About the Project | resourcegov

I. Project Background

Since the passage of the Local Government Code (LGC) in 1991, the full benefits of decentralisation, in terms of improved service delivery particularly to the poor, have yet to be realised as local governments face a number of resource constraints, including limited financial resources, underdeveloped capacity for planning and resource management, and weak information systems (ADB, 2010). With poor service delivery, more marginalised communities are still below the poverty threshold. In Central Mindanao, poverty incidence among families has increased from 27.1% in 2006 to 28.1% in 2009 (NSCB, 2012).

Results of the 2011 Local Governance Performance Management System survey which showed an Overall Performance Index of 4.36/5.00 for Region 12 still signified the need for the municipal, city, and provincial LGUs to improve its service delivery on the areas of local legislation (3.89 rating; weak legislative tracking system), revenue generation and resource allocation and utilisation (3.30 & 3.37 respective ratings; high IRA dependency/low local revenue, un-updated local revenue code), customer service and civil applications (4.38 rating; weak Anti-Red Tape Act or ARTA implementation), and CSO participation (4.35 rating) in local planning, budgeting and monitoring (LGPMS-DILG 12, 2012).

Likewise, the results of the Barangay Good Governance (BGG) Survey conducted by DILG 12 to 758 barangays in Region 12 (63% of total 1,194 barangays) also showed the need for the barangays to strengthen its programs and priorities on the areas of transparency (full disclosure of local budgets and bids), responsiveness (ARTA and Citizens Charter implementation), accountability (bids and awards), and participation (CSO membership in Brgy-Based Institutions (BBIs), formulation of BDP through participatory approach, and feedback mechanism) (BGG-DILG 12, 2012). Notably, results of both surveys showed that the underperforming M/BLGUs are mostly conflict-affected areas and are inhabited by Indigenous Peoples and Muslim communities, which are among the marginalised sectors in Mindanao.

The Civil Society Assessment of the 2004-2009 MTPDP noted that transparency of government transactions in various agencies has become more of a problem in the past years, affecting the capability of the people to effectively participate in democratic governance (CODE-NGO, 2010). Social Watch Philippines (2011) also observed that oftentimes local government budgets and spending do not pass scrutiny of civil society organisations based in local communities. Likewise, sources of financing–whether coming from the traditional sources such as the Internal Revenue Allotment (IRA), real property taxes, or taxes from mineral and natural resource extraction–remain outside their radar.

Consultations with local DILG offices in Region 12 suggest the need to strengthen the knowledge and skills of local CSOs/private sector to engage with LGUs in local legislation, revenue generation, resource allocation and utilisation. There is also a need for CSOs/private sector to help the LGUs in resource mobilisation, leveraging and monitoring to have a greater impact in the delivery of services. Further, there is a need to communicate the monitoring/evaluation results (i.e. L/BGPMS, BGG, ARTA-RCS, etc.) on a bigger forum and utilise the results for planning, budgeting and policy formulation by LGUs.

This proposed project is supportive to DILG’s Full Disclosure and Local Governance Watch Programme which aim to facilitate a systematic and sustained engagement of CSOs in local public administration to ensure transparency and accountability in local service delivery. It is also supportive to the Joint Memorandum Circular of DILG, NEDA, DBM and DOF on strengthening the interface between LGUs and national line agencies and the complementation between and among all levels of LGU in local planning, investment programming, budgeting, revenue administration and expenditure management. Likewise, it supports the Joint Memorandum Circular of DILG and DTI on the formulation and promotion of Local Investment and Incentives Code (LIIC) of LGUs to help promote economic growth and reduce poverty.

The RESOURCEGov Project, which will be implemented in Region 12, will also complement with the EU-funded Project of CODE-NGO entitled, Citizen’s Participation in Monitoring of LGU Performance and Development Planning for Poverty Reduction in Regions 6, 8, 11 and 13. Further, the project seeks to help sustain the gains of the EU-funded HEAL Project implemented by the applicant, by strengthening the capacities of target LGUs and the organised Peoples Organisations and communities in local governance, development planning, budgeting, revenue generation, resource allocation and utilisation, and monitoring.

II. Project Objectives

Overall Objective

To help improve the local governance, performance and service delivery of LGUs in the marginalized communities of Central Mindanao.

Specfic Objective

To increase the participatory local revenue generation and transparent resource allocation and utilization of the 8 MLGUs and 145 BLGUs in the 4 Provinces of Central Mindanao.

III. Project Framework:

IV. Major Components:

1) Capacity Building – This covers formal training and learning activities/exposures to both target CSOs and LGUs. The formal trainings include Training of Trainers (ToT) for local DILG staff for roll-out of training activities. Training activities which aim to equip both the CSOs and LGUs include ELA formulation, Resource Allocation and Utilisation (Bottoms-up Budgeting), Revenue and Investment Generation, Entrepreneurial Leadership/Skills Development, Business Development Planning and Portfolio Management, Resource Mobilisation and Proposal Packaging. However, there are training activities exclusively intended for CSOs. These include training-workshop on CSO engagement with LGUs for them to effectively engage with LGUs in any local development processes and training-workshop on Improving Efficiency and Effectiveness of CSOs (PCNC-inspired) for them to practice (not just promote) good governance at their own level of operations. Orientation-workshop on LGU performance monitoring and incentive systems (i.e. CSIS, L/BGPMS, ARTA-RCS, Citizens’ Charter, PCF, SGH, GPL) shall also be participated by CSOs for them to actively engage with LGUs in promoting transparency and monitoring the performance of LGUs’ frontline services.

Learning activities include cross-visits on areas/places with best practices on good governance/ revenue and investment generation for learning and replication. Learning activities also include PPP sessions/investment forums and support to local peace initiatives/dialogues that will enhance the resource mobilisation activities of LGUs/conflict-affected areas. All these capacity building activities aim to improve the capacities of LGUs in revenue and investment generation in order to increase its local and other sources of income and not to be entirely dependent on IRA. It seeks to increase the engagement of CSOs/private sector in resource mobilisation and leveraging with the LGUs. It seeks also to improve the capacities of both CSOs and LGUs in budget and legislative tracking to ensure that the peoples’ money are transparently allocated and utilised by LGUs according to the codal provisions and needs of the marginalised communities.

2) Resource and Legislative Tracking/Policy Support – Resource tracking shall focus on two (2) tracks: First, is to track/monitor the local revenue and investment generation of LGUs particularly on their local and other sources of income (outside of IRA) and second is to track the resource allocation and utilisation of LGUs, especially where the 20% development funds go and the mandatory/statutory obligations (i.e. GAD, Children, Senior Citizens, PWD, SEF). Legislative tracking shall focus on monitoring the local codes, plans and ordinances/resolutions supporting the revenue and investment generation of LGUs. In line with this, review/updating of the local revenue and investment codes and plans shall be conducted in each of the participating MLGUs whose codes/plans are outdated (more than 5 years old). The project shall ensure that the tracking/monitoring results shall be communicated on a bigger forum (SOPA, SOMA, SOCA, CSO Forum, Media Forum, Barangay Assembly, etc.) and shall be utilised for development planning, budgeting and legislation by LGUs.

3) Technical Assistance/Systems Improvement – The project shall provide technical assistance for the institutionalisation of CSO Desks at MLGU level to increase CSO engagement in local government affairs. Technical assistance (TA) shall be extended to participating CSOs for their accreditation requirements with the LSBs of respective LGUs. TA shall also be provided to LGUs on how to access the Performance Challenge Funds through the Seal of Good Housekeeping/ Gawad Pamana ng Lahi and other performance incentives to increase the local revenue and other sources of income of LGUs. Likewise, TA shall be given to municipal DILG offices and MLGUs on software applications to significantly speed up the process of encoding and analysing data (BGPMS, GIS-based tax mapping, codification) for LGUs’ use in local development planning, budgeting and policy formulation. Publication/documentation of best practices on good governance, utilising the results/outputs of learning exposures, PPP sessions and investment forums, shall be carried out and shared to LGUs, CSOs and other stakeholders in Mindanao.

Framework/Outline:

a) LGU and CSO Mapping/Profiling.

As part of the preparatory activities, the project shall conduct baseline mapping/profiling in two (2) tracks. First is mapping on target LGUs in order to determine the current state of the LGUs particularly in terms of revenue and investment generation, resource allocation and utilisation, local legislation and CSO participation in local development processes. Second is mapping on local CSOs/private sector in target areas in order to determine the current status and the training needs and capacities of the CSOs in LGU engagement. In line with these mapping activities is the conduct also of the Citizen Satisfaction Index System (CSIS) survey to measure public satisfaction of the LGUs’ frontline service delivery. Customised survey questionnaires and review of secondary data will be employed in the conduct of mapping/profiling activities. The results will serve as the baseline data of the project which will be presented/communicated to the target CSOs and LGUs during meetings, forums, and training activities.

b) Formulation of Executive and Legislative Agenda (ELA) and CSO Agenda/Organisational Development Plan.

After the 2013 elections, the LGUs will start drafting the ELA for the new direction (priority programs and legislative actions) of the executive and legislative branches of the LGUs. The project shall support/facilitate the drafting of the ELA of the LGUs during stakeholders’ consultation and validations stages. Consequently, the project will also help facilitate the drafting of the Organisation Development Plan/CSO Agenda of the respective target CSOs/private sector. The mapping results will serve as inputs in the formulation of ELA for LGUs and CSO agenda/Organisational Development Plans for the CSOs. Through participatory consultation-workshops, the project shall ensure that the CSO agenda shall be integrated in the respective ELAs of the targets LGUs. The ELA and the CSO Agenda/Organisational Development Plans will serve as basis in project interventions.

c) Interventions/Major Components and Activities.

Based on the priority needs and proposed programs/projects and legislative actions indicated in the ELA, the project shall base and complement its interventions. The project shall be implemented with the following major components and activities: (a) Capacity Building (training, learning activities, PPP sessions/forums), (b) Resource and Legislative Tracking/Policy Support, and (c) Technical Assistance/Systems Improvement (Data managment, CSO desk/accreditation, incentive systems):

V. Pilot Areas/Target LGUs

VII. Project Management Structure:

The project shall be implemented by Mahintana Foundation, Inc. in partnership with the two (2) local networks of CSOs operating in Region 12, namely the SPECTRUM and CSDO-SC as partners. This is in close coordination with the municipal, provincial and regional DILG offices in Region XII as associate partners and other line agencies such as NEDA, DBM, DOF, BIR, COA, DTI/BOI, and CSC as resource organisations.

Local DILG offices shall be actively involved in implementing key activities of the project and overseeing the performance of the target LGUs vis-à-vis the project interventions. Other local networks of CSOs operating in Mindanao shall also be tapped for technical assistance and partnership building. Below is the organisational structure at the partnership level.

Replicating the HEAL project experience, the project shall adopt the project management structure (below) utilising/organising Project Management Team (PMT) and Project Implementation Team (PIT) and DILG local structures to ensure effective coordination, oversight and support system. The organisational structure at the operational/project level and the roles and functions of the teams are discussed below:

Roles and Functions:

1. Project Director (25% level of effort) - shall provide the overall direction and shall take charge of overseeing the overall project management and supervision.

2. Project Manager (100%) – shall take charge of the efficient and effective implementation and management of all project components and activities defined under the project. S/He shall likewise anchor the overall documentation and integration of all reports and activities undertaken by the project in various project sites. S/He shall monitor and review the performance of the project and formulate the necessary policies to the Project Management Team (PMT) to further improve the overall performance of the project.

3. Project Documenter (100%) – shall take charge of ensuring that all project activities are properly documented at various levels of project implementation. S/He shall anchor the documentation of all project-level activities and shall help in the preparation of periodic reports as required by the donor and other partner organisations. S/He shall take charge of consolidating the documentation reports from all projects sites and shall facilitate the initial preparation of project’s information materials. S/He shall closely coordinate with the project staff in the preparation of reports and other necessary project-related documents.

4. Project Coordinators (50%) - shall provide direct supervision over the Project Officers and Project Bookkeepers to ensure that project activities are undertaken based on approved implementation and financial plan.

5. Project Officers (100%) – shall directly take charge of the day to day operations of the project at the community level. S/He shall conduct proper documentation and reporting of the day to day operations and accomplishments of the project at the field level. Shall take necessary actions in order to ensure the effective and efficient project implementation at the community level; Shall conduct community mobilisation activities to ensure that project activities are properly implemented at the community level; Shall prepare monthly accomplishment reports for proper project monitoring and evaluation.

6. Project Bookkeepers (100%) – shall take charge of the recording, documentation and analysis of all financial transactions undertaken by the project. S/He shall anchor the preparation and prompt submission of periodic budget performance reports and financial statements of the project to the proponent and donors.

7. Cashiers (50%) – shall take charge of handling cash-related transactions. S/He shall provide assistance to the Bookkeeper while providing administrative support to the activities undertaken by the project.

8. Admin Staff (50%) – shall assist the Project Bookkeeper in the preparation of the project’s financial documents. S/He shall provide administrative support as required by the project activities. S/He shall closely coordinate with the Project Bookkeeper in the preparation of periodic reports necessary for the efficient and effective project implementation.

9. Project Management Team (PMT) – is comprised of the Project Director, Project Manager, Project Coordinators, Admin and Finance staff, and representatives from DILG, DBM, DOF, BIR, COA, CSC, DTI/BOI, etc. PMT shall serve as the overall steering team who will facilitate the resolution of significant issues and concerns affecting the overall management and implementation of identified project activities. PMT shall meet at least quarterly to facilitate discussion and resolution of unresolved issues and concerns from the Project Implementation Team (PIT) and to help ensure the effective and efficient implementation of all project activities.

10. Project Implementation Team (PIT) – is composed of the Project Officers and Project Bookkeepers and field staff/representatives from DILG, DBM, DOF, BIR, COA, CSC, DTI, etc. who are directly involved in the actual project implementation. PIT shall meet monthly in order to discuss and resolve issues which have important implications in the project’s implementation process.

11. DILG regional, provincial and municipal offices – shall be the associate partners of the project and shall be involved in the key activities of the project. Shall provide technical staff and resource persons for technical assistance and capacity building activities of the project. Shall actively involve in overseeing and monitoring LGU performance vis-a-vis the project intervertions.