po and Pn
r: rate of growth of the population per unit or what is
sometimes referred to as the annual population growth
rate (APGR) expressed numerically, not as a percentage.
To compute for r (rate of growth), rewrite the above
formula using logarithm as follows:
Pn
log
r = antilog PO -1
32
1h(ii) Exponential Growth Rate. This
is similar to geometric growth rate,
except that the interest or growth in
population occurs continuously rather
than annually.
1i. Social Clustering of the
Population. One way by which social
groups cluster themselves into more or
less homogeneous areas that offers the
advantage of providing a maximum
sense of social security that the
members feel within their adapted
territory. However, this can also lead to
rivalries between groups which could
ignite into open hostilities.
1j. Social Justice. The mechanisms
for the allocation and distribution of
society’s resources (institutional,
organizational, political and economic)
must be such that the opportunities of
the least advantaged groups and areas
are as great as they possibly can.
1k. Availability and Access to Social
Services. It is the concern of the social
sector to guarantee access to social
services by the target population either
by providing adequate social services or
by removing the different types of
barriers to access to these facilities and
services.
Pn = POert
where:
Po: base population of the area
Pn: population of the area + years later
e: constant 2.7183, which is the base of natural log
t: time interval in calendar years and a fraction
thereof between Po and Pn
r: exponential growth rate
To compute for r, rewrite the formula using the logarithm
as shown below:
Pn
In Po
r = X 100
Some of the bases for social clustering are as follows:
a) Household income - by this criterion, it is possible
to delineate areas which can be roughly designated as
marginal, low, medium and high income; and
b) Ethnicity, cultural or regional origins of the area’s
inhabitants.
The principle of social justice requires that the distribution
of income, wealth, and command over society’s resources
should be such that the:
1. needs of the population within the territory
are adequately met;
2. inter-territorial multiplier effects are
maximized; and
3. extra resources are allocated to overcome
special difficulties stemming from the physical and
social environment.
The following should be determined:
a) availability and accessibility of facilities;
b) if physically available, ascertain if wittingly or
unwittingly discriminates against certain groups on
account of their social status;
c) the type of services required taking into account the
individual's need according to certain stages in his lifetime.
33
2. The Local Economy (Economic Sector)
2a. Understanding the Structure of
the Local Economy. The local
economy consists of three sectors:
primary, secondary and tertiary. The
size of each sector represents the
relative share of that sector to the total
economic structure.
2b. Determining the Relative Size of
Each Sector
2c. Determining of the Level of
Urbanization. Given NSO's definition
of an urban areas, a barangay with
majority of its population engaged in
non-agricultural activities is considered
urban.
2d. Determining Structural Shift in
the Local Economy. Structural shift in
the local economy is shown by changes
in the relative share of each sector to
the total economy over time.
The Philippine Standard Industry Classification lists the
following activities under each sector.
a) Primary Sector
• Agriculture, livestock, fishery and forestry
b) Secondary Sector
• Mining and quarrying
• Manufacturing
• Electricity, gas and water
• Construction
c) Tertiary Sector
• Wholesale and retail trade
• Transportation, storage and communication
• Finance, insurance, real estate and business
services
• Community, social and personal services
This can be determined by measuring units such as:
a. Number of persons employed (or engaged)
b. Volume or value of output
c. Total amount of investment
d. Number of establishments
e. Gross value added
This is derived by taking the ratio of the combined
employment in secondary and tertiary sectors to total
employment, expressed in percent using the formula
below.
E (Secondary) + E (Tertiary)
Level of Urbanization = E (Primary + Secondary + Tertiary) X 100
A ratio below 50% indicates that the place is still
predominantly rural; above 50%, the place is deemed
urban. Comparing these ratios between two census years
will indicate the direction of change: whether the area is
growing more - or less - urbanized or it is in a steady state.
For instance, the increasing share of secondary and/or
tertiary sectors and a corresponding decrease in the share
of the primary sector indicate a trend towards
urbanization. When this shift becomes apparent, the next
thing to do is inquire into the causes of such shift to
determine whether the shift is beneficial or
disadvantageous to the locality, and to explore the range
of possible interventions to maximize the benefits or
minimize the disadvantages, as the case may be.
34
 2c. Determining a Town's
Specialization. A simple measure of
an area’s specialization is the location
quotient (LQ). The LQ is an indicator of
the relative importance of an area in
terms of selected industry types or
sectors. Policies to accelerate
economic growth can be formulated by
reinforcing the LGUs specialization in
certain activities/sectors.
2d. Identifying Linked Activities. The
economy may be diversified by
promoting businesses that have various
forms of linkages with the specialized
activity (identified above). Information
gathered about production linkages may
be used as basis for a more detailed
investigation into the feasibility of
attracting new firms that have either a
backward or a forward linkage with the
local industry to locate in the area.
7 An illustrative example of LQ is found in Table
Comparison must be shown between a smaller area and a
bigger area to which the smaller unit is a component part,
e.g. a town and its mother province of which it is a part.
The formula for determining LQ is as follows:
Area specialization variable
LQ = Area reference variable
Larger area specialization variable
Larger area reference variable
Note: The LQ is a ratio of ratios so the answer is an
absolute number. Any measurement unit or variable can
be used as the specialization variable and the reference
variable.7
The common types of economic linkages are as follows:
a) Backward – an activity or industry that provides input
materials and services to, say, agriculture, e.g. farm
implements, fertilizers, pesticides, certified seeds.
b) Forward – an activity that uses the output of a particular
activity, say, sugar milling, e.g. candies, soft drinks,
confectionery, is linked in a forward manner.
c) Vertical – where two or more firms produce components
of a final output, e.g. parts of a car
d) Horizontal – where two or more firms produce complete
products that are complementary in use, e.g. several
furniture shops each specializing in one type of furniture
like chairs, tables, cabinets, etc.
e) Diagonal – where a service cuts across different types
of firms, e.g. security services, insurance, messengerial or
forwarding services.
f) Residentiary – where services to the employees or
managerial staff are provided by the firm or households,
e.g. housing, recreation, food catering.
Backward and forward linkages are known as production
linkages. The others may be referred to as distribution or
as trade and services linkages. Other industries or
services that locate in the area which do not benefit from
production linkages are called ancillary industries.
2.5 above, using different specialization and reference variables.
35
 2e. Money Flow Theory. Considering
the geographical/territorial unit as a
closed spatial system similar to a water
tank that has an inlet pipe and an outlet
pipe, the amount of water that is stored
in the tank at any time is the net of the
inflow and the outflow assuming that
both inlet and outlet valves are open at
the same time. When the inflow is
greater than the outflow, there is net
storage; when the outflow is equal to or
greater than the inflow no storage is
possible. Similarly there are
transactions that lead to either an inflow
of money into, or an outflow of money
from the local economy.
3. The Physical and Spatial Base (Infrastructure Sector)
3a. Inventory of Land and Land Use.
Physical/spatial analysis begins with an
inventory of available and accessible
maps.
3b. Preparation of Thematic Maps.
Thematic maps should be made from
the same map and be traced in
transparent film to facilitate the map
overlay analysis to be conducted.
8 Please refer to table 2.3a above showing selected maps held by agencies.
a) The first step is to identify transactions in both the
public and private sectors and classify them under the
headings “inflow” and “outflow”.
b) The magnitude of each flow is calculated where it is
expected that either one of these two scenarios will
emerge: (1) There is hardly any storage; or (2) Storage is
sizeable.
The direct implication under scenario 1 is that there is no
possibility for the local economy to grow as outflow is
greater than or equal to inflow. The intervention can be
any one or a combination of the following policies: (1)
Increase the magnitude and rate of inflow; (2) Decrease
the magnitude and rate of outflow; and (3) Adopt both
measures at the same time.
Under scenario number 2, a sizable storage of money in
the area is not a guarantee that the local economy will
grow. Money acquires added value every time it changes
hands, thus money should be circulated for it to grow.
The policy implication is that the LGU must device
strategies and approaches to encourage local savings and
also promote investments by the local savers in the local
area either in the production of goods and services, in
distribution and facilitation of consumption, and even in the
financial markets.
Base maps with the appropriate scale should be used
(ranging from 1:10,000 to 1:50,000 depending on LGU
size) in the preparation of thematic maps to ensure
consistency of map scale.8
From the map inventory, the following municipal level
thematic maps can be prepared:
(a) Political boundaries – validation is necessary due to
possible recent changes;
(b) Land classification – ensure uniform map scales;
(c) Slope – can be derived from topographic map and
should conform with standard slope ranges prescribed by
the NLUC with the following legend:
• 0 – 3% Flat or level land
• 3% - 8% Level to undulating
• 8% – 18% Undulating to rolling
• 18% - 30% Rolling to moderately steep hills
36

3c. Measuring Area Coverage. This
requires that area coverages be
measured and tabulated.
• 30% - 50% Moderately to steeply mountainous
• Above 50% Very steeply mountainous
(d) Elevation – also derived from the topographic map.
Unless more refined categories are desired, only those
elevation ranges necessary to understanding the
differences in ecological characteristics may be delineated
such as the following:
• Below 500 m - Warm lowland
• 500 m – 1000 m - Warm – cool upland
• Above 1000 m - Cool highland
• (e) Physical Constraints – a composite of several
environmental hazards derived from different map sources
extrapolated to the extent relevant to the municipal level,
such as:
• Flood prone areas – derived from topographic map
• Areas vulnerable to tsunamis - NEDA Regional
Office maps used in the RPFP
• Severe erosion areas - BSWM
• Areas threatened by ground shaking - PHIVOLCS,
MGSB
• Areas threatened by volcanic hazards –
PHIVOLCS
• Areas threatened by saltwater intrusion – BSWM
(f) Present Land Use - prepared at two levels:
• General Land Use - derived from the BSWM,
HLRB, DENR and NAMRIA maps with
reconciliation needed; and
• Urban Land Use - generated by the LGU updating
and validation through suitable survey methods.
(g) Road Network and Infrastructures – derived from the
District Engineering Office, DPWH, BSWM, and other
utility agencies.
(h) Protected Areas for Agriculture – from BSWM
• (i) Protected Areas under NIPAS – PAWB, DENR
Equipment used for this purpose are the dot grid,
planimeter and computers. If land areas determined by
dot grid or planimeter are inconsistent with official figures,
these will have to be resolved by proper authorities, using
cadastral surveys for instance in resolving political
boundaries. Other area coverages found to be
inconsistent but are not as sensitive can be reconciled
through inter-agency consultations.
37
 3d. Map Overlay or Sieve Analysis.
Map overlay or sieve analysis is the
process of putting two or more thematic
maps on top of each other to determine
areas of convergence of certain
features of land contributing to the
suitability of the area to a particular
purpose and conversely, to eliminate or
screen out areas that are not suitable
for that purpose.
3e. Analysis of the Existing
Infrastructure Support. For many
non-engineer planners, this step
requires taking an inventory of existing
infrastructures and evaluating existing
systems in relation to the intended
population to be served, among others.
9 Please refer to description of Sieve Mapping described above as a method used for land accounting.
Two major objectives of sieve analysis:
a) Determine areas within the municipal territory that are
suitable for future urban expansion. This is done in
conjunction with the land accounting procedure9; and
b) Delineate decision zones, determining, among other
things, the areas for reforestation or rehabilitation,
incompatible land uses to be corrected, conflicting
interests to be reconciled, and proper location of
infrastructure and other capital investment projects.
a) Taking an inventory of existing infrastructures classified
into:
• Economic support infrastructure - irrigation
systems; power generation (e.g. Mini-hydro);
roads, bridges, ports; flood control and drainage;,
telecommunications
• Social support infrastructure - schools, all levels;
hospitals, all types; waterworks and sewerage;
public socialized housing; facilities for socially
disadvantaged groups; cultural and sports facilities
• Public administrative support - local government
support; facilities for justice administration; facilities
for public safety and protection; public parks and
assembly areas
b) Evaluating existing systems in relation to the intended
population to be served. Evaluation criteria include:
• Appropriateness. Matching the type of
infrastructure available with the level of settlement
in which it is located and with the service area and
population the facility is intended to serve.
• Adequacy. This has to do with the capacity and
quality of the infrastructure in relation to the
demand for its use.
• Level of Utility. The extent to which the facility is
put to use.
• Accessibility. Access may be understood in
physical terms, i.e., distance or travel time (also
travel cost) from the user’s place of origin, or the
38

4. Environment and Natural Resources Sector
4a. Natural Resources Inventory
4b. Environmental Assessment.
When undertaking environmental
assessment, the ecosystem approach,
rather than the sectoral, is preferable.
design and quality of construction of the facility.
Flashy and stylish designs and sophisticated
equipment are normally associated with high
income and high social class clientele and may
naturally screen off the low income groups from
availing of such services and utilities.
c) Providing indicators to decision-makers about what
alternative actions to take with respect to a facility or
service such as whether or not to:
• freeze the expansion of existing facilities
• extend or expand the existing service
• put up new needed facilities.
d) Formulation of location requirements or criteria for new
facilities in conformity with existing or anticipated land
uses in accordance with the chosen urban form or spatial
strategy.
e) Formulation of allocation criteria taking into account the
hierarchy and functions of settlements.
f) Assessment of the effects and side effects (pre- and
post-evaluation of impacts) of infrastructure development.
This includes assessment of impacts on the following:
human values and social satisfaction; employment;
environmental integrity; impact on public financial
resources; and impact on private sector participation.
Standard inventory data include:
• existing / remaining stock in terms of commercial
value/ volume by latest reckoning
• the rate of flow or exploitation
• the products and services derived from a particular
source, and
• the protection and conservation measures that are
in place.
• include pertinent laws, administrative issuance and
other relevant policies.
Sources of data include maps, aerial photographs and
satellite images.
Environmental assessment follows the Pressure-State-
Response (P-S-R) logic of presentation: (a) Pressure
pertains to the different demands by human society on a
given ecosystem for their survival and well-being; (b)
State refers to the existing conditions of the ecosystem as
39

5. Institutional Sector
5a. Local Government's Capability for Assessment will center on the following10:
Planning and Management. Analysis on
this sector focuses on the planning
function as an important aspect of
governance.
a result of the application of human pressures as well as
threats, human and natural, to the very survival of the
ecosystem itself; and (c) Response includes existing
mitigation, rehabilitation, protection and conservation
measures that human society has so far devised to ensure
the sustainable use and serviceability of the ecosystem.
a) Structure and functions of the LDC
b) Technical capability of the LPDO to carry out its
mandated functions and responsibilities
c) Assessment of the fiscal management capability of
the LGU
d) Development orientation of the Sanggunian as
evidenced by their legislative output, the extent of
representation and participation in local
governance of non-government sectors, and
e) Vertical and horizontal linkages of the LGU with
other government agencies.

Other tools to characterize and analyze the Institutional

Sector:
a) Community-Based Monitoring System (CBMS)-
[please refer to description above]
b) Local Governance Performance Management
Systematic (LGPMS)-[please refer to description
above]
c) System for Competency Assessment for Local
Government (SCALOG). This tool measures the
organizational competencies of an LGU using a 5-
point rating scale of the various performance
indicators of the fourteen (14) service areas spread
over the five (5) LGPMS performance areas. It is a
self-assessment tool to promote continuous
improvements in LGUs through the identification of
organizational strengths and areas for
development that can be addressed through
capacity building efforts.

Preparation of Base Maps. The base map will serve as the working map where
different land use categories of the LGU will be delineated. A topographic map provides
important physical information and reference points for the base map while a cadastral map
gives more accurate parcellary boundary information of the LGU. For uniformity and ease in
overlaying techniques, use of the following standard scales from the GIS are suggested:
1:5,000/1:10,000/1:25,000 and 1:2,000/1:4,000 (for enlarging specific areas in the LGU).

10 RPS pp.64-66 and the CDP Guidebook pp.61-63 outline some guide questions in characterizing the Institutional Sector.
40
Road networks and surface drainage (water bodies) shall be properly delineated in order to
facilitate the conduct of land use survey. Coastal and marine areas should be reflected in the
maps, showing the boundaries of the municipal water.

Density Categories for Density Maps. It is recommended that the density categories
used in density maps include 5 persons per square kilometer (or 500 persons per hectare) as
the upper limit of the first or second category. For example, a density map could have the
following density categories: 0-5, 5-10, 10-15, 15-20, and 20 & above, persons per square
kilometer. The 0-5 persons/sqkm is a useful indicator of overall urbanization trends: a density
of 5 persons/sqkm is an estimate of the lower density limit of urban areas such that areas that
fall below this limit (0-5 persons/ sqkm) may be considered rural while those above it (5 and
above persons/sqkm) may be considered as urban areas.

Slope Categories. Slope ranges that show the distribution of the LGUs land
resources. Recommended slope categories are: 0-3%, 3-6%, 6-12%, 12-18%, 18-30%, 30%
and above. Alternative if the recommended categories are not available: 0-8% (reflects the
developable range), 8-18%, 18- 30%, 30% and above (steeper and protection-oriented slope
range).

Slope Criteria for Land Suitability Maps. The slope criteria below indicate land
suitability but more detailed suitability criteria, as shown by BSWM Land Management Unit
maps, should be considered for land use planning. Note that the criteria do not take into
account settlement or built-up areas, although from a planning point of view these are
typically confined to slopes below 18%.

0-3% slope (0-8% if terraced): Irrigated rice/freshwater fishponds

0-8% slope: Cultivated annual crops
0-18% slope: Perennial tree and vine crops
0-18% slope: Pastures (if land is prone to erosion}
0-30% slope: Plantations
0-50% slope: Pastures (if land is stable)
0-50% slope, <1000 meters elev: Production forests

General Tools

Problem Analysis. A tool that utilizes the information derived from the database and
the local development indicators (LDI) that have been aptly organized for planning purposes.
(1) A list of problems, each formulated as a negative condition, is drawn up. (2) Agreement is
reached as to which among these are the causes and the effects. Immediate and remote
causes are differentiated; (3) The convergence point for all the problems identified is referred
to as the “core problem” and becomes the over-riding concern that will have to be addressed;
(4) Verify the cause and effect relationship and agree on the soundness and completeness of
the problem tree. The output of the problem analysis provides the basis in determining
relevant programs, projects, policies or legislations that will respond to the identified key
issues and concerns.
41
 Problem-Finding Analysis. An analytical tool that involves a three-step process: (1)
Information-Generation-uses the LDIS as the basic source of information and asks “What do
the figures mean?” which would entail looking at comparisons of data over periods of time,
over geographical units or vis-a-vis benchmarks; (2) Extracting Intelligence-entails probing
into causes or explanations behind observed conditions and asks “Why?”; and (3) Further
exploration of the implications of the observed condition if no significant intervention is
exerted by anyone anywhere to change the situation, asking the question, “So what?”.
Implications may be positive, which means the observed condition may be considered a
potential, while a negative implication should be regarded as a problem.

Solution-Finding Analysis. This entails extending the problem-finding analysis

further to determine appropriate policy interventions. Policy interventions need not be limited
to targeting the negative implications of observed conditions. Positive implications need to be
maintained and strengthened through policies that seek to sustain the beneficial effects.

Figure 2.1 Problem Finding Analysis

L OCAL DEVELOPMENT INDICATORS SYSTEM

OBESRVED CONDITIONS
(Generati ng Information)

EXPL ANATIONS OR IMPL ICATIONS WHEN NO INTERVENTION

CAUSATIVE FACTOR S IS INTRODUCED (Further exploration of
(Extracting Intell igenc e) the observed conditi ons: So what?

POL ICY OPTIONS

Table 2.6 Sample Output of Problem- and Solution-Finding Analyses

LAND AND WATER

Observed Explanations Implications When Policy Options
Conditions (Causes) Unresolved

Land Classification • Over 84% of • Small area devoted • Work for

• Area of total land area is to agriculture & other release of some
alienable & forestland with crops forestlands into A
disposable (A & some areas • Small taxable &D
D) land is very probably areas (low income for • Accelerate
small misclassified the municipality) cadastral survey
• Occupants of & titling of A & D

42
 untitled lands are lands
considered informal
settlers & have no
security of tenure
• Investors hesitate
to develop untitled
lands

Water is a common • Absence of • Dangerous • Embark on

means of transport roads and especially during massive road and
among Barangay bridges sough seas bridge building
residents connecting to far • Slow and poor • Maintain a
flung barangays mobility municipal-
• Cannot be relied government
upon during operated ferry
emergencies service that is
• Limited capacity for multi-purpose
large volumes of • Construct a
goods and products to pier for safe,
be transported reliable docking

ECT/S. Four basic lines of inquiry in analyzing the planning environment. The basic
intent is to steer analyses into specific courses of action that take into account the strengths
and weaknesses of the province and other strategic considerations:

• Existing levels: Where are we? Examination of the current state of the
core elements;
• Trends: Where are we headed? Determine the future directions and
historical trajectory of existing levels given certain scenarios and assumptions;
• Comparisons: How do we compare with desired condition and/or other
benchmarks? Compare levels and trends internally (e.g., inter-municipal),
externally (e.g., inter-province or relative to the country as a whole) or with other
benchmarks of provincial performance;

Strategic significance: So what? What do existing conditions and trends mean with
respect to our vision, needs and available resources.

43
 Fishbone Analysis. Fishbone analysis is a way of establishing, identifying, analyzing
and presenting possible causes connected with a problem or condition. The tool is focused
on presenting the contents of a problem, rather than its history. Critical steps begin with
deciding on the problem area to investigate and writing this on the head of the fish. A broad
arrow is drawn from the left side to the right side with one side connected to the fish. From
this main arrow, branch arrows are drawn showing the main factors or major possible causes
of the problem. Detailed factors of each group of major causes are added by drawing smaller
twig arrows from the branch arrows. Connecting more arrows to the twig arrows mean that
the causes of the problem have additional underlying causes. In summary, the fishbone
represents the “causes”, while the head is the “core problem.”11

Problem Tree. A visual representation of how problems are linked and interrelated in
a situation. It defines which appear to be causes and effects of an identified core problem and
the other problems that appear to result therefrom. The series of “problem trees” summarizes
the issues, concerns, problems and constraints identified in the sectoral and inter-sectoral
workshops. The problems are organized into cause-effect relationships with the lower boxes
representing the causes (“roots”) and the upper boxes showing the effects (“foliage”). All
problems and issues are presented from the perspective of the local government (institutional
sector) so the easier for it to identify the appropriate intervention measures. This tool is
dependent on the availability of data and information. [CDP Guidebook p.77] This is the
inverse of the goal or policy tree12.

SWOT Analysis Technique. Conducted through a workshop, SWOT Analysis is a

method that enables a planner to generate feasible alternative strategies for the LGU through
an assessment of the present conditions, characteristics, and current state and utilization of
the LGUs natural/physical, human and fiscal resources. The SWOT Matrix is a strategy-
formulation matching tool that results in the development of four types of strategies:
Strengths-Opportunities (SO) strategies, Weaknesses-Opportunities (WO) strategies,
Strengths-Threats (ST) strategies, and Weaknesses-Threats (WT) strategies. This will enable
the planners to formulate and pursue (i) defensive-type strategies aimed at overcoming
weaknesses and avoiding external threats (i.e., the WO); and (ii) strategies that will improve
on the LGUs internal weaknesses by taking advantage of external opportunities (i.e., the WT).

Approaches in Analyzing the Planning Environment

A. Core Elements of the Planning Environment. The core elements are (1)
Population; (2) Economic Activity; and (3) Physical Resources. These elements interact and
their dynamics result in a local environment that ultimately defines the quality of life. This is
manifested through the income, expenditures, and services enjoyed by the community. All of
these are physically expressed in the way the land and other physical resources are utilized.
As with the Ecological Profile, required data should have historical, geographical and sectoral
coverage.

11 An example is shown in Appendix 1.6.

12 A tool also used in Strategy Formulation; please see Appendix 1.4 for description.
44
 B. Socio-economic Profile (SEP) or the Ecological Profile. The Socio-economic
Profile is a basic reference about all possible aspects of the locality. The Ecological Profile is
an expansion of the SEP to account for the bio-physical and ecological dimensions of the
planning area. At the minimum it presents five development sectors: (1) Population and
Social Services (Social Sector); (2) Local Economy (Economic Sector); (3) Bio-Physical Base
(Environment Sector); (4) Infrastructure Sector; and (5) Institutional Capacity of the LGU
(Institutional Sector). Information is presented or analyzed in terms of three dimensions:
temporal or time, spatial or geographic, and sectoral.

C. Local Development Strategy Approach and Guiding Principles. The LDS

approach is both a dynamic planning process and a product that promotes partnership among
the various stakeholders in a locality in coming up with priorities, strategies and actions to
achieve a common vision. It is anchored on the four guiding principles: (1) Livability,
answered by proposed strategic plans for the question, “What can be done to ensure a
healthy and dignified standard of living for the LGUs residents?”; (2) Competitiveness, “How
can the LGU be more competitive in the global economy?”; (3) Bankability, “How can the LGU
be more financially sustainable?” and “How can public-private sector partnerships be
promoted and/or enhanced?”; and (4) Good Governance, “How can the LGUs management
be improved?” and “How can accountability, integrity and transparency be made an integral
part of the LGUs management?”

D. Describing Economic Activities and Economic Conditions. The strength (or

weakness) of an economic activity can be measured in terms of the distribution of: (a) value
of production, (b) employment, or (c) income, such that a sector or industry is strong if it has a
large share of total value of production or of total employment or of total income. It is possible
that a dominant sector will be dominant in all three categories although its share of value
produced is likely to be less than proportionate (e.g., agriculture). On the other hand,
economic conditions should be compared and interpreted through their real, as opposed to,
nominal values because the latter (which include the effect of inflation) may not show whether
production actually increased or decreased. In the absence of both, even anecdotal
indicators, e.g., personal observations of industrialists may still be useful in understanding
existing conditions and trends in order to identify appropriate PPAs.

E. Identification of High Potential Industries. A section in the development and land

use plans should identify industries which have high potentials for contributing to local
economic growth. The identification process involves three steps: (1) Identifying industries
where the province is efficient or has an advantage compared to other producers in other
provinces, (2) Identifying industries that are generating or have a high potential to generate
local employment, and (3) Identifying industries that are experiencing or have the highest
potential to experience growth, by being competitive and increasing market share. Probability
analysis is one tool that can be employed in this process.

45
 F. Probability Analysis. This method employs five probability matrices that yield
indicators of concentration and specialization, location quotients, as well as analytical figures
such as histograms and share diagrams.

A. Data Matrix. The process starts with the data matrix (M1) which shows the data
from which the rest of the tables will be derived. For an illustrative example,
consider rows containing the geographical areas under consideration (provinces)
while the columns contain the attributes (economic sectors/industries).

B. Joint Probability Table. The joint probability table (M2) is derived directly from
the data matrix (M1). Each cell in M2 is computed by dividing the corresponding cell
in M1 by the grand total (Σ Σ). The row and column totals of M2 provide a summary
of the distribution of income by sector and by province.

C. Concentration and Specialization Tables. The concentration table (M3) is

derived by dividing each cell in M1 by its column total. It is interpreted by column (by
industry); it gives an indication of the relative concentration of an industry among the
provinces. (Given an industry, how is it distributed across the provinces?). The
specialization table (M4) is derived by dividing each cell in M1 by its row total. It is
interpreted by row (by province); it gives an indication of the extent to which a
province specializes in a particular industry. (Given a province, how are the
industries distributed within?).

46
D. Location Quotients. A location quotient is a specific type of independence
association measure. As implied by its name, a location quotient provides an
indication of the extent that the two variables are independent (or associated) with
each other. It can provide clues on the production or market orientation of an industry
with respect to a geographical area, which can be verified through other information. A
table of location quotients (M5) may be derived from the Joint Probability Table (M2).
Each cell in M5 is computed by dividing the corresponding cell in M2 by the product of
its row and column totals.

The values of location quotients may be interpreted as follows: LQ = 1: Perfect

independence (no association between the sector/industry and being in the particular
province); LQ > 1: Positive association; over-representation; LQ < 1: Negative
association; under-representation; LQ = 0: Mutually exclusive situation (sector/industry
does not exist in the province).

LQs can provide clues on the production or market orientation of an industry

with respect to a geographical area. An industry that is overrepresented in the
province may be an indication that it is producing more than the requirements of the
province and thus may be export-oriented.

47
E. Histograms and Share Diagrams. Histograms and share diagrams provide
graphic representations of concentration and specialization values which are more
convenient and easier to interpret. These may be derived from rows or columns of
the Concentration (M3) and Specialization tables (M4). A histogram is simply a bar
chart of data from a row or column where the row or column total is 100%. A share
diagram, on the other hand, is a similar chart from a row or column where the row or
column does not total 100%.

48
 G. Factors Influencing Competitiveness and Efficiency. The following local factors
may have positive as well as negative impacts on the industries identified and are collectively
intended to serve as a source of ideas, among others, for identifying PPAs that can promote
economic growth in the local economy. Thus, enhancing growth potentials may involve
providing resources as well as removing obstacles (physical, legal, and technical) to greater
efficiency. The following factors should be considered: (a) Physical resources - natural and
other physical inputs, unique location-based advantages, accessibility, etc.; (b) Human
resources - labor skills, training capabilities, immigration, etc. by sex as much as possible;
(c ) Knowledge resources - IT-related resources; (d) Capital - financial or investment
resources; (e) Infrastructure - existing or potential that may enhance any of the above
resources).

H. Local Service Standards. The benchmarks by which the local indicators may be
compared with when conducting an assessment of the planning environment. Note that these
service standards are subject to change and should be viewed as examples to be verified
with latest standards of the sectoral agencies or associations involved.

49
Table 2.7 Local Service Standards

50
51
52
 Core Indicators for Population and Development (PopDev) Planning at the Local
Level. Indicators used in assessing the planning environment as well as in plan monitoring
and evaluation. The formula for the computation of these population and development
indicators are presented below while the definition and sources are presented in Chapter 8 of
this volume.

Table 2.8 Formula for Selected PopDev Indicators

No. Indicator Formula

1. Crude Birth Rate (CBR) CBR = (B / P) x 1,000
where:
B = number of live births in a specified year
P = midyear population
2. Crude Death Rate (CDR) CDR = (D / P) x 1,000
where:
D = number of deaths for a particular year
P = midyear population for that particular year
3. Total Fertility Rate (TFR) TFR = 5 Σ ASFRi

where: the age-specific fertility rate or ASFRi = Bi

Wi
Bi = number of live births occurring to women in age group i in a
given year
Wi = midyear population of women, irrespective of marital status
in the age group i
4. Maternal Mortality Rate MMR = Dm x 100,000
(MMR) B
where:
DM = number of maternal deaths due to complications of
pregnancy, childbirths and the puerperium
B = total live births
k = 10, 000 or 100,000
5. Population Growth Rate APGR = (X-1)*100
(PGR) where:
X = antilog [log (Pt/Po)]/t
Pt : Projected total population after t years
Po : Current or base year population
t : number of years projected
In Excel format, APGR may be computed by using the following
formula: = (((POWER(Pt/Po),1/t))-1))*100
6. Percentage of Population by Population by 5-yr Age Group by Sex
Five-Year Age Group and by =
Sex Total Population
8. Labor Force Participation LFPR by Sex = LF by Sex x 100

53
 Rate (LFPR) by Sex Pop
15-64
where:
LFPR = Labor force participation rate
LF = total number of employed and unemployed persons by sex
but looking for work
Pop = total population of persons aged 15 years old and
15-64
over
9. Percentage of Paved Roads Percentage of Paved Roads National =
(National, Local) Total Length of Roads National x 100
Length of Paved Roads National

Percentage of Paved Roads Local =

Total Length of Roads Local x 100
Length of Paved Roads Local
10.1 Elementary Cohort Survival Pupils Grade Vit
Rate (by Sex) = ________________ x 100
Pupils Grade I
t-5

where:
Pupils Grade VI = no. of pupils enrolled in Grade VI in year t
t
Pupils Grade I = no. of pupils enrolled in Grade I in year t-5
t-5
10.2 Secondary Cohort Survival Students
Rate (by Sex) Fourth Year t
= _________________ x 100
Students
First Year t-3
where:
Students Fourth Year t = number of students enrolled in Fourth
Year in year t
Students = number of students enrolled in First
First Year t-3
Year in year t-3

11. Doctor Per Population Ratio Number of Doctors

= ___________________
Mid-year Population
12. Hospital Bed Per Population Number of Hospital Beds
Ratio = _______________________
Mid-year Population

54
13. Percentage of Births
Attended By Health
Personnel
17. Percentage of Households
with Sanitary Type of Toilet
Facilities
18. Percentage of Households
with Sanitary Type of
Garbage Disposal
19. Crime Rate By Type
(Crimes vs. Persons,
Crimes vs. Property)
21.1 Employment/
Unemployment Rate
21.2. Underemployment Rate
22. Average Income Per Family
23.1 Simple Literacy Rate (SLR)
23.2 Functional Literacy Rate
(FLR)
24.1 Percentage of Malnourished
7-10 Years Old Children
25. Percentage of 0-6 Months
Old Children with Low Birth
Weight
Number of births attended by health personnel
= _______________________________________ x 100
Total number of births in a given period
Number of households with sanitary type of toilet facilities
= _________________________________________ x 100
Number of households
Number of households with sanitary type of garbage disposal
= _____________________________________ x 100
Number of households
Number of Crimes
= _______________ x 100
Population
Number of employed persons
= ___________________________ x 100
Total number of persons in the labor force
Number of unemployed persons
= __________________________ x 100
Total number of persons in the labor force
Number of underemployed persons
= ________________________________ x 100
Total number of persons in the labor force
Total income of families
= ____________________ x 100
Total number of families
Population aged 10 years and over who are simple literate
= ________________________________ x 100
Population aged 10 years old and over
Population aged 10 years and over who are
functionally literate
= _______________________________ x 100
Population aged 10 years old and over
Total number of children who are
moderately and severely underweight
= __________________________________ x 100
Total number of children examined
7-10 yrs old
Percentage of children =
LBW
Number of children # 100 x 100
Number of children aged
0 - 6 mos. old
55
 where:
Children = children with low birth weight
LBW
26. Morbidity Rate of 1ST/ 2ND/ Morbidity Rate =
3RD Leading Cause cause
Number of cases due to a particular cause of illness x 100
Mid - year population

Poverty Indicators. List of Core Local Poverty Indicators (CLPI) which captures the
multi-dimensional aspects of poverty. The CLPIs were adopted by the Community-Based
Monitoring System (CBMS), and are being used to monitor the localization of the Millennium
Development Goals (MDG).

Measures of Poverty. The measures of poverty are derived from its definition.
Poverty is defined as a state of being, where there is (a) lack of income (i.e., means)
necessary to consume a basic bundle of goods and services; or (b) a shortfall in consumption
of a basic bundle of goods and services necessary to do basic functions (outcomes); or (c )
subjective valuation (perceptions).

A. Means-Based Poverty. Inability to acquire basic needs for decent quality of life.

Indicators and Definitions Formula

1. Poverty Incidence (%). Percent of
families (or individuals) whose incomes
fall below the Poverty Threshold as
defined by NEDA and/or cannot afford
in a sustained manner to provide their
basic needs of food, health, education,
housing and other amenities of life.
Note, the formula is simple but does
not account for improvement within
the poor
2. Subsistence Incidence (%).
Percent of families (individuals) whose capita income less than the per
incomes fall below the Food Threshold capita Food Threshold
3. Poverty Gap (%). Measure of
amount needed to eradicate poverty;
average income shortfall, i.e.,
shortfall=0 if non-poor
Families (or population) with per Cost of basic food &
capita income less than the per non-food reqmts =
capita Poverty Threshold P11,605/yr per cap;
________________________ P 4,835/month per
family
Total number of families
(population)
Families (or population) with per Cost of food
required to satisfy
nutritional
________________________ requirements =
P7,829 (Philippines
2000)
Total number of families
(population)
Total income shortfall of families below poverty threshold
(expressed in proportion to the poverty line)
_____________________________________________
Total number of families

56
4. Income Gap (%). Measure of
amount needed by poor families to
eradicate poverty. This, together with
the income gap measures the depth of
poverty
Total income shortfall of families below poverty threshold
(expressed in proportion to the poverty line)
_____________________________________________
Total number of poor families

5. Severity of Poverty (%). Measure Total of squared income shortfall of families below poverty
of inequality among the poor; average threshold (expressed in proportion to the poverty line)
of the squared income gap of the poor; _____________________________________________
assigns higher weights to the poorer
among the poor Total number of families
6. Gini Ratio. Measure of inequality 1 = perfect equal; 0 = perfect unequal
in income distribution (all
families/individuals)
7. $1/day Poverty Line. Amount in pesos needed to buy a basket of goods and services that $1
would buy in the US.
Note: The poverty and food thresholds used in estimating the above indicators are produced annually.
Indicators 1 to 6 are generated every three years using the FIES. Pre-2003 poverty statistics covered only
national and regional indicators. Starting 2003, provincial statistics have been added.

B. Outcome-Based Poverty

1. Human Development Index (HDI)

Composite of development outcomes:
- Health: life expectancy
- Knowledge: functional literacy
- Standard of living: per capita income
2. Human Poverty Index (HPI)
Composite of poverty outcomes:
- Short life: % of people expected to die before 40
- Lack of education: % of adults illiterate
- Lack of access to resources: 5 of people without access to health services & safe
water, and % of underweight children under 5
3. Capability Poverty Measure (CPM) – early version of the HPI
4. Gender-Related Development Index (GDI) – HDI-adjusted for gender inequality
5. Gender Empowerment Measure (GEM) – measures gender inequality in key areas
of economic and political participation

57
Table 2.9 Core Indicators (CLPI) for Population and Development (POPDEV) Planning at
the Local Level

58
 Poverty Profiling and Analysis. This tool aids planners in understanding urban
poverty, setting poverty reduction objectives, and formulating poverty reduction strategies.
Following are the important steps: (i) Begin by determining “who are the poor?” by examining
the LGUs profile; (ii) In consideration of the following guide questions, “what do the poor
need?” and “what are the manifestations of poverty?”, reach a consensus on a standard
minimum specification for an accurate and reliable urban poverty profile; and (iii) Respond to
the question “where are the poor?” through simple poverty mapping which entails designing a
spatial database to generate the poverty profile and formulate the data gathering
methodology. Poverty mapping is locating and marking the urban poor communities in
corresponding city maps using available data.

Causes of Poverty. The lack of access to the “basic needs of food, health, education,
housing and other amenities of life” characterizes poverty and the extent to which these
needs are made available to the poor, through growth and through the distribution of the
benefits of such growth to the poor, will determine if poverty is reduced accordingly. Other
factors affect the welfare of the poor, apart from sustainable economic growth: (a) Education
- e.g., education, particularly if complemented by infrastructure that enhance access, can
effectively reduce poverty by providing more opportunities for higher income-generating
activities; (b) Policy environment - e.g., terms of trade for agriculture may be biased against
local production thus negatively affecting the incomes of local farmers; (c) Investment in land
quality -. e.g., irrigation facilities increase production efficiency and capacity; (d) Agrarian
reform - increases the assets of the poor; (e) Governance - e.g., political dynasties hurt the
poor; and (f) Transportation - high transport costs are poverty traps.

Policy Responses to Poverty Alleviation. Poverty alleviation strategies of various

international institutions have evolved since the 1970s can be summarized in three general
policy areas or “pillars” identified by the Asian Development Bank:

A. Pro-Poor Economic Growth. While growth in general generates employment and

income and is a necessary condition for poverty reduction, pro-poor economic growth can
further reduce poverty through labor intensive projects and activities, by giving priority to
employment creation, increasing labor mobility, enhancing access to credit by SMEs, and
other measures that serve to remove biases against the poor.

59
 B. Social Development. Social development refers to strategies that target basic
social services for the poor—those involving human capital development and social
protection, including an effective population policy program that would ease the demand for
scarce development resources.

C. Good Governance. Good governance is a necessary condition to carry out pro-

poor growth and social development activities. It deals with increasing access to basic
services by the poor through reduced corruption, greater accountability, increase participation,
and sound macroeconomic management.

Local Policy Framework for Poverty Reduction. In the Philippines, the Social
Reform and Poverty Reduction Act (RA 8425) provides a policy framework for addressing
poverty in the country. This framework involves the following policy areas: (a) Asset Reform;
(b) Improved Access to Human Development Services; (c) Increased Employment and
Livelihood Opportunities; (d) Enhanced Participation in Governance and Institution Building;
and (e) Increased Social Protection and Security From Violence.

Demand-Supply Balancing Process Tools.13 These are tools used in the first of the
five set of activities in the CLUP formulation process. This comprises of three steps which
cannot be a subject of participatory consultation, but can be more effectively performed by
smaller technical working groups, especially from the land use (environment) and physical
(infrastructure) development sectors:

A. Methods for Projecting Future Demand for Urban Development. These

methods calculate how much land will be needed for future urban development or expansion -
usually based on the projected size of the population using certain assumptions of person-
land ratio or population density.

1. FAO Urban Land Distribution Formula. By regressing the size of the urban area
against the urban population of selected LGUs, the FAO came up with a range of distribution
of the various land uses for every 1,000 urban population. This formula is used for
determining total demand for urban land but may not be used as standard allocation
requirement for any specific urban land use. The ranges are shown below:

FAO Urban Land Distribution Formula

Urban Land Use Land Distribution Range (ha)

Low High

Residential 4.0 6.0

13 Land use planning tools from the RPS.

60
 Industrial 0.4 1.5

Commercial 0.2 0.5

Administrative 0.2 0.5

Educational 0.3 0.6

Health 0.1 0.2

Open space 0.5 3.0

Total 5.7 12.3

Average 9.0

2. Urban Density Method. This method is applicable for highly urbanized LGUs for
which simple per capita allocation standards are not very useful because of differences
between daytime and nighttime populations. The urban density method requires the use of
time-series aerial photographs or urban land use maps covering at least two time periods.
From the photo/map the ratio of the urban built up area to the total area of the LGU for each
year or period is taken. Then the annual rate of change is taken by dividing the difference of
the two ratios by the number of years interval between the two photo/map sources. Assuming
the same rate of change continues, the future area of the urban built up area is projected from
the later photo/map as the base using the geometric or the exponential growth formula.14

A more refined variation expresses urban land density in terms of population density or
person-land ratio. Using the same set of time-series photos/maps, the person-land ratio is
derived by dividing the population of the LGU by the size of the built up area for each year the
photo was taken or map prepared. The annual rate of change is then computed using the
geometric or the exponential growth formula. Using the same formula, the estimated future
person-land ratio at the end of the planning period (e.g., usually 30 years for the CLUP) is
derived. The estimated total future demand for urban land is finally derived by dividing the
projected population of the LGU by the projected person-land ratio.

3. Current Urban Density. This approach assumes that future land allocation for
urban use shall be based on existing urban density regardless of the growth in urban
population. The future land requirement is derived by multiplying the current urban density by
the projected population. The derived sum will be redistributed according to the existing share
of each land use category to the total urban land requirement.

14 Described in Table 2.5 showing the list of indicators for the Ecological Profile.
61
 4. Historical Settlement Land Take-Up. This can be used as a benchmark in
estimating amount of land required. Generally, for example, if we are interested in the
amount of new settlement land required to accommodate the additional population between
2000 and 2010, such that: P = Additional population 2000-2010; D = Population density in
2000; S = Additional settlement land required in 2000-2010, then S<D. P/D is a benchmark
for S. Given an estimate of the additional population P and knowing the current population
density D will provide a benchmark for future land requirements. It should be stressed,
however, that the benchmark is not a planning target and that it assumes that conditions
during the previous planning period remain substantially the same in the near future.

5. Special Studies. The most accurate method of determining demand for urban land
is to conduct special studies to derive the projection figures from surveys of firms, institutions
and households.

Table 2.10 Bases for Projecting Demand for Urban Land Use

For industrial use (manufacturing)

a. ratio of industrial space to projected total population
b. forecast increase in industrial establishments, by type
c. forecast levels of industrial employment, by type
d. forecast changes in industrial floor space ratio

For commercial use (wholesale, retail, services)

a. forecast number of establishments
b. forecast of employment
c. employment to shop floor ratio
d. ratio of commercial area to built-up areas

For residential neighborhoods (including areas for dwelling and related uses)
a. additional housing requirements consistent with affordability levels
b. areas for public low-income housing

For institutional areas (public and semi-public)

a. based on prescribed standards for each sector
b. based on special studies

For parks and open space

a. based on service area
b. locally determined policies

6. National Agency Standards. Land for future expansion of urban and other uses is
projected on the basis of the given standard area/space requirement per sector multiplied by
the population growth index, i.e., future space requirement = space standard x growth index,
where the growth index is an appropriate factor to which standards are applied. Specifically, it
refers to forecast levels of housing stocks, employment, production and facility requirements.
62
It should be noted however that this simple formula is not applicable to all types of land use
activities. Space requirements for some uses such as government or civic centers, art
centers, museums, and open space systems (greenbelts, land reserves) are best determined
by special studies and on a case to case basis. Also, initial computations using space
standards are usually adjusted to include allowances for flexibility (say 20% addition to the
computed area requirement) and to conform to availability of appropriate locations and
desired density/intensity.

B. Methods for Assessment of Land Supply

1. Simple Land Accounting. A table that shows the extent of distribution of each land
use category may be helpful before estimating the available supply. The assessment of
supply of buildable land can be performed by working out a simple accounting table that nets
out from the total land area of the LGU those lands that ought not to be built over, as shown in
the land accounting matrix below.

Available land supply can also be presented mathematically as follows:

Land supply for development/future development areas =
TLA – (PCA+UA+SLU)a/
• where:
• TLA = Total Land Area of the LGU
• PCA = Protection/Preservation and Conservation Areas
• UA = Urban Use Areas, i.e., the built-up areas or those areas
with urban activities/land uses
• SLU = Special Land Uses that are significant and unique to the
LGU, e.g., agro-industrial, tourism areas designated for projects in the
pipeline
• ___________
• a/ PLPEM Volume 2 uses the following categorization in accounting for existing
land distribution: (a) built-up or settlement areas, (b) protection areas; (c) production
(non-built up areas; and (d) other areas.
Table 2. 11 Existing Land Uses Area, Distribution, and Percent to Total

LAND USE CATEGORIES AREA PERCENT TO

( in hectares ) TOTAL
• Urban Use Areas
Residential
Commercial
Infrastructure/Utilities
Institutional
Parks/playgrounds and other recreational spaces
Industrial
• Agriculture
• Forest and forest use categories
• Mining/Quarrying
63
• Grassland/pasture
• Agro-industrial
• Tourism
• Other uses / categories
• Cemeteries
• Dumpsites/Sanitary Landfills
• Buffer zones/greenbelts
• Idle/vacant lands
• Reclamations
• Water uses
• Nipa swamps
• Mangrove Forest
• Tourism (recreation/resorts)
• Settlements on stilts
• Infrastructure (e.g, ports, fish landing)
• Aquaculture and marine culture (e.g, fish cage/ fish
pens seaweed culture, etc.)
• Others, specify (e.g. river sand/gravel, quarrying,
coral reef seagrass beds)
TOTAL 100%

Table 2.12 Estimation of Supply of Urban Land (Land Accounting)

Total area of city/municipality __________ha

Subtract: __________ha

a. Protected areas
i. NIPAS
strict nature reserves
national parks
natural monuments
wildlife sanctuaries
protected landscapes/seascapes
resource reserves
other protected areas (e.g. virgin forests)
ii. Non-NIPAS areas
reserved second growth forests
mangroves
buffer strips/easements
freshwater swamps/marshes
critical watersheds
b. Other reservations
i. military and civil reservations
ii. mineral and geothermal reserves
iii. water courses and surface water

64
 c. Environmentally critical areas
i. water-related hazards
ii. earthquake-related hazards
iii. volcanic-related hazards
iv. erosion-hazards
d. Protected agricultural areas
highly restricted agricultural lands - SAFDZ
e. Heritage sites

Gross potential supply of urban land __________ha

Subtract: __________ha

a. existing built-up area

b. production forests
i. timber lands
ii. industrial tree plantations
iii. communal forest

Net buildable area __________ha

Add: (When buildable area is insufficient____________ ha
to meet the projected demand)

a. vacant urban land

b. urban renewal/redevelopment area
c. areas for increased density
d. new reclamation areas
e. conditionally restricted agricultural areas
f. moderately restricted agricultural areas
(as a matter of last resort)

Total land supply for urban use __________ha

2. Sieve Mapping. Sieve mapping is a necessary support to the land accounting

procedure because some of the areas that are not suitable may overlap and are counted
twice or many times over. With the aid of maps a particular area with several overlapping
constraints is counted only once under one constraint, avoiding multiple counting.

The procedure involves preparation of as many criteria maps of uniform map scale as
there are constraints to urban development that can be identified from various thematic maps.
The unsuitable areas are blocked off with a uniform density of dots or uniform tonal value of
light gray. When these criteria maps are overlaid one on top of the other, the composite map
will show areas of varying shades of darkness, from pitch black to completely white areas,
indicating areas that are the least suitable (darkest) to the most suitable areas (lightest) for
urban expansion15. An ocular inspection should be made by the planning team of the white
areas to determine whether there are any more constraints that are not reflected in the maps.
After the ground validation, the resulting composite map will be used in the design of
15 This classical method can be done faster and more accurately by GIS.
65
alternative urban forms.
3. Suitability Analysis. This is a site selection method that helps determine the best
location for a new site and services scheme. The first thing to be done is to formulate criteria
for suitable development areas as shown in the table below. The appropriate base data can
then be gathered and interpreted for the specific study. These can be in the form of aerial
photos, topographic map and other thematic maps where aspect maps can be derived. An
aspect map is a map dealing with only one factor. It describes specific properties that can be
used for further comparison with other aspects. From each aspect map, overlays are made
with the unsuitable areas painted a dark color. Then all map layers are put together (overlaid)
on a light table where only the suitable areas (areas that have no negative aspect) will light
up.

C. Methods for Matching Demand for Land with Available Supply. The objective of
this step is to check if the likely areas of growth and expansion as identified in Step A are in
conflict with the supply of land as identified by protection areas.

1. Measures for Augmenting Land Supply. The matching of demand with supply
results in either of two scenarios: that an adequate supply or an excess over requirements
exists, or that a deficit situation obtains. The surplus scenario poses no immediate problems.
When a deficit situation exists however the following measures to augment supply may be
considered preferably in the same order of priority: (a) infill of vacant lands; (b) increase in
density or densification; (c) urban renewal/redevelopment; (d) reclamation; and (e) agricultural
land conversion.

Table 2.13 Suitability Analysis for Future Development Areas

66
 The augmentation process is an iterative one. After the effect of each option is added
to the estimated supply, the new total is matched with the demand. When a deficit still exists,
then the next supply augmentation measure is considered incrementally until a match is
reached.

2. Demand Management Strategies. Strategies that may be applied in the event that
a deficit still exists after all the augmentation measures are considered: (a) improved rural
services; (b) opening alternative growth centers; and (c) relocation or resettlement.

3. Criteria For Built-Up Expansion Areas. A checklist of typical criteria for identifying
settlement areas as part of the process of integrating and reconciling the demand and supply
for land:

• Areas along established urban growth directions;

• Areas that can be provided with basic services and utilities;
• Ideally within the 0-3% (or 0-6% or 0-8%) slope range;
• Reasonably accessible from existing built-up areas and other
employment centers through existing or proposed roads and other transportation
facilities;
• Within A&D lands but not in environmentally-critical areas;
• Not in other protection areas; and
• Consistency with City/Municipal Land Use Plans.

4. Types of Land Use Conflicts. It would be important to identify and resolve existing
and potential land use conflicts at this stage as some of these are unavoidable. These
include (a) built-up land uses encroaching into (i) agricultural and other production areas; (ii)
forest protection areas; and (iii) protection areas in built up-areas; also (b) agricultural and
other non-built-up production areas encroaching into (i) protection areas within other
production areas; and (ii) forest protection areas.

Methods of Land Use Survey

A. Foot Survey. Area inspection is done on foot (walking). Foot survey is

recommended for high-density areas to produce precise survey checks, specifically for the
urban areas or poblaciones. [CLUP p.40] This is conducted by determining the pace factor
(see description below), and noting the exact use of land areas and structures in the zone
being surveyed. This information should be recorded on the survey sheet and plotted on the
working map.

B. Windshield Survey. A survey is done while riding a vehicle. It involves a rapid

survey of land uses particularly in low density areas. It is used for a general land use survey
of the entire LGU. [CLUP p.40] The following are needed in the conduct of this survey: an
odometer set to zero, a working map and topographic map/aerial photo to record land uses
and note changes, a compass to ensure correct orientation on the working map, and a pair of

67
binoculars. With the use of reference points like rivers, roads and other landmarks,
boundaries of specific uses may be approximated on the topographic map/material
photograph. The odometer must be read to determine the approximate the distance where
land use changes occur along the highway. Boundaries may also be counterchecked with
recent aerial photographs. Survey findings should then be transferred on the base map with
the use of appropriate color in the delineation of land use categories (please refer to table
2.14 on this below).

C. Global Positioning Survey. Using handheld Global Positioning System (GPS)

receivers is the best way to perform actual ground survey and ground truthing. Available
aerial photographs and satellite imagery, combined with GIS technology, are used to derive
and analyze land use data. The GPS Survey begins with ensuring that all settings in GPS
receiver are correct and appropriate and that satellite and weather conditions for GPS reading
are satisfied. Get the GPS reading on the points of observation and record these (usually the
latitude and longitude) with a description of the points being occupied. Transfer readings on a
base map by either manual plotting or by uploading the data from the GPS to the computer.
Some GPS receivers can be uploaded with the point to be verified and others can store digital
maps so validation of boundaries can be done in the field.

Pace Factor and Frontage Distance. A tool applied to calculate frontage distance for
each structure in the block/zone being surveyed by foot. It is computed as follows: (a) A
fieldworker walks at least three times along a spread-out 50-meter tape measure and records
the number of paces in every direction; (b) The number of paces is added and divided by the
number of times the fieldworkers walked along the tape;(c) The pace factor is calculated by
dividing 50 meters by the average number of paces; and (d) The frontage distance is the
number of recorded paces multiplied by the pace factor.

68
Table 2.14 Land Use Categories and Color Coding

69
 Migration Analysis. The primary objective of migration analysis is to determine the
extent and flows of migration in the LGU. This may be especially relevant in planning for the
service requirements of the LGU which depend on the number of people requiring such
services but who are not reflected in snapshot population size data. Key questions to be
addressed in migration analysis for land use plans are (a) whether the LGU is a net in-
migration or out-migration community; (b) the major sources of in-migrants and their major
destinations in the LGU and whether these destinations were part of those identified as fast
growing; and (c) sources of out-migrants and their major destinations. Data on current and
previous residence may come from NSO's regular census while maps showing migration
origins and destinations and a table with supporting data on migration may be included.

Urban-Rural Analysis. The primary objective of this tool is to describe the urban-rural
distribution of the population. Indicators used include, population, population densities and
growth rates of both the urban and rural areas, supported by tables and maps of urban-rural
population distribution, by barangay and by sex, if possible, and based on latest census. For
this purpose, an urban area can be defined as an area where the population density is at
least 500 persons per square kilometer (below this would be the rural area). These
definitions are different from (but approximate) previous official definitions. It also allows for
historical comparisons using standard NSO census population and land area data, but only in
the case of barangays (not cities and municipalities).

Land Classification Diagram. Shows a summary of land classifications as indicated

in the Philippine Constitution as well as in PD 705 (Revised Forestry Code of the Philippines).
While it is desirable to have the complete range of land classifications, the key and most basic
classifications that should be derived and delineated in the map are the Alienable and
Disposable and Forest Lands.

70
 Tools Used in Defining a Hierarchy of Settlements. The overall objective of this
exercise is to describe and understand the existing structure of the network of settlements
(cities and municipalities) in the province as a key consideration in the formulation of
provincial development strategies and projects. Structure is determined by the functions and
roles of the settlements. These functions determine how each settlement relates to other
settlements (whether it serves as a market, production, educational, or administrative center,
for example).

A. Histogram16. The following is a recommended process in defining a hierarchy of

settlements using a histogram: (1) Construct a histogram (Figure 2.3) showing population
size by city/municipality. Distinct groups among the settlements may be identified based on
their sizes (since size is usually an indicator of function). (2) Modify the hierarchy to combine
cities and municipalities in the province that function as metropolitan areas; (3) Expand the
hierarchy to include cities or municipalities outside the province but which are functionally
integrated with cities and municipalities of the province. For this purpose, large or distinct
differences in the population sizes of the connected settlements and the presence of major
transportation corridors across provinces may indicate strong external connections and thus
possible functional integration; and (4) Briefly describe each level of the hierarchy. Identify
any local or regional significance (e.g., capital city, historical town center, metropolitan area).
Hierarchies already defined in the RPFP and the local development plans of cities and
municipalities may be used as references.

B. Scalogram. An additional guide to the histogram that may be used to describe the
hierarchy of settlements in the province.
16 With another example used under Probability Analysis described above.
71
 Figure 2.2 Sample Hierarchy of All Cities and Municipalities in
the Country (Excluding Metro Manila), 2000 Census

Figure 2.3 Sample Histogram Indicating Scalogram-Defined Hierarchy

C. Population Bubble Map. Map that graphically shows the relative population sizes
of each city/municipality to help assess which cities or municipalities are functioning as part of
a metropolitan area. For example, small towns beside big towns or cities typically rely on the

72
latter for their service requirements and are prime candidates to function as part of a
metropolitan or metropolitanizing area. This map also serves to describe the existing
settlement hierarchy.

Figure 2.4 Sample Population Bubble Map (Existing Settlement Hierarchy)

Densities and Growth Relationship. This is an insightful way of describing growth

characteristics of the LGU as it relates to discussions on densities. There are four possible
relationships:

73
 Tools for Land Use Planning17

A. Developability Analysis. This deals with determining the accurate information

about the supply of available land within the LGU jurisdiction to prepare a land use plan.
These have four types:

1. Land Suitability Analysis (LSA)18. LSA is an in-design evaluation method for

planning areas that retain important natural environmental features. The outcome of the
valuation depends to a large extent on expert judgment based on scientific knowledge. This
evaluation method is not comprehensive but rather limited to alternative sites within a
specified study area for a particular land use or set of land uses. It is a procedure for mapping
the variation in relative suitability for a particular land use across the jurisdiction or planning
area.

17 As outlined in the CLUP Guidebook p.90.

18 Another suitability analysis tool is described below.
74
 Box 2. Steps in Conducting Land Suitability Analysis

Step 1: Pick the land use to be analyzed.

Step 2: Determine the site attributes that determine suitability for that particular
use.

Step 3: Weigh each individual attribute in terms of relative importance for

suitability.

Step 4: Rank (rescale) the internal characteristics of each attribute.

Step 5: Multiply each attribute rank by the attribute weight.

Step 6: Define the rules for the model to combine weighted attributes into a
single suitability scale.

Step 7: Reclassify the resulting range of numerical scores into a simplified

composite score.

Step 8: Transform the outcome into a suitability matrix by choosing a set of

patterns to represent the different degrees of suitability.

Step 9: Generate a statistical report showing, for each suitability class, the site
identification, number of acres, and other relevant data.

2. Carrying Capacity Analysis. A method of studying the effects of population growth

and urban development on ecological systems, public facility systems, and environmental
perception. The procedure for conducting this analysis varies according to the system whose
capacity is at issue.

3. Committed Lands Analysis. Identifies where excess community service capacity

exists and where the cost of additional distribution for each new customer is no greater than
the value of the increased efficiency in producing the service.

4. Market Forecasts. This is an attempt to project future land development. Simple

forecasts rely on projections of past trends, population and economic growth along with
information on development regulations, land use plans, and forthcoming development
proposals, to estimate the location, type, amount, and cost of future development.

B. Perceptual Analysis. This relies on people’s perceptions which are important

determinants of travel behavior, locational choice, social relationships, and political actions.
Surveys are employed in order to maintain systematic perceptual information. The four
aspects of perception are:

75
 1. Legibility. This refers to the clarity of its spatial organizations and ease with which
people can “read” its structure.”

2. Attractiveness. This is the degree to which it is positively perceived. From a non-

professional perspective, visual quality must be the most important influence on how people
experience and respond to urban areas and planning initiatives.

3. Symbolism. This refers to the meanings that people attach to various parts of the
urban area.

4. Quality of Life. A synthetic perceptual measure based on resident ratings of local

trends of change over time in such factors as open space, urban design, crime traffic, schools
and housing affordability.

Other Supplemental Land Studies in CLUP Formulation

A. Vacant Lands Study. The main purpose of this study (which is usually included in
the land use survey) is to classify vacant lands within the planning area as to suitability for
development. The computed and tabulated areas from the map can be compared with
identified needs for new development areas. Vacant lands are classified according to
topographic and drainage characteristics and availability of improvements near such vacant
lands. Vacant lands may be classified as prime lands, 0-15% in slope, and are in close
proximity to water, sewer and other utility lines. Such vacant lands are suitable for industrial,
commercial, residential, and other urban uses.

B. Flooding Areas Study. Three types of flood levels are established in more
complex flooding studies. These are: (a) “Highest flood of record” - areas along river or
stream inundated by highest known flood for which records are available; (b) “Standard
project flood” - potential flood areas based on coincidental of the most critical conditions; this
approximates highest flood of record for the regional area; and (c) “Maximum probable flood”
- maximum flood of reasonable regional expectancy taking into account present knowledge;
this flood is the most extensive of the three. Given the staggering costs in terms of flood
control works and the withdrawal of more land from development, it would be more realistic to
plan for the eventuality of a standard project flood by establishing floodways for the first two
flood levels and phase proposed flood control works in stages.

C. Structural and Environmental Quality Survey. The study of the quality of the
urban environment and of man-made structures (residential, commercial, industrial, and
institutional) is aimed at identifying the so-called urban renewal area. Urban renewal actions
are of two types: (a) Rehabilitation – the improvement or restoration of identified blighted
areas; and (b) Redevelopment – clearance and rebuilding of areas which are in more
advanced stages of blight. Conditions of blight are categorized into two types – simple and
complex forms of blight. The presence of simple forms of blight usually calls only for
rehabilitation measures. *The presence of too many forms of simple blight and of complex
forms of blight call for the more drastic measures of clearance and redevelopment. For land
76
use planning purposes, a low-ratio sampling survey (i.e., using relatively only a small portion
of the blocks or districts as sample) of urban areas would be sufficient. Based on the items in
the survey schedule, urban areas can be categorized into: 1) Areas in good or acceptable
condition; 2) Rehabilitation areas; or 3) Clearance and development areas.

D. Land Values Study. The land values study goes into an investigation of the
structure of land values, upward or downward graduations and trends of change in these
values. Assessed value figures from the Assessor's Office may be refined based on
comparison with known selling prices and the approximate percentage deviation of assessed
value from market values. With the use of map showing approximate land values in the
planning area, proposed locations for projects can be evaluated for feasibility in terms of land
costs, especially where private investment is envisioned such as for housing or commercial
development.

E. Studies of Aesthetic Features of the Planning Area. Studies of aesthetic are

most directly related to the amenity considerations involved in land use planning. Aesthetic
features are determined on the basis of perceptual considerations – as these are observed in
such terms as beauty, pleasantness, sense of spaciousness, and historical value. Since these
considerations are largely subjective in nature, it is important to establish some acceptable
and valid criteria for determining which features of the locality are to be reserved for aesthetic
considerations.

Guide Questions on Perceived Causes or Sources of Degradation. A list of

questions that can facilitate the conduct of consultations with key stakeholders usually with
the elderly in the community who have good knowledge or have experienced natural
calamities, disasters, or other environmental degradation that affected/is affecting the
community: (a) type/s of environmental degradation, calamity or disastrous events such as
flashfloods, erosion, earthquakes, etc.; (b) extent of damage to lives, properties, and impact
to the community; (c ) frequency of occurrences; (d) perceived causes; and (e) suggestions
on how the community and the government can help mitigate such occurrences.

Development Issues. Development issues are problems directly related to symptoms

or indicators of development. They are identified based on the following: (a) Sectoral
indicators that fall short of accepted standards in assessments of the planning environment;
(b) Inputs or feedback from stakeholders, including sector/industry representatives, during
consultations ; (c) Inputs or feedback from city/municipal, regional or national levels; (d)
Local initiatives especially those emanating from the provincial community’s vision.

Participatory Issue Identification. The tool uses a very simple but enjoyable activity
in surfacing top-of-mind issues and concerns of stakeholders. The output is a shortlist of
issues the planning team should focus on. The process requires a facilitator and a team of
documenters.

Participants are divided into groups. Each participant shares with the group his/her top
three issues/concerns. The facilitator asks each participant to read aloud one issue and
77
directs a *documenter to post the card on the board, or in the easel sheet. No
selection/screening, editing or correction is made on the card while the issues are being
posted. The issues are numbered and integrated to avoid duplication. After everyone has
contributed his/her ideas, the facilitator makes a second round of the process, then a third
round. From the resulting long list of issues, the facilitator makes a shortlist by identifying and
grouping similar issues/concerns. Specific issue clusters are then assigned to each working
group for them to identify the “mother issue” or the strategic topic using a set of criteria the
group itself may draw up.

Public Consultations. Public consultations are events organized by the local

government to validate their outputs with the locality's stakeholders. In most cases, these are
conducted on a weekend, in order to get as many participants as possible, and are held in
large public spaces. Notices are sent out to the participants 3-5 days before the activity. The
number of participants ranges from 50-200, depending on the “publicity” generated by the
local government in encouraging the stakeholders to attend. Consultations are structured over
a half-day or 1-day period. The program is oftentimes opened by the Local Chief Executive,
with an explanation of the objectives of the activity, followed by a presentation of the planning
team’s outputs by the LCE or a team member, and an open forum or workshop session. The
local government can be creative in organizing other types of activities to gain the interest of
the stakeholders19.

CHAPTER 3. APPROACHES AND TOOLS IN SETTING OF GOALS, OBJECTIVES

AND TARGETS

Description and Comparison of Vision, Goals, Targets and Objectives. As one

moves from vision to goal to objective/target: (a) the time frame becomes shorter; (b) the
coverage becomes more specific both in terms of sectoral coverage as well as area
coverage; and (c) the object being compared increasingly narrows down its concern to
something more specific, from being an aspirational expression of an ideal state (vision) to
being a response to a specific issue.

Table 3.1 Summary Description and Comparison of

Vision, Goal, Objective, Strategies, Program and Project

Vision Goal Objective/ Strategy Program Project

Target
Long Term Medium to Short term Short to long Short to Short to
long term term medium term medium term
Province-wide, Intersectoral Sectoral Sectoral/ Sectoral/ Sectoral;
multi-sectoral intersectoral; intersectoral; Location
Location specific Location specific

19Other forms of public consultation are used in participatory Goal Formulation; see Appendix 1.3.
78
 specific
Aspirational Responds to a Responds to a States how Translates Subset of
general specific goal/objective is strategy into program
problem problem to be achieved action
Summarizes Broad Specific; Guides PPA
the ideal state statement Measurable; identification and
Achievable; implementation;
Realistic; Derived by
Time bound looking at drivers
(SMART) of problems

Characteristics of a Good Vision

A. Features. (a) Graphic - must conjure a vivid image in your mind , i.e., stimulates
the imagination (e.g., “Garden City”-green surroundings; “Trading Hub”– full of economic
activity); (b) Specific – finite, descriptive, specific geographic area (e.g., “Seafood Capital of
Panay Island” or “Trading hub of Northwestern Mindano”); (c) Time-bound-includes a
timeframe for achieving the vision; sets a deadline (e.g., “Vision 2020”, “By 2010…”); (d)
Simple but catchy - avoid complicated words that are difficult to remember; use familiar words
or those in the vernacular; and (e) Shared - based on the common values of the residents.

B. Major Components. The two major components of a good vision reflect the LGUs
dual function as a political subdivision of the national government and as a corporate entity:
(a) the “outward-looking component reflects the desired role of the LGU or the best
contribution it can make to the development of the nation; and (b) the “inward-looking
component” shows the desired state of the LGU as an environment for its inhabitants to live &
where they can make a living. This component can be further analyzed into elements which
correspond to the development sectors (as enumerated in the SEP above). Three descriptors
or adjectives that articulate the most desired end state of the sector may be chosen and
success indicators generated for each descriptor.

79
 Figure 3.1 Sample of a Vision Statement Showing
the Outward- and Inward-Looking Components

We envision Dagupan City as the premiere center of the

“Outward –
north for education, information technology, health,
looking”
commerce and trade, aquaculture

with God-loving, well-informed, healthy, self-reliant, Qualities of the people as

empowered and vigilant citizenry individuals and as society

who live in a balanced, attractive and safe environment State of the natural &
“Inward – built environment
looking”
and a globally competitive, diversified and environment- Nature of the local economy
friendly economy

under a firm, decent and progressive leadership.” Capacity of local government

leadership

Table 3.2 Sample Vision Supported by Success Indicators

DESCRIPTOR SUCCESS INDICATOR

Element: People as Society

Empowered + Public Consultation made as an integral part of the decision-making
process
+ PO/NGO participate in the planning, implementation, monitoring, and
evaluation of government programs and projects
+ Vigorous advocacy for public interest issues (e.g., human rights, social
justice, consumer protection, gender equality, environmental concerns and
the like)
Vigilant + Disaster-prepared citizenry
+ Government and private sector resources immediately mobilized in times of
crisis/emergency
+ Corruption pre-empted and prevented
Self-reliant + Basic needs met
+ Low number of families below poverty level: 10%
+ Low number of mendicants: 0.1%

Economic Sector
Competitive + Booming bangus industry
+ Adequate volume of bangus produced
+ Sustained good quality of bangus
+ Application of modern technologies for good quality production
+ Adequate cold storage and processing facilities
+ Application of modern breeding process
+ Established an active and participative collaboration between the City
Government and fisherfolk organizations
80
 + Systems of database established
+ Monitoring and enforcement of regulation implemented
+ Increased export receipts in bangus export industry
+ Active distribution of basic commodities, machinery and equipment
+ Increased number of
+ Warehouses, depot
+ Regional offices located in the city
+ Specialty shops
+ Residents employed
+ Trading establishments
+ LGU to be known as tourist-friendly city
+ Increased number of tourist arrivals recorded
+ Increased number of tourist facilities and services offered
+ Cultural celebrations visited by tourists showcasing heritage and
local artists
Diversified + Increased number of financial institutions and banks
+ Increased number of educational institutions
+ Increased number of health centers
+ Increased number of service establishments
Dynamic + Specific areas along main thoroughfares regulated and provided for
informal sector
Environment- + Exclusive use of organic fertilizers and pesticides
friendly + Maximum 10% of surface water utilized for aquaculture
+ Crop rotation

Tools in Visioning and Goal-Setting Exercise

A. Guide Questions for Evaluating the Vision. (a) Does it capture the
ideas/descriptions generated?; (b) Is it easy to remember/memorize?; (c) Is it inspiring,
motivating and powerful?; (d) Can it be felt or experienced?; (e) Does it capture the
aspirations of the community, and is it shared by all sectors of the community?; and (f) Is it
attractive, ambitious and achievable?

B. Vision Elements and Descriptors. The elements of a vision consists of (a)

qualities of the people as society; (b) nature of the local economy; (c) state of the natural
environment; (d) condition of the built environment; and (e) capacity and qualities of the local
leadership. The vision formulation exercise asks participants to characterize these five
elements by using “descriptors” or adjectives and identifying corresponding success
indicators for the latter. The vision statement is then formulated from the stakeholders'
declaration of (i) the role they desire for their community in relation to the “outside” world; and
(ii) the descriptors they assigned to each vision element. Crafting the final form takes into
consideration the characteristics of a good vision statement.20

20 Please refer to Table 3.2 above showing a sample vision supported by descriptors and success indicators.
81
 C. Success Indicators. Identified indicators that measure the extent of achievement
of desired results reflected by goals and objectives. Indicators define how performance will
be measured qualitatively or quantitatively. Sources of indicators include the LDI system,
CBMS and the LGPMS.

D. Goal as Inverse of a Problem. *A technically-derived goal often elegantly

symmetrical such as the “problem tree” and its inverse, the “goal or policy tree.” [RPS p.87]
Given the vision-reality gap (see description below), treat the gaps as problems, then, invert
or negate the problems to become goals.

1
GOAL =
PROBLEM

E. Table Planning. Technically-derived goal which proceeds from a thorough analysis

of the problems and issues using the formula:

PROBLEM = GOAL + IMPEDIMENTS TO ACHIEVING THE GOAL

Therefore GOAL = PROBLEM – IMPEDIMENTS

In application, this is akin to the practice of deciding to produce a certain product on the
basis solely of market trends and forecasts, without considering consumer tastes and
preferences.

F. Issue-Driven Planning Process. Goal formulation may also be undertaken using

the long method: (i) Determine the vision-reality gap (see description below). Consider the
gaps as issues or “observed conditions” ; (ii) “Extract” intelligence by determining the
implications and explanations for the observed conditions; (iii) Formulate policy options and
state these in the form of goal statements.21

G. Objectives Analysis/Objective Tree. Using this tool, the hierarchy of problems is

transformed into a hierarchy of objectives using a diagram called objectives tree that identifies
means-ends relationships between and among the objectives. The objective tree describes
the scenario after solving the problems.

21 This is similar to the Problem-Finding Analysis tool found in Appendix 1.2 above.
82
 Figure 3.2 Sample Objective Tree of Deteriorating Forest Condition

REDUCED DAMAGE TO
CROPS

REDUCED FLOODING

ENDS
REDUCED OVERFLOW REDUCED MINIMIZED SOIL
OF RIVERS SILTATION EROSION

IMPROVED FOREST
CORE OBJECTIVE
CONDITION

KAINGIN CONTROL OF
PRACTICES SMALL SCALE
MEANS

PREVENTED MINING

FORST LIVELIHOOD
COMMUNITIES PROJECTS
ORGANIZED PROVIDED

H. Vision-Reality Gap Analysis. The vision-reality gap is the “space” or “distance”

between the desired state of the area by sector, and the current situation of the sectors.
Vision-Reality Gap Analysis finds answers to the following questions: “How much and to what
extent are these desired future states already attained?”, “How much remains to be done to
fully achieve the desired end?” It takes off from the results of the visioning exercises and the
data generated in the Ecological Profile and the Local Development Indicators.

I. Current Reality Rating Scale. The vision-reality gap may be expressed

qualitatively or quantitatively. Ratings, as shown in the Current Reality Rating Scale can be
assigned to describe the degree of attainment or non-attainment of a particular vision element
vis-à-vis the success indicators assigned to each descriptor by vision element. [CDP
Guidebook p.70] Another way of determining the gap is to deduct the current rating from the
desired rating. For example, the LGU envisions a 100% reduction in malnutrition rate. If the
current situation shows that the malnutrition rate is, say, 40%, then the LGU still has to exert
more effort to totally wipe out malnutrition.

Table 3.3 Current Reality Rating Scale

Rating Interpretation
0 Absolutely nothing has been done about the goal
1

83
 2 Something is already being done to achieve the goal but the level
3 of attainment is still on the low side
4
5 The goal is half accomplished
6
7 Goal is more than half-fulfilled but still short of full attainment
8
9
10 The goal is completely attained
N No data available

Sources of Development Goals

A. General Welfare Goals. Section 16 of the Local Government Code (RA 7160)
mandates LGUs to promote the general welfare, which it defines in a manner that represents
an expanded version of the public interest (described below). This is a rich mine of ideas of
what local governments ought to be doing, of justifications for the things that they do, and of
criteria and standards whereby they measure the effectiveness of their programs. In a
workshop or focus group discussion, the participants, considering one goal at a time, are
asked: “What do you want to see occurring or happening in your city/town if this particular
general welfare goal is already achieved or operational?”

Box 3. General Welfare Goals (Section 16, RA 7160)

1. Preservation and enrichment of culture

2. Promotion of health and safety
3. Enhancement of the right of the people to a balanced ecology
4. Encouraging and supporting the development of appropriate
and self-reliant scientific and technological capabilities
5. Improvement of public morals
6. Enhancement of economic prosperity and social justice
7. Promotion of full employment
8. Maintenance of peace and order
9. Preservation of comfort and convenience

B. Universal Concept of Public Interest. Public interest is a broad concept that can
be broken down into smaller components such as the following: (a) Public Health and Safety
- through prevention of conditions hazardous to the physical well-being of the community and
84
provision of services and facilities promoting improved health & safety; (b) Convenience -
proper positional arrangements and relationships between and among different land uses; (c)
Economy - related to convenience, translates physical ease into efficiency; and (d)
Environmental Amenity - pertains to the perceptual aspects of surroundings or the
pleasantness of the environment as a place in which to live, work and to spend one’s leisure
time.

C. Regional Physical Framework Plans (RPFP). The general goal of each RPFP is
to “achieve such a spatial arrangement and location of land use activities that would effect
rational distribution of the population, guarantee access by the population to basic services,
ensure optimum sustainable utilization of resources, and protect the integrity of the
environment. These are very general and timeless goals that probably are acceptable to the
widest spectrum of society. But they should be restated in terms more appropriate to the local
area.

D. National Framework for Physical Planning (NFPP). The following NFPP vision
and principles may be adopted by local areas but they must be rephrased to reflect the
conditions and circumstances at local levels: (i) NFPP (2001 – 2030) Vision of “National
development anchored on sustainable development and growth with social equity”; and (ii)
NFPP Principles of Food Security, Environmental Stability or Ecological Integrity, Rational
Urban Development, Spatial Integration, Equitable Access to Physical and Natural
Resources, Public-private Sector Partnership, People Empowerment, Recognition of the
Rights of Indigenous People, and Market Orientation.

E. Local Communities. The ultimate sources of development goals should be the

local residents themselves. These goals are derived by means of participatory processes.

Approaches to Participatory Goal Formulation

A. Barangay Consultations. These involve representatives of people and sectoral

groups and hence are more efficient. Sometimes a few contiguous barangays can be batched
together and representatives of the people there can be consulted. An advantage of
barangay consultations is that they allow participants to join in discussions of issues which
are not possible in household surveys. Has the same disadvantage as household surveys
discussed below.

B. Brainstorming. Under this technique, every idea is written down as stated. There
is no discussion or evaluation to impede the free flow of ideas, as idea quantity, not quality, is
deemed important. Ideas that build on previous ideas or even contradict them are
encouraged, including silly and even absurd ideas, as there could be something of value in
them.

C. Household Surveys. *A participatory goal formulation process that has the

advantage of reaching people directly, although this requires more manpower and logistics to
undertake. The disadvantage is that surveys tend to elicit narrow and parochial concerns
85
from respondents.

D. Visualization Card System. The card system is applicable in small working groups
to generate a list of ideas useful for information and expertise gathering and for building
consensus. The structure of questions that the group is dealing with will be presented and
agreed in advance. Each question may be answered in a different color of card. Cards are
displayed on walls or pin-boards and a discussion is encouraged on each of the proposed
ideas, which enables the group to organize the information and synthesize conclusions. The
card system also facilitates easy reporting. [CDS p.3-6]

E. Nominal Group Technique. The nominal group technique is an alternative to

brainstorming that uses idea generation, group discussion and systematic voting to help a
group choose a preferred solution or course of action. A problem statement is constructed,
and participants work independently to write as many possible solutions to the problem as
they can. The answers are recorded verbatim on a chart board until all ideas are reported and
recorded. Participants then discuss each idea to ensure that they are all understood.
Participants individually select a few (3-5) ideas from the chart pad that they like best and
write them on cards, one idea per card. The vote is tallied and ranking of the ideas is
calculated and reported.

F. Round-Robin Inter-Sectoral Consultations. A form of consultation that takes up

cross-sectoral concerns that can be address jointly by relevant sectors; fashioned as inter-
sectoral dialogues between pairs of sectors. [RPS pp.29-32] -with a box of sample issues
common to sectoral pairs]

Figure 3.3 Inter-Sectoral Consultations

SOCIAL

5 1
8
ENVIRONMENTAL ECONOMIC
7 6
10 9
4 2

LAND USE/INFRASTRUCTURE 3 INSTITUTIONAL

The exercise will result in several issues and opportunities which may be presented
using the same matrix used in the Problem- and Solution-Finding Analysis described in
Appendix 1.2. This exercise should be repeated with other sectoral pairs.

86
 Table 3.4 Economic-Social Inter-Sectoral Issues

Observations Explanations Implications Policy Options

• Encroachment • Absence of a • Loss of breeding • Relocate
of informal system to monitor grounds for fish squatters
settlements into encroachment on
mangrove areas public properties
• Unavailability of • Loss of natural • Provide
affordable housing defense to coastal affordable housing
units soil erosion units to squatters
who will be
relocated
• Decrease in fish • Establish a
production system to
periodically
monitor
encroachment on
mangrove areas

G. Seminar-Workshops. This is a participatory goal formulation process that is more

systematic and purposive and more selective in terms of participation than household surveys
or barangay consultations. What seminar-workshops lack in direct participation, they
compensate in the quality of outputs.

CHAPTER 4. APPROACHES AND TOOLS IN THE FORMULATION OF

STRATEGIES AND POLICES

Technical Approaches

Fishbone Analysis. [Please refer to description in Chapter 2 of this volume]

Flowchart. Flowchart is used in analyzing or defining a process and to detail the
actions and decisions within it. It is also employed as a method of identifying problem points
in a process. Symbols are used in representing the sequence or relationships among actions
within a process. The group decides on standard flowchart symbols to use. The flowchart
begins with the ‘start’ terminator box at the top of the work area. Then add the first box below
the ‘start’ box and use the appropriate flowchart symbol. Use an arrow to link the two boxes.
The process is repeated until all activities are represented within the process.
Force Field Analysis. Force Field Analysis is a useful technique for looking at all the
forces or factors for and against identified options. By weighing these factors in relation with
the identified options, the team may be able to come up with strategies or a possible
combination of strategies targeted in fulfilling the gap between the LGUs vision and its
present situation. The analysis begins by listing all forces for an option in one column, and all
forces against the option in another column and assigning a score to each force, from 1
87
(weak) to 5 (strong). A diagram is drawn showing these identified forces with numbers beside
it to reflect the size of each force. The diagram should visually aid the group in formulating
strategies that will address an identified option for the LGU. Here, the planning group has two
choices: to reduce the strength of the forces opposing an option or, to increase the forces
pushing that option.
Objective or Policy Tree. This tool requires identifying strategies to achieve desired
effects or outcomes. Each strategy has its own set of program components and for each
program, any number of project and service components can be identified - which makes it
also a good source of programs, projects, services and legislation.22

Figure 4.1 Sample Objective Tree

Educational Access to safe HHs equipped w ith

Malnutrition reduced
attainment raised w ater assured sanitary toilets

ADEQUATE HH INCOME

Identified
Increased farm Better prices of Alternativ e Strategies
Identified y ield produce liv elihood serv ices
av ailable
Programs

Post-harv est Irrigation sy stem Competitiv e pricing

Inv estors attracted
facilities put up cionstructed of traders

Decision Tree. Together with information on the LGUs economic base, local
employment growth, and competitiveness, the decision tree may be used as a guide to
identify the industries or industry clusters with the best potentials for contributing to local
economic growth.

22 This is the same tool used in Goal Setting, found in Appendix 1.3. Samples are shown here as they apply to strategy formulation with
corresponding programs/projects.
88
 Figure 4.2 Sample Decision Tree

Problem Tree/ Problem Analysis. [Please refer to description in Chapter 2 of this

volume]

SWOT Analysis. [Please refer to description in Chapter 2 of this volume]

Participatory Approaches

89
 Affinity Diagram. The Affinity Diagram facilitates the participatory process of strategy
formulation by allowing a team to creatively generate a large number of issues and
organize/summarize them into natural groupings. The Diagram helps in understanding the
essence of a problem to enable better solution formulation. Following are the important steps
in generating the Affinity Diagram: Metacards are provided each member on which to write
their ideas (written in phrases) about the identified issue (in statement form). The ideas are
then sorted into related groupings. For each grouping, a header card is generated through
quick team consensus on word or phrase usage. The final Affinity Diagram is drawn
connecting all finalized header cards with their groupings.

Nominal Group Technique. [Please refer to description in Chapter 3 of this volume]

Participatory Issue Identification. [Please refer to description in Chapter 2 of this

volume]

Conflict Resolution Tool. This refers to the management and accommodation through
negotiation and consensus building, of various conflicts and disagreements that may arise
during the CDS process.

Conduct of preliminary conversations is an important start off point in order to build

trust and understanding. Issues are identified and defined as one builds deeper on these
conversations. Issues are turned inside-out, upside-down, redefined and re-framed to better
reflect reality from different perspectives. Engagement of participants in mutual problem
solving is done as conflicting issues between concerned groups begin to surface.
Reconciliation is worked out where all parties agree on terms beneficial to all concerned.
Follow-ups are conducted to assure the results that were expected have been achieved.

Spatial Strategies

Development Thrusts. Brainstorm on the possible development options for the LGU
such as those listed below considering the formulated vision, goals, objectives and the results
of situation analysis. The LGU may opt to pursue any of the following development thrusts if
suitable or applicable. Determining the LGUs development thrust will help identify
corresponding development strategies, their implications and possible interventions as shown
in the matrix below.

A. Agricultural Development. The LGU may opt to adopt Agriculture Development

or Agriculture Intensification if the local economic structure, physical characteristics,
opportunities, and the result analysis of the local situation is oriented towards agriculture. The
LGU may put the option into operation by protecting the prime agricultural lands, providing the
required support physical infrastructure and services such as irrigation facilities, farm to
market roads, credit/lending facilities, technology, and increasing access to markets/product
end users and encouraging the export of locally produced agriculture products after ensuring
and addressing the local food requirement/s of its population.

90
 B. Industrial Development. If the LGU will opt to adopt industrialization (or other
forms of industrial activities), it should ensure that the support services, facilities and utilities
required such as power, water, roads, telecommunication and efficient solid waste disposal,
are available, well-planned and provided for in case these are not present or available. To
protect the community and the environment, mitigating measures may be put in place to
control pollution and to address the impacts of industrial operations. The local government
may take advantage of present processing activities to complement and further augment or
increase the output/s of other productive sectors like agriculture and commerce and trade.

C. Tourism Development. Tourism is generally the development option chosen by

cities and municipalities with natural attractions such as beautiful coastlines and beaches and
with potential for water-based sports and recreation. Depending on the type of tourism that
the LGU will adopt (i.e. Eco-Tourism, Agri-Tourism, Cultural/Religious Tourism, etc.), the
required infrastructures to support, improve and strengthen the tourism thrust of the LGU will
be identified, well-planned and provided. The LGU may need to adopt measures to protect
and conserve its coastal or upland areas to ensure that tourism will not cause the degradation
of the environment, harm or affect the social or local traditions of the LGU.

D. Commercial Development. LGUs with higher level of urban functions and services
may choose or opt to adopt Intensified Commercialization/Trading Center or Urbanization as
a development thrust or option. Given this option, the LGUs need to ensure the presence or
availability of facilities, utilities, measures and incentives to encourage investors to further
diversify and increase investments. The required programs and projects and the
corresponding mitigating measures also need to be identified to address the impacts of
intensified commercial activities.

E. Forestry Development. Community-Based Forestry Management is needed in

order to address the dependence of communities on forest resources. However, it is now
accepted that focus should be given to the use of non-timber forest products such as fruits,
fiber, resins, and the like, in lieu of harvesting timber products which are not allowed under
current laws. The concerned LGU/s may adopt policies that will ensure the 1) sustainable
utilization of forest resources; 2) control or regulate the expansion of settlements within
forestlands; 3) observe the rights of Indigenous Communities; 4) settle conflicts between land
suitability and legal land status; etc. Under existing Rules and Regulations by the Department
of Environment and Natural Resources, LGUs can not classify or zone its forestlands and
resources for other purposes.

F. Coastal Development. In planning the coastal zone as part of the general

development of the city or municipality, the LGUs must ensure the compatibility of land uses
within the coastal zone that will include uses both within the innermost (land) and the
outermost (water) limits. There are various processes and options recommended for
integrated coastal management regimes which are currently advocated by national
government agencies such as DENR, and the LGUs will do well to consult with these
agencies for the appropriate development options which are aimed at achieving sustainable
coastal development.
91
 G. Combined Development. LGUs may also opt to adopt combined
development options if and when two or more options or thrusts play significant functions in
the existing local economic structure, and, when the combination of development options will
lead to the transformation of the LGU to a well-developed city/municipality. Among possible
combinations are tourism with agriculture or industrial development with commercial
development, whichever is applicable for the locality according to its characteristics and vision
for development.

Table 4.3 Sample Development Thrust

Development Thrust: Industrialization

Strategies/Options Implication Positive Intervention
Option 1: Heavy Industrial
Development

Option 2: Light to Medium Industrial

Development

Option 3: Micro, Small and Medium-

Scale Enterprises

Alternative Spatial Strategies. This process explores various alternative spatial

patterns or urban forms that will serve as framework or guide for detailed allocation of space
and location of various activities and facilities. From these alternatives, one pattern or a
combination of several patterns will be chosen and put in final form to become the organizing
concept for the long-term physical development of the locality. It is expected that the selected
alternative will best provide the conditions necessary to attain the long-term development
goals.

A. Designing Alternative Urban Forms. Often, an outsider’s perspective is sought

at this stage of the process. In general, two scenarios are considered, either of which can
have any number of variations: the base plan or “do nothing”, and the development scenarios.

1. The Base Plan or “Do Nothing” Scenario. The principal question that this
exercise seeks to answer is “What is the likely shape of the town/city in the future, given the
present pattern and trends of growth?” Is this growth pattern generally constraint-free, at least
in physical/ environmental terms? This step requires examining the General Land Use Map
and the use time series population figures.

2. Alternatives to the Base Plan. If existing density levels are maintained over the
plan period, will there be enough land to accommodate the projected population? If the
answer is NO, make various assumptions of person-land ratio until an acceptable balance of
demand and supply is reached. Make generalized schemes of the possible urban forms

92
suggested by the various density assumptions by taking into consideration the outcome of the
sieve analysis. These generalized urban forms will take either a concentrated form, a
dispersed form, or a combination of the two.

B. Basic Urban Form Conceptual Frameworks. LGUs may select or decide on any
of the spatial development concepts or combination thereof that will underscore their
identified development thrusts and the corresponding spatial strategy. The frameworks below
are only meant to serve as guide. It is suggested that the preferred urban form be identified
in terminologies reflective of the local situation.

1. Trend Extension. Trend extension shows the future urban development as a

continuation of the pattern of growth the LGU has experienced over the years. Development
is spread evenly over a wide continuous tract, very accessible to open land and transport is
designed as a continuous grid. This resembles the Dispersed Sheet urban form described
as having maximum flexibility, personal comfort, independence and where local participation
is highly possible. Implication of this type of development: no vivid or memorable image of
the place and costly provision of public service.

2. Linear Urban Form. The linear urban form, also known as the ribbon or strip
development is characterized by concentration of development along both sides of major
transportation routes such as roads, navigable rivers or other forms of transport network.
Residential, commercial, industrial, institutional and mixed-use developments intensify along
these areas through time, although the magnitude of development will be bounded within
reasonable distance from the road or river easements. This can be another form of trend
extension. It also resembles what is referred to as the Urban Star, characterized by a strong
urban core with secondary centers of moderate densities, distributed along main radial roads.
Implications: Very strong visual image; congestions likely to occur at the urban core and the
main radials; provision of circumferential road networks to connect secondary centers can be
costly.

Figure 4.3 Basic Urban Forms

Major Road

Development

(a) Dispersed Sheet (b) Strip/Linear Development (c) Urban Star

3. Multi-Nodal Urban Form. This form redirects development away from the urban
core or city center toward identified urban growth areas or nodes. It approximates the
Galaxy Form which is characterized by clusters of development with each cluster having its
93
own specialization. The major center provides specialized facilities and services to its nodes
and acts as its external linkage to other centers of the city, while the nodes support the major
center as its captive market even as it provides neighborhood facilities and services to its
area of influence. Another type which is radial and circumferential shows a development
channel fanning out from a given center where points of activities are interconnected by radial
and circumferential road systems which are potential development corridors.
Radial Road Circumferential
Development Roads
Nodes
Major Center Major Roads

Development
Nodes
Major Center

(d) Galaxy Form (e) Centric and Nodal Form (f) Radial and Circumferential

4. Concentric Urban Form. The concentric urban form reflects an outward

expansion of urban development from the city center/core induced by the construction of new
circumferential and radial roads. This spatial pattern matches the Core City which has the
unique characteristic of concentrating development into one continuous body originating from
the center or core. This urban form redirects future development in and around the city
center; extending to the adjoining barangays or barrios. Confining development into one
continuous body implies high density urban activities that can increase discomfort. Likewise,
housing types are limited to high-rise apartments or compact dwelling units to maximize
space.

Major Roads

(g) Core City (h) Concentric Development

C. Characterizing the Urban Form. In characterizing the urban forms generated,

answer at least two questions: (a) What does it take to realize this urban form? and (b) What
are the implications to the town/city if this urban form is realized? The description of each
alternative urban form is summarized using the accompanying format (Table 4.2). This will
give the evaluator a quick impression about what each alternative urban form is like. Next, the
characterization of all the alternatives is consolidated into a comparative performance matrix
(Table 4.3). Information such as these make the evaluation and selection of the preferred
urban form easier.

94
 Table 4.2 Characterization of Alternative Urban Forms
Option __: _____________________

High Moderate Low

1. What does it take to realize this particular urban form in
terms of:
- the public investment in transport infrastructure
* arterial roads
* local roads
* water-borne transport
* new bridges to construct
- the provision of urban utilities and services
* water and sewerage
* communication
* power
* solid waste management
- the infrastructure for disaster mitigation/prevention
- the amount of agricultural (crop-fishpond) lands to be
reclassified/converted
- the degree of public control of land and water use
- incentives to private investments in preferred areas

2. Once the urban form is realized, what are its likely

impacts on:
- the natural environment
* open space and wildlife habitats preserved
* high quality of surface waters maintained
* high quality of costal waters maintained
* clean air maintained
- the city image (landmarks, nodes, districts, edges,
networks) and general attractiveness of the city
- movement of people and goods
- access of people to services

95
 - relative safety of inhabitants from natural and man-
made disasters
- increase in household income
- increase in local government revenues
- the LGUs contribution to higher-level goals and
strategies

Table 4.3 Comparative Performance of Alternative Strategies

Alternative Urban Form

1 2 3 n
1. What does it take to realize this particular spatial strategy
in terms of:
- the amount of public investment in transport
infrastructure
* alternative roads
* new bridges to construct
* water-borne transport infrastructure
- the need to modernize other infrastructure such as
* power supply and distribution
* telecommunication facilities
* domestic water supply and sewerage
* flood control and drainage
- the amount of agricultural (crop-fishpond) lands to be
reclassified/converted
* degree of public control of land/water use
* amount of private investment needed to enhance
total capital build-up

2. Once the spatial strategy is attained, what are its likely

impacts on:
- the natural environment
* open space and wildlife habitats preserved
* high quality of surface waters maintained
* high quality of coastal waters maintained

96
 * clean air maintained
- resulting access of people to services
- relative safety of inhabitants from natural and man-
made disasters
- increase in household income
- increase in local government revenues
- the LGUs contribution to higher-level goals and
strategies

Structure Map. The Structure Map depicts the envisioned development concept or
the visual outline or shape of the overall physical and development framework of the locality
which shall be used for the subsequent preparation of the land use plan. Specifically, it
contains the following: (a) general location of development areas for agriculture, tourism,
industry, and agroforestry; (b) general location of areas for conservation/ protection such as
forest areas, critical watersheds, protected areas, protected agricultural lands,
historical/cultural sites, etc.; (c) general location of proposed major infrastructure projects; (d)
direction of urban expansion; (e) proposed circulation system that reflects the linkage among
the identified development areas within the community and with the adjacent
municipalities/cities, province and region; and (f) growth areas/nodes for production purposes
or with specific development role.

Evaluation and Selection of Preferred Strategy. The purpose of technical evaluation

is to provide a sound basis for making rational choice. Evaluation is primarily the planner’s
task. Selection is the prerogative of political officials and the citizens at large. But both
evaluation and selection can be undertaken through a broad participatory process with a
properly designed methodology.

A. The Cost-Benefit Analysis (CBA). The CBA involves distinguishing between real
benefits and costs from those that are transfers. Real benefits and costs are those resulting
in gain or loss to the community as a whole. Transfers are those gains or losses to some
sections of the community but which can be canceled out by corresponding gains and losses
in other sections. Real benefits should be related to costs by an appropriate criterion (e.g.,
rate of return) which needs to be carefully selected according to the circumstances, to
indicate the course which shows the best value for money.

CBA is suitable for the evaluation of single projects with simple objectives. The
calculation of costs and benefits in monetary terms may be too long, complicated, and
expensive and it is for this reason that this method is confined to technical evaluations only
and does not lend itself to participatory processes .The CBA format is simple as shown below:

97
 Table 4.4 CBA Format

ALTERNATIVE BRIEF
BENEFIT COST BALANCE
STRATEGY DESCRIPTION

etc.

B. Social Cost-Benefit Analysis. Social-Cost Benefit Analysis (SCBA) is a

comprehensive approach for appraising the social worth of the options/alternatives or
programs/projects which entail commitment of resources. It is more commonly applied within
single sectors, such as the health and transportation sectors, although inter-sectoral
comparisons may also be applied. The analysis is mainly concerned with the strategy’s
effects on the welfare of the community rather than on any smaller group within it. The
benefits and costs of the alternative development strategies are identified and measured
based on the references of individuals who are affected. Benefit is measured by the quantity
of alternative goods and services which would give the same amount of satisfaction to the
beneficiaries while cost is measured by the goods and services which would provide sufficient
compensation to the losers, or which restore them to their initial level of well-being. The
results will guide in the discernment of the most acceptable spatial strategy to be employed in
order to achieve the LGUs goals and objectives.

Participants in a workshop may evaluate the generated development alternatives using

the Social Cost- Benefit Analysis (SCBA) as indicated in Table 4.4a. The alternative
development strategies assumed to be able to adequately solve the problem are listed in
column to the left. Using the scales in Table 4.4b each problem/issue in the alternative
development strategies is rated in Table 4.4c and the total computed. A team score for each
strategy will be summed from individual ratings for each category and the total computed and
reflected in Table 4.4d. Another way of evaluating a proposed strategy is by rating according
to the benefits, costs, ease of implementation, time and secondary impacts. [CLUP pp.83-86]

98
Table 4.4a Evaluation of Alternative Development Options

99
 Table 4.4b Rating Scales in Evaluating Alternative Development Strategies/Options

Table 4.4c Worksheet of Assessment of Alternative Options

Alternative 1 Alternative 2 Alternative 3

CHARACTERISTICS Heavy Industrial Light to Medium Micro, Small and
Development Industrial Medium Scale
Development Enterprise
1) What it takes to realize this
option (Cost)
a) Cost of new roads and other
infrastructure
b) Community adjustments to
risks
c) Preservation of protected
croplands and fishponds

d) Strict government enforcement

of regulations
e) People’s compliance with
regulations desired
2) Implications when urban form
is realized (Benefits)

a) Access of people to city-wide

services

100
b) Amount of air and water
pollution produced
c) Traffic problems reduced
d) Overall attractiveness of the
city
e) Potential for increased LGU
revenue
f) Prospects for more jobs and
higher compensation
g) LGUs role in the region
maintaned

Table 4.4d SCBA Solution Worksheet

ALTERNATIVE
EASE OF SECONDARY
DEVELOPMENT BENEFITS COSTS TIME
IMPLEMENTATION IMPACTS
STRATEGIES

Alternative 1
Heavy Industrial
Development

Alternative 2
Light-Medium
Industrial
Development
Alternative 3
Micro, Small and
Medium Scale
Enterprise
Development

C. Planning Balance Sheet (PBS). The PBS is an improvement on the CBA

although it is similarly suitable only for evaluating projects or plans against a single objective.
This methodology attempts to present not only the tangible costs and benefits but also the
intangible and unmeasured costs and benefits for different affected groups. PBS divides the
affected groups into producers/operators and consumers/users. It is not necessary to
express all costs and benefits in money terms. However, it is necessary to reduce benefits
and costs into some common unit to permit aggregation for producers and consumers
separately and comparison of alternatives. The format of PBS is as follows:

101
 PRODUCERS CONSUMERS
ALTERNATIVE
STRATEGY
Benefit Cost Balance Benefit Cost Balance

etc.

D. Goal-Achievement Matrix (GAM). Designed to avoid the disadvantages of the

PBS, the GAM involves the following activities: (i) explicit formulation of a set of objectives (as
reflected in development plans) which should be broken down into measurable indicators that
will serve as evaluation criteria; (ii) ranking or rating of alternative strategies against each
individual objective; (iii) weighting of objectives for their relative importance to particular
sections of the community; and (iv) combining of scores to obtain relative measures of goals
achievement for each alternative.

This method is highly participatory as it allows various sectors of the community to

express their bias through the weighting of each objective according to their perception of its
relative importance to their sector. The rating of each alternative strategy according to its
perceived contribution to the achievement of each objective is determined by choosing an
ordinal number within a given range. If no apparent relationship exists, then a rating of “0” is
given. If a relationship exists (+ or -) then the degree of relationship is indicated by the ordinal
numbers 1, 2 or 3 representing slight, moderate, or high degree respectively. The score of a
particular spatial strategy with respect to a given goal/objective is the rating determined by the
particular sector multiplied by the sector’s weight assigned to that objective. Finally, the
aggregate (algebraic sum) of sectoral total scores is taken, and though the sectoral scores
reflect biases, the grand total of scores shown in the summary table amounts to the social
consensus. The highest scoring alternative would be the preferred one.

Table 4.5a GAM Format

SECTOR-ASSIGNED ALTERNATIVE STRATEGIES SCORE

OBJECTIVES
WEIGHT (%)
A B C etc.
1
2
3
.
102
 N
TOTAL 100
Table 4.5b Summary of Scores, GAM

TOTAL SCORES BY SECTOR

SECTOR EVALUATING
Alt. A Alt. B Alt. C Alt. D

1
2
3
.
.
.
n

GRAND TOTAL

Ranking of Strategies

Pairwise Ranking. This technique compares several issues in relation to one another
by comparing two issues at a time. Each issue is compared with every other issue in the
matrix (by going through the grid pair by pair) and deciding on their relative importance. The
facilitator tabulates the frequency count per issue and ranks the issues based on frequency
counts or scores. Pair wise ranking works better for large groups of people (more than ten),
but can be difficult if more than five or six issues are to be compared.

Simple Ranking. This method is the simplest way of identifying priorities. Each
participant ranks the problems in order of priority, from the most important to the least
important. Overall ranking is derived by comparing the total score per problem. Higher
scores mean higher rankings. This is effective when there are only few (less than five)
problems to be ranked and the number of participants is small (less than ten). Simple ranking
can be improved to show the relative importance of one problem over the other by assigning
agreed upon weights.

Suggested Presentation Formats

Sample Table Linking Programs Projects, Services to Legislations and

Strategies. A matrix that conveniently helps in identifying a list of possible projects and
services for each strategy formulated using the objective tree.

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 Table 4.6 Sample Strategy, Program/Projects, Services and Legislations
from Objective Tree

Strategy Program Projects/Services

1. Increased farm yield
2. Better prices of farm
produce
3. Alternative livelihood
services available
Note: Items in italics are either services/non-projects or require regulatory measures.
1.1 Put up post-harvest
facilities
1.2 Install irrigation systems
2.1 Competitive pricing by
traders
3.1 Higher educational
attainment
3.2 Attract investors into the
local area
1.1.1 Construct mechanical dryers
1.1.2 Install solar dryers
1.1.3 Put up storage facilities
1.1.4 Encourage investments in
processing plants
1.2.1 Gravity irrigation
1.2.2 Communal irrigation
1.2.3 Improve market
infrastructure
2.1.1 Encourage competition
2.1.2 Regulate prices
2.1.3 Improve market
infrastructure
3.1.1 Offer short courses on
entrepreneurship
3.1.2 Skills training on non-farm
trades and crafts
3.1.3 Adult education project
3.2.1 Encourage formation of
cooperatives
3.2.2 Offer local tax breaks
3.2.3 Improve transport and
communication facilities

Summary Matrix of Strategies and PPAs The summary matrix serves as the primary
input to the formulation of the investment program. It lists the goals, objectives/targets and
corresponding strategies, programs, and projects, indicating location, implementation priority
or time frame, and responsible/lead entity. The funding or other resource requirements of
each project need not be included although the project must be sufficiently described to allow
an initial estimate of its funding requirements during the investment programming process.

104
 Table 4.7 Summary Matrix of Strategies and PPAs

Executive Summary Matrix. The executive summary matrix is a useful tool to begin
consolidating the LGUs outputs in the planning process. Since it is presented in tabular form,
the users can have a quick snapshot of the LGUs overall vision, and goals,
challenges/strengths, and strategies by sector. At the same time, it will be easy to see how
the different sectors relate with one another and therefore, allow the LGU to formulate
strategies that can address several sectors. The other sections (i.e. priority investments) can
then be completed in the next phase.

Table 4.8 Executive Summary Matrix Template

Overall LGU Vision: ____________________

Economic Social Urban Design Environment Financing Governing

Development Development & Transport
Goals
Challenges
Strengths
Strategies
Sub-
components

105
Priority
Investments

CHAPTER 5. APPROACHES AND TOOLS IN THE IDENTIFICATION OF

PROGRAMS, PROJECTS AND ACTIVITIES

Action Planning Flowcharts. A general approach for identifying programs and

projects by strategies, this approach results in the generation of a long list of programs and
projects that can be further streamlined when the long list is matched up with existing and
available resources, including funds, time, manpower and other requirements through the
preparation of the LGUs investment plan.

Figure 5 Action Planning

106
 Activity Network Diagram (AND). This tool is used when planning any project or
activity which is composed of a set of interdependent actions. Activities are laid down in a
diagram in sequence from start to finish which makes it easier for the planning committee to
identify and analyze risk areas to be addressed strategically. Following are the steps
involved: (i) Identification in 3” x 5” cards the tasks or activities of a project indicating the time
required to complete the task; (ii) Putting all ‘task cards’ in order and linking lines with arrows
indicating the sequence of activities; and (iii) Repeating the process until activity at the start
is linked to the last activity. The completion of Steps i and ii will result in a holistic perspective
on the programs and projects that can be achieved by looking at their relationships and
linkages.

Affinity Diagram. [Please refer to description in Chapter 4 of this volume]

Project Identification Sources. Possible sources of project ideas: (1) development

plans at higher levels; (2) international commitments of the government such as the MDG; (3)
LGU sectors experiencing specific problem situations; and (4) campaign platform and thrust
of the LCE.

107
 Gantt Chart. Gantt charts are useful tools for planning and scheduling projects. They
allow an assessment of how long a project should take, determine the resources needed, and
lay out the order in which tasks need to be carried out. For each task, the earliest start date is
shown along with the estimated length of time it will take. The days or weeks through to task
completion are shown as headings on a graph paper. Each task is plotted on the graph
paper, drawing a bar that starts on the earliest possible date. The length of the bar reflects
the length of time estimated to complete the task.

Types of Investments. These are types of investments that can have an impact on
the direction and intensity of urban growth and towards the realization of the desired urban
form: investment types that (a) encourage growth - “anchor” facilities like a university, a
hospital, a public market; interchanges, bus terminals, transit stops; access roads; (b)
discourage development in the vicinity - waste disposal site, sewage treatment plant, prison
or mental hospital; and (c) limit growth in the urban fringe - land reservation or acquisition for
conservation; utility extension limits; low density institutional uses such as military camps,
university campuses, research/science parks; reservations for open space and outdoor
recreation areas.

City Consultation Method. City Consultation is one of the most important

mechanisms for real participation and civic engagement as it brings together a full range of
stakeholders including the poor, women and other marginalized groups. It serves equity
objectives by giving many groups a genuine opportunity to participate in the management and
governance of their community. In so doing, it enhances efficiency of local governance as it
creates a positive environment for collective problem solving. The typical structure for a city
consultation activity is as follows: (a) Plenary Sessions, for opening and background
presentations; (b) Working Groups, where issue clarification, stakeholder positions and
brainstorming are conducted; and (c) Plenary Sessions, where the synthesis of group
outcomes and agreement on the way forward is reached.

Nominal Group Technique. [Please refer to description in Appendix 1.3]

Objective or Policy Tree. [Please refer to description and relevant illustration in

Appendix 1.4]

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CHAPTER 6. APPROACHES AND TOOLS IN SETTING THE LEGISLATIVE AGENDA

Checklist in Generating Regulatory Measures. In developing legislative

requirements it is advisable to first check whether: new legislation is really needed and
whether the intended legislation is (a) within the limits of the prescribed powers of the LGU;
(b) necessarily implied from the prescribed powers of the LGU; (c) really necessary,
appropriate, or incidental for the LGUs effective and effective governance; and (d) essential to
the promotion of the general welfare.

Fishbone Analysis. This tool helps determine the appropriate action to take regarding
local legislations. Please refer to Appendix 1.2 for description.

Figure 6.1 Identifying Legislations Using the Fishbone Analysis

NOT EXISTENT ENACT ORDINANCE

IMPLEMENTED STRENGTHEN
PROPERLY IMPLEMENTING
AGENCY
STILL SOUND DEFICIENT
LEGISLATION IMPLEMENTATION
INCREASE
NEEDED SANCTIONS FOR
NOT
IMPLEMENTED VIOLATORS
AT ALL
REPLACE

STRENGTHEN
IMPLEMENTING
EXISTENT DEFECTIVE REPEAL AGENCY

AMEND

INADEQUATE REPLACE

Table of Legislative Requirements. It will be useful to maintain a table of legislative

requirements in support the goals and objectives, as well as the programs and projects.

Table 6.1 Sample Table of Legislative Requirements

Sector Goal Objective Priority Legislative Time Committee

Programs Requirements Frame Responsible
and Projects
Economic Improved Increased Investment Amendment of 2007 Finance,
local investments Promotion Investment Appropriations
economy Program Code , Ways &

109
 Means
Institutional Improved Fiscal gap Revenue Updating the 2008
capacity of reduced Enhancement Revenue Code
LGU Program
Environment Improved Mangrove 2008 Environment
marine Rehabilitation
environment Program

Matrix of the Executive and Legislative Agenda (ELA). The sectoral programs and
projects and the proposed legislations are compiled, reconciled, and otherwise processed and
refined to form the LGUs Executive – Legislative Agenda (ELA) for the next 3 years,
corresponding to the three-year terms of the LCE and Sanngunian members. A typical format
is illustrated below.

Table 6.2 Typical ELA Format

Outcome Area Per Amount Required Possible Funding Source Strategies to

Sector/PPA to Implement the Generate Financial
Project Support
Traditional Non-Traditional

CHAPTER 7. APPROACHES AND TOOLS IN PUBLIC CONSULTATIONS PRIOR TO

PLAN APPROVAL

Executive Summary Matrix23 and Public Consultations24. Prior to finalization of the

Plan, a summary presentation using the Executive Summary Matrix may be presented in a
public consultation to be followed by a workshop activity for prioritizing the identified projects.
The prioritization process used by the planning committees in arriving at the prioritized
projects may also be used in the workshop. The results of the workshop can then be used by
the planning committees to validate and consolidate the final report.

Flow Chart of Public Hearings for CLUP and ZO. The flowchart shows the
chronology of activities pertaining to the conduct of public hearings for the draft CLUP/ZO.

23 Please refer to description and sample form in Appendix 1.4.

24 Please refer to description in Appendix 1.2.
110
Figure 7.1 Flow Chart for Conducting Public Hearing for CLUP and ZO

111
 CHAPTER 8. APPROACHES AND TOOLS IN PLAN IMPLEMENTATION

Capacity's Three Levels of Classification. Plans to be implemented effectively,

require a set of competencies and institutional arrangements that should be present in the
LGU. This set of competencies and institutional arrangements comprise an organization’s
capacity: (a) Individual capacity which refers to the knowledge, skills, attitudes and values of
individual employees; (b) Institutional capacity which pertains to the organizational structure,
systems and processes, motivation system, leadership, technologies, physical facilities and
other organizational components that help make the system operate; and, (c) Systems/sector
capacity which pertains to policies, societal values or attitudes, development frameworks,
institutional arrangements and other elements that affect the enabling environment.

Capacity Development's Key Objectives: (a) Enhance or more effectively utilize

skills, abilities and resources; (b) Strengthen understandings and relationships; and (c)
Address issues of values, attitudes, motivations and conditions in order to support
development goals.

Modes of Capability Enhancement. Apart from training, other modes to enhance the
skills and knowledge of people in an organization include coaching, mentoring, and exposure
trips/exchange program. At the organizational level, capacity development interventions may
include (a) installation or mainstreaming of systems and structures; (b) improvement of work
processes; (c) introduction of new technologies, and/ or (d) enforcement of rules.

Capacity Development Program. A document that seeks to rationalize and

strategically focus the capability building efforts of LGUs. It outlines the capability building
interventions or programs that need to be undertaken to address an identified capability
deficiency.

A. Suggested Steps. (a) Establish the organizational and individual competencies

that are needed to implement the CDP; (b) Examine existing capacity vis-à-vis desired
competencies; (c) Identify capacity gaps; (d) Identify priority strategies or actions that need to
be taken to improve capacities; (e) Prepare a capacity development plan and budget; (f)
Assign roles and responsibilities to achieve the goal and the capacity objectives; (g) Monitor
the plan and make adjustments as required.

B. Capacity Development Planning, Tips. (a) Conduct a separate orientation on

Capacity Development Planning with the planning team; (b) Generate accurate information on
the LGUs administrative and operational capacity; (c) If necessary, engage the services of an
external facilitator/advisor to assist the Planning Team in assessing capacity and developing a
Comprehensive Capacity Development or HRD Plan.

C. Tools25. Tools in preparing the Capacity Development Program include the

following: (1) LGPMS. LGPMS results for input indicators (structures, policies, administrative
25 These tools are also used in preparation and M&E stages of planning.
112
systems, managerial and technical competencies, tools, facilities, equipment and financial
resources of the LGU) provide a relatively comprehensive picture of the capacity level of
LGUs which can help identify the capacity needs/deficiencies of the LGU. The strategies and
actions to address these deficiencies will form part of the LGUs Capacity Development
Program; and the (2) SCALOG. The use of SCALOG takes off from an LGUs strategic plan
such as the Comprehensive Development Plan (CDP) or the Executive and Legislative
Agenda (ELA). Using SCALOG as a tool ensures that the Capacity Development Program
will help define the necessary capacity requirements for effective and efficient implementation
of the LGUs priority programs and projects.

Table 8.1 Sample Format of a Capacity Development Plan

Priority Target Office Desired outcome Implementation

Sectoral HRD/Capacity Staff Details
Goal Development (time frame, who
Intervention are involved)

Example 1: Computerization Treasurer’s Revenue 1 year, treasury

Increased of real property Office, collection from staff
own-source tax Assessor’s RPT increased by
revenue Office ___%

Example 2: Training of rural Rural health Upgraded 2 weeks, all rural

Improve health workers workers knowledge and health workers in
access of the skills of rural the LGU
poor to health workers on
quality primary health
primary care
health care
services

LGU Regulatory Devices or Authority Levers in Plan Implementation

A. Zoning. The division of a city into districts or zones and prescribing the use
regulations for each district or zone. Private property ownership though exclusive is not
absolute and is always limited by the over-all interest of society as administered by the State.

1. Political Implications of Zoning. When the local Sanggunian enacts a zoning

ordinance, the legislators must understand that they are exercising their political power to
withdraw from the property owners, their right to develop or use their property. The serious
political implications of zoning makes it incumbent upon the local Sanggunian to ensure that
the zoning ordinance and the comprehensive land use plan of which the zoning ordinance is
an implementing instrument are formulated through a broad participatory and consultative
process so that the plan and the zoning ordinance become products of social consensus.

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 2. Proposed Changes in Current Zoning Practice

i. Comprehensive Scope. The new zoning shall now cover the entire territorial
jurisdiction of the LGU and not just the urban areas as is the current practice. The organizing
framework for the scope of the new zoning shall combine the three domains and the four
general land use policy areas as summarized in the matrix below.

Table 8.2 Organizing Framework for New Zoning

Land Use
Categories/ Private Domain Public Domain Ancestral Domain
Zoning Districts
Protected Areas
Settlement Areas
Infrastructure Areas
Production Areas

ii. Total Catchment Concept. There is a need to have a combined land and water
use zoning that reconciles land uses in the upper catchment with the water quality
requirements of various uses of the receiving water body. When various uses of the water
body are considered, the one that requires the highest water quality should be adopted as the
norm in determining the overall quality of the water body to maintain and that water quality
standard in turn will control the type and intensity of land uses upstream especially when such
land uses have the capacity to degrade the quality of the receiving waters. Indeed, water-
driven land use planning or water-sensitive land-use zoning is an urgent need that is long
overdue in the Philippines.

iii. Emerging Land Use/Zoning Problems. To be more realistic, both dominant and
associated uses should be taken into account in cases of mixed land uses, adopting for this
purpose the ingenious classification scheme devised by the BSWM. To be sure, present
zoning practice already promotes mixed land use by providing a list of uses which may also
be allowed in any given use district. The principal decision tool is the “Zoning Compatibility
Matrix”. The matrix lists all possible land-use activities and indicates whether each activity is
permitted in a given zone, without, with certain, or under special conditions. To improve its
validity and usefulness the matrix should be constructed by each LGU so that it will truly
capture the essence of the CLUP land use policies, give full consideration for the various
dimensions and nuances of compatibility, and reflect the socio-cultural responsibilities of the
local population. Secondly, special use zones should be created to serve as a catch-all
category for situations that are hard to pigeonhole under existing categories. Thirdly, there
seems to be more sense in classifying some mixed use lands under the more stringent
category, for instance, classifying as protected area a protected area that is also used as a
production area. To do otherwise would frustrate the objective of protection altogether.

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 B. Taxes on Real Property. There are a number of impositions on real property
ownership in the Philippines: the basic real property tax, and the special levies on land such
as the special education fund, the tax on idle lands, and the special benefit assessment. The
first two are the more familiar ones and are used extensively for revenue-raising purposes.
The last two are rarely applied but they are effective planning and regulatory tools when
properly utilized.

C. Eminent Domain Proceedings and Land Banking. The transfer of privately-

owned land into the hands of local governments is an important planning tool. If planning
entails public control over the pattern of development in a given territorial jurisdiction, there is
no more effective way to realize the socially desirable use of certain lands than for those
lands to be in the possession and control of the local government (on behalf of the society
itself). This requires more extensive application of eminent domain proceedings than the
usual project-specific expropriation for sites, rights-of-way, or easements of proposed public
works projects. Local governments must be able to use their eminent domain powers to
acquire more private property for land banking purposes.

Land banking is the advanced acquisition and consolidation of lands identified in the
comprehensive land use plan as areas for future urban expansion. It is highly desirable for
local governments to practice land banking to be able to curb speculative pricing of
development land and to control the pace and timing of development in accordance with the
plan.

D. Public Investment Programming. Investment in public infrastructure and facilities

is a powerful tool to shape local development in accordance with the chosen urban form in the
CLUP. Apart from having the potential to shape the pattern of land use for decades, public
facilities can also shape development in that they strongly influence private investment in the
desired direction. Public investment therefore is a double-edged authority-lever as it
improves the quality of public services and at the same time influences private sector
investment.

E. Guided Private Investments. The authority to guide private investments is given

to the Local Development Council (Sec. 109,a,4, RA 7160). Such guidance could take the
form of incentives to promote the inflow and direction of private investment capital. Such
incentives in turn consist of tax breaks, selective subsidies, and reducing transaction costs
like the setting up of one-stop shops and eliminating bureaucratic red tape and graft and
corruption.

F. Co-Management of Other Domains. Local governments and the national

government are directed by the Code to act as co-managers of the national territory and
patrimony. In the spirit of co-management, the LGU can use the CLUP as the basis for
crafting a memorandum of agreement or similar instrument with the DENR or its relevant
service bureaus to jointly manage all natural resource, as well as with the National
Commission for Indigenous Peoples (NCIP) representing specific indigenous groups, to share
responsibility in the planning and management of ancestral domains located within the

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territorial jurisdiction of the LGU.

CHAPTER 9. APPROACHES AND TOOLS IN MONITORING AND EVALUATING

PLAN IMPLEMENTATION

Local Governance Performance Management System (LGPMS). The LGPMS is an

LGU self-assessment tool that enables provincial, city and municipal governments to monitor
and evaluate their performance at three levels of results: input, output and outcome levels.
As a performance monitoring and management tool, LGPMS provides the process and results
that indicate the LGUs effectiveness and progress in promoting the general welfare of its
constituents along 5 performance areas and 17 service areas, using 107 indicators.

The LGU may use relevant LGPMS data to add qualitative dimension to the statistical
data in the ecological profile. As a direct input to the LDI System, the LGPMS-generated
information allows for making further observations and exploring the implications of these
observations. LGUs can meaningfully evaluate the extent to which public expenditures,
through the LDIP & AIP processes, contributed to the attainment of broader social and
economic goals that were identified in their respective CDP and ELA.

Core Indicators of Gender Responsive Population and Development (POPDEV)

Planning at the Local Level26. The same set of indicators of well-being used in assessing
the environment during the planning stage may be employed to monitor the achievement of
essential elements of the LGU vision.

M & E Strategy Template. An M & E tool that aims to generate good information to be
used in the next planning period and for other decision making purposes. Following are the
key elements of an M & E Strategy: (a) Clear and expected results (goals, objectives,
outputs); (b) Explicit targets per result; (c ) Indicators to measure progress towards results;
(d) Data source to assess performance; (e) Collection methods; (f) Frequency at which
measurements will be made; and (g) Roles and responsibilities.

Annual/End-of-Term Accomplishment Report. At the minimum, LCEs need to

prepare an annual (e.g., Ulat sa Bayan) as well as an end-of-term accomplishment report. A
form may be used to show the accomplishments of the LGU vis-à-vis what was planned, who
the beneficiaries were, the area coverage as well as the costs of the programs and projects
implemented.

Community Based Monitoring System (CBMS)27. The CBMS can be used in

monitoring and tracking progress of LGUs towards the attainment of their goals including the
MDGs. The Core Local Poverty Indicators (CLPIs) contain indicators on human development
and are recommended as the minimum set that the LGUs should use for assessing the extent

26 Please refer to the last part of this section for the matrix of indicators. The definition and formula of some indicators are shown
in Chapter 2 of this volume as this tool is also used for information generation and assessment of the planning environment.
27 Monitoring entails the assessment of the same indicators used in describing the planning environment found in Chapter 2 of this volume.
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of socio-economic development in their locality. CBMS-monitored changes can be used as
benchmarks for the next cycle of short- and medium- term development plans. The use of
CBMS can also extend to setting and exacting standards of performance from concerned
LGU offices or frontline service providers.

Quality of Life Assessment. Assessment of the achievement of essential elements of

the LGU vision may be done through the vision-reality gap analysis28 and above-cited the
Core Indicators of Gender Responsive Population and Development (POPDEV) Planning at
the Local Level.

Land Use Changes. This system should consider land use development clearances
and permits issued by the Zoning Administrator which are presented in reports of issuances,
decision maps and environmental studies conducted for the purpose. Decision mapping may
be done manually by indicating in the Zoning Map the approximate location of land
development projects with issued clearances and permits using color-coded “mapping pins”.

Schedule of Conducting M&Es

A. Short Term M&E. In a four-year scenario which shows two change-over points
after each election, the following M&E schemes are recommended:

 2nd Quarter in the 6-week interval between the election and July 1. M & E to assess
the impacts of the previous administration’s 3-year LDIP or Executive-Legislative
Agenda. This M & E will provide inputs to the preparation of the new 3-year LDIP/ ELA
of the succeeding administration;

 4th Quarter of the second and third years of the incumbent leadership. M & E to assess
the outputs and financial performance to provide inputs to the Year-end Report of the
Local Chief Executive; and

 M & E to assess the outcomes of the completed budgets and AIPs of the last half year
of the previous and the first year of the incumbent administration.

Table 9.1 M & E Points in a 3-Year Term of Office (Short Term)

QUARTER
YEAR Q1 Q2 Q3 Q4
IMPLEMENTATION OF LAST YEAR’S BUDGET & AIP OF PREVIOUS
ADMINISTRATION
End-of-Term Report
o ELECTION YEAR Inaugural of New
Year 1 Term

28 Description is found in Chapter 2 of this volume.

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 o M & E (Impact of Preparation of LDIP/ELA
Previous
Preparation of Yr 2 Budget and 1st AIP
Administration’s
LDIP/ELA)
IMPLEMENTATION OF YEAR 2 BUDGET & 1st AIP

Preparation of Yr 3 Budget and 2nd AIP

Year 2
• M&E
(Outputs and
Financial
Performance)
• End-of-Year
Report
IMPLEMENTATION OF YEAR 3 BUDGET AND 2nd AIP

Year 3
M & E (Outcome of Preparation of Yr 4 Budget and 3rd AIP
1st AIP)
• M&E
(Outputs and
Financial
Performance)
• End-of-
Year Report
IMPLEMENTATION OF YEAR 4 BUDGET AND 3rd AIP

Year 4 o ELECTION YEAR End-of-Term Report

o M & E (Impact of Inaugural of New
Outgoing Term
Administration’s
LDIP/ELA)

B. M&E for the Three Year-CDP/ ELA. The ideal time for this type of M&E is during
the usual hiatus following the last elections. Results of this assessment will find their way into
the end-of-term report of the outgoing LCE and hopefully into the successor LDIP/ELA of the
next administration. Two of these three-year cycles could produce sufficient feedback
information to allow a mid-term revision of the long-term CDP and/or CLUP.

C. M&E for Long-Term Planning. Feedback information for the revision or

reformulation of long-term plans should be collected after a lapse of nine to ten years and
synchronized with the national census conducted once in a decade. Conduct of the census
will enable comprehensive data collection for use in updating the ecological profiles, statistical
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compendiums, thematic maps and other information systems.

Participatory Decision Making Process. A different set of indicators and methods are
used to measure progress in applying management approaches (e.g., decision making). By
their nature, management processes and activities are expressed through institutional
practices and behavior and hence are generally qualitative and subjective, making monitoring
a challenging task. Using the participatory decision making process, evaluators must identify
what is to be monitored or work out appropriate monitoring methodologies29.

Regular Feedback Mechanisms. The feedback mechanisms can be either formal or

informal. Among the feedback mechanisms that are now being used by some LGUs include
the (a) suggestion box; (b) sending short message service (SMS) or text messaging to local
officials; and (c ) Report Card Survey.

Table 9.2 M & E Strategy

29 The CDS Toolkit shows the details of this process in page 5-12.
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 Table 9.3 CY(?) _____ Annual /End-of-Term Accomplishment Report
Province/City/Municipality of _________

Programs and Projects Output Indicators Target Accomplishment Beneficiary Area Estimated Project Actual
per Sector Sector Covered Cost (Php) Disbursement

Nutri-Health Program 1. Number of All barangays 50% of Women and 50 % of 2 Million

barangays barangays Children barangays
covered by
micro-nutrient
supplementation
2. Number of All barangays 20% of Women and 50 % of 1.2 Million
barangays barangays children barangays
covered by
nutrition
education

Water Supply Project % of total number 5% of all 10% of all Urban Poor Barangay 5 Million
households covered households households Poblacion
2. Economic Sector

3. Infrastructure

4. Environment

5. Institutional

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Table 9.4 Core Indicators for Gender-Responsive Population and Development
(POPDEV) Planning at the Local Level

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123
124
125
126
127
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Sources

City Development Strategies (CDS) Toolkit

CLUP Guidebook

Guide for the Preparation of Comprehensive Development Plans (CDP)

Harmonization of Local Planning, Investment Programming, Revenue Administration,

Budgeting and Expenditure Management, Joint Memorandum Circular (JMC) No. 001,
Series of 2007 (JMC)

Joint Course on Local Development Strategy and Capital Investment Programming &
Budgeting (LDS-CIP)

Physical Development & Physical Framework Plan, Volume 2. Guidelines on Provincial/Local

Planning and Expenditure Management (PDPFP)

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