Capacity Building Programs For Philippine Local Special Bodies

Vigilance to Volunteerism: Program for Intensifying Peoples Engagement in Local Governance (V2V PIPELOG) Component 2: LSB Strengthening
Inventory Report on Capacity-Building Programs and Training Modules for Local Special Bodies
Rachel S. Aquino Consultant for Component 2
Submitted to
Philippine Partnership for the Development of Human Resources in Rural Areas (PHILDHRRA) Local Government Academy/Department of Interior and Local Government (LGA/DILG)
FIRST DRAFT, FOR COMMENTS. NOT FOR DISTRIBUTION.

TABLE OF CONTENTS Page I. II. Background Inventory of Training and Capacity-Building Programs for Local Governments and Local Special Bodies 1.0 Canadian International Development Agency (CIDA) 1.1 The Philippines-Canada Local Governance Support Programme 1.2 Philippines-Canada Local Governance Support Program in ARMM (LGSPA) 1.3. The Federation of Canadian Municipalities Municipal Development Program 1.4 Canada Philippines Partnership Project for Good Urban Governance 1.5 Public Sector Capacity Building for Governance and Social Development Program 2.0 The Asia Foundation: Transparent Accountable Governance 2 3 3
3.0 AusAID 9 3.1. Technical Assistance to Physical Planning (TAPP) 3.2 Philippines Australia Governance Facility (PAGF) 3.3. The Philippines Australia Technical Support for Agrarian Reform and Rural Development (PATSARRD) 3.4. Philippine Australia Local Sustainability Program (PALS) 3.5. Philippines-Australia Human Resource Development Facility (PAHRDF)
4. 0 World Bank
4.1 Philippines-ARMM Social Fund Projects 4.2 Kalahi-CIDSS 4.3 Laguna de Bay Institutional Strengthening and Community Participation (LISCOP) 5.0 European Union 5.1 Technical Assistance for the Health Sector Policy Programme 5.2 Mindanao Health Sector Policy Support Programme 6. 0 United States Agency for International Development 6.1 Strengthening Local Governance for Health (HealthGov) 6.2 USAID/National Democratic Institute. Citizen Policing 6.3 Education Quality and Access for Learning and Livelihood Skills Phase 2 (EQUALLS2) /Synergeia Foundation 7.0 Selected other International Funder: Swiss Association for International Cooperation (Helvetas)
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III.
Inventory of Training Modules on the Four LGC-Mandated Local Special Bodies 1.0 LOCAL DEVELOPMENT COUNCIL 1.1 LGSP: Reclaiming Public Life Through Local Special Bodies: Operationalizing the Local Development Council 1.2 LGSPA: Barangay Governance and Planning Field Guide for ARMM Communities 1.3 LGSPA: A Manual on the Local Planning Process: Formulating the CDP-ELA in ARMM 2.0 LOCAL HEALTH BOARDS
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2.1 Mindanao Health Sector Policy Support Programme 2.2 HealthGov: Orientation Workshops on Health Sector Reform for NGOs and Civil Society Organizations 2.3 LGSP: Reclaiming Public Life Through Local Special Bodies: Operationalizing the Local Health Board 2.4 InWent. District Health Management Tools 3.0 LOCAL SCHOOL BOARDS 3.1 LGSP: Reclaiming Public Life Through Local Special Bodies. Operationalizing the Local School Board 3.2 Synergeia and City Government of Naga: Reinventing the Local School Board 4. 0 LOCAL PEACE AND ORDER COUNCILS 4.1. Local Government Academy. Laying the Foundation for Peace and Development: an Alliance Building Workshop 26 25
4.2. Local Government Academy: Professionalizing the Barangay Safety Officers (Tanods) program
4.3 Department of Interior and Local Government. Training Manual: Training Workshop on Strengthening Barangay Peace and Order Committees 4.4 Local Governance Support Programme. Reclaiming Public Life Through Local Special Bodies 4. 5. National Democratic Institute: Community Policing
Annex A: Some Examples of Successful Local Special Bodies Delivering Effective Services References
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I. Background
The V2V PIPELOG project aims to help improve the state of local governance by integrating civil society organizations participation in local government processes and promoting CSOs active engagement in local governance. Its expected results are: i) develop a knowledge map of CSOs in local governance; ii) strengthen capacities of CSOs on how to engage with local government units and find other venues for participation through policy discussions and development ; iii)improve access of CSOs in local governance through policy reforms and local special bodies; iv) promote CSOs and citizens volunteerism by participating in immersion programs and providing technical assistance; v) develop a performance evaluation and feedback mechanism to help government assess LGU performance; and vi) strengthen government-civil society organization partnerships. Component 2 is envisioned to address the gaps and the irregularities in the full implementation of the LGC, specifically on integrating CSOs participation in local government process and system and in support to the advocacy of the administration for a more transparent, accountable and participatory governance. It is being envisioned that this set of activities will be crucial in the effective mobilization of CSOs in maximizing the opportunities provided by the Local Government Code and in harnessing the potential of the various Local Special Bodies in providing the avenues not only for the citizens and their representatives to participate but also in laying the ground for a much improved delivery of basic services in the community. This consultancy is expected to have the following outputs: a) Inventory of training programs and related capacity-building interventions developed for the strengthening of local special bodies in the last six years (2004-2010); b) Developed a set of customized modules for the strengthening of LSBs; c) Pilottested and validated the training program in two regions (Regions V and IX) in coordination with the DILG Regional Offices and concerned CSO networks in these regions; d) Recommendations in the formulation of the Communication Plan and IEC Materials ; and e) Final version of the training modules including a proposed framework for delivery/implementation of the training program. This Inventory Report is in compliance with item a above. The report covers an inventory of training and capacity-building programs for local special bodies, focusing on three LSBs: the Local Health Board (LHB), the Local School Board (LScB); and the Local Peace and Order Council (LPOC).
FIRST DRAFT, FOR COMMENTS. NOT FOR DISTRIBUTION. II. Inventory of Training and Capacity-Building Programs for Local Governments and Local Special Bodies
1. Canadian International Development Agency (CIDA) 1.1 The Philippines-Canada Local Governance Support Program (LGSP) The LGSP was a capacity development program funded by CIDA. It started in 1991 to support the governments policies on devolution by strengthening local governance in the areas of management, service delivery, mobilization of resources, and participatory governance. Phase I of LGSP was instituted from 1991 to 1999 with a C$22.4 million grant; Phase II continued the work until August 2006 with a C$34.8 million grant. LGSP I and II supported 205 LGUs (175 municipalities, 11 cities and 18 provinces across Mindanao, and in Western Visayas). Direct work with LGUs ended in December 2004. Since then, LGSP has focused on sustaining and institutionalizing results at the national level with DILG and the Leagues, particularly related to local planning, policy development, replication of exemplary practices, institutionalizing LGPMS, DILG local resource centres, and DILG organizational development. The LGSP uses a staged approach in its capacity building programs. Stage 1 is the Development of Consensus. Stakeholders are assisted in assessing their CD needs until a consensus is reached on organizational development priorities and a plan for change. A baseline capacity survey (i.e. National Performance Measurement System) 1 enables the participants to identify strengths and weaknesses of the LGUs using indicators in performance areas such as fiscal management and participatory planning. Thereafter, stakeholders are guided to arrive at a consensus on capacity gaps that need to be prioritized. The Local Chief Executive participates in the Local Chief Executive Development Management Program along with his peers to strengthen skills leading to the development of an Executive Legislative Agenda (ELA). It is a three-year action program that identifies the development priorities of an LGU and translates them into programs and activities. The ELA is developed through participatory planning process. Although it is an output, the ELA is a means to develop participatory governance. Stage 2 is Strengthening. Capacity strengthening activities are undertaken to reinforce capacity building activities. For cost effectiveness, LGUs are clustered into groups of peers that share similar priorities. They participate in workshops, conferences and seminars that build information and develop skills on areas that they prioritize such as resource generation and environmental management. These workshops are also opportunities for guided peer-to-peer technical exchanges and study tours. Stage 3 is Application. This is the learn-by-doing phase. Partners are assisted in the application of their new skills to improve program implementation. Local Resource Partners (LRPs) serve as mentors and on-site coaches to provide on-going support in problem solving and decision making. Although the focus of mentoring may differ from one LGU to another, there is a standard TOR for coaches that defines their responsibilities and how mentoring will be conducted. The LGSP has developed a template on interventions and methodologies that are appropriate relative to capacity needs. The LGSP assists project implementation by facilitating discussion of issues, linking LGUs with other partners, and in some areas, assisting LGUs in mobilizing and leveraging resources to enable a
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1 This has spun off into the Local Governance Performance Measurement System (LGPMS) that is managed by the Bureau of Local Government Supervision of the DILG.

project to take off. The impact of programs is evaluated by identifying outcomes such as the formulation of a revenue plan, increasing collection efficiency, and expansion of the tax base. Stage 4 is Institutionalization. Individuals and organizations were assisted to institutionalize new processes as well as to internalize the process of capacity development. Structures and processes were improved towards efficiency: improving physical layout of offices, using the one stop shop concept, streamlining procedures, introduction of new technologies, and development of policies and systems to support the change process. The steps to improve the processes were documented into manuals and were developed into knowledge products that were disseminated among LGUs. The How To materials included formulating an ELA, Records Management, Enhancing Participation, and Organizing Workshops. LGSP partnered with Leagues, DILG and other agencies to disseminate best practices. Exposure to demonstration sites and pilot projects were also part of its replication strategy. The CD program supports the processes of change in an individual, in institutions, and in the enabling environment. LGU officials, their staff and community leaders participate in training programs. Capabilities of local resource partners, NGOs, and business groups were developed to enable them to participate in and support the reform process. The organization of systems and processes strengthened the LGU as an institution. LGSP worked with leagues and national government agencies to enhance their capacities in: coordination and facilitation of local government agendas; supporting capacity building programs of LGUs, policy advocacy and participatory governance. LGSP used adult learning methods to support capacities of LGUs or the direct application of new skills to learning situations. Since learning were iterative, LGSP provided on-going support through mentoring and coaching. Project officers and Local Resource Partners (LRPs) engaged LGU officials and personnel in regular dialogues to discuss implementation problems and alternatives to address them. The other tools to facilitate learning were : guided peer-to-peer technical exchanges, structured study visits with follow-ups, provision of resource kits, manuals and guides, and partnering LGUs with other stakeholders, peers, donors, national government agencies, and the private sector. LGSP sums its major lessons from its capacity-development (CD) programs: 1. Sustainable CD requires local ownership. It must be responsive to self-assessed needs and should not be imposed. 2. External support for CD requires a strategic and comprehensive approach based on analysis at the system, organization and individual levels. 3. Investing in those who deliver CD assistance ensures quality and consistency. Capacitated service providers ensure support to LGUs beyond the life of the donor-assisted program. 4. Adult learning methods, learning and on-site coaching are usually more effective than traditional large group training sessions with an expert-trainer 5. Peer-to-peer learning and technical exchanges are effective capacity development mechanisms. 6. Local partnerships are equally important. There is value in building alliances among groups of local governments with common concerns and interests. 7. Enhancing the enabling environment is critical for institutionalization, replication and sustainability. 8. For sharing information and replicating exemplary practices, national and regional-level mechanisms are necessary. 9. Projects and partners should take cultural diversity into consideration in planning and implementing CD activities. 10. LGUs must be assisted in coordinating CD support from various agents and Innovative Feature: Peer-to-Peer Learning Approach to Replication. A guidebook was produced (Learning From Peers for Good Governance: A Guidebook on Establishing a Program for Replicating

Exemplary Practices for Local Government) which provides a viable, structured peer-to-peer coaching and learning methodology in replicating local government best practices that is based on the experiences of the Kaakbay Program2, an exchange and learning program between and among LGUs. Replication Tool 1: Guidelines to Documenting Exemplary Practice Replication Tool 2: Facilitators Guide to the Peer-to-Peer Learning Workshop Replication Tool 3: Replication Workplan Template 1.2 Philippines-Canada Local Governance Support Program in ARMM (LGSPA, 2005-2010)3 LGSPA supported capacity development for all 105 LGUs in ARMM, select departments of the ARRM Regional Government, and LGU leagues from 2005 to 2010. It built on the LGSP capacity building frameworks, methodologies and lessons learned. The program also collaborated closely with the World Banks ARMM Social Fund Project. LGPSA was an C$18.0 million grant. LGSPA assisted the barangays of ARMM in village governance, primarily focused on the formulation of barangay development plans (BDPs). Support through LGSPA mobilized municipal officials in the formulation of BDPs, and strengthened the capacities of barangay development councils and peoples organizations in participatory methods of barangay planning. IN a baseline capacity survey conducted by LGSPA in 005, the municipal LGUs expressed the need for enhancement of their knowledge and competencies in the different areas of planning, and the need to be aware and to promote participatory governance at all levels. The program responded to the need for capacity-building not only in short and long term planning for LGUs at the municipal and barangay levels, but also in participatory data collection, resource mobilization, proposal preparation, project implementation, and monitoring of projects. The promotion of barangay development planning in ARMM by LGSPA was expanded further through a partnership with the ARMM Social Fund Project (ASFP), and the Community Development Assistance Project (CDA). The CDA, implemented by the Department of Social Welfare and Development in ARMM, encouraged its partner barangays to formulate a plan to enable them to access funds from ASFP. This became the basis for a partnership between LGSPA, ASFP, and DSWD. As a result, more than 300 barangays benefited from the CDA. Among the relevant knowledge products produced under this funding facility are: 1. A Field Guide: Barangay Governance and Planning for ARMM Communities. This is a 5-module facilitators resource to developing governance capacities at the barangay level. This field guide builds on previous barangay development planning guides, such as those developed by The Local Government Academy (undated), The Asia Foundations Transparent Accountable Governance Program (2005), The Philippines-Australia Local Sustainability Program (PALS, 2006), and the Institute for Politics and Governance (2007). 2. Manual on the Local Development Planning Process. Focus on the Comprehensive Development Plan Executive Legislative Agenda (CDP-ELA), Revised Ed 2008.
Kaakbay is a pilot replication implemented by the League of Municipalities of the Philippines, the League of Cities of the Philippines, the DILG, and the LGSP 3 Preface to A Field Guide: Barangay Governance and Planning for ARMM Communities, by Rachel AquinoElogada. CIDA. 2009

1.3. The Federation of Canadian Municipalities4 Municipal Development Program The MDP (2002-07) sought to increase the capacity of municipal governments to address local issues around social development, environmental sustainability, and economic well-being, improve the policy and management environment in which municipalities operate, and strengthen the regional and multilateral networks that support municipalities. The core of the program was partnerships and exchanges between Canadian and overseas municipalities including national association of municipal government. MDPs program in the Philippines (C$300,000), supported partnerships between: The Provincial Authority of Bohol and Portage La Prairie to implement a strategic planning project in four pilot municipalities to improve municipal capacity for corporate planning and the budgeting process; Sta Maria and Olongapo with Milton and Windsor to improve their capacity to manage solid waste; San Fernando and Langley to enhance capacity for land use planning and emergency services. The program also engaged in dialogue with the League of Cities and the League of Municipalities to strengthen local capacity to manage internal operations, address social development, environment and economic issues affecting local governments and to engage in policy dialogue with national government agencies. Capacity building was carried out in four phases: diagnosis and consensus; development of knowledge and skills; development of systems, tools, and procedures; and incorporation of new skills and systems into day to day operations to create sustainable improvements. The CD program for each LGU is collaboratively designed by a Canadian city and Philippine partner and within a two year period and used the following activities: 1. Needs analysis through baseline surveys 2. Technical exchange missions in Canada and in the Philippines to learn best practices 3. Workshops and support activities 4. Replication of results 1.4 Canada Philippines Partnership Project for Good Urban Governance Through this project (C$1.6M), the Canadian Urban Institute supported decentralization and empowerment of communities in Western Visayas. Assistance began in 1994 and ended in 2006. The Metropolitan Iloilo Initiative assisted five local governments to pursue inter-municipal cooperation, regional planning, growth management and improvements to regional service delivery through the metro Iloilo Development Council. The Guimaras Economic Initiative developed capacities of provincial and municipal governments for economic development and poverty reduction, as well as sustain earlier environmental protection undertakings. The Malay Local Social Service Delivery Enhancement Initiative assists the municipality to improve the delivery of health services for disadvantaged groups. 1.5 Public Sector Capacity Building for Governance and Social Development Program In the Philippines, this program of the Institute of Public Administration of Canada, partners the Government of the Province of Manitoba with the Local Government Academy to strengthen capacity of selected local officials and functionaries of the provinces of Samar and Benguet and targeted LGUs, provincial officers of the Leagues, and DILG Region VIII and CAR.
The Federation of Canadian Municipalities Program (FCM) is the national association of municipal governments in Canada. FCMs international programming is funded by CIDA.

2. 0 The Asia Foundation: Transparent Accountable Governance The Transparent and Accountable Governance Project (TAG) was implemented by the Asia Foundation with a US$10.5 million grant from the USAID from September 1999 to 2007. TAG aimed to build civil society and private sector constituencies for a counter-corruption reform agenda targeting economic growth and poverty reduction. TAG focused initially on agencies of the national government. The project extended to the city and municipal levels in Mindanao through the promotion of accountability and transparency in governance. TAG worked with 16 cities (60 percent of the cities in Mindanao) (Butuan, Dipolog, Panabo, Oroquieta, Ozamis, Zamboanga, Malaybalay, Tacurong, Koronadal, Iligan, Marawi, Cotobato, Surigao, General Santos, Samal, Dapitan). Its city-level activities are conducted in partnership with LCP, academic institutions, the Mindanao Business Council, NGO networks and LRPs. Its municipal engagement is with 76 municipalities in ARMM and neighboring conflict-affected areas. Procedural Reform Agenda of Mindanao Cities. Reforms were targeted to enable city governments to restructure services to improve efficiency, decrease the costs of doing business, and encourage investments. The CD program started with consultations with major stakeholders on priority reforms. A Mindanao Mayors Meeting was held in April 2005 where Mayors drafted a covenant that commits them to the development and implementation of TAG Action Plans. Assessment studies are conducted to determine the required technical assistance. Technical consultants were engaged by the LCP to assist the city in developing a reform agenda. The agenda included the formulation of a work plan and conduct of participatory workshops. Making Cities Work. The project enabled city governments to improve business processes and procedures in business registration and licensing (with special attention to small enterprises.) It also enabled the private sector to advocate policies that provide better support services to business. The implementing partner was the Ateneo School of Government which selected participating cities. The criteria include the presence of a local business association that can co-manage the project and the willingness of the LGU to coshare project costs. Assessment studies and the organization of technical working groups were undertaken to determine the technical assistance package to be provided to the city government. The results of the 2005 Business Permit Renewal Study served as an input to the project. The survey is undertaken annually and determined the number of steps to renew a business permit, the number of forms and signatories required for each step, transparency in the computation of fees, among others. The results of the survey were used to benchmark the progress made by pilot cities in process simplification. Public Service Excellence, Ethics and Accountability Program (PSEEAP) aimed to establish the values of public service excellence, ethics and accountability. The program was composed of six modules that run from six to eight months: service vision and values, service audit, service improvements, celebrating accomplishments, basic customer service skills, and public service and accountability.3 . The workshops were facilitated by university-based foundations and NGOs to elicit the participation of local government employees in improving transparency in operations and the quality of service delivery. The employees identified specific transactions in LGU offices that can be improved, e.g. issuance of mayors permit, registration of birth, payment of real property tax, and application for permits. They then formulated action plans to correct observed inefficiencies. Follow-up workshops were conducted to assess the extent of implementation of these action plans.

Local Development Planning and Budgeting. From 2002 to 2005, the Asia Foundation provided technical assistance to 57 municipalities and 583 barangays in Mindanao on development planning and budgeting. The CD program involved capacity building on team building, group facilitation methods, data gathering and analysis, and formulation of plans and budgets. The CD culminated in the development of barangay and municipal development plans. The project included a training of trainers who assisted the municipal officials in training barangay officials who were not covered by the project. The project trained about 360 workshop facilitators. Building Capacities of the Muslim leagues. The Foundation provided institutional funding and technical assistance for the setting up of a secretariat that will support staff and capacity building of the Muslim League of Cities, Municipalities and Communities of the Philippines (MLCMCP). The CD program provided a two-day orientation on the ethics and accountability program, study tour and cross visits, newsletter and the development of a web based database system. There were also two to five days workshops on resource mobilization, networking, and technical writing. Public Governance Scorecard Strategy. The project was implemented in selected cities to equip city administrators and heads of peoples councils to initiate and pursue a public governance improvement program. At the end of the training-workshop, the participants were expected to identify benchmarks of good governance and responsible citizenship, propose a breakthrough strategy to promote good governance, develop a plan of action to how to deepen involvement of stakeholders in the PSG process. The cities that participate in the PSG project are: San Fernando, Calbayog, Tagbilaran, Naga, Samal, Surigao, Marikina, Iloilo, and Cebu. 3.0 AusAIDS Programs 3.1. Technical Assistance to Physical Planning (TAPP) The project assisted 77 provincial land use committees to refine and improve the processes and outputs of physical planning and land use decisions through technical and training assistance. The project developed manuals and databases such as: Refined regional and physical framework planning guidelines Refined regional physical framework plans Prescribed processes and procedures for integrating physical planning at all levels Draft provincial physical framework plans Learning materials for a provincial physical framework plan training program The major lesson from the project was the clear evidence that learning-with work or the off- the job/on-the-job training approach of the type undertaken by the TAPP project is an appropriate approach to be considered in other similar bilateral projects.
3.2 Philippines Australia Governance Facility (PAGF) The facility was intended to provide responsive and effective support for governance at national, regional and local levels. The CD program was carried out in different LGUs (Goa, Camarines Sur, Provinces of Agusan del Sur, Albay, Camarines Sur, Northern Samar, Misamis Oriental, Naga City, Gingoog City. The project developed the following relevant manuals:
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Naga City Peoples Council (NCPC) training modules for basic and specialized courses for the basic sectors- the module consists of means to strengthen participation of non-government organizations and peoples organizations in governance: leadership and communication, local government planning and budgeting, local administration and governance, documentation and recording, organizational management, simple accounting for non-accountants and advocacy Planning and Monitoring framework-Operational planning and monitoring manualan operation guideline that sets out detailed procedural requirements for interdepartmental operation planning and monitoring for the whole provincial planning process. It also covers procedural guidelines in conducting meetings, planning, budgeting, and monitoring and other coordination mechanisms. Gave performance indicators and schedules, timelines and guidelines in monitoring report preparation. It was developed in partnership with the province of Northern Samar. A manual on the local development administration performancea set of indicators to measure local development administration in the Philippines in the areas of participatory governance, delivery of basic services, role of local legislative bodies in local governance, participation of NGOs in local special bodies, participation of NGOs in local special bodies. The manual provided for a workshop and is produced in diskette form. The project was implemented in partnership with DAP and was called the Local Development Administration Measurement System (LDAMS) Guidelines on strategic planning in urban areasuse of strategic planning process in the preparation and revision of comprehensive land use plans and other strategic urban area issues. Different manuals on community-based health management programs in partnership with Agusan del Sur: managing community-based health programs, financial management of foreign aid funds, operations of the provincial health resource center, MIS for an RHU, various manuals for BHWs, e.g. early case detection and treatment The project also produced a report on an Analysis of the provisions of the LGC on peoples participation in local development councils, experiences on peoples participation and an action agenda. 3.3. The Philippines Australia Technical Support for Agrarian Reform and Rural Development (PATSARRD) 2003-2006 This assisted the DAR and LGUs in involving farmer beneficiaries into the development planning processes and was carried out in Agusan del Sur, Bohol, Northern Samar, Surigao del Norte, Misamis Occidental, and Aklan with an Australian grant of A$10.0 million. Their participation was a way to facilitate delivery of support services, improve efficiency in resource allocation and demonstrate means to improve access of rural poor to improved technology, markets and micro finance. The project developed the following materials: Participatory area planning manual Resource mobilization and networking Convergence: PATSARRD Experience (a monogram) The project was considered highly successful with respect to developing participatory planning process. 3.4. Philippine Australia Local Sustainability Program (PALS) 2004-2009 PALS 1 was undertaken with an Australian grant of A$12.0 million from 1999 to 2004. It piloted an integrated approach to community-based development in six municipalities in Misamis Occidental. The project has been extended in May 2004. PALS 2 included the remaining eight municipalities in the province. The program aimed to build the capacity of the LGUs to better plan, implement and manage sustainable activities to improve the livelihood of the rural poor. It attempted to address key constraints: lack of community participation in planning, weak community planning processes, poor access to basic
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water supply and sanitation services, unsustainable natural resource use and management practices, and disparities among vulnerable groups. The strengthening activities during the first years focused on preparatory reviews and the conduct of assessments of provincial and municipal development plans. Modules and databases were developed on formulating barangay development plans and barangay profiles, how to conduct household surveys, and assess coastal resources. It noted the limited ongoing capacity of LGU officials to monitor Phase 1 supported projects and that resource constraints have constrained local staff in undertaking field activities. Turnover in LGU counterparts have had a negative impact on project implementation. 3.5. Philippines-Australia Human Resource Development Facility (PAHRDF) 2004-2009 The facility aimed to achieve sustainable and equitable development in the Philippines by providing long-term scholarships and short-term specialized training to improve governance and management of key public and private institutions. It brought a new approach to structured HRD interventions by focusing more on the specific HR needs of key institutions. The focus of the program is on economic governance, rural development, security and stability with special emphasis on southern Philippines (Bohol, Northern Samar, Misamis Occidental, Agusan del Sur, and Surigao del Norte.) Institutions are profiled against a set of criteria before partnering agreements are developed. The Australian grant was A$59.6 million. The HRD solution was expected to support the needs of the institutions rather than adopting a standard format of short-course customized training. For instance, programs may include training or other activities in third world counties. Increased emphasis was be placed on utilizing local service providers, particularly those that are Mindanao-based. Some of the examples of the CD programs are as follows: Bohol Short-term (five days) on integrated management of the HRMD function Mentoring on HRMD plan development and installation, enhancement Ten-day course on social marketing and ID development Assistance to a Local Resource Partner to develop a curriculum for masters or diploma course on integrated rural planning Modular course on development planning Mentoring and consultancy assistance on the preparation of the Master Development Plan Two-days session on fundamentals of economics and market analysis
4. World Bank
4.1 Philippines-ARMM Social Fund Projects The goals of the project were to reduce poverty and provide support mechanisms for the promotion of peace in the conflict-affected areas in ARMM. Part of the projects objective is improving local governance and institutional capacities with a focus on improved transparency and accountability in the allocation and management of public resources by participating communities, LGUs and ARMM regional government. The project is intended to be community-driven through improved partnerships and multiple mechanisms such as quick response methods. POs will receive on a demand basis technical and financial assistance so they may efficiently implement subprojects addressing their priority socioeconomic needs. The approach will involve community contracting and various accountability mechanisms to ensure efficient and transparent use of funds.
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The project has a component US8.80 million that supports project management, institutional strengthening and enhanced governance. This component initiated processes towards improving service delivery, transparency and accountability. The component supported the cross-cutting theme of good governance in all the sub-project components. Cross-visits were organized to expose ARMM and LGU officials to best practices in local governance and public service delivery in other regions. Project management assistance were implemented through learning by doing and in-service training. Information requirements and gaps were assessed and a social marketing campaign were conducted. CIDA-LGSP- assisted communities were given priority to receive assistance. The project targeted 20 percent of ARMM barangay but all municipalities were eligible to participate in accordance with the projects selection criteria. 4.2 Kalahi-CIDSS The five-year project empowered communities through enhanced participation in barangay governance and involvement in the design, implementation and management of development activities that reduce poverty. This goal was pursued through: empowerment of communities based on facilitated participatory planning, implementation and management of local development activities. Formal and informal institutions in local governance are strengthened to become more inclusive, accountable, and effective. Communities will be engaged in a demand-driven process of problem solving by consultations that match needs with limited resources. The components of the project included: community block grants to the barangay that will be used for community investment activities. Implementation support were given to facilitate barangay planning, implementation and maintenance of assets and investments. The municipalities monitored and handled problem solving at monthly interbarangay assembly meetings, provided technical services on request, supported community investments through complementary municipal development planning, and audit accounting reports. The following manuals have been prepared: Community Organizing Community Infrastructure Community Livelihood Kalahi-CIDSS Project Financial System Community-Based Financial System Monitoring and Evaluation Training and Capacity Building Human Resources and Staffing The comprehensive facilitation process aimed at ensuring inclusive participation by the poor, indigenous groups, men, women, and youth in the planning process. The implementation support consisted of the following: 1. Social Mobilization and Community Organizingproject will recruit and train community facilitators in each region to undertake info dissemination at the community level, mobilize and support community volunteers regarding participation in project planning and implementation. Community facilitators will liaise with municipalities and consultants and facilitate inter-barangay forums. They were provided training on development planning and management, conflict resolution, intra-and inter-barangay mediation, quality reviews, poverty assessments.
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2. Capacity building for LGU communities----training were provided on project planning, contracting, construction supervision, O and M, bookkeeping and financial management to barangay development councils. Training were provided to technical staff to support barangay level activities regarding assessment of technical feasibility of projects, project design and management, and monitoring. 3. Monitoring and Evaluationthis involved participatory monitoring by communities on selfdefined indicators, internal monitoring of inputs, process and outputs. Baseline data for impact monitoring were established during project implementation. The project covered one-fourth of all municipalities in provinces where the incidence of poverty is above the national average of 33.7 percent or 5,378 barangay in 193 municipalities in 40 provinces. 4.3 Laguna de Bay Institutional Strengthening and Community Participation (LISCOP), 2003-2009 The project assisted the Laguna Lake development Authority (LLDA), LGUs and other stakeholders improve the environmental quality of the Laguna de Bay watershed. The project had two components: 1) support demand-driven investments that will improve the watershed environmental quality. Selection and prioritization were based on the results of a participatory micro-watershed-based planning and identification process. The identified interventions were implemented by multiple LGUs with each LGU borrowing for a sub-project within its jurisdiction. LGUs were required to earmark a portion of their IRA for operation and maintenance. The LGUs were required to reimburse LLDA the costs of doing the feasibility studies in the event that it decides not to proceed with the sub-project. 2) capacity building for LLDA, LGUs River councils and watershed stakeholders on environmental, social, technical, financial and managerial aspects of watershed management. The project strengthened LGUs capacity and provided financing to undertake environmental planning and investments. The process were integrated and institutionalized as part of the local development planning and programs of the LGUs, thereby influencing other related sectoral plans and policies. The project further developed River councils into an advisory consultative and coordinative multi-stakeholder body for micro-watershed environmental issues. This were done through the microwatershed planning framework that will include all LGUs in the micro-watershed. Additionally, implementation of programs of actions were done by multiple LGUs to ensure a coordinated approach that can address the interjurisdictional micro-watershed issues. The project also provided an organized structure to involve civil society in environmental planning and management. Once this planning and implementation process was institutionalized into the LGU development planning, the River Councils were seen to serve as a permanent forum for LGUs to discuss environmental issues and to plan needed interventions. 5. European Union 5.1 Technical Assistance for the Health Sector Policy Programme ( 2005- 2008) The European Union supported local health reform under Fourmula One for Health between and among local government personnel, Centers for Health Development staff and representatives in LGU, local health reform implementation coordinators (LRICs) and technical consultants. While the Local Government Code of 1991 provides genuine and meaningful authority to local governments giving them more power, authority, responsibilities and resources on health services delivery, the Code however, initiated the fragmentation of the delivery of health services to the people on the public sector end. Before the devolution, the Department of Health was the financial and administrative authority over the entire health system. The exceptions to this were the chartered cities. After 1991 the health system operationally
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was divided into the municipal/city, province and the DOH administrations. Each body exercises financial and administrative authority over their respective areas. The DOH maintains its role as the steward of health of the country. Fourmula One for Health ws the implementation framework for health sector reforms. It applies to the entire health sector and is designed to implement critical health interventions and programs, projects, activities at the national and local level as a single package backed by effective management infrastructure and financing arrangement. The policy supports for sector reform are guided by Health Sector Reform Agenda (HSRA) and National Objectives for Health (NOH), the Sector Wide Approach for Health (SWAp), and the Sector Development Approach for Health (SDAH). The Fourmula One for Health synthesizes all of these policies. The Province-wide Investment Plan for Health (PIPH) is the key instrument in forging the DOHLGU cooperation for health, woven around the Fourmula One for Health and defines common goals. The speed of the delivery of health packages/srvices is moderated by standards, regulations and national laws. It is powered by PhilHealth claims of reimbursements, internally generated funds like local taxes, user fees and economic enterprise. From the national government financial support is through the internal revenue allotment (IRA), DOH regular budget, DOH counterpart to EC grant, national government subsidy for PhilHealth premium, foreign grants and loans. The Inter-Local Health Zone (ILHZ) was used as an innovative approach to the disparate and fragmented health system. The Local Government Code provides that local government units may, through appropriate ordinances, group themselves, consolidate or coordinate their efforts, services and purposes commonly beneficial to them. Section 33 LGC 1991. This intervention resulted to, among others, a Manual for Health Reform Coordination. This manual aimed to promote a common understanding of local health reform under Fourmula One for Health between and among local government personnel, Center for Health Development (CHD) staff and representatives in LGU as well as local health reform implementation coordinators (LRICs) and in the long term technical consultants. The manual can be used by the LRICs, DOH representatives assigned in the provinces, cities, municipalities, any member of CHD, and technical consultants. It consists of three (3) major sections: Contextualizing Health Sector Reform, Implementing Health Sector Reform, and Coordinating the Health Sector Reform Implementation. 5.2 Mindanao Health Sector Policy Support Programme (2009- ongoing (2012?)) In 2009, the Mindanao Health Sector Policy Support Programme (MHSPSP) commissioned a capacity assessment of the Local Health Boards covering 250 municipalities, of which only 41 exhibited characteristics of a moderate level of capacity. The study recommended conducting capacity-building in the areas of governance, policy-development, government financial system, public health monitoring and evaluation, and networking and social marketing, Accordingly, the MHSPSP designed a set of modules covering : 1) values and governance for health; 2) public finance management and procurement; 3) monitoring and evaluation and health services planning; and 4) community engagement and advocacy in local health boards (CEAL). The modules were integrated into one course named Advocating Health, Empowerment, and Attitude Change for Development (AHEAD) Course. Ten local health boards (5 each from ARMM and non-ARMM regions) were selected to participate in the pilot course, based on their having been ranked as top performing LHBs from each province.
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The objective of the intervention was to assist the Local Health Boards attain a level of capacity and functionality that will enable them to maintain and/or gain the political commitment to improve and sustain local health services. The recommendations for the content and methodology of capacity enhancement program for the LHBs include: A. Strengthening the LHB on the following five core functional capacities: a. Policy Development b. Organizational Management c. Systems Development B. Skills enhancement on: a. Writing policies, guidelines, resolutions, protocols b. Analyzing and interpreting health data and using them in decision-making c. Visioning d. Managing health information e. Planning and developing applicable capacities f. Identifying indicators vis--vis monitoring and evaluation g. Resource Management and Mobilization h. Networking i. Social Marketing j. Understanding the government financial system and budget cycle and relating them to planning The course was implemented over a four-week period from August-September 2010. A total of 44 members from 9 municipalities and 1 city completed the course. Each LHB was composed of the following: Mayor, Municipal Health Officer, representatives of peoples organizations or non-government organizations, Chairman of the Committee on Health of the Sangguniang Bayan, and a representative from the Department of Health The course was designed with built-in tools to assess the learning at the beginning, middle, and end of the course. Participants were required to present a simple Action Plan at the end of each module to demonstrate application of the skills and knowledge acquired under each module. The Action Plans served as barometers by which the trainers gauged the participants appreciation and understanding of the skills and knowledge at the end of each module. While the course evaluation indicated that course objectives were met and rated highly by the participants, and that the greatest achievement was the transformation of a group of learners into a community of practitioners of good governance in Local Health Boards and municipalities , the challenge is on mechanisms for replication, and ensure the sustainability of commitment and application of the graduates of the course to apply acquired knowledge, skills and attitudes from the course. 6. 0 United States Agency for International Development 6.1 Strengthening Local Governance for Health (HealthGov) 2006-2011 LGUs capability to manage and finance service delivery still needs strengthening in many areas, including information systems and reporting, procurement and logistics as well as management of human resources and finances. Financial resources for health services are often inadequate. Emigration of health professionals significantly impacts service quality. Emerging and reemerging infectious diseases vie for attention from an already overextended public health sector. The Strengthening Local Governance for Health Project (HealthGov) is a comprehensive response that will strategically take on the Department of
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Healths (DOH) FOURmula ONE framework for health sector reform as a window of opportunity to address these challenges. Health Govs aim is to strengthen LGU commitment to health and capacity to provide, finance, and manage quality health services sustainably, particularly family planning, maternal and child health, tuberculosis, HIV/AIDS and other infectious diseases such as avian influenza, malaria, and severe acute respiratory syndrome (SARS) . Components include: Strengthening key LGU management systems to sustain delivery of selected health services Improving and expanding LGU financing for key health services Improving service provider performance Increasing advocacy on service delivery and financing
HealthGov helps build local capacity to manage and finance health systems and services in over 500 LGUs in 23 provinces spread across 3 major areas in the country: Luzon, Visayas, and non-ARMM Mindanao. It assists LGUs to develop sustainable relationships with 1) their constituents to improve the quality and accessibility of health services, and 2) local technical assistance providers that will help build LGU capacity and knowledge. To accomplish its goal, HealthGov works with DOH, USAID-supported projects, and other stakeholders. HealthGov is managed by RTI Philippines in partnership with JHPIEGO, the Centre for Development and Population Activities (CEDPA), the Philippines NGO Council for Population, Health, and Welfare (PNGOC), and Orient Integrated Development Consultants, Inc. (OIDCI). Started in October 2006, the program will run through September 2011. 6.2 USAID/National Democratic Institute. Citizen Policing (2003-2005) The National Democratic Institute (NDI), with support from USAID, conducted a pilot-program on citizen policing to promote good governance and enhance community-police relations in the Autonomous Region of Muslim Mindanao. NDI worked with 5 municipalities and over 100 barangays to increase local capacity to address community safety problems and develop policing models. NDI facilitated the formation of citizen-police working groups on capacity-building programs to help address local peace and order problems. NDI worked with Municipal Peace and Order Councils (MPOCs) in conducting public safety assessments, and workshops to draft Integrated Area Community Safety Plans (IA/CSP). During the projects Phase I (2003-2004), NDI selected North Upi, Sultan Kudarat,and Sultan Mastura , communities with a mix of Christian, Muslim and lumad populations and are beset with a mix of local public safety issues from petty crimes to armed conflict between government forces and rebel groups. Community needs assessments were conducted which yielded peace and order issues as well as clarification of roles between various law enforcement agencies and the citizenry. Upon validation of the range of peace and order issues, community action plans were formulated, which served as the blueprint for the work of community police action teams working within clusters of barangays. Phase II ( 2004-2005) of the project saw the addition of Bariria and Guindulungan of Maguindanao Province, the replication of capacitybuilding activities, as well as the implementation of IA/CPSPs. Capacity building activities included the conduct of a series of facilitated community discussions (talakayan) , organizational development assistance to the PNP, and training for core team members on topics such as community-based policing, lakbay aral for COPS, and on crafting public safety plans. Traditional modes of conflict resolution were also covered in several discussion for a and capacitybuilding activities.
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Indicators of the projects successes are the following: MPOCs in pilot sites model replicable community policing practices through public safety citizen-police core teams; mproved capacities of police units in the pilot sites to promote community-oriented systems in the context of effective crime or disorder response and community policing; Greater support from the regional and provincial agencies to strengthen the community policing modeling and replication process; and Increased access by pilot and non-pilot sites to information on principles of community policing; replicable practices and lessons learned in administering public safety Key Lessons on capacity building: Most police in the region are interested in being perceived as members of a credible security force. Working with the Regional Police and the Philippine Public Safety College to enhance training curricula and to decentralize training in key areas related to community policing (hard and soft skills) is a critical part of force development as well as the governments ability to maintain stability in the region. There will always be environments where implementing activities that bear on how power is distributed within a community, particularly as respecting security, cannot easily take place. Two of such communities backed out of the project at the end of Year One. In these instances, the increased participation of community residents began to threaten the ability of powerful mayors to stifle public discussion about local corruption or repression. The program demonstrated that success in mobilizing community residents to participate in governance of peace and order, which, though essential to establishing effective community policing, too severely challenged the status quo. The experience suggests that some care must be exercised when implementing programs in municipalities with strong mayors afraid of losing their power base. The teams success in one munici pality suggests that an entry point into closed, hierarchical municipalities can be non-criminal public safety threats such as those presented by a traffic condition.
6.3 Education Quality and Access for Learning and Livelihood Skills Phase 2 (EQUALLS2)
/Synergeia Foundation (2006-2011). EQuALLS2 assists the Philippine government in improving education in Mindanao. The project offers a core set of interventions aimed at increasing access to quality education for elementary school children and relevant learning and livelihood skills training for out-ofschool youth. The EQuALLS2 project is implemented in partnership with international and local organizations that specialize in education and youth development in Mindanao. Project interventions are delivered in partnership with the Department of Education (DepED) and DepED in the Autonomous Region in Muslim Mindanao (ARMM), together with local government units and education stakeholders in the community.
One of the relevant set of activities under Equalls is on Building the capacity of key stakeholder organizations To help decrease conflict and develop the Mindanao workforce, EQuALLS2 works to build the capacity of a wide range of stakeholder organizations, making them more responsive to the educational needs of the youth. The project works with: local parent/teacher/community associations; municipal governments; local school boards;local, regional, and national NGOS; and
national and regional partnerships. The project also helps the Department of Education at the national, regional, district, and school levels, including the Bureau of Alternative Education, in strengthening their capacities for management and administration. EQuALLS2 uses an institutional building process that includes formal and informal training, internships and mentorships, on-the-job training, and small-scale organization development grants. By
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strengthening the capacity of the organizations, EQuALLS2 aims to maintain educational improvements after the projects completion and ensure that institution-building strategies are both successful and sustainable to employ youth now and in the future. 7.0 Selected other International Funder: Helvetas (Swiss Association for International Cooperation) (2002-2006) Since 1981, Helvetas has, through provincial/national NGOs, supported community development programmes in the field of natural resource management (sustainable agriculture and coastal resource management, livelihoods/marketing, advocacy) and through the promotion of the rights and capacities of indigenous minorities. In 2002, Helvetas initiated a new programme for governance and rural empowerment support services (PROGRESS). The countrys law on decentralisation lends support to Helvetas policy to work on local governance. The policy was to support the enforcement of the LGC. The programme worked in two of the most impoverished provinces of the Philippines: Palawan with a population of approximately 800,000 people living on 14900 km2, and Northern Samar with a population of about 500000 people living on 4000 km2. The approach was to build partnerships between local governments and civil society organizations with the aim of strengthening the decentralisation programme and thus providing effective public services to rural communities. Helvetas policy focuses on both elected local government units and local civil society organisations, to jointly plan and implement basic infrastructure development projects. The intervention strengthens input as well as output functions. On the one hand, Helvetas supports local government units to develop participatory strategic development plans at barangay level and to integrate them into municipal levels. On the other hand, Helvetas helps local development councils and local government units to plan, implement and monitor/control infrastructure projects in collaboration with civil society representatives. The Institute of Politics and Governance (IPG)16 was mandated by Helvetas to develop the capacities of local government units and civil society organisations. The IPG has conducted: training on decentralization and democratic participation, focusing on the provisions of the LGC as well as the rights and duties of local governments and their constituents; training on barangay development planning through participatory rural appraisal (BDP-PRA). Local government units conducted PRAs and formulated a strategy and five-year development and annual investment/operations plans which were presented to the barangay council for approval. Barangay development plans are integrated into municipal development plans, thereby formalising bottom-up participatory planning. In both provinces, Helvetas facilitated pledging sessions at which the municipal strategic plans were presented to public, provincial and national representatives. Investors and donors were invited to pledge funds for the implementation of municipal plans. Project selection and implementation NGOs and local government units jointly proposed a project to a Project Selection and Management Board (PSMB) in order to qualify for PROGRESS support These provincial development councils, which were foreseen by the law but were in reality not functional and had to be (re)-activated, comprise in each province three government representatives from the provincial government, the league of mayors and barangay captains17, and two representatives from civil society (one NGO based in the province and the IPG). Hence, these PSMBs ensured a multi-society sector selection of projects. The selection criteria jointly developed by the PSMB members bear witness to their willingness to collaborate in support of the applying communities/ NGOs in the fields of livelihood promotion, delivery of basic services and natural resources management. Helvetas signed a tripartite agreement with the local government unit and the civil society organisation. At the start, Helvetas had clarified to all partners (local government units and civil society organisations) that large physical infrastructure projects were not eligible in PROGRESS. This for two reasons: a) to minimise exposure to corrupt practices since most of the physical infrastructure projects are the main sources of corruption in
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government, and b) in order to increase the number of benefiting barangays/municipalities within the restricted project budget frame. Results obtained were: a) Multi-society sector partnerships established as a transversal theme in project cycle management (from project identification to project selection and through to project implementation) have led to enhanced trust and a decrease in misconceptions and ideological antagonism.b) Costs of basic infrastructure projects have been reduced significantly. c) Small-scale projects have contributed to the improvement of livelihoods and basic services in the project areas. Since 2002, a total of 80 small-scale projects have been jointly planned and implemented by local government units and civil society organisations with co-financing by Helvetas. Projects comprise income-generating facilities (coastal resource management, irrigation schemes) and social infrastructure (solid waste management, drinking water and sanitation schemes). d) The activation or re-activation of local development councils have contributed to local good governance within the legal framework. In the project area, local development councils had not been functional before programme initiation. The programme contributed to the (re-) activation of a total of 117 barangay development councils and five municipal development councils in Palawan respectively 156 barangay development councils and four municipal development councils in Northern Samar. The participation of civil society representatives in local development councils has increased from an initial situation (before PROGRESS) with usually only one civil society representative to 50 percent to 70 percent. The practical experience gained through joint project planning and implementation has led to a clarification of roles and duties, and participatory development planning has enhanced transparency and responsiveness to local needs. e) Vertical integration of participatory village development planning into municipal development plans has been institutionalised. Fiveyear barangay development plans have been integrated into municipal development plans. Through vertical integration, the municipal development plan is a means for institutionalising greater peoples participation in local governance, making development more responsive to citizens needs and priorities. The experiences in Samar province have led the Regional Office of the Department of Interior and Local Government (DILG) to order to all its officers in all provinces and municipalities in the region to employ the BDP-PRA methodology in the preparation of village plans and budgets and for the integration of these plans into municipal development plans. Lessons Learned include: Tangible results are vital for the success of governance projects. Concrete projects from joint project planning and implementation a) create trust between the collaborating civil society organisations and local government units, and b) increase visibility for the hard-toconvince. Win-win-situation in partnerships. Jointly-set priorities, in which both civil society organisations (membership increase) and government officials (the potential of re-election, increased prestige) found their win, led to successful implementation. Governance projects need long-term involvement with a clear strategy on how to phase out support. In the Philippines case, two temporary (confidence-building) structures were established, the PSMB and the PMC, to initiate multi-stakeholder partnerships. The PSMB was intended to be transferred to the provincial development councils. To know if these kick-off structures have contributed to institutionalising project activities would need follow-up. Appropriate strategies need to be reflected upon early before phasing out. In the context of phasing out a programme and/or as a donor like Helvetas withdraws, pledging sessions are a means to diversify municipal funding. Donor funds are only temporary schemes to stand in for insufficient internal revenue allotment or local revenue collection. Prerequisites for replication or scaling up are needed which include a) visibility of project results, b) a strategy to institutionalise from the beginning project structures and mechanisms into state structures, c) alliances with other donors and/or advocacy
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with/lobbying of provincial and national level government tiers to integrate project activities into larger decentralisation/ governance programmes, and d) sufficient project volume from the start allowing leverage to vertically integrate local and municipal plans into decentralisation structures or mechanisms. Community-based organisations need to be strengthened at barangay level so they can play their role as advocate of civil society interests. In the Philippines, civil society is still fledging and will need further supportive measures and capacity building. NGOs working at national or provincial level in the Philippines are mostly donor-funded and can only to a limited extent advocate community interests at municipal and barangay level in the long term. Provincial/national NGOs can provide technical assistance to peoples organisations at barangay level. Mutual control/transparent information reduce project costs. The PSMB and PMC are set up as joint committees in which both governmental representatives and civil society entities participate. These joint committees allow for mutual control and especially rigid cost control mechanisms. Clear definition and division of roles of society sectors strengthen trust and collaboration. Clear agreements between partners contribute to a clarification of roles and responsibilities.
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III. Inventory of Training Modules on the Four LGC-Mandated Local Special Bodies This inventory of training modules focuses on the following four local special bodies: 1) Local Development Councils 2) Local Health Boards; 3) Local School Boards, and 4) Local Peace and Order Councils. Various narrative reports, proceedings, training manuals, published modules, brochures, pamphlets and online resources were perused to outline the contents of capacity-building training sessions for these local special bodies. 1.0 LOCAL DEVELOPMENT COUNCIL 1.1 LGSP: Reclaiming Public Life Through Local Special Bodies: Module 1. Operationalizing the Local Development Council (2004) . This is the first Module of this 5-module series on local special bodies produced by LGSP. As with all the other modules, this is designed for a two-day training session that ends with an Action Plan meant to operationalize the local special body. Session 1: Overview of the Local Government Code, the Sustainable Integrated Area Development Framework, and the Local Public Administration Cycle. Session 2: The Local Development Council, Key Players and Scope of Responsibilities Session 3: An assessment of the Local Development Council through SWOT Analysis Session 4: Action Planning Session 5: Wrap-up and Closing 1.2 LGSPA: Barangay Governance and Planning Field Guide for ARMM Communities (2009) This facilitators guide adds to the above effort on barangay development planning by integrating thematic areas of peace and human security, the inclusion of a module on Islamic Bridging Leadership, the integration of cross-cutting themse of gender eaulity, poverty reduction, cultural integrity and environmental sustainability, as well as a very conscious effort to identify interface points between barangay and municipal development planning processes. It is also placed within the context of autonomy in Muslim Mindanao. Part I: Barangay Governance Module 1 The Baranay and Local Governance Module 2: Islamic Bridging Leadership Module 3: Localizing Peace Building in ARMM Part II: Barangay Development Planning Module 4: Participatory Barangay Development Planning Session 1: Principles and Concepts in Participatory Barangay Development Planning Session 2: Preparing to Plan: Overview of the Planning Road Map and the 12 Steps to Barangay Development Planning Session 3: Starting to Plan Session 4: Actual Planning (the 12 Steps) Session 5: Adapting the Barangay Development Plan Session 6: Packaging and Communicating the Results of the Barangay Development Plan Module 5: A Simple Approach to Managing Barangay Projects Session 1: Project Management and the Project Life Cycle Session 2: Preparing a Project Proposal Session 3: Project Monitoring and Evaluation
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1.3 LGSPA: A Manual on the Local Planning Process: Formulating the CDP-ELA in ARMM (2009) . The barangay governance and planning field guide above and this manual are companion pieces of very comprehensive coverage. They share the same distinction of proving interface points, the cross cutting themes of poverty reduction, gender, culture,and environment espoused by LGSPA, and contexted within Islamic governance and autonomy. The manual is said to represent the collective experience of 118 local governments supported by the LGSPA in crafting their CDP-ELA. Like its abovementioned barangay counterpart manual, it contains a step-by-step guide on formulating the CDP-ELA The Manual also supports the Rationalized Planning System advocated by the DILG. The Major Parts of the Manual are: Getting Started the preliminary work for CDP-ELA formulation Formulating the Plan Plan Implementation Advocating the Plan Monitoring and Evaluation
2.0 LOCAL HEALTH BOARDS 2.1 Mindanao Health Sector Policy Support Programme. In 2009, the Mindanao Health Sector Policy Support Programme (MHSPSP) commissioned a capacity assessment of the Local Health Boards covering 250 municipalities, of which only 41 exhibited characteristics of a moderate level of capacity. The study recommended conducting capacity-building in the areas of governance, policy-development, government financial system, public health monitoring and evaluation, and networking and social marketing, Accordingly, the MHSPSP designed a set of modules covering : 1) values and governance for health; 2) public finance management and procurement; 3) monitoring and evaluation and health services planning; and 4) community engagement and advocacy in local health boards (CEAL). The modules were integrated into one course named Advocating Health, Empowerment, and Attitude Change for Development (AHEAD) Course. Ten local health boards (5 each from ARMM and non-ARMM regions) were selected to participate in the pilot course, based on their having been ranked as top performing LHBs from each province. The objective of the intervention was to assist the Local Health Boards attain a level of capacity and functionality that will enable them to maintain and/or gain the political commitment to improve and sustain local health services. The recommendations for the content and methodology of capacity enhancement program for the LHBs include: C. Strengthening the LHB on the following five core functional capacities: a. Policy Development b. Organizational Management c. Systems Development D. Skills enhancement on: a. Writing policies, guidelines, resolutions, protocols b. Analyzing and interpreting health data and using them in decision-making c. Visioning d. Managing health information e. Planning and developing applicable capacities f. Identifying indicators vis--vis monitoring and evaluation g. Resource Management and Mobilization h. Networking i. Social Marketing
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j. Understanding the government financial system and budget cycle and relating them to planning
The course was implemented over a four-week period from August-September 2010. A total of 44 members from 9 municipalities and 1 city completed the course. Each LHB was composed of the following: Mayor, Municipal Health Officer, representatives of peoples organizations or non-government organizations, Chairman of the Committee on Health of the Sangguniang Bayan, and a representative from the Department of Health The course was designed with built-in tools to assess the learning at the beginning, middle, and end of the course. Participants were required to present a simple Action Plan at the end of each module to demonstrate application of the skills and knowledge acquired under each module. The Action Plans served as barometers by which the trainers gauged the participants appreciation and understanding of the skills and knowledge at the end of each module. While the course evaluation indicated that course objectives were met and rated highly by the participants, and that the greatest achievement was the transformation of a group of learners into a community of practitioners of good governance in Local Health Boards and municipalities, the challenge is on mechanisms for replication, and ensure the sustainability of commitment and application of the graduates of the course to apply acquired knowledge, skills and attitudes from the course. 2.2 HealthGov: Orientation Workshops on Health Sector Reform for NGOs and Civil Society Organizations. A 2.5 day workshop meant for CSOs and LGUs to level off the understanding of the
Health Sector Reform and Formula One, understand the Provincial Health Situation, and identify action points to strengthen LGU/NGO/CSO/Community partnership for health.
Day 1 Session 1: Health and Development (Workshop in small groups on concepts of health and development, Lecture on Health and Development, 2 hours) Key concepts: common indicators of Quality of Life; Development in terms of overall health; Session 2: Health Sector Framework and the Challenges of Health Sector Reform (Lecture on introduction to Economics, Local Governance for Health, evidence-based participatory decision-making; and Health Sector Reform and Fourmula One for Health; 4 hours) Session 3: Understanding Health and the Development Situation in Luzon (Lecture, 1 hr) Session 4: Reflections and Insights (Structured reflection session. 30 min) Day 2: Session 5: Information on Investments for Health Sector Reform (2 hours) Session 6a: Understanding HealthGov and Its Activities (30 min) Session 6b: Building Partnerships for Health (1.5 hours) Session 7: Engaging and Mobilizing CSOs/NGOs/Communities for HSRA (2 hours) Key concepts: Local Government Code mandates; Executive Orders, Administrative Orders; Resolutions Session 8A: Workshop: Challenges of NGOs/CSOs Participation in HSRA (1 hour) facilitating and hindering factors on CSO participation; presentation of Action Plans Day 3
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Session 8B: Agreements, Next Steps, Commitment Setting (workshop and presentation of Action Plans (2 hours) 2.3 LGSP: Reclaiming Public Life Through Local Special Bodies. Module 3: Operationalizing the Local Health Board. A two-day workshop for local health board members. Expected outputs: Reviewed salient features of the LGC Understood SIAD Framework in Sustainable Development Appreciated the local public administration cycle as the context of participating in governance activities Described the composition and functions of the LHB Identified effective ways to manage LHB meetings and activities Gained knowledge and confidence to participate in LHB Day 1 Session 1: Overview of the Local Government Code, the Sustainable Integrated Area Development Framework and the Local Public Administration Cycle (3hrs) Session 2: The Local Health Board: Roles and Responsibilities (1.5 hours) Session 3: Managing Local Health Board Meetings (1.5 hours)
Day2 Session 4: SWOT Analysis and Assessment of Local Health Board (3 hours) Session 5: Developing a One Year Operational Plan (2.5 hours) Session 6:Wrap-Up and Closing Program 2.4 InWent. District Health Management Tools (2003) , a four-weeks course which can be shortened to select modules .The course structure and training methods not only allow for the enhancement of knowledge, skills and attitudes, but also designed to be put into practice during supervisory work. Some of the more relevant modules for possible replication for Local Health Boards are: Module 1-3 : Introductory Course on Leadership UNit 1: Basic Skills in Communication Unit 2: Visualization/Facilitation Unit 3: Leadership Unit 4: Gender and Diversity in Management Unit 5: Team Building and Team Work Unit 7: Conflict Management Module 4: Managing the District Unit 1: Introduction to Community Health Unit 2: The District Concept Module 5: Situational Analysis of Health Problems and Health Services in the District Unit 1: Introduction to Health Problems: Situational Analysis Unit 2: Priority Setting Unit 3: Introduction to Health Service Analysis 3..0 LOCAL SCHOOL BOARDS: 3.1 LGSP: Reclaiming Public Life Through Local Special Bodies. Module 2: Operationalizing the Local School Board (LScB). A two-day training workshop for members of the Local School Board. Session 1: Review of the Local Government Code, SIAD, and Local Public Administration (1.5 hrs) Session 2: The Local School Board (1.5 hours) Session 3: Current Education Realities through SWOT Analysis (2 hours)
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Session 4: Action Planning (3.5 hours) Session 5: Wrap Up and Closing (1 hour) 3.2 Synergeia and City Government of Naga: Reinventing the Local School Board. The manual produced under this project mainly contained the following major topics which can further be systematized into a 2-3 day training workshop: Topics: 1.Basic Education in the Philippines 2. Elements of Good Governance 3. Reinvention: Key Elements Involving the Community Using Resources Effectively Improving School Board Operations o Situational Analysis o Planning and Implementation o Monitoring and Evaluation 4. Good Governance Progressive Perspective Multisectoral Partnerships Participation Systematic Reform Synergeia has also come up with a simple pamphlet meant to provide guidance to local government units on Local School Board Reinvention Process, using a checklist of steps. These major steps could be further broken down into stand alone training workshops, as needed.
4. 0 LOCAL PEACE AND ORDER COUNCILS: 4.1. Laying the Foundation for Peace and Development: an Alliance Building Workshop (AUSAID) The passage of AO 192 ordering a Humanitarian Offensive in Basilan, Sulu and other ARMM areas is a package of government initiatives expected to result to comprehensive service delivery through a program called Health, Education and Livelihood Progress (HELP) program. To this connection, the DILG conducted an activity called Laying the Foundation for Peace and Development: An Alliance Building Workshop, a 2-day workshop for 61 participants from Sulu and 47 participants from Basilan for Local Chief Executives. The program had 4 modules: Module 1: Laying the Foundation for Effective and Efficient Transition highlighted the state of local governance of the two provinces. Module II: Bridging the Gap Between Government and People provides an understanding of the thrusts and programs of the national government and the Autonomous Regional Government Executive Agenda (AREA) for the province and define strategies on how to link these national, regional and local intiatives. Module III: Citizenship as Foundation of Good Governance worked on translation of good citizenship values into concrete actions for achieving long lasting peace and development. Module IV: Mobilizing Through Synergy built municipal and provincial development agenda and facilitated the identification of development initiatives.
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Some lessons learned out of these capacity-building efforts: In some LGUs, Local Special Bodies exist in name only. The members do not meet on a regular basis and were not very clear about the roles they were mandated to play LSB governance capacities should be enhanced and mobilized. There is a need to review and update presentation materials for accuracy particularly on statistical data, not only to prevent confusion among participants, but also to serve as basis for planning and decision-making. Community participation in the promotion of a culture of peace should be encouraged and enhanced through integration of peace education in literacy and continuing education programs. One venue of active participation is within the LGC provision for joint ventures and cooperative agreements with CSOs and the private sector in the delivery of development projects. One suggested innovation is to encourage OFWs to channel a portion of their remittances to finance community development projects.
4.2. Local Government Academy: Professionalizing the Barangay Safety Officers (Tanods) program (2002-2003)
This program is aimed to prepare barangay tanods in their task of being anti-crime advocates and crime-busters in their communities. This is a collaborative action between the Philippine Public Safety Collge Local Government Academy, National Police Commission, Philippine National Police, Bureau of Fire Protection, Bureau of Jail Management and Penology, National Barangay Operations Office and DILG regional and field offices. (Legal bases: Chapter 2 Sec 387 LGC; Chapter 4 Sec 391 No 16; Chapter 4, Section 393 (d)). The training program consisted of the following: Phase I: Orientation Course. This was conducted through the Barangay Tanod Radyo Aralan. Modules were aired through the Sagot Ko Yan radio program every Saturday. After the radio program, a session is conducted to clarify questions and process learning, conducted by PNP station commander and LGOO serving as coaches. An assessment (revalida) is conducted by representatives of the PPSC to measure the level of knowledge of tanods. This runs for 4 Saturdays. Phase II: Skills Training. This consisted of basic skills and skills enhancement training, coordinated by Regional centers of PPSC. LGUs utilize the Patrol 117 ATOMM Team organized in every city and municipality as the core of trainers. Private sector is also tapped through self-defense associations and training institutions. Module 1: Interpersonal Relations and Team Development Focuses on looking at personal values and human relations, importance of teamwork in attaining community goals and leading successful teams. Module 2: Barangay Police Operations Outlines the basic barangay operations to include patrolling and ronda operations, traffic direction and crowd control, basic radio communication procedures, basic knowledge on citizen arrest, search and seizure. Also includes intelligence and investigation, information gathering, reporting and monitoring. Module 3: Basic Barangay Disaster Management and Emergency Response Operations. Strategies in responding to various disasters and emergencies. Outlines the duties
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and responsibilities of barangay public safety officers as fist responders in any emergencies, including application of first aid.
4.3 Department of Interior and Local Government. Training Manual: Training Workshop on Strengthening Barangay Peace and Order Committees (BPOCs, circa 2003) o Module 1: The BPOC Mandates. Peace and Order Situationer; Organizational Duties and Responsibilities of the BPOC, Operational Linkages and Relationship of BPOC with other agencies (lecture-discussion, PNP&NAPOLCOM, 1.5 hours). Inputs on EO No 366, DILG Circular No 2002-02, LGC 1991 Chapter 4 No 16 Section 319) o Module 2: Avenues to Strengthening the BPOCs. Workshop on areas of cooperation and partnership. Mobilizing Community Participation in Maintaining Peace and Order (Case Presentations, Technology of Participation method. DILG. 7 hours) o Module 3: Formulation of a Barangay Public Safety Plan Format and mechanics of preparing a BPSP. Monitoring, Evaluation and Reporting System of a functional BPOC. (Lecture-Discussion, Workshop Exercise. NBOO. 5 hours).
4.4 Local Governance Support Programme. Reclaiming Public Life Through Local Special Bodies Sourbook, (2004) a two-day training workshop module for POC members, which enhanced the above DILG-produced Training Manual . Session 1: Overview of the LGC, the Sustainable Integrated Area Development Framework, and the Local Public Administration Cycle. (3 hours) Reviews the salient provision of the LGC, highlighting the various avenues for peoples participation in local governance, and underscores the mandates of the LGU. Tackles the concept of Sustainable Development as the overarching development framework of the country. It relates the concept of SIAD as an operationalizing principle of SD and related SIAD with the mandates of the LGUs. Reviews the general Local Public Administration (LPA) Cycle that highlights the processes and venues for peoples participation. Session 2: The Peace and Order Council (1 hour) Compositions, functions, roles and responsibilities of the POC and its legal mandates. Session 3: The POC Operational Manual (circa July 1997). Outlines and describes the major contents of the POC Operations Manual Circa July n 1997 Session 4: Identifying Issues and Concerns on Peace, Security, and Order (2 hours). Problem Tree Analysis of peace, security and order concerns in their communities. Session 5: Action Planning (2 hours). Developing a one-year operational plan for the POC, using a prepared template. Session 6: Wrap-Up and Closing (30 minutes). Post-training test and Training Evaluation. 4. 5. National Democratic Institute (2003-2005): Community Policing 4.5.1 Community Policing. A facilitators guide meant for use of MLGOOs, MPDCs, Chiefs of Police, barangay leaders and CSO facilitators contained the key action steps in facilitating
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Community Policing. A key portion of the guide was for a 4-day training workshop for no more than 20 participants on Community Policing. Topics include: I. Foundations of Community Policing (including historical background of community policing, building partnerships) II. Problem-Solving and Community Policing (including the discussion of the SARA ModelScanning, Analysis, Response and Assessment, and practical exercises. Templates, Formats and Instruments for accomplishing the above tools were provided. 4.5.2 Community-Based Safety and Security Assessment Module. This is a two-day workshop primarily for members of the MPOC. Contents include: Session 1: Kwento ng Aking Barangay. A historical timeline of the barangay with emphasis on peace (2 hours) Session 2: Laws and Rights . National laws and basic rights of indigenous peoples, women, children, human rights during police action, environmental laws (1 hour) Session 3: Resource Mapping. Description of resources in the community (1.5 hours) Session 4: Safety and Security Concerns of the Community. Safety and security issues, conflicts in their barangays, with template (2 hours) Session 5: Journey to Peace. Visioning for a peaceful community and how to get there (1 hour) It is important to note that these training sessions, while may be treated as stand alone activities, would not have been as effective if occurring in a vacuum from other communitypolice joint activities. Success of the training programs were predicated on other community organizing, networking, exchange, consultations, and mass dissemination of information materials. More importantly, prior to the conduct of any capacity-building or partnership building activities, an organizational assessment of the Philippine National Police to undertake community policing was conducted in each of the municipalities covered. The study determined the current efforts of the local PNP on community policing, identified factors that facilitate or hinder community policing, assessed training needs, and recommended strategies for capacity-building.
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Annex A: Some Examples of Successful Local Special Bodies Delivering Effective Services: A. Local Development Planning Using Inter-LGU Cooperation 1. Metro Piestta, Cagayan5 In April 2002, six municipalities and one component city of the province of Cagayan 6organized themselves into one metropolitan area aggrupation that is aimed at economic integration and serve as a vehicle for regional growth and development. The purpose is to have cooperative undertakings that will address common development needs and concerns and ultimately improve the welfare of the clusters communities. The overall goal is to improve the quality of life of Metro Piestta residents , measured in terms of attainment of sustainable development, more livelihood opportunities, better access to services, and stable peace and order conditions. 2. Metro Naga Development Council (Metro Naga) Metro Naga is composed of Naga City and 14 municipalities clustered around the city. The Metro Naga Development Council was initiated by local government officials rather than imposed by the national government. MNDC was created through a MOA among member LGUs and was later formalized in June 1993 by virtue of EO 102 issued by Pres Fidel Ramos. MNDC is a venue for metro-wide planning and coordination to address challenges that concern all members or cross-boundary problems that a single LGU cannot address. It also functions as a service delivery mechanism. The Metro Naga concept is better suited to the needs of highly urbanized cities like Metro Manila, Metro Cebu or Metro Davao whose neighbors are also rapidly urbanizing. The MNDCs development program shows that the metropolitan concept is a viable option for fostering synergies fpr dynamic sub-national growth. It is able to address the widening gaps between urban and rural development, create more robust and diversified economies, and ultimately reduce poverty levels. While Metro Naga started as an initiative of LGUs, NGOs and NGAs are members of the Council. NGOs are able to temper the bias of elected officials for short-term projects that may compromise long term development goals. They provide continuity to the partnerships despite the turnover of local officials during election cycles, and assist in accessing resources. B. Peace and Order 1. DILG and LGU of Oroquieta City, Misamis Occidental (Bantay sa Kahusay Ug Kalinaw or BKK) In 2000, Oroquieta Citys LGU and City Peace and Order Council launched BKK in response to the high crime incidence and armed conflict. The city Mayor who chairs the CPOC requested the DILG to develop a conceptual and operational framework. The BKK was developed and endorsed to the Sangguniang Panlungsod, which approved the concept and allocated funds for it. BKK placed the barangay at the forefront of the fight against crime and ideology-based armed conflict.
Source: Stakeholders Consultative Conference of the Metro PIESTTA Cluster (Third On The Job Training Series, August 20, 2003. 6 Penablanca, Iguig, Enrile, Solana, Tuao, Tuguegarao City, Amulung
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2. Natularan Mu: Building Alliance for Peace- Strengthening the Inter-barangay Alliance for Community Peace, Rido, and Land Conflict Settlement Resolution (source: Local Government Academy bound pamphlet) C. Education 1. Joint Systems Improvement in Education (Project Josie), Bulacan; 2. Reinventing the Local School Board, Naga City D. Health 1. Synergy in Integrated Population, Health and Environemnt Programming. Conception, Tarlac 2. Inter-LGU-NGO Partnership in Health Care Delivery: Sta. Bayabas Inter-Local Health Zone, Negros Oriental 3. Effective Partnership Towards an AIDS-Free Zamboanga City 4. Sustained Quality Maternal and Child Health Care Service of Mayoyao, Ifugao.
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REFERENCES: Amoguis, Filipino O. MNSA. Citizen Policing System.(undated, unpublished) Amouyel, Alexandra. What is Human Security? Revue de Scurit Humaine / Human Security Journal Issue 1 - April 2006 Aquino-Elogada, Rachel. A Field Guide: Barangay Governance and Planning for ARMM Communities. Local Governance Support Programme in ARMM/Canadian International Development Agency. 2009
Facing Up to the Health Challenge. Service Delivery with Impact: Resource Books for Interior and Local Government. Canadian International Development Agency. www.msh.org; www.doh.gov.ph GRM International BV in Consortium with GRM International Grp Ltd., Saniplan GmBH, OIDCI and CREDES. Report to the Delegation of the European Union in the Philippines. Technical Assistance to the Mindanao Health Sector Policy Support Programme. Capacity Assessment of the Local Health Boards in the MHSPSP-supported Provinces (DRAFT). 2010 GRM International BV in Consortium with GRM International Grp Ltd., Saniplan GmBH, OIDCI CREDES. An Evaluation Report of the Implementation of the Local Health Board Training Program Advocating Health, Empowerment and Attitude Change for Development (AHEAD)Course (DRAFT MANUSCRIPT FORMAT). Technical Assistance to the Mindanao Health Sector Policy Support Programme. HealthGov. Proceedings of Orientation Workshop on Health Sector Reform for Non-Government Organizations and Civil Society Groups. Kimberly Hotel, Pedro Gil St., Malate, Manila. June 27-29, 2007. HealthGov. Proceedings of the Pangasinan Provincial Partnership Forum on Health Sector Reform. President Hotel, Lingayen, Pangasinan. September 20-21, 2007. InWent. District Health Management Tools. Dr. Barbara Loss-Quiroga (Ed.) Berlin, 2004. Kaban Galing, Galing Pook Foundation, 1604 Jollibee Plaza, Emerald Ave, Pasig City Tel 6871347 to 48 www.galingpook.org Magno, Francisco A, PhD. Increasing Sectoral Influence of Civil Society Organizations. Paper delivered at the Local Governance Participation Fair, Mercure Grand Hotel, Davao City. 17-18 march 1999 Panadero, Auster. Harnessing Participatory Governance in Revitalizing Rural Communities . Paper delivered on the occasion of the FAO Thematic Dialogues, SEAMEO Innotech Building, Quezon City. January 10, 2006. Paran, Julie Catherine. A Manual on the Local Planning Process. Formulating the CDP and ELA in ARMM. Local Governance Support Programme in ARMM/CIDA Paulino, Cecilia, MD, MPH. Final Report. Manual for Health Reform Coordination. Assistance to the Health Sector Policy Programme. 30 April 2008 Technical
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Philippines-Canada Local Governance Support Programme. Reclaiming Public Special Bodies.. Batario, Red; Sevilla-Alvarez, Girlie and Perfecto, Connie Operationalizing the Local Development Council. Module 2: Operationalizing the Module 3: Operationalizing the Local Health Board. Module 4: Operationalizing Council. Center for Community Journalism and Development. Manila. 2004
Life Through Local (Eds). Module 1: Local School Board. the Peace and Order
Rodriguez, Agustin Martin G., PhD., Legislated Participation: Local Democracy 10 Years After the Code, Institute for Politics and Governance. The Local Governance Policy Forum Sharing Power for Development. Experiences in Local Governance and Decentralization, June 2007 Stakeholders Consultative Conference of the Metro PIESTTA (Penablanca, Iguig, Enrile, Solana, Tuao, Tuguegarao City, Amulung) Cluster (Third On The Job Training Series, August 20, 2003. Synergeia. How to Reinvent Your Local School Board. (Pamphlet, undated) Synergeia. Reinventing the Local School Board: The Naga City Model. Manual (undated).
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