Rapid Field Appraisal of Decentralization · ineteen years since the Local Government Code (LGC) of 1991 was passed, local government units (LGUs) ... Loboc town in Bohol, for example,

Central Visayas

Region 7

Rapid FieldAppraisal of Decentralization

This study is made possible by the generous support of the American people through the United States Agency for International Development (USAID) through Cooperative Agreement Number AID 492-A-00-09-00031-00. The contents are the responsibility of The Asia Foundation and do not necessarily reflect the views of USAID or the United States Government.

More Hits, A Few Misses

3

ExEcutivE Summary

Nineteen years since the Local Government Code (LGC) of 1991 was passed, local government units (LGUs) in Region 7 have demonstrated increasingly innovative and diverse ways of putting flesh to decentralization.

The study noted, for instance, that LGUs have exercised greater autonomy in local governance and administration. The political will of the local chief executive (LCE), the relationship between the executive and the legislative departments, and the sense of responsibility exercised by department heads determine the culture of governance and the quality of service delivery of the LGU.

LGUs have also passed relevant legislative measures to fast track basic services delivery while local laws supporting national legislation and programs were passed. They have undertaken various ways to ensure public access to information through local publications, radio programs, and community assemblies, making governance more transparent.

Public consultations through community assemblies, as well as participation in local special bodies provided avenues for meaningful citizen participation. This is amply illustrated in the multi-stakeholder crafting of the LGUs’ executive-legislative agenda (ELA) outlining their development priorities and the direction that the LGU programs and activities will take.

Region 7 LGUs also increased local revenues by generating local economic activities or tapping external fund sources, while some LGUs availed of credit financing. Resources were generally allocated for the delivery of basic services and infrastructure development. The greater bulk of LGU funds, however, were spent on personnel services, maintenance, and other operating expenses.

The provincial governments of Cebu and Bohol have also established special units to ensure relevant and timely delivery of basic services through their respective Citizens’ Charters, thus ensuring better customer service. Both attempted to re-engineer their bureaucracies to streamline specific functions and processes but personnel services limitations have prevented its full implementation.

More Hits,A Few Misses

Josephine Cemine

Rapid Field Appraisal of Decentralization: Region 7

4

LGUs in the study area have also assumed greater responsibility in health and education services delivery by allocating bigger resources. This included investing in the construction and upgrading of health facilities like hospitals, health centers, and birthing clinics. They have also undertaken the construction and upgrading of health facilities like hospitals, health centers, and birthing clinics.

To address malnutrition, for instance, the municipality of Tubigon is implementing a feeding program funded by income generated from the sale of recyclable materials sourced from its waste management program.

The provincial government of Cebu and the city government of Tagbilaran in Bohol have allocated funds for the construction of public school buildings and the operation of day care centers, including the distribution of free school supplies to public school children. Tagbilaran has invested a substantial amount for the implementation of its Multiple Intelligence Program in all of the city’s day care centers. Other noteworthy programs include those for women, children, and the elderly.

To address the problem of insurgency, the provincial governments of Cebu and Bohol have undertaken projects for the benefit of rebel returnees.

To ensure local economic development, LGUs are providing support systems such as the construction of roads and buildings supported through local legislation. Other LGUs have actually engaged in economic activities like developing water systems and tourism-related ventures. LGUs now play a vital role in the promotion of tourism destinations in their respective areas. Loboc town in Bohol, for example, has entered into a financial credit agreement with the private sector to upgrade its tourism facilities and has since generated revenues from its initial investment.

Most of the LGUs’ initiatives related to agriculture include providing technical assistance to farmers in terms of training and distribution of certified seeds. They have also established marine protected areas to ensure sufficient supply of marine resources. Some LGUs in Bohol, Cebu, and Negros Oriental have formulated Forestry Land Use Plans while others distributed seedlings and undertook tree-planting activities that also supported their environmental management programs.

The LGUs in the study areas have established partnerships and collaborated with different agencies for better environmental management which includes coastal resources monitoring activities. Many of these activities were implemented either as part of the LGU programs on agriculture or to complement tourism initiatives.

They have also engaged non-government organizations (NGOs) and people’s organizations (POs) as partners in forest management although most LGU activities focused on tree planting.


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Solid Waste Management (SWM) is still an LGU concern, particularly the maintenance of a sanitary landfill. But some have enacted local laws on household segregation and the construction of controlled dumpsites.

introduction

Situated in the Central Visayas, Region 7 is composed of the provinces of Bohol, Cebu, Negros Oriental and Siquijor. It is the sixth smallest region with a total land area of 1,449,940 hectares. It has a total population of 6,398,628 and an average annual population growth rate of 1.59 percent from 2000 to 2007 based on data from the 2007 National Statistics Office (NSO). The region has ten component cities, three independent cities, 119 municipalities, and 2,866 barangays.

Among the region’s island provinces, Negros Oriental has the biggest land area and Siquijor the smallest. Bohol and Cebu have 47 municipalities each, while Negros Oriental has 19, and six for Siquijor. Bohol has the highest number of barangays at 1,109.

Table 1: Demographic Profile of Region 7

Bohol Cebu Siquijor Negros Oriental

Total Area 4,820.95 sq.km.

4,932.79 sq.km. 337.5 sq.km. 5,385.5 sq.km.

Area Rank 26th out of 80 22nd out of 80 78th out of 80 18th out of 80No. of Cities 1 6 0 6No. of Municipalities 47 47 6 19

No. of Barangays 1109 1,066 134 557Population(NSO - 2007 ) 1,230,110 2,439,005 87,695 1,231,904

Population Rank 23rd out of 80 5th out of 80 78th out of 80 18th out of 80Average Annual Population growth rate (2000-2007)

1.06 1.68 1.00 1.20

The region’s poverty incidence is consistently higher than the national poverty percentage, with Negros Oriental registering the highest figure in 2007 at 43.7 percent, followed by Bohol at 38.8 percent, Cebu at 23.5 percent, and Siquijor at 22.3 percent. In terms of rank in improvement, Region 7 was No. 7 from 2003 to 2006, compared to being on top from 2000 to 2003. In 2005, the annual per capita poverty threshold at all areas in Region 7 was P11,688, with P13,118 for urban areas, and P11,269 for rural areas.


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Table 2: Poverty Incidence

Poverty Incidence Increase / Decrease

Rank: Improvement

2000 2003 2006 2000 -2003

2003 -2006

2000 -2003

2003 -2006

Bohol 50.2 29.2 38.8 (20.9) 9.6 2 72Cebu 26.2 17.1 23.5 (9.0) 6.4 17 64Negros Oriental

29.7 37.1 43.7 7.4 6.6 70 65

Siquijor 28.6 30.9 22.3 2.4 (8.6) 61 2Regional Percentage

40.7 32.1 33.8

National Percentage

27.5 24.4 26.9

Table 3: Annual Per Capita Poverty Threshold2004 2005

All Areas Urban Rural All Areas Urban RuralPhilippines 13,113 15,001 12,431 14,196 15,992 13,241Region 7 10,861 12,241 10,440 11,688 13,118 11,269 Bohol 11,164 12,216 10,989 11,986 13,207 11,783 Cebu 11,083 12,451 10,233 12,052 13,405 11,212 Negros Or. 10,324 10,997 10,256 10,990 11,268 10,962 Siquijor 10,616 10,774

The island provinces of Region 7 are endowed with rich natural resources that have become major tourist destinations.

Bohol’s interior uplands are fit for agro-forestry and high-value agricultural production, while its central and northern lowlands have fertile grounds and abundant water supply. It has seven watershed areas and four major rivers namely, Loboc, Inabanga, Abatan, and Ipil. Its vast ecological endowments, which include the famous Chocolate Hills and the white sandy beaches of Panglao, as well as its rich cultural heritage, have contributed to the province’s becoming one of the country’s major tourist destinations.

Cebu is the most developed island in the region and is its center of commerce, trade, education, and industry. With a highly developed infrastructure system, Cebu has even become the hub of the domestic shipping industry. Its international sea and air ports provide easy access to international destinations and make it convenient for local and international companies to set up businesses in the province. Its world-


7

class tourism facilities like resorts and dive sites continue to lure domestic and foreign visitors in increasing numbers. Cebu – particularly Mandaue City – has also made its mark as the furniture capital of the Philippines.

Agriculture is the major industry of Negros Oriental, producing sugarcane, corn, coconut, and rice. Its expanding business process outsourcing (BPO) and other technology-related industries have contributed to the province’s emergence as the technological center in Central Philippines. Endowed with beautiful landscapes and rich marine resources, the province has become a popular tourism destination in the Visayas.

Siquijor’s tourist attractions include beaches, caves, and natural parks. Yet while there are visitors who are attracted by Siquijor’s reputation as a place of magic and sorcery, this also somewhat discourages the superstitious and misinformed from venturing into this beautiful island.

rESuLtS OF DEcENtraLiZatiON

i. Local Governance and Decentralization

Local Legislation. The relationship between the Executive and Legislative departments greatly determined the extent of legislative support for the undertakings of the local government units. The municipality of Compostela, for instance, was unable to formulate its ELA and had no appropriations ordinance in the past three years due to the political conflict between the mayor and the vice mayor. The LGU has been operating on a re-enacted budget that was given SB approval only when it was close to the end of the fiscal year. This made the delivery of basic services difficult.

In cases where the execultive-legislative relationship was cordial, corresponding ordinances were enacted for budget appropriations. In other instances, the good relationship and cooperation between the governor/mayor and the Provincial/City/Municipal Council led to the enactment of appropriate local legislations. The department heads of the municipality of Loboc, for example, have recognized that the common direction and collaboration between the mayor and the vice mayor was instrumental in the successful implementation of their planned activities. For the province of Cebu, the partnership between the present governor and Provincial Council, although belonging to different political parties, led to the enactment of supporting legislation, especially on budget allocation. This was very different from the previous administration during which no budget was approved by the SP; the province thus circumvented the budget process to generate the necessary funding for its activities.

Aside from local legislation for budget appropriations, other relevant pieces of legislation were also enacted by LGUs to provide the local framework for the implementation of


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national laws. These include the enactment of the local Environment Code, Tourism Code, Investment Code, Revenue Code, Children’s Code, Coastal Resources Management Code, and the Gender and Development Code.

transparency. The Cebu Provincial Information Office sponsors a TV program called SUGBO that airs daily at CCTV Channel 14. It highlights the provincial government’s activities and accomplishments, and features Cebu’s different tourist attractions. The present governor, motivated by her slogan, “Dili sulti ang pabuhaton; Buhat ang pasultihon (Let not talk do the work, but let the work do the talking),” likewise conducts a public-consultation exercise called the Suroy-suroy sa Sugbo. Mandaue City publishes the Mandaue News, featuring the accomplishments of the city government, while the municipality of Compostela publishes the Anahaw, which highlights the municipal government’s activities and accomplishments.

Aside from the print media, LGUs also make use of radio programs to ensure transparency. The Bohol governor has a weekly radio program aired simultaneously in two local radio stations. The Tagbilaran city mayor also maintains the weekly Mayor’s Report radio show that features callers who have either queries or comments for the local chief executive.

Other LGUs like the provincial governments of Cebu, Bohol, and Siquijor, the municipality of Cordova, and Mandaue City maintain websites for information dissemination.

Participation and Participatory Development. The LGUs organized and convened their respective local special bodies (namely, the Local Development Councils [LDCs], the Local Health Boards [LHBs], the Local School Boards [LSBs] and the Peace and Order Councils) and complied with the required membership and NGO/PO representations. Likewise, the LGUs’ respective Bids and Awards Committees (BAC) were convened and were actively involved in the procurement process. For Tubigon, the Municipal Development Council (MDC) approved the outputs of the annual Strategic Planning Workshop while the Provincial Development Council (PDC) of Bohol was recently convened in a joint session with the Sangguniang Panlalawigan to approve the Provincial Development and Physical Framework Plan (PDPFP) in February 2010.

BeSt PRACtICeS

City of tagbilaranPUROK PAtROL

This activity allowed the city mayor to see the actual situation at the purok level, as well as provided an opportunity for the local constituents to ask questions and air their grievances and requests directly to the local chief executive. This activity also led to immediate action from the city government on very urgent concerns like street lighting, road repairs, and medical needs of the masses. . The interaction also included a salu-salo featuring simple but filling fare like porridge, champorado, benignit, or hot mongo for the government leaders and their constituents – children included.

(Note: Purok Patrok was temporarily discontinued at the start of the campaign period to prevent it being construed as a campaign strategy)


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Barangay or purok assemblies also provided opportunities for interaction between LGU officials and their constituents. Purok Patrol, undertaken by the Tagbilaran mayor together with some city government department heads, provided a venue for constituents to tell the city chief executive directly about their needs, including personal concerns regarding their children’s health and education. Officials and department heads of Loboc, meanwhile, conduct a regular barangay visitation aimed at bringing the government closer to the people. The Siquijor Provincial government, for its part, regularly convenes public consultations on major issues in coordination with component LGUs and in partnership with NGAs, NGOs, and civil society. This activity resulted in increased public awareness of legislative measures, and enhanced people’s acceptance, cooperation, and sense of ownership. The measures also markedly improved in quality because of the consultations.

Peoples’ participation was likewise strengthened by the counterpart arrangement in the implementation of LGU projects like those involving health and nutrition, as well as community-based water systems, maintenance of marine protected areas, and management of coastal resources, watersheds, agriculture, and fisheries.

Some LGUs used bulletin boards, official publications, and websites to disseminate information on their accomplishments, along with updates on ongoing projects. Likewise, information desks with corresponding information officers were positioned in very strategic places in the LGUs. Mechanisms for customer feedback, though, have yet to be institutionalized by LGUs. Although there were LGUs that made their annual reports readily available, financial reports and other consolidated reports from the different departments were not easily accessible.

BeSt PRACtICeS

Municipality of tubigonANNUAL StRAteGIC PLANNING AND BUDGetING WORKSHOP

This practice began in 1997 with a technical assistance from the Federation of Canadian Municipalities (FCM). The three- day activity, held outside of the municipality to ensure maximum participation of all atendees, involves all department heads, SB members, and NGO representatives. The workshop begins with an assessment of the plans designed during the previous year, followed by a presentation and a review of each department’s workplan, with the corresponding budget.

The planning activity enables a new mayor to see the dynamics of local governance, particularly its operations, as well as the Vision, Mission and Goals (VMG), and Development Agenda of the local government unit. It has become a venue for elected officials to monitor the implementation of projects. It has also provided a forum that leads to a common awareness of issues, concerns, and development plans of the different departments. Whenever necessary, it has led to a common prioritzation of projects based on available financial resources. Finally, this undertaking has made it very easy for the Annual Investment Plan to gain the approval of the Municipal Development Council, as well as the corresponding Resolution of the Sangnguniang Bayan.


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Development Planning. Local autonomy has resulted in the need for LGUs to set their own direction. In compliance with the DILG requirement, most of the region’s LGUs were able to formulate an ELA. The ELA also served as their accomplishment report. In Compostela, though, conflict between the mayor and the municipal council prevented the approval of the town’s ELA.

In some LGUs, the development agenda set by the local chief executive became the basis for the development activities of the local government unit. The provincial government of Cebu, for example, is now guided by the present governor’s 12-point agenda, which include infrastructure, water, power, health, education, agriculture and food production, women, business, tourism, environment, peace and order, and computerization of transactions in all offices at the provincial capitol. In the absence of an ELA, Compostela’s mayor has instead pushed his priority agenda that highlight health, education, and infrastructure development.

Aside from the development agenda set by the LCE, some local government units like the provinces of Siquijor and Bohol and the municipalities of Cordova, Tubigon, and Loboc formulated VMG that served as the overarching framework for their respective development programs. Noteworthy is Bohol’s collective vision that was formulated through a series of multi-stakeholder consultations between 1996 to1997. This VMG was formally adopted by the Sangguniang Panlalawigan in 1998 and is now permanently embodied in the Provincial Ordinance No. C-001 known as the Administrative Code of the Province of Bohol.

While local government units usually formulate a medium-term development agenda, the municipality of Tubigon since 1997 has been conducting an annual planning session that gathers elected and career personnel of the local government for a three-day planning workshop. This workshop provides an opportunity for department heads to assess the accomplishments of the previous year, prioritize activities for the succeeding year, and agree on budget allocations for the planned activities. The planning workshop’s outputs are integrated in their Annual Investment Plan that easily gets the SB’s approval, given the presence of the Sanggunian’s members at the workshop.

resource Generation. From 2004 to 2008, LGUs like the province of Bohol, Mandaue City, Tagbilaran City, Compostela, Cordova, Lazi, and Larena generated more income from tax revenues, including those from real property and business taxes. But there were those like the provinces of Cebu and Siquijor, as well as the municipalities of Loboc and Tubigon, that have earned more from non-tax revenues like regulatory fees, service charges, and receipts from economic enterprises. Still, it has to be noted that an LGU’s local income is merely a fraction compared to the income derived from shares from national tax collection, particularly the IRA.


11

Table 4: Average Percent of Local Income Versus Average Share from National Taxes (2004-2008)

Percent of Local Sources to total Income

Percent of Share from National tax Collection

(IRA and Others)Provinces Bohol 9.65 90.34 Cebu 19.45 69.97 Siquijor 6.18 93.79Cities Mandaue 51.83 34.99 Tagbilaran 48.21 51.76Municipalities Loboc 22.59 55.57 Tubigon 44.09 47.85 Compostela 24.08 58.19 Cordova 23.54 54.82 Larena 20.93 63.42 Lazi 13.65 69.30 Siquijor 16.24 67.19

Source: LGU Financial Data, BLGF

The provincial government of Bohol generated its local revenue from taxes (real property tax and tax on goods and services) and other sources, including income from hospitals, rentals of office and business facilities, and heavy equipment and other receipts. In 2009, the municipality of Loboc earned P21,459,012.70 out of its P65,003,544.47 local income from tourism activities alone, while the rest of its local income was generated from tax revenue, markets, slaughterhouse, waterworks, rentals and other sales revenue. The revenue sources for the municipality of Tubigon include income from cemetery operations, hospital fees, markets, waterworks, toll (Tubigon port), and those generated from permits and licenses, local taxes, and services provided by the LGU.

Aside from the revenues generated by the local government units, additional sources of funds came from local and foreign agencies that funded special projects implemented either solely by the LGUs or in partnership with NGOs. The Provincial Government of Cebu has accessed funding from AusAID for its Water and Sanitation project. The provincial government of Bohol has implemented projects funded by the likes of the United States Agency for International Development (USAID), German Technical Coorperation (GTZ), and Australian Agency for International Development (AusAID).

Some specific projects were funded by specific government agencies. The Department of Health provided budget for the rehabilitation of health facilities like rural health units


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and spent for the training of rural health personnel. The Department of Agriculture (DA) provided funding for the purchase of seedlings distributed to farmer beneficiaries.

resource allocation and utilization. From 2004 to 2008, the provincial government of Cebu’s annual expenditure saw an average of 43.16 percent going to general services compared to 28.85 percent for Bohol and 28.5 percent for Siquijor. Data for these years also show the provincial LGUs providing substantial amounts for health, nutrition, population control, and economic services.

Table 5: Average Expenditures of Provincial LGUs, Region 7 (2004-2008)Bohol Cebu Siquijor

Percent of Expenditures in General Services to Total Income 28.85 43.16 28.50

Percent of expenditures in Education, Culture and Sports and Manpower Development to Total Income 2.33 3.20 0.41

Percent of Expenditures in Health and Nutrition and Population Control 18.92 11.74 23.68

Percent Expenditure in Labor and Employment 0.00 0.00 0.00Percent Expenditure in Housing and and Community Development 0.00 0.19 0.00

Percent of Expenditures in Social Security /Social Services and Welfare 2.27 0.41 0.73

Percent of Expenditures in Economic Services 13.36 15.66 19.05Percent of Expenditures in Debt Service 0.00 0.00 0.98Percent of Expenditures in Other Purposes 17.82 30.68 13.41

An average of 38.06 percent of the city of Mandaue’s annual expenditures went to general services while it was 36.84 percent for the same item in Tagbilaran City. While both cities spent on economic services, Mandaue provided significant allocations for education, culture, and sports (6.53 percent) while Tagbilaran spent on health and nutrition (5.86 percent).

Table 6: Average Expenditures of City LGUs, Region 7 (2004-2008)Mandaue tagbilaran

Percent of Expenditures in General Services to Total Income 38.06 36.84Percent of expenditures in Education, Culture and Sports and Manpower Development to Total Income 6.53 2.57

Percent of Expenditures in Health and Nutrition and Population Control 1.77 5.86

Percent Expenditure in Labor and Employment 0.00 0.00Percent Expenditure in Housing and and Community Development 0.08 0.00

Percent of Expenditures in Social Security /Social Services and Welfare 0.52 2.52


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Mandaue tagbilaran Percent of Expenditures in Economic Services 13.16 14.56Percent of Expenditures in Debt Service 7.23 4.11Percent of Expenditures in Other Purposes 1.77 9.77

All the other sampled municipal LGUs in Region 7 spent half their income on general services, except for Tubigon, which spent only 40.21 percent for these. Education, culture, and sports, economic services, and health and nutrition were also provided budgets. From 2003 until 2008, Cordova spent an average of 11.57 percent of its income on debt servicing.

Table 7: Average Expenditures of Municipal LGUs, Region 7 (2004-2008)Loboc tubigon Compostela Cordova Larena Lazi Siquijor

Percent of Expenditures in General Services to Total Income

53.97 40.21 53.58 50.85 52.20 54.03 57.33

Percent of expenditures in Education, Culture and Sports and Manpower Development to Total Income

11.69 10.09 13.05 8.26 9.20 10.14 10.49

Percent of Expenditures in Health and Nutrition and Population Control

6.57 6.43 6.59 5.98 6.30 8.55 10.55

Percent Expenditure in Labor and Employment 1.57 1.37 1.81 1.41 0.00 1.48 2.56

Percent Expenditure in Housing and and Community Development

1.56 2.75 4.48 1.09 0.00 0.00 0.00

Percent of Expenditures in Social Security/Social Services and Welfare

3.10 1.61 2.47 2.34 3.93 0.69 2.45

Percent of Expenditures in Economic Services 9.01 19.00 7.91 11.21 15.03 7.10 9.89

Percent of Expenditures in Debt Service 1.23 2.63 1.91 11.57 3.10 1.57 2.36

Percent of Expenditures in Other Purposes 10.54 9.38 7.85 12.79 17.04 11.79 12.87


14 Tab

le 8

: Ave

rage

LG

U In

com

e an

d Ex

pend

iture

s, Fi

ve Y

ears

Ave

rage

, Reg

ion

7 (2

004-

2008

)IN

DICA

tORS

Prov

incial

LGU

City

LGU

Munic

ipal L

GUBo

hol

Cebu

Siqu

ijor

Mand

aue

tagb

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n Lo

boc

tubig

onCo

mpos

tela

Cord

ova

Lare

naLa

ziSi

quijo

rPe

rcent

of Lo

cal S

ource

s to T

otal In

come

9.65

19.45

6.18

51.83

48.21

22.59

44.09

24.08

23.54

20.93

13.65

16.24

Perce

nt of

Tax R

even

ue to

Loca

l Inco

me

(RPT

, Bus

iness

Tax,

Othe

r Tax

es)

5.47

6.80

2.01

36.74

35.53

10.93

11.67

15.33

16.77

11.57

11.65

8.38

Perce

nt of

Non-

tax R

even

ue to

Total

Inco

me4.1

912

.654.1

715

.0912

.6811

.5424

.299.2

214

.989.6

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88.0

3Pe

rcent

of Sh

are f

rom

Natio

nal T

ax

Colle

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to (IR

A an

d othe

rs) To

tal In

come

90.34

69.97

93.79

34.99

51.76

55.57

47.85

58.19

54.82

63.42

69.30

67.19

Ratio

of To

tal E

xpen

ditur

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otal In

come

0.8

81.1

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90.7

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91.0

10.9

30.9

91.0

71.0

70.9

61.0

9Pe

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of Ex

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s in G

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al Se

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s to

Total

Inco

me28

.8543

.1628

.5038

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.8453

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.2153

.5850

.8552

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.33

Perce

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expe

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res i

n Edu

catio

n, Cu

lture

and S

ports

and M

anpo

wer

Deve

lopme

nt to

Total

Inco

me2.3

33.2

00.4

16.5

32.5

711

.6910

.0913

.058.2

69.2

010

.1410

.49

Perce

nt of

Expe

nditu

res i

n Hea

lth an

d Nu

trition

18

.9211

.7423

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75.8

66.5

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and P

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ontro

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rcent

Expe

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re in

Labo

r and

Em

ploym

ent

0.00

0.00

0.00

0.00

0.00

1.57

1.37

1.81

1.41

0.00

1.48

2.56

Perce

nt Ex

pend

iture

in H

ousin

g and

and

Comm

unity

Dev

elopm

ent

0.00

0.19

0.00

0.08

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1.56

2.75

4.48

1.09

0.00

0.00

0.00

Perce

nt of

Expe

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res i

n Soc

ial S

ecur

ity/

Socia

l Ser

vices

and W

elfar

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70.4

10.7

30.5

22.5

23.1

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12.4

72.3

43.9

30.6

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5

Perce

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n Eco

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s 13

.3615

.6619

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119

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9

Perce

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n Deb

t Ser

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0.00

0.00

0.98

7.23

4.11

1.23

2.63

1.91

11.57

3.10

1.57

2.36

Perce

nt of

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nditu

res i

n Othe

r Pur

pose

s17

.8230

.6813

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: LG

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15

LGUs have likewise undertaken support mechanisms for effective revenue generation. To ensure an increase in revenue, the municipality of Lazi, Siquijor updated its tax ordinance; Larena updated its Local Tax Code and Water Code; Tubigon conducted a streamlining of its Business Permits and Licensing System; Tagbilaran City regularly conducts tax-mapping activities and established a Business-One-Stop- Shop, while the province of Bohol established the Real Property Tax Information System, and implemented the Electronic Tax Revenue Assessment and Collection System (E-TRACS).

customer Service. All of the RFA sites have shown compliance with the citizen charter. Copies of the charter have been posted strategically within and outside government buildings. The municipality of Lazi has constructed a special bulletin board for the charter right at the entrance of the municipal hall plaza. In some LGU buildings, signages were in conspicuous places, providing ready directions for customers.

The provincial governments of Cebu and Bohol established special units to ensure effective and timely response to customers’ needs. To ensure prompt response to the individual requests of component LGUs, the provincial government of Cebu has created special units under the PPDO. Supported by appropriate resolutions and mandated to provide financial assistance and implement special projects, these special units include: Infrastructure (road concreting, construction/rehabilitation of public buildings like barangay halls, and school buildings), Electrification, Waterworks (up to barangay level), and Health and Social Services. The provincial government of Bohol set up Offices for Tourism, Investment Promotions, and Employment and Placement.

Human resource management. Reorganization and re-engineering seemed to be the most common action done by LGUs – particularly in the provinces of Bohol and Siquijor – to streamline bureaucracy and upgrade positions, thereby ensuring that they would continue to be responsive to the people’s needs.

Most of the capability-building activities were undertaken by the specific agencies to enhance the skills of LGU staff. The Department of Education (DepEd) handled the training for teachers of public schools, the Department of Health (DOH) provided training for health personnel at the LGU level while the DA handled training for agriculture and fisheries personnel. The Department of Interior and Local Government (DILG) assisted in the formulation of the Capacity Development Agenda based on the gaps identified in the LGUs’ respective State of Local Development Reports (SLGRs).

The provincial government of Bohol sent some of its staff on scholarships to Australia in parnership with Australian Agency for International Development (AusAID) through its Scholarship and Short-term training program. So far, 19 scholars have already graduated from courses related to the province’s development agenda on poverty reduction and environmental governance. Meanwhile, an Information and


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Technology (IT) unit was created under the Human Resource Management and Development Office (HRMDO) to handle Bohol’s computerization activities, which included the centralized payroll system, the E-MS, and human-resource data, and an internal-audit system.

Networking and Linkaging. Collaboration seemed to provide the key opportunity for accessing resources and effectively implementing relevant programs and projects. LGUs have formed partnerships not only with national government agencies (NGAs), but also with donor institutions and non-government organizations (NGOs) for the implementation of programs on poverty reduction, environmental management, economic development, and basic-services delivery. Cordova has partnered with an NGO for the implementation of its housing project. Compostela has accessed funding from the provincial government for school building and road construction, while Bohol has tapped foreign funding agencies and NGOs for poverty reduction and environmental management projects.

Tagbilaran has entered into a Memorandum of Agreement (MOA) with four other LGUs for the implementation of its coastal resources management project. Cebu province has strengthened partnerships with the business sector to push its economic development agenda and implementation of its water and power projects. More recently, the other regions in the Visayas formed One Visayas as a means for strengthening climate-change adaptation activities. Bohol is also promoting the inter-LGU cluster mechanism known as BIADs (Bohol Inter-Area Development) to ensure effective implementation of programs and local area development.

corruption. While Boholanos and Tagbilaranons would like to see more serious efforts on reducing graft and corruption, the RFA respondents agree that corruption is less visible at the level of the local government unit than it is at the national level. If ever there are cases of corruption at the local level, most often it does not seem to hinder the efficient and effective delivery of services. The previous instances of corruption occurred because of lack of checks and balances. But with current mechanisms, particularly the annual planning process, transparency and accountability had been ensured, they said.

LGu Performance on administrative Governance per Local Governance Performance management System (LGPmS) - State of Local Governance report (SLGr). As of 2009, LGUs in Region 7 had accomplished the SLGR. According to the DILG, the SLGR is primarily an assessment tool intended as basis for the LGUs to identify their gaps in the different areas of governance. Knowledge of these gaps will guide the LGUs in the formulation of relevant intervention mechanisms.

The table that follows shows that Negros Oriental excelled in Local Legislation, Bohol and Negros Oriental in Development Planning and Cebu, Negros Oriental and Siquijor in Human Resource Management and Development.


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Table 9: Provincial Performance on Administrative Governance, Region 7

Province Local Legislation

Development Planning

Revenue Generation

Resource Allocation

and Utilization

Human Resource

Management and

DevelopmentCebu 3.55 4.82 3.24 3.39 5.00Bohol 4.75 5.00 4.60Negros Oriental

5.00 5.00 4.20 3.00 5.00

Siquijor 2.72 3.30 3.88 3.54 5.00

The succeeding table shows the performance of municipal LGUs in each province per LGPMS indicator on Governance and Administration. It should be noted that one municipal LGU from Cebu excelled in revenue generation; one municipality each from Bohol, Negros Oriental, and Siquijor excelled in resource allocation and utilization; eight municipalities from Bohol and seven from Cebu excelled in customer service; and a significant number of municipal LGUs across the region’s four provinces excelled in human resource management and development.

Table 10: Municipal Government Performance on Administrative Governance, Region 7

Province excellent High Fair Low Very Low% of MunicipalitiesLocal Legislation

Bohol(47.muns)

0.00(0.mun)

21.28(10.mun)

55.32(26.mun)

23.40(11.mun)

0.00(0.mun)

Cebu(47.muns)

0.00(0.mun)

10.64(5.mun)

63.83(30.mun)

21.28(10.mun)

4.26(2.mun)

Negros Oriental

(20.muns)

0.00(0.mun)

40.00(8.mun)

35.00(7.mun)

25.00(5.mun)

0.00(0.mun)

Siquijor(6.muns)

0.00(0.mun)

0.00(0.mun)

66.67(4.mun)

33.33(2.mun)

0.00(0.mun)

Development PlanningBohol

(47.muns) 6.38

(3.mun)74.47

(35.mun)19.15

(9.mun)0.00

(0.mun)0.00

(0.mun)Cebu

(46.muns) 0.00

(0.mun)30.43

(14.mun)54.35

(25.mun)15.22

(7.mun)0.00

(0.mun)Negros Oriental

(20.muns)

15.00(3.mun)

50.00(10.mun)

35.00(7.mun)

0.00(0.mun)

0.00(0.mun)

Siquijor(6.muns)

0.00(0.mun)

100.00(6.mun)

0.00(0.mun)

0.00(0.mun)

0.00(0.mun)


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Province excellent High Fair Low Very Low% of MunicipalitiesRevenue Generation

Bohol(45.muns)

0.00(0.mun)

33.33(15.mun)

37.78(17.mun)

28.89(13.mun)

0.00(0.mun)

Cebu(47.muns)

2.13(1.mun)

31.91(15.mun)

44.68(21.mun)

21.28(10.mun)

0.00(0.mun)

Negros Oriental

(20.muns)

0.00(0.mun)

45.00(9.mun)

45.00(9.mun)

10.00(2.mun)

0.00(0.mun)

Siquijor(6.muns)

0.00(0.mun)

0.00(0.mun)

66.67(4.mun)

33.33(2.mun)

0.00(0.mun)

Resource Allocation and UtilizationBohol

(45.muns) 2.22

(1.mun)31.11

(14.mun)51.11

(23.mun)15.56

(7.mun)0.00

(0.mun)Cebu

(47.muns) 0.00

(0.mun)25.53

(12.mun)48.94

(23.mun)10.64

(5.mun)14.89


(20.muns)

5.00(1.mun)

15.00(3.mun)

55.00(11.mun)

25.00(5.mun)

0.00(0.mun)

Siquijor(6.muns)

16.67(1.mun)

16.67(1.mun)

50.00(3.mun)

16.67(1.mun)

0.00(0.mun)

Customer Service - Civil ApplicationsBohol

(47.muns) 17.02

(8.mun)76.60

(36.mun)6.38

(3.mun)0.00

(0.mun)0.00

(0.mun)Cebu

(47.muns) 14.89

(7.mun)76.60

(36.mun)8.51

(4.mun)0.00

(0.mun)0.00


(20.muns)

0.00(0.mun)

95.00(19.mun)

5.00(1.mun)

0.00(0.mun)

0.00(0.mun)

Siquijor(6.muns)

0.00(0.mun)

100.00(6.mun)

0.00(0.mun)

0.00(0.mun)

0.00(0.mun)

Human Resource Management and DevelopmentBohol

(47.muns) 61.70

(29.mun)21.28

(10.mun)17.02

(8.mun)0.00

(0.mun)0.00

(0.mun)Cebu

(47.muns) 70.21

(33.mun)21.28

(10.mun)6.38

(3.mun)0.00

(0.mun)2.13


(20.muns)

75.00(15.mun)

15.00(3.mun)

0.00(0.mun)

0.00(0.mun)

10.00(2.mun)

Siquijor(6.muns)

83.33(5.mun)

16.67(1.mun)

0.00(0.mun)

0.00(0.mun)

0.0(0.mun)


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ii. Health and Social Services

Health Services. The DOH Region 7’s Consolidated Report reveal that the 10 leading causes of morbidity from 2003 until 2008 were acute respiratory infection, pneumonia, diarrhea, cardiovascular diseases, fever, influenza, injuries, dermatoses, bites, and diseases of genitourinary tract. The table below shows a significant decrease in the number and rate of diarrhea and influenza, a significant increase in the number and rate of acute respiratory cases, however, was registered.

Table 11: Morbidity, Leading Causes, Number and Rate Per 100,000 Population,5 year average in Region 7 (2003-2007 and 2008)

Causes Number Rate Number RateAcute Respiratory Infection 95,709 1,528.40 283,010 4,125.95Pneumonia 66,561 1,062.93 69,154 1,008.18Diarrhea 82,254 1,313.54 51,915 756.86Cardiovascular Diseases 14,020 223.89 31,337 456.86Fever 8,467 135.21 19,049 277.71Influenza 39,395 629.11 17,656 257.40Injuries 7,362 117.57 10,763 156.91Dermatoses 10,459 167.02 8,960 130.63Bites 3,311 52.87 4,833 70.46Diseases Of Genitourinary Tract 3,045 48.63 4,475 65.24

As of 2006, the 10 leading causes of mortality were diseases of the heart, pneumonia, injuries and accidents, hypertensive cardiovascular diseases, coronary artery diseases, cancer, sepsis, renal diseases, respiratory tuberculosis, and hypertension. Maternal mortality could be traced primarily to hypertensive disorder of pregnancy, postpartum bleeding, breech presentation, uterine atony, placental retention, placenta previa, abortion, cord complications, H. mole, and prolonged labor. Major causes of infant mortality were pneumonia, disorders relating to length of gestation and fetal growth, congenital anomalies, septicemia, sepsis neonatorum, aspiration, placental insufficiency, respiratory distress syndrome, and birth asphyxia.

To respond to such health issues, LGUs have provided assistance for the construction, rehabilitation and upgrading of hospitals and health centers. The municipal local government units also undertook activities that led to the improvement of the health stations and the establishment of birthing centers, as well as to the Sentrong Sigla accreditation of these facilities. They also intensified disease prevention and control, implemented the Maternal and Child Health Program, promoted health-risk management and advocacy, and enhanced the capacity of health personnel.


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By 2008, health workers in the region’s LGUs included 177 doctors, 117 dentists, 328 nurses, 1,534 midwives, 103 nutritionists, 406 engineers and sanitary inspectors, 142 medical technicians, 19,533 active BHWs, 94 dental aides, 2,203 trained birth attendants, and 145 non-technical personnel.

Provincial LGUs have also established the Inter-local Health Zones and the District Health Systems; formed the Local Health Board and the Provincial Nutrition Committee; enrolled indigent families to NHIP; and established the Health Emergency Preparedness Response and Recovery Program. City and municipal LGUs, moreover, have facilitated the facility-based deliveries; strengthened the referral systems with the district hospitals; and promoted the Healthy Life Style Programs.

Relevant laws were also passed by some LGUs to ensure effective implementation of health programs. The Provincial Sanggunian of Siquijor passed the no smoking ordinance. The municipality of Tubigon now has an ordinance requiring the payment of regulatory fees of P1,000, 70 percent of which goes to the birthing team, while the remaining 30 percent goes to the MHO for the maintenance of facilities. An ordinance was also enacted to provide free services to Tubigon constituents at the Stimulation, Therapy, and Activity Center (STAC), which is for the rehabilitation of children with disabilities. The ordinance, however, stipulates the collection of a minimal service fee from STAC clients from other LGUs.

The establishment of Botika ng Barangays (BnBs) had greatly eased the need for cheaper medicines for indigent constituents. As of 2008, DOH Region 7 had registered a total of 574 functional BnBs throughout the region.

Table 12: Summary of Functional BnB, Region 7

Provinces # of Municipalities # of Municipalities w/ BnB outlets

total # of Functional BnB

Cebu 53 44 288Bohol 48 33 164Negros Oriental 26 12 117Siquijor 6 2 5total 133 91 574

To finance the implementation of their health programs and activities, the LGUs allocated corresponding budgets for these. The following tables show the percentage of the LGU health budget to total LGU budget from 2001 to 2008. Among 1st class LGUs, Bohol has been consistent in its health expenditure.


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Figures 1-3. Percentage of LGU Expenditure on Health to Total LGU Income (Per LGU Classification)

Source: BLGF, LGU Budget Performance (2001-2008)



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Altogether, these initiatives resulted in the pooling of resources for health, improvement of the quality of basic health services, upgrading of health facilities like hospitals and rural health units, free hospitalization for the poor, and revenue generation for the provincial government. Accessible medical care was provided to Tuberculosis (TB) patients; prenatal and post natal services were intensified; and immunization of children one month to 11 months old was made readily available. The provincial government of Bohol saw an improvement in the number of households with access to safe water supply and sanitary toilets as well, along with a decrease in crude birth rate, and in infant and maternal mortality rates.

Table 13: Health Performance, Province of Bohol

Key IndicatorsProvincial Status Performance

Standard2000 2008Crude Birth Rate 24.47% 18.30%Infant Mortality Rate 11.14% 8.98% 0%Maternal Mortality Rate 0.55% 0.29% 0%Incidence of Malnutrition Among Newborns (weight <2500gms) 15% 4% 0%

Household Access to Improved Water Source 43% 59% 100%Household Access to Improved Sanitation (Sanitary Toilets) 70% 83% 100%

Contraceptive Prevalence Rate 51% 28% 60%Percent Deliveries by Health Personnel 74% 88% 100%TB Cure Rate 94% 92% 85%Health Insurance Coverage (PhilHealth) Beneficiaries 275,960

Source: PDPFP, Province of Bohol



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DOH Region 7 commended the LGUs’ efforts in the implementation of the Maternal and Child Care Program, the Non-Communicable Diseases Program, and the Healthy Lifestyle Program, as well as in the formulation of the Provincial Investment Plans for Health. DOH 7 also recognized the efforts of the province of Negros Oriental as an F1 province, and of Siquijor as a rabies-free province.

Nutrition. There is a decreasing trend in the malnutrition rate of pre-school children. DOH Region 7 records showed a 7.49 percent prevalence rate in 2009, compared to 13.77 percent in 2004.

Table 14: Trends in Nutrition Status of Underweight Pre-school Children, Prevalence Rate (2004-2009)

Area 2004 2005 2006 2007 2008 2009Central Visayas 13.77 11.73 9.78 8.93 8.28 7.49Bohol 15.92 13.75 11.06 9.89 9.01 8.12Cebu 15.36 13.54 11.81 10.51 10.11 9.46Negros Oriental 15.84 14.72 12.71 11.88 11.57 11.31Siquijor 15.88 11.63 11.8 9.82 9.11 7.99

Source: DOH 7 OPT

The decreasing trend can be attributed to the LGUs’ intensification of their respective nutrition programs that include supplemental feeding, mother’s class, and the tie-up with Municipal Agriculture Office’s Food Always in the Home program. Some LGUs even hired a municipal nutritionist to guarantee the effective implementation of the supplemental feeding project.

Education. Most LGUs in the region have active Local School Boards that determine the priority projects to be funded by the Special Education Fund (SEF). The Department of Education (DepEd) Region 7 also recognized that the implementation of DepEd programs and projects, such as those for teacher training and students’ activities, had been largely dependent on the financial assistance coming from the LGUs. The Maintenance and Other Operating Expenses (MOOE) of local schools were found to be dependent as well on the LGUs.

The following figures show the percentage of education allocation from LGU expenditures for the period 2001 to 2008.


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Figures 4-5. Percentage of LGU Expenditure on Education to Total LGU Income, Per LGU Classification

Aside from the construction of school buildings and day care centers and the rehabilitation of public school facilities, LGUs have also undertaken special activities related to education. So far, the provincial government of Cebu has distributed 65,000 school bags and writing materials to public school pupils. The provincial government of Siquijor has provided funds for students and teachers who will be sent to seminars or workshops, as well as for sports development (Municipality/District/Provincial/CVIRAA meet), supplies and materials for Brigada Eskwela, and scouting activities. The city of Tagbilaran has allocated funding for the distribution of free bags, school supplies, and uniforms and shoes for the elementary school pupils in all its public



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schools. Scholarships were also granted to college students by the city government of Tagbilaran, the municipality of Compostela, and the provincial government of Bohol. Computers were distributed to the different public high schools in the provinces of Cebu and Bohol. The municipality of Loboc, in partnership with telecommunications firm SMART, has provided computers and installed Internet connections in 28 public elementary schools there. It is also implementing an Alternative Learning System (ALS) for out-of-school-youth and adults, with the aim of reintegrating and accelerating the latter to a higher grade level as appropriate. Tagbilaran City, meanwhile, believing that proper education should start as early as possible, is implementing the Multiple Intelligence Program (MIP) by upgrading day care centers and providing additional training to day-care workers.

Social Welfare. At the time of the assessment, LGUs were seen to be implementing programs responsive to the needs of the senior citizens, women, and children. The provincial government of Cebu, for one, had livelihood projects and various skills training as part of the Women Welfare Program. It also conducted capacity-building activities for senior citizens and leadership training for women with disabilities. The provincial government of Siquijor, through its PSWDO, implemented the Assistance to Individuals or Families in Crisis Situations (AICS) at the provincial and municipal levels; this has provided capability – building activities and training for senior citizens, persons with disabilities, indigent and solo parents and women in especially difficult circumstances. In addition, AICS has conducted referrals of indigent clients to NGOs outside the province.

Figure 6: Percentage of LGU Expenditure on Education to Total LGU Income,Per LGU Classification



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Bohol has promulgated the Bohol Children’s Code and the Gender and Development Code. It also maintains a Crisis Intervention Center for Women and Children in Tagbilaran City and satellite VAW Centers in Tubigon and Ubay.

At the municipal level, Tubigon has a Crisis Center for Women and Children, provided assistance for the availment of senior citizens’ privileges, implemented livelihood programs for indigent but qualified beneficiaries, conducted livelihood training on cooking and cosmetology to women, and provided assistance to youth offenders. The municipality of Siquijor is implementing the Self Employment Assistance-Assistance for Individuals in Crisis Situation (SEA-AICS) Program, provided counselling and cash assistance to beneficiaries, conducted productivity skills and capability-building sessions, and conducted referrals for Child Placement/ Foster Care Parent Effectiveness Service.

Housing and Basic utilities. Housing seemed to be the least priority of LGUs except in the region’s urbanizing or highly urbanized areas. Only the municipality of Cordova mentioned a special concern for a housing program that would be aimed at preventing it from being merely a sleeping town where residents come home only in the evening after working in the neighboring areas of Lapu-lapu, Mandaue, or the greater Metro Cebu areas. The municipality has also partnered with an NGO for the implementation of a housing project for the poor fisherfolk. In addition, the LGU is planning another socialized housing project that would be implemented in several phases to address the problem of squatters and low-quality houses.

Among the basic utilities, water and rural electrification were the priorities of the LGUs in Bohol, Siquijor, and Cebu. Level III water systems were installed in several barangays, particularly in the islands of Cebu province and the province of Bohol accessed funding from AusAid for the preparation of its water master plan. Electric poles were distributed by the provincial government of Cebu to far-flung barangays, while Bohol accessed geothermal power supply from the neighboring province of Leyte.

Peace and Security. The LGUs in the region, particularly those from Cebu and Bohol, recognized that economic development cannot be fully achieved without addressing the issue of peace and security. The Peace and Order Councils played a vital role in strengthening multi-sectoral responses to the issue of securing peace, as well as identifying relevant programs.

Both Cebu and Bohol implemented livelihood and other intervention programs for rebel returnees. These resulted in the reduced presence of insurgents in Bohol and the declaration of Cebu as rebel-free. The LGUs also undertook activities that tackled drug trafficking and illegal gambling. These efforts paid off especially for Cebu, where there was a rise in the number of convicted drug pushers in 2009 (1,195), compared to 2008 (336). It also boasted of an increase in the worth of confiscated drugs from P3.6 million in 2008 to P26 million in 2009. In fact, PDEA 7 was judged as the Best PDEA Office.


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LGu Performance on Social Governance per LGPmS-SLGr. Based on the SLGR data, Negros Oriental excelled in all indicators on Social Governance: Health Services, Support to Education, Support to Housing and Basic Utilities, Peace and Security, and Disaster-Risk Management. Most of the municipal LGUs in the four provinces received an excellent or high rating on Health Services.

Table 15: Provincial Government Performance on Social Governance, Region 7

Province of Region 7

Health Services

Support to education Services

Support to Housing and Basic Utilities

Peace, Security and Disaster Risk Management

Cebu 5.00 5.00 4.20 4.88Bohol 4.78 4.80 4.00 4.92Negros Oriental 5.00 5.00 5.00 5.00Siquijor 3.47 4.10 2.00 4.02

Source: LGPMS: Regional Summary Report, 2009 (http//www.blgs.gov.ph)

Table 16: Municipal Government Performance on Social Governance, Region 7

Province% of Municipalities

excellent High Fair Low Very LowHealth Services

Bohol(47 .muns)

6.38(3 .mun)

93.62(44 .mun)

0.00(0 .mun)

0.00(0 .mun)

0.00(0 .mun)

Cebu(47 .muns)

12.77(6 .mun)

87.23(41 .mun)

0.00(0 .mun)

0.00(0 .mun)

0.00(0 .mun)

Negros Oriental

(20 .muns)

25.00(5 .mun)

70.00(14 .mun)

5.00(1 .mun)

0.00(0 .mun)

0.00(0 .mun)

Siquijor(6 .muns)

0.00 (0 .mun)

83.33(5 .mun)

16.67(1 .mun)

0.00(0 .mun)

0.00(0 .mun)

Support to education ServicesBohol

(47 .muns) 4.26

(2 .mun)51.06

(24 .mun)36.17

(17 .mun)6.38

(3 .mun)2.13

(1 .mun)Cebu

(47 .muns) 8.51

(4 .mun)51.06

(24 .mun)27.66

(13 .mun)12.77

(6 .mun)0.00

(0 .mun)Negros Oriental

(20 .muns)

15.00(3 .mun)

50.00(10 .mun)

30.00(6 .mun)

5.00(1 .mun)

0.00(0 .mun)

Siquijor(6 .muns)

0.00(0 .mun)

66.67(4 .mun)

0.00(0 .mun)

16.67(1 .mun)

16.67(1 .mun)


28

Province% of Municipalities

excellent High Fair Low Very LowSupport to Housing and Basic Utilities

Bohol(47 .muns)

51.06(24 .mun)

6.38(3 .mun)

6.38(3 .mun)

0.00(0 .mun)

36.17(17 .mun)

Cebu(47 .muns)

8.51(4 .mun)

17.02(8 .mun)

14.89(7 .mun)

6.38(3 .mun)

53.19(25 .mun)

Negros Oriental

(20 .muns)

45.00(9 .mun)

5.00(1 .mun)

5.00(1 .mun)

0.00(0 .mun)

45.00(9 .mun)

Siquijor(6 .muns)

16.67(1 .mun)

16.67(1 .mun)

0.00(0 .mun)

0.00(0 .mun)

66.67(4 .mun)

Peace, Security and Disaster Risk ManagementBohol

(47 .muns) 2.13

(1 .mun)57.45

(27 .mun)34.04

(16 .mun)6.38

(3 .mun)0.00

(0 .mun)Cebu

(47 .muns) 2.13

(1 .mun)59.57

(28 .mun)36.17

(17 .mun)2.13

(1 .mun)0.00

(0 .mun)Negros Oriental

(20 .muns)

15.00(3 .mun)

60.00(12 .mun)

25.00(5 .mun)

0.00(0 .mun)

0.00(0 .mun)

Siquijor(6 .muns)

0.00(0 .mun)

83.33(5 .mun)

16.67(1 .mun)

0.00(0 .mun)

0.00(0 .mun)


The SLGR tables above show the performance of municipal LGUs in each province in the different indicators of social governance. The tables reveal the priorities of the municipalities in terms of program implementation.

iii. Local Economic Development

agriculture and Fisheries. Bohol, Cebu, and Siquijor are implementing agriculture and fisheries programs that address the need to increase food production and reduce poverty in the region. LGUs implemented the rice, corn, high-value commercial crop, livestock, and fisheries programs in close coordination with the agriculture department. DA Region 7 likewise commended the LGUs’ active participation in the Community- Based Action Research Project.

Taking on an active role in the implementation of the Fertilizers, Infrastructure and Irrigation, Extension and Education, Loans, Drying and Other Post-Harvest Facilities, and Seeds (FIELDS) program, LGUs also provided support facilities like the construction of farm-to-market roads, irrigation dams, farmers’ training centers, and the provision of post harvest facilities. Assistance in terms of training, seed and livestock/fish stock dispersals, and loans were also provided by the LGUs.


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To strengthen the agriculture and fisheries sectors, LGUs enacted relevant legislation such as coastal resources management codes and anti-illegal fishing laws. Bohol has likewise formulated an agriculture master plan.

Tangible results of the LGU efforts can be seen in terms of the high level of rice sufficiency particularly in Bohol (114.3 percent) and Negros Oriental (60.1 percent). There is also a high level of corn sufficiency in Bohol at 77.2 percent, Siquijor at 51.8 percent, and Negros Oriental at 47.2 percent.

Table 17: Rice Sufficiency, Region 7 (2008)

ProvincePopulation

(2008 Projected)

Per capita (kg)

Consumption (Mt)

Rice Prod (Mt)

Level of Sufficiency

(%)Bohol 1,243,257 85.28 105,692 120,832 114.3Cebu 3,924,366 64.74 254,063 8,918 3.5Negros Or. 1,246,828 54.70 68,202 40,984 60.1Siquijor 88,115 47.22 4,161 1,536 37.0C.Visayas 6,502,566 62.99 432,118 172,270 40.0

Source: DA- 7 Regional Report

Table 18: Corn Sufficiency, Region 7 (2008)

ProvincePopulation

(2008 Projected)

Per capita (kg)

Consumption (Mt)

Corn Prod’n (Mt)

Level of Sufficiency

(%)Bohol 1,243,257 8.74 10,868 8,395 77.2Cebu 3,924,366 45.6 171,767 62,304 36.3Negros Or. 1,246,828 72.9 93,099 43,916 47.2Siquijor 88,115 97.66 8,803 4,561 51.8C.Visayas 6,502,566 44.82 291,445 119,177 41.0

Source: DA- 7 Regional Report

Forestry. With assistance from the DENR, some LGUs in Bohol (Danao, Pilar, Alicia, Mabini, Candijay, Ubay, Guindulman, and Maribojoc), Cebu (Boljoon, Oslob, Moalboal, and Carmen), Negros Oriental (Ayungon, Manhuyod, Villahermoso, Guihulngan, and Siaton) are currently formulating their respective forestry land use plans. A Co-Management Agreement has likewise been entered into by DENR and several LGUs in Bohol (Talibon and San Miguel), Cebu (Toledo City) and Negros Oriental (Bayawan, Tanjay, Bais, Sta. Catalina, Dauin, Sibuln, and La Libertad). DENR has commended Negros Oriental for being the champion in the efforts toward forest-resource management. The co-management agreement among the LGUs of Bayawan City, Sta. Catalina, and La Libertad, meanwhile, has landed them funding from the Federal Republic of Germany.


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Entrepreneurship, Business and industry. The devolution of functions to local government units has correspondingly brought about the need for them to be able to fund their undertakings. The BLGF report shows an increasing rate of LGU income generated from economic activities.

Table 19: Receipts from Economic EnterprisesLGU 2008 2007 2006 2005 2004 2003 2002 2001

Regional Total 46,408,101 36,441,066 35,749,789 31,707,079 30,908,101 31,547,180 30,894,434 61,115,425

Bohol 3,260,868 3,892,145 3,260,095 2,725,538 2,748,843 7,516,470 11,320,957 45,750,529Cebu 39,668,798 29,700,867 29,994,068 26,746,270 24,851,180 21,451,000 15,599,370 14,850,897Negros Oriental 1,615,450 1,482,824 1,584,611 1,291,546 2,328,121 1,570,202 0 0

Siquijor 1,862,985 1,365,229 911,015 943,725 979,957 1,009,508 3,974,107 513,999Source: BLGF, LGU Budget Performance (2001-2008)

Aside from engaging in economic enterprises, LGUs have also provided support mechanisms to increase economic activities in their area. The provincial government of Cebu played a very active role in the promotion of Cebu as the region’s trade and investment hub by partnering with the Cebu Chamber of Commerce. The provincial government of Bohol established the Bohol Investment and Promotions Office (BIPO), which was mandated to promote local economic development in the province. The municipality of Tubigon doubled efforts to streamline its business permits and licensing system, resulting in the reduction of time spent on filing licenses and permits. The municipality of Larena has spurred local economic development in the town by providing assistance to people’s organizations in terms of training and the provision of corresponding supplies and materials, assisted in investment-promotion activities, and established the Public Employment Service Office (PESO) in support of the Special Program for Employment of Students (SPES) of the labor and employment department. LGUs have also set up “Business One Stop Shops” for the convenience of entrepreneurs in particular.

tourism. Tourism is the prime economic driver in the region. Thus, LGUs have put up substantial investments in terms of infrastructure development, such as the construction of tourism centers and rehabilitation of seaports, airports, and road networks.

Other support mechanisms to spur tourism activities in the region were also undertaken by the LGUs. The provincial government of Cebu has strengthened tourism development through the creation of the Cebu Provincial Tourism and Heritage Council, the institutionalization of the Suroy-Suroy sa Sugbo, and the provision of assistance to an eco-tourism project for Malapascua Island. The Provincial government of Siquijor is an active partner in the promotion of the province’s tourism destinations. The provincial government of Bohol established the Bohol Tourism Office (BTO). More recently, it enacted the Provincial Tourism Code.


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LGu Performance on Economic Governance per LGPmS-SLGr. Of the provincial LGUs, Negros Oriental excelled in providing support to Agriculture and to Entrepreneurship, Business and Industry Promotion, while Bohol and Siquijor excelled in providing support to Fishery.

Table 20: Provincial Government Performance on Economic Governance, Region 7


Support to Agriculture Sector

Support to Fishery Services

entrepreneurship, Business and

Industry PromotionCebu 4.65 4.34Bohol 4.57 5.00 4.67Negros Oriental 5.00 5.00Siquijor 4.22 5.00 4.67


iv. Environment management

coastal resource management. Coastal LGUs have strengthened their coastal management activities with the formation of the Coastal Resources Management Councils. Fish wardens were also designated and provided the necessary equipment such as patrol boats to effectively monitor their areas. LGUs like the municipality of Cordova established marine protected areas intended as breeding grounds for marine species and which also became alternative tourism destinations. In partnership with the agriculture department, LGUs implemented projects that became sources of livelihood for beneficiary fisherfolk. These included fish-stock breeding, aquarium fish collection, seaweeds, and other marine culture activities.

To ensure effective management of marine resources, Bohol has encouraged inter-LGU partnerships, such as the Bohol Marine Triangle (Baclayon, Dauis, and Panglao) and the Maribojoc Bay Management Council, which is composed of the LGUs of Tagbilaran City, Maribojoc, Cortes, Dauis, and Panglao.

Forestry and upland Ecosystems. DENR’s regional office has recognized the efforts of local government units that have taken on the devolved functions of environmental protection, although at times the LGUs have seen the wisdom of implementing relevant programs in partnership with NGOs and peoples’ organizations. Notably, LGUs have shown greater concern toward environmental protection, agro-forestry development, and soil and water conservation. Several LGUs have been engaged in tree-planting as well as in watershed management.

Bohol has taken a more aggressive stance toward environmental management, with its provincial government putting in place institutional support and legislative framework for environment protection. The Bohol Environment and Management Office (BEMO) enacted the Bohol Environment Code (1998), the Provincial Mining Code,


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and the Small Scale Mining Permitting and Licensing Code, while giving approval to the Bohol Integrated Water Supply Master Plan and the Bohol Agriculture Master Plan. The draft of its Eco-tourism and Biodiversity Framework Plan is pending for the second and third readings at the Sangguniang Panlalawigan.

Solid Waste management (SWm). The LGUs have formulated their respective SWM Plans. As of this writing, there are only six sanitary landfills in the entire region. DENR 7, however, has said that that the first five landfills were not properly constructed and were being used improperly as well. According to DENR, only the newly constructed landfill at Bayawan, Negros Oriental meets the proper specifications of a sanitary landfill. DENR, however, cited San Francisco, Camotes (Cebu province) as a solid-waste management model in the region, if not in the whole country, with its proper implementation of collection, diversion, and disposal even at the purok level. The LGU has also produced bricks from plastics and other recyclable materials.

Some LGUs are operating controlled dumpsites in place of sanitary landfills. However, with the construction of a material recovery facility at the barangay level waste heading for the dumpsites has been reduced to a certain degree. Other LGUs have imposed trash segregation at the household level and implemented a “no segregation, no collection” policy.

Provincial LGu Performance on Environment Governance per LGPmS-SLGr. The LGPMS-SLGR 2009 data reveal that Negros Oriental excelled in all areas of Environmental Governance. Cebu and Bohol also excelled in forest ecosystems management, freshwater ecosystems management, and coastal marine ecosystems management.

Table 21: Provincial Performance on Environmental Governance, Region 7


Forest ecosystems Management

Freshwater ecosystems Management

Coastal Marine ecosystems Management

Urban ecosystems Management

Cebu 5.00 5.00 5.00 4.57Bohol 5.00 5.00 5.00 4.12Negros Oriental 5.00 5.00 5.00 5.00Siquijor 3.67 4.67 1.80

cONcLuSiONS aND rEcOmmENDatiON

It is evident that decentralization has resulted in the exercise of autonomy by the local government units. This was clearly seen in the area of governance and administration where the local chief executives exercised power in setting the direction and development agenda of their respective LGUs or collective efforts were harnessed to plot the development agenda through a participatory process. Since these determine the priority programs, there is great variation in the programs implemented by the LGUs.


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Tangible results of decentralization can be seen in terms of established systems like special units or offices; constructed infrastructure such as school buildings, hospitals and birthing centers, roads and sewerage system, irrigation systems, waterworks and electrification; and programs implemented to address health and agriculture needs, environmental management, and local economic development.

Efforts had been done in professionalizing public service through the conduct of in-house training and formal studies. Yet local civil servants themselves say that there are areas that still need improvement. These are the areas where LGUs need technical assistance.

Respondents recognize that technical assistance would vary depending on the need of the concerned LGU and the particular department. They agree that most of the technical assistance should be provided by the national government agencies particularly the following: DSWD to provide assistance on the implementation of the Magna Carta benefits for DSWD personnel; DOH to provide human resource development and assistance in the compliance of the requirements for PhilHealth licensing; DILG to provide capacity-building activities on governance administration for elected officials as well as technical assistance on the planning process; DA to conduct training on dairy production; and, DOT to undertake skills development program for constituents to be ready for the labor demand of tourism.

While NGAs were seen as sources of capability-building activities, it was also recommended that NGAs exercise a common Code of Ethics. Most importantly, NGAs should base or synchronize their plans with those of the local governments, which have clearer vision on where they want to go, have more flexible targets, are more empowered in terms of budget and decision-making, and have a more direct relationship with the civil society.

Recalling their experience with the Governance and Local Democracy (GOLD) project, Bohol requests technical assistance on organizational development, particularly on the efforts of harmonization and integration of policies and initiatives, institutionalization or the conduct of a regular institutional strategic planning process as a venue for levelling-off, chance to revisit the vision, formulate an integrated development framework, and agree on performance indicators.

Assistance is also needed in coming up with an institutional knowledge management system that could include program software or consolidated database that would hasten packaging and analysis of reports or available data, as well as facilitate access of data by concerned departments. This will enable local government units to have easy access to timely information, as well as to streamline their operations.


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More specific assistance had been requested by the local government units on the following:

• Intervention for elected officials in the Executive and Legislative departments that will strengthen their partnership and collaboration towards a more productive governance administration. The harmonious relationship will likewise boost the morale of the LGU career personnel, as well as enhance their productivity;

• Mechanisms for a workable monitoring and evaluation of each department’s performance;

• Mechanisms for a more sophisticated partnership between private and public entities;

• Mechanisms for Value Chain Analysis and strategic wealth production that will facilitate local economic development at the community level and enhance entrepreneurial capacities of local communities toward sustainable development;

• Consolidated /unified tool for “targeting the poor” to develop relevant programs and projects; and

• Climate Change Adaptation Measures of LGUs.


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BeSt PRACtICeMunicipality of Tubigon

“BASURA MO, KALUSUGAN KO”

Background

The Poverty Database Monitoring System (PDMS) data of the Municipality presented a higher percentage of malnutrition in some of the municipality’s barangays, pointing to the need for an intensive feeding program. There was a need as well for motivational measures to get the LGUs to implement garbage segregation and backyard gardening programs. In an attempt to provide a collective response to the problem of malnutrition, the Basura Mo, Kalusugan Ko program was conceived.

Role of Actors

The policy-making body for the program is the Municipal Nutrition Council composed of the Mayor, Municipal Nutrition Action Officer, SB on Health, MPDC, MTO, DepEd West District Supervisor, DepEd East District Supervisor, MAO, MSWD, DILG, MBO, Feed the Children, BNS President, BSW President, ABC President, MARO, and the Rotary Club. The Office of the Municipal Agriculturist is the program’s key implementor, in partnership with the MHO and the officials and BNS of the beneficiary barangay.

How It Worked

The project, which has a budget that is taken from the sale of recyclables, starts with the selection of the barangay with the highest malnutrition rate, based on MHO data validating the PDMS data. After the identification of the beneficiary barangay, a meeting is set with the barangay captain and officials for project orientation and to secure permission to conduct the feeding program. There is also a meeting with the parents of the beneficiaries for another project orientation. With a nutritionist’s inputs, a menu is prepared for the week, consisting of either pork menudo, champorado with milk, pansit lomi, benignit, meat balls with egg soup, hot mongo with milk, and batsoy. The feeding program is usually done at the barangay hall every Monday, Tuesday, and Wednesday. After a certain period of time, the children are weighed to determine who has been rehabilitated and those who will still continue with the program.


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Barriers

Identified as the major barrier to program implementation is the attitudes of mothers: some do not cooperate while others would just send plates through their neighbors and have the food eaten at their homes. In the latter case, the food is usually shared with the other children in the family. Hence, the actual beneficiary would not be consuming the required amount of food for rehabilitation.

Another constraint is the lack of proper venue for food preparation. Sometimes cooking has to be done under the trees where sanitation is sometimes an issue; and once it rains, no cooking is possible. Results and Lessons Learned

The project has inspired implementation of garbage segregation at the household level with the realization that garbage can be useful and helpful to the community. Waste segregation is considered a good practice since it leads to discipline, and that recyclables can be converted to cash.

The program has likewise strengthened inter-departmental cooperation and collaboration with non-government organizations. With the support of the barangay officials, it has led to the education of parents regarding proper nutrition. Encouraged by the results, the LGU has decided to ensure the project’s sustainability by tying it up with the Food Always in the Home Program, or program on backyard gardening, and the Search for Healthy Barangay Program.


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rEFErENcES

Bureau of Local Government Finance, LGU Budget Performance. 2001-2008.

Department of Agriculture Region VII (DA-7) Regional Report

Department of Health Region VII (DOH 7) OPT.

Department of Health Region VII (DOH 7) Pharmaceutical Management Unit, Summary Report of BnB.

Department of Health Region VII (DOH 7) Regional Report.

Field Health Service Information System A2. 2008.

Field Health Service Information System A3. 2006.

Local Governance Performance Management System (LGPMS): Regional Summary Report. 2009. http://www.blgs.gov.ph

Municipality of Loboc: Income Summary, January 2004 to December 2009.

National Statistical Coordination Board: Philippine Poverty Statistics.

Province of Cebu: Provincial Development and Physical Framework Plan.

Province of Bohol: Provincial Development and Physical Framework Plan.

Province of Bohol: Medium Term Development Plan for 2004-2009, p.138.

Province of Bohol: Provincial Budget Office, Summary Statements of Receipts and Expenditure. 2009.


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About the WriterMs. Josephine Tortor is a Research Associate and a coordinator of the Holy Name University Center for Local Governance in

Tagbilaran City. She designs and conducts training programs for local governments in the region, and served as the Team Leader for

the Bohol Poll series conducted in 2003 and 2007. She is currently a member of the Bohol Integrated Water Resources Management Board, and acts as the Project Manager for the Ayala Foundation-

supported projects in the municipalities of Dauis and Baclayon.

Documents

Rapid Field Appraisal of Decentralization · ineteen years since the Local Government Code (LGC) of 1991 was passed, local government units (LGUs) ... Loboc town in Bohol, for example,