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URBAN FUNCTIONS IN RURAL DEVELOPMENT--
BICOL RIVER BASIN PILOT PROJECT: THE PHILIPPINES
FIRST QUARTERLY REPORT: PROJECT DESIGN
Dennis A. Rondinelli
Consultant
Contract No. AID/ta-C-1356
Office of Urban Development
Technical Assistance Bureau
Agency for International Development
U.S. Department of State
Washington, D. C. November 1976
CONTENTS
TRIP REPORT--SUM4ARY OF ACTIVITIES ............................... 1
MAJOR ACTIVITIES, ISSUES AND PROBLEM AREAS ......................................................... 5
Clarification of Project Activities and Results ................. 5
Project Initiation .............................................. 8
8Staff Organization ..............................................
Organization and Duties of GOP Senior Consultants 9...............
Geographical Area of Project Coverage ............................. 10
Data Availability ............................................... 10
Coordination, Participation and Training ........................ 13
Directly Related Activities ..................................... 18
.................. 22PLAN OF IHPLEIENTATION AND CONTRACTOR WORK PLAN
GOP Plan of Implementation ...................................... 22
U.S. Consultant Activities and Work Plan ........................ 24
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URBAN FUNCTIONS IN RURAL DEVELOPMENT--BICOL RIVER BASIN PROJECT
FIRST QUARTERLY REPORT: PROJECT DESIGN
scheduled to discuss preliminary organizationPurpose of Visit: The visit was
and design of the project with the Government of the Philippines (GOP) staff
of the Urban Functions project, to determine data availability and methodological
requirements for implementing the project, and to establish a detailed work
plan, integrating the activities of the U.S. Consultant with those of the
project staff and GOP senior consultants.
Places Visited: Manila; University of the Philippines--Los Banos, Laguna;
Bicol River Basin (Naga City and Pili)
Length of Stay: October 23-October 30, 1976
Summary of Activities:
October 23 Meetings with Project Staff -- Manila
Participants: D.A. Rondinilli, U.S. Consultant;
M. McNulty, project manager for USAID/W,TA/UD;
E. Astillero, GOP deputy project director, R. Nasol, GOP project director, J. Ragragio, project staff member.
Discussion of overall progress in organizing,
staffing and coordinating the project, contractual relationships between the Bicol River Basin Council
(BRBC), the study team and the GOP senior consultants, major issues to be resolved in initiating the project,
and agenda for U.S. consultant's visit.
October 24 Meetings with Project Staff--Manila
Participants: Rondinelli, McNulty, Astillero,
Ragragio
Review and clarification of objectives and purposes of the project, identification of expected results;
discussion of alternative means of utilizing GOP
consultants, arrangements for coordinating project activities with BRBC staff, provincial and local
governments, GOP line agencies, and other groups in the Bicol. Discussion of data and analysis
needs, preliminary discussion of U.S. Consultant's work schedule and of possible U.S. technical assistance
needs during the project.
- 2 -
October 25 -- Meetings with Project Staff and GOP Consultants--University of the Philippines-Los Banos, Laguna
Participants: Rondinelli, McNulty, Nasol, Astillero, project staff, GOP Consultants
Review of the aims and objectives of the project by the study director; presentation on overall conceptual framework and general orientation by Rondinelli; discussion of AID/W objectives and international implications by McNulty. Discussion of GOP consultants' interests and roles in the project. Review of existing data in the Bicol by the projedfstaff, discussion of levels and forms of data and potential data gaps.
October 26 Meetings with BRB Program Office Staff--Naga City
Participants: Rondinelli, McNulty, Astillero, project staff, GOP Consultants Tan and Quebral, BRBC-PO staff
Briefing of U.S. and GOP consultants and orientation for staff on overall Bicol River Basin Program (BRBP) and discussion of general trends and problems in the Bicol development program as related to the "Urban Functions" project. Presentations by Rondinelli and McNulty on the conceptual framework and international implications of the project; preliminary discussion of .RB-PO participation.
)ctober 27 Meetings with BRBC--Coordination Committee (BRBCC)--Naga City
Participants: Rondinelli; McNulty; AID/W, AD/RD, Bicol Office staff; BRBC Executive Director Pejo; Governors of Camarines Sur and Albay Provinces, Regional Directors of Government Agencies, Nasol, Astillero. Project Staff, Consultants Tan and Quebral.
Presentation of the Urban Functions Project to BRBCC by Nasol and Astillero; McNulty explained international implications of Bicol project as first pilot in a series of three projects; Rondinelli discussed importance of interagency, provincial and local government support for and participation in the project and of establishing a planning process that will benefit decision-makers in the Basin.
-3
3RBCC approved a staff proposal to establish an
Interagency Technical Staff (IATS) to be chaired by a representative of the National Economic and
Development Authority (NEDA) in Region V and of a BRBCC Subcommittee on Urban Development to advise
the project, chaired by the Regional Director of
the Department of Local Government and Community
Development (DLGCD).
Meeting with Project Staff--Naga City
Participants: Nasol, Astillero, Project Staff,
Rondinelli, McNulty, GOP Consultants Tan and
Quebral
Discussion of data availability, methodological
requirements, working arrangements among project
staff, GOP consultants and U.S. consultant;
preliminary discussion of selection and implementation of market center studies as input for analysis
and linkage identification stages of the project;
formulation of proposed work schedule.
October 28 Workshop for Line Agencies, Provincial and
Local Government participants -- Camarines Sur Agricultural College - Pili
Participants: Rondinelli, McNulty, Nasol, Astillero,
BRB-PO staff, Project Staff, GOP Consultants Tan and Quebral, DLGCD Regional Director Jose Delvo, Mayors of Iriga and Legaspi Cities, City Administrator of Naga, NEDA regional economist, Provincial Development Staffs of Camarines Sur and Albay
Provinces, Lin- Agency repre.entatives.
Purposes, objectives and activities of Urban Functions Project discussed by Nasol and Astillero;
international implications stressed by McNulty; conceptual framework, importance of government participation and support, and major tasks discussed by Rondinelli. Role of BRBCC Subcommittee on Urban Development explained. DLGCD Director Delvo expressed strong support for the project and urged participation by agencies and local governments. Formulation of the Interagency Technical Staff
(IATS) to work with project staff in data collection and analysis; discussion of methodology, scheduling and procedures for project implementation.
-4-
Meetings with Project Staff-- Naga City
Participants: Rondinelli, McNulty, Astillero, Ragragio, Tria
Briefing of AID/P-AD/R0 Bicol Officer Don Wadley
on progress of the project; detailed discussion
of data collection and analysis procedures, role of U.S. Consultant between field visits, and
GOP work schedule for analysis.
October 29 -- Meetings with Deputy Director-General, NEDA, and Director of External Funding -- Manila
Participants: Rondinelli, McNulty, Asti.lero, Dr. Manuel Alba, Dr. Villevincencio
Informal briefing of Dr. Manuel Alba, Deputy Director General of NEDA on the international and national implications of Bicol project by Rondinelli and McNulty; discussion of interregional implicationo by Astillero; discussion of need for national support of Urban Functions project through interagency cooperation; expression of interest by Dr. Alba in holding a future meeting of NEDA regional directors in Bicol; discussion with Dr. Villevincencio of procedures for releasing USAID funds through NEDA to begin the project in November.
Debriefing of USAID/P, AD/RD Bicol Office Director Marinelli -- Manila
Participants: Rondinelli, McNulty, Astillero
Discussion with Lawrence Marinelli of the implications of the weekts events for future activities, relationship of Urban Functions project to Integrated Area Development activities, plans for implementing Urban Functions Project.
- 5 -
MAJOR ACTIVITIES, ISSUES AND PROBLEM AREAS
The primary purpose of the U.S. Consultant's visit was to evaluate
and provide technical assistance in the design and organization of the
Urban Functions Project. The following areas of activity reflect the
major issues involved in initial design stages and organizational progress
made to date:
Clarification of Project Objectives and Results
Discussions among the U.S. Consultant, the USAID/W project manager
and the Bicol project staff led to a major clarification of the purposes
and expected results of the project. Rondinelli and McNulty strongly
emphasized that the project has two equally important purposes: first,
as outlined in the USAID-GOP grant agreement, "to develop a planning
process--potentially valid for application elsewhere in the Philippines
and in other countries," and second, to develop "a plan for strengthening
the contributions of urban centers (functions, activities and services)
to rural development in the Bicol."
Although the project staff was aware of the need for participation
and training in the planning process, initial efforts in organizing and
designing the project stressed production of a plan by the end of the
16-month project period. Rondinelli and McNulty stressed, however,
that development of a viable process that would leave a continuing
planning capability in the Bicol River Basin to do spatial analysis and
integrated urban-rural development, is as important as production of
the plan itself. Since this is the first in a series of pilot projects
in Asia, Latin America and Africa, it is important to test potentially
replicable planning processes, methodologies, techniques and organizational
arrangements.
The GOP project staff immediately recognized the importance of
both the plan and the planning process and reoriented its activities toward
building cooperative ties with agencies and local governments in the
Bicol and began to place greater emphasis on including training elements
in its planning procedures.
-6-
Other aspects of the project were also clarified during initial
discussions:
1. The final plan is to be a spatial analysis of the Bicol River
Basin focusing on the existing hierarchy of central places, the state
of development in rural areas, the relationships among centers of
different sizes, current and potentially desirable linkages between
urban centers and rural areas, and recommendations for building an
integrated and articulated spatial system through which urban services
and facilities can be extended to rural areas in support of economic
and social development.
2. The plan, as an analytical document, will be oriented to the
decision-making requirements of the BRBC, regional officds of national
government agencies and provincial and local governments. As the
regional director of DLGCD described it, the output of the plan will
be input for the planning efforts of those organizations. The plan
will not be a comprehensive regional development plan per se, since
NEDA, the cities and the BRBC have already developed regional plans
or are in the process of doing so. Instead the Urban Functions plan
will attempt to provide a spatial analysis useful to sectoral and
local planning efforts, a spatial analysis that is useful for making
decisions on the allocation of development resources and the location
of services and facilities from a regional spatial perspective. Thus,
the Urban Functions report will supplement on-going planning processes
and provide guidelines for location decisions that can build an
articulated spatial system.
3. In the planning process, major line agencies, provincial
and local governments and the BRBC staff should be involved at two
levels: as participants in analysis and planning exercises, which
will provide on-the-job training , and as "clients" who will ultimately
use the analysis and plans.
4. As a policy document, the Urban Functions planoshould make
use of as much existing data as possible. The planning and analysis
methodologies should be tailored as much as possible to existing
data resources, turning to additional data collection sparingly and only
when crucial gaps are identified. Limitations of time and money will
make large scale data collection impossible. The Bicol, moreover, is
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comparatively "data rich" since a number of background, feasibility and regional studies have been conducted over the past few years. Population
and other census materials, and the Social Science Research Unit (SSRU)'s
municipal inventory, together with the Intermodal Transport Study and
other secondary sources provide a large amount of available data.
5. The project team and the U.S. Consultant agreed that one major
gap that will require original studies is of market center activities and
market flows. They decided to conduct in-depth market analyses of
the Naga, Legaspi and Iriga markets and of a few smaller market centers. This information would be essential to spatial and linkage analysis.
6. Attempts will be made during the course of the project to identify "minimum necessary data needs" based on the Bicol experience,
so that subsequent pilot projects which do not have the Bicol's extensive
data base can be designed more effectively.
7. The Project Staff and the U.S. Consultant agreed that, given
the constraints on time and money, and the need to develop a usable policy document, it would not be possible to undertake a comprehensive
statistical analysis of the Bicol River Basin. Where comprehensive
coverage cannot be attained using existing data, partial-analysis,
case studies, and sub-area analysis would be done. Formal statistical
studies might be supplemented, where appropriate, with "informal"
analysis, participant observation, interviewing, and other techniqu.o.
The U.S. Consultant encouraged creativity in developing analytical
methodologies suited to conditions and needs in a largely rural region.
It was agreed that the objective of the project is not to produce an
academic or scholarly research study, but a realistic and usable policy
document. To the extent that the fundamental validity of the analysis
would hot be weakened, it was agreed to use a wide variety of
formal and informal, empirical and judgmental techniques of analysis.
-8-
Project Initiation
Start of the project was delayed from October 1, 1976 to November 1,
due to the fact that USAID funds had not yet been secured and released by
NEDA. A contract for implementation of the project has been signed with
the Center for Policy and Development Studies at the University of the
Philippines at Los Banos, however, and staff has been hired and consultants
engaged. But substantive activities cannot begin until US funds are
transferred to GOP, converted to Pesos and released by NEDA. By the end of
the Consultant's visit substantial progress was made toward transmitting
the request for release of funds. Discussions with Dr. Villevincencio on
October 29 brought the problem to the attention of NEDA. The project
is now expected to begin on or about November 15, since it will take
at least two weeks for NEDA to release the funds to the BRBC. The staff
will continue its data reconnaisance using UPLB funds. Mr. Astillero
assumed responsibility for follow-up action with NEDA and USAID/P.
Staff Organization
The BRBPO executed a Memorandum of Agreement in August with the
Center for Policy and Development Studies (CPDS) to cotiduct the Urban
Functions study and implement the project. CPDS Executive Director,
Dr. Ramon Nasol, an agricultural economist, will be the Urban Functions
study director. Emmanuel I. Astillero, an urban and environmental planner,
will serve as deputy director and supervise staff operations. A three
member staff has been employed, consisting of Junio Ragragio (M.S., urban
and regional planning), Jocelyn Tria (M.S., sociology) and Romeo Huelgas
(M.S., agricultural economics).
The project will be directed from UPLB in Laguna. Two staff members,
Ragragio and Tria, will be based in the Bicol and will be primarily responsible
for data collection, analysis and interaction with interagency and government
participants. Nasol and Astillero will travel to Bicol as needed.
Three staff offices are in the process of being established: the
main base of operations in the Bicol will be in the Naga area, with
field offices in Legaspi and Iriga city. The latter offices were opened
at the request of the Governor of Albay and the Mayor of Iriga.
- 9 -
Based on preliminary observation, the qualifications of the staff
seem excellent. All are trained in some form of research and analysis
and all have practical experience. Nasol, Ragragio and Tria are from
the Bicol region and Astillero has been a consultant to BRBC. All
seem highly motivated to make the project a success.
Organization and Duties of GOP Senior Consultants
A group of senior Philippine consultants has been organized to
advise and assist the project staff with analysis and planning and
to review the outputs of each phase of the study.
The GOP consultants met initially with the staff at UPLB on
October 6 and with the U.S. Consultant on October 25. The GOP
eonsultants include :
Dr. Leandro Viloria, Dean of the UP Institute of Environmental
Planning
Prof. Geronimo Manahan, UP College of Architecture
Prof. Romeo Ocampo, UP College of Public Administration
Prof. Karina David, UP Institute of Social Work and Community Development
Dr. Antonio Tan, M.D., Director of the UPLB Institute of Human Ecology
Dr. Donato Antiporta, Chairman of the UPLB Department of Agricultural Economics
Dr. Nora Quebral, UP Institute of Development Communications
The terms of reference for the consultants list a number of
duties: 1) to assist the project staff in the formulation of study
concepts and approaches; 2) to recommend methodologies and analytical
techniques; 3) to identify special studies, data or analyses needed to
implement the project effectively; 4) to advise the staff on appropriate
literature and studies relevent to project activities; and 6) to review
all reports and draft plans and make recommendations for changes and
improvements. GOP consultants are not expected to perform analyses
or write the final report, although some might be engaged to conduct
special studies as the need arises.
- 10 -
Geographical Area of Project Coverage
The project staff decided to broaden the study area to include the
new geographical territories added to the Bicol River Basin Program by
Presidential Decree 926. The decree enlarged the program area from
312,000 to 705,000 hectares, from 33 to 42 towns and from 1000 to 1200
barangays.
The major implication in the expansion of geographical coverage is that
data have not been systematically collected for areas of Albay Province at
the same level and detail as for Camarines Sur. Additional data may be
.needed for Legaspi and towns within Albay.--Partial analysis will be attempted
rather than delaying the project to await large scale data collection for
the new areas. Secondary sources are expected to provide sufficient
information to conduct urban, rural and linkage analyses.
Data Availability
The project staff has already begun to inventory existing data
using the Rondinelli-Ruddle report as a guideline. The staff has
determined that the following data are currently available within the
Bicol River Basin Development Program's information system:
1)' Land tenure information at municipal level 2) Soil and water resources--municipal level 3) Fisheries resources at specific sites 4) Location and types of rural roads--municipal level 5) Livestock resources--municipal level 6) Types, location and uses of water resources--municipal level 7) Population and demographic information--1975 printouts at barrio
level 8) Climate and weather conditions--regionwide
9) Size and distribution of farms, 1971 data --municipal evel 10) Crop yields, 1970,1975, selected crops, sample surveys 11) Value of marketed crops, 1975 commodity prices at observation points 12) Types of storage facilities for grain, rice, palay 13) Types and location of marketing facilities--public markets,
marketing days, volume of sales
14) Size and distribution of income, 1975--SSRU surveys--barrio level 15) Population density--barrio Level 16) Population characteristics--barrio level 17) Distance to major major metropolitan areas--barrio level 18) Type, size and location of public facilities and services-
1974 SSRU municipal inventory
19) Types and locations of utilities, SSRU 1974 municipal inventory 20) Characteristics of transport services and facilities--municipal It-lel 21) Health facilities and services--municipal level 22) Recreational facilities--municipal level 23) Governmental services and facilities characteristics--municipal level
24) Type and location of social organizations--municipal level 25) Characteristics of educational institutions--municipal level
26) Professional services--municipal level 27) Educational levels of the population--census data, barrio level 28) Number,siza, location and quality of road and rai'. lines 29) Soil conditions and water levels--BRBC Comprehensive Water Study
In addition to the data listed above, which were collected by the
BRBC as part of its basin study programs, other information can be derived
from national ministry studies of the p ovinces of Camarines Sur and
Albay. Although the quality, level and scope of the data must still
be investigated, the project staff has determined that the following
types of information have been collected:
1) Mineral and forestry resources 2) Types and Location of Agro-Industry 3) Types and location of storage
facilities 4) Size and location characteristics
of commercial establishments 5) Employment sources
6) Manufacturing and Processing Industry characteristics
7) Size, location and volume of business for personal services
8) Types ands ources of raw materials 9) Size, type of regi'onal industries
10) Retail sales trends 11) Value added in manufacturing
by industry 12) Size, types of regional shopping
facilities
-- Bureau of Mines, Forestry -- Dept. of Trade, NACIDA
-- Economic Survey
-- Economic Survey -- Family Income and Expenditures
Survey, NCSO
-- Economic Survey
-- Economic Survey
-- Economic Survey -- NEDA -- NEDA
-- NEDA
-- Economic Survey
13) Types, sizes of communications media -- Economic Survey 14) Volume and distribution of invest
ment by location and activity
15) Changes in natality, morbidity and martality rates
16) Family and Kinship Patterns 17) Energy Use and Distribution 18) Structure of GovernmEnt 19) Types, location and distribution
of formal government functions 20) Distribution of government
offices and facilities
-- Board of Investment
-- Department of Health
-- Institute of Philippine Culture --NEA, NEDA --DLGCD
--DLGCD
--DLGCD
- 12
21) Intergovernmental financial transfers -- Budget Commission 22) Types, sources and distribution of
government revenues -- budget Commission 23) Allocation of national, provincial
and local budget resources -- Budget Commission
24) Licensing and regulatory powers -- DLGCD
25) Types, location and responsibilities of autonomous authorities -- DLGCD
26) Types, locations and functions of
quasi-public organizations -- DLGCD
Although only about 50% of the data identified in the Rondinelli-
Ruddle report is currently available in the Bicol, Rondinelli emphasized
to the staff that the list portrayed an "ideal" data collection and
that it was not expected that any given region would have all the listed
data. Nor would the data listed be the "minimum necessary" information
needed to conduct a regional spatial analysis. The staff was urged
to make use of existing data and to identify crucial gaps before
collecting additional information through original surveys.
Air photos of the River Basin are also available at a scale of
1:4. Printouts for the 1975 Census of Population with data disaggregated
.o the bara.-ay level will be provided shortly to supplement the
1970 Population Census for Camarines Sur and Albay Provinces.
The Bicol River Basin, overall, has an unusually rich data base
for an economically lagging rural region in a developing country. The
SSRU Municipal Inventory, the Intermodal Transport Study and the SSRU
Transportation Survey are expected to yield the most extensive and
usable data for purposes of the Urban Functions Project.
Subsequent pilot projects in Africa and Latin America might require
studies similar to the SSRU Municipal Inventory in the data collection
phase in order to perform adequate analyses of the spatial system and of
the distribution and adequacy of urban functions and services. USAID/W,
TA/UD might conduct a short staff study of the procedures, content and
adequacy of the SSRU Municipal Inventory as a replicable instrument
prior to concluding ProAgs with the two other countries in which pilot
projects will be undertaken.
- 13 -
Coordination, Participation and Training
The project staff recommended a detailed plan for participation by
national government agencies, the BRBC and provincial and l 1 governments,
which the BRBC adopted at its October 27 meeting. Mr. Jun Bragais of the
BRBC Program Office was appointed as liaison officer between the BRBC
and the proj,ict staff, and will participate in staff activities.
A BRBC Sub-Committee on Urban Development will be the Steering
Committee for the project. It will '-e chaired by the Regional DLGCD
Director, Jose Delvo, and will meet monthly to review progress, react
to findings and suggest changes. Since the members of this committee
represent major "users" of the plan, their inputs are seen as crucial
for shaping the analysis to agency decision-making needs. Members of
the committee will include representatives of NEDA Region V, Departments
of Education, Social Services, Health and Public Highways, the two
Provincial Governors, and the Mayors of Naga, Iriga and Legaspi. Organ
izational relationships with the BRBCC are as follows:
I Bicol River Basin Coordination Committee
Subcommittee on
Urban Development
DLGCD
BRBP/Provincial Governments/ City Governments DOH/ DSSD/ DEC/ DSSD/ DPH/ Others as NeededI -I InterAgency Technical Center for Policy and
Staff Development Studies
-- EDA, Re ion V UPLB- -
DLGCD DOH
PDS/CS DSSD Urban Functions in Rural PDS/A DEC Development Project Staff OPDS7Naga DPH OPDS/Iriga BRBC-PO OPDS/Legaspi
- 14 -
Through the Subcommittee on Urban Development, the project will
be directly related to the BRBC Board of Governors (Coordination
Committee) and to the government agencies represented on the BRBC
Board. (See Figure 1)
A second committee, the Interagency Technical Staff (IATS), will
involve, at the working level, representatives from each of the
major government agencies and local governments. The intent of this
committee is to supplement the project staff with staff members from
agencies and governments that deal with major decisions related to
spatial development, to involve these staff members in implementing
the project, and to train them in methods of spatial analysis
through on-the-job activities. IATS members would be the core of
trained manpower remaining in the Bicol River Basin after the
Urban Functions Project is completed, who would have technical
competence in spatial analysis and would be critical disseminators
of the project's findings and results.
The IATS, as formulated on October 28, includes:
Team Leader--NEDA Region V: Mr. R. Bernal
Asst. Team Leader--DLGCD: Mr. E. Carillo
PDS/Cam Sur Province: Messrs. Cater and Papica
PDS/Albay Province: Mr. R. Navera
OPDS/Naga: City Administrator Calera
OPDS/Iriga: Mr. E. Nadal
OPDS/Legaspi: Mrs. I. Eva
DOH: Eng. Punzalan
DSSD,DEC,DPH To be Appointed
BRBPO: Mr. J. Bragais, Mr. R. Santiago
Mr. A. Santiago, Mr. R. Belarmido
The IATS members wi.l serve on a part time basis to assist with
specific elements of the study as determined through mutual agreement with
the p':oject stiff. Other interagency representatives will be added as
needed.
Figure 1
BICOL RiV',Er B,-%SIN COUNCIL OFGANIZATION CHART
DPWTC, DA,
BREIG
DLGCD, DAR ,IE
OFFICE OF
BOARD
GOVERN OR(CS), EXEC. DIFZEI:TOR)
THE CH'AIRM'AN
LlANAGZ;.ENT COUNCIL
:EGIGRAL DIECTO,9
BRD - PROGRAM OFFICE
EXECUTIVE DIRECTOR
AOv30ftY COUNCIL
.,.-ciATE SECTOR
ICS
A D'.tIU!ISTRATIVE PLA713 ANID PROGRA.%S
DEPUTY DIRECTOR I DEPUTY DIRECTOR
LOGSTCS P~~S:~LIN~IC POJCT
P:iV3IC.L I;7F;',ASTRUC'JREb
DE'JT- DIRECTOR
POJCT
I
SOCIAL INFRASTRUCTURE
HP-'%TY DIRECTOR
_ _ROJCT
- 16 -
The prospects for interagency cooperation and participation at the
initial stages of the project seem good. Early enthusiasm and political
support will have to be maintained and further cultivated by the project
The provincial and local government leaders seem anxious to bestaff.
included in the project. The Governor of Albay insisted that the staff
open a project office in Legaspi City, and the Mayors of Iriga and
Legaspi have both offered office space for the staff. Director Delvo
of DLGCD expressed strong support for the project at the Workshop on
October 28 and the members appointed to the Subcommittee on Urban
Development and the IATS are considered to be relatively high-level
representatives of their organizations.
Members of these committees also seei the project as a potentially
important input to their own work; Director Delvo argued that the
study results should be of use to on-going and fnture planning activities
of regional divisions of national ministries and the BRBC-PO considers
the study a part of the overall Basin planning operations.
Other motivations for participation at this stage are somewhat
mixed. Some of the agencies are apparently concerred that the Urban
Functions Project not produce a plan that will displace their own
regional plans, or contradict them. The Governor of Albay clearly desires
to have his province considered as an equal to Camarines Sur in all
BRBC activities, and the Mayors of Iriga, Naga and Legaspi seek equal
Moreover, since Legaspirecognition for their cities in BRBC functions.
has been designated as the regional center for national ministry offices,
insidered "politic" by thelocation of a project field office there is
project staff. Other agencies are participati. , undoubtedly, for informational
purposes and their cormitment may not emerge until they identify specific
interests in the project.
One means of maintaining local government participation is by
explicating the benefits of the Urban Functions Project for the planning
Each city is required to prepare a "frameworkactivities of the cities.
plan" for development, ane 20% of their revenues from DLGCD are withheld
until a plan is approved. Involvement in the Urban Functions Project
might be increased by convincing the municipalities of the benefits of
tying their local planning activities into the Basin-wide spatial analysis,
and using the results of the Urban Functions study in preparing their
framework plans.
- 17 -
A number of problems of maintaining agency participation and interest
were identified by the staff, and among the most important are:
1. Control of agency staff members in the Bicol is fragmented
among national ministries; the lines of responsibility for
staff activities run to ministry headquarters in Manila rather
than to any coordinating unit within the Bicol;
2. The motivation of agencies to assign staff to the project will
be low unless it appeals directly to their interests and needs;
3. The severe shortages of qualified manpower in the Bicol means
that a few highly qualified people-are assigned a multitude of
tasks and duties and they cannot be expected to devote too
much attention to any single project;
4. Interagency coordination committees have not had notable
success in the past--unless high priority is given to coordination
from ministry headquarters in Manila there is little motivation
for cooperative activities at the regional level;
5. Each agency has a somewhat different set of priorities,
perspectives on the problem of development, clientele, and
programs; some have developed their own regional plans
and service delivery boundaries and can be expected to
protect "vested interests" in current proposals and spati .
arrangements;
6. It will be difficult to maintain the cohesion of any interagency
working group in the Bicol after the Urban Functions Project
is completed, without an institutional framework for focusing
agency activities on spatial analysis.
These and other problems of creating and maintaining interagency
interaction and planning capacity should be addressed in the Urban
Functions project plan.
- 18 -
Directly Related Activities
Discussions with.project staff, consultants and participants revealed
a number of activities within USAID/P-and various government agencies that
are directly related to the Urban Functions Project:
1. The Philippine Government's newly revitalized Human Settlements
Commission has expanded its concern from the problems of squatters in
large cities to those of assisting barangays with local planning in
order to provide services and shelter in rural communities and
to stem the tide of migration to larger cities.
2. The BRBC and USAID/P, AD/RD, are sponsoring a number of
Integrated Area Development (AD) programs in the Bicol that use sub
basin areas to plan for rural development on an integrated basis. The
Basin has been divided into 1ADs, and to the extent that they provide
a spatial scheme for packaging development projects, will be of interest to
the spatial analysis undertaken by the Urban Functions Project. (See
Figure 2.)
The lAD program aims primarily to provide subregional boundaries
for integrating water resources, irrigation and agricultural development
projects and the boundaries were chosen primarily on the basis of water
resources development criteria. Both USAID/P and. the BRBC seem to
be strongly committed to the 1ADs as convenient and necessary means
of "packaging" project proposals. It should be made clear during the
Urban Functions Project, however, that other criteria of spatial analysis
might well yield different sub-regional boundaries for delivering services
and locating facilities.
3. A USAID/P, AD/PD project, "Rural Service Centers," is directly
related to a major component of the Urban Functions Project. AD/PD is
proposing to study the activities and improve the capacities of
intermediate cities in the Philippines. The justification for the project
is similar to that of Urban Functions. The PRP points out that:
Figure 2
ao--aGCP 3ical
~ A~un~~op Inlegrao,,d Ann~ Do--,Lcpmzn1 (IAD) Riwr ~cI'Va'rhd Arco
~ ~ Boundor!26
- . -.-
'
IA
~ Ao <
IITEGRA7ED AREA UIau CauscIL~nCz&IAD,
11 11
DEVELOP-.:2J (A
Prall FY'74 AID Lza
(B)Ma PiliProjects
A ',,
-n y ; n "
t 1 '-fl/
, ,1
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Ofci rdoI :cAD iu n .
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Naga colntca 1A D IV- 1 u:', G
ec~a ,Z) P.;ae A \eCc:.:AID L'c, F'71
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C-9 LJLIY
SICOL R VERG si's SC'1E 2-- :~ if IEVELOP11EOT PR0GPA?2J -3 or~ a.Y n
- 20
...the intermediate city in the Philippines plays
a vital role, and will play, increasingly a more important
role as time passes, in the development and socio-economic
well being of the rural sector. These intermediate cities
presently serve the rural populace in a myriad of ways:
as market towns, centers of education and medical care,
and as marshalling sites for the unemployed and under
employed. At present, thR capacity of the intermediate
city to service the needs of its constituency, especially
those poorer persons recently displaced from the rural
economy, is at best limited. Public and private endeavors
in the intermediate city are cften poorly designed,
underfinanced and underequipped to handle the demands
placed on them by the populace of the city and the
surrounding regional area.
The proposed project will survey the activities, problems and
needs of 15 intermediate size cities in the Philippines; assist in
devising a social action plan, and, in conjunction with the DLGCD,
find ways of financing needed projects and facilities. Implementation
will focus on seven major activities: 1) staffing, 2) development
support, 3) projects for the poor, 4) administrative improvement,
5) expanded financial capacity, 6) citizen participation and 7)
training.
Three of the 15 cities selected for the project are in the Bicol:
Naga, Iriga and Legaspi. (See Figure 3.)
To the extent that the "Rural Service Center" rroject is directly
related to improving the capacities of Bicol middle size cities,
the Urban Functions Staff and USAID/W, TA/UD, should establish formal
contact and cooperative arrangements for sharing of information and
study findings.
USAID/Philippines, AD/PD, Local Government, Rural Service Center Project
Review Paper,(Manila: USAID, 1976), p.l.
- 21 -
O0 Figure 3ol
TAIGETEI) RSC CITIE'S
SIHOWIN G POPULAIION
CIIARACTEI STICS BY AREA
DAGUPArN
ANGELES § "
IOLONGAPO
~NPA . , R I.GA
BATANGAS.,
('i. CA\LEAYUC.
PUERTOI
." ."GINGOC.,
CACGAVAt ME ORO
Sj'I
N'{-J ",
Li GENERAL SANTOS".- ,
kIII FOCUSES ON SERVICES EMBRACtNG BOT CITY NoI'I:112 I RURAl. SERVICE CENTER (RSC) PROJECT
INHABITANTS AND THE RURAL PO1R.
- 22 -
PLAN OF IMPLEMENTATION AND CONTRACTOR WORK PLAN
The project staff proposed a preliminary plan of implementation,
which was modified in discussions with the U.S. consultant. The project
will be divided into three stages:
Phase I: Assessment of Rural and Urban Systems -- 4 Months
The staff will inventory and collect data, do descriptive and statistical
analyses, and make preliminary judgments concerning the adequacy of the
distribution of resources, services and facilities in rural areas and urban
centers of the Bicol River Basin. The extent to which a hierarchy of
centre! places exists in the Basin to adequately serve rural areas, and
the characteristics and functions of urban cenctrs and their rural
hinterlands will be identified and analyzed. The assessment of existing
spatial patterns of development will be based on an analysis of, among
others, the following types of information:
1. Population distribution and migration
2. Commodity flows within the basin
3. Transport facilities
4. Soil Capability
5. Topography and Land Use
6. Cropping Patterns and Productivity
7. Municipal Services and Facilities
8. Market Patterns for Selected Commodities
9. Water Resources and Irrigation Systems
10. Distribution of Manufacturing and Commerical Activities
11. Employment and Income Patterns
12. Distribution and Characteristics of Ecological Sanctuaries
The staff will analyze available data and collect additional information
on major market centers and commodity flows within the Basin. Prior to
completion of Phase I, a major workshop on methodologies for regional
analysis will be organized in cooperation with the U.S. Consultant.
The project staff has requested, in addition to general methodological
assistance, technical assistance in the areas of regional transportation
analysis and regional location analysis. The Workshop, scheduled for
- 23
January 1977 will provide the opportunity for the project staff to work
directly with a U.S. technical assistance team in reviewing the initial
data collection and analysis activities, to design and apply additional
methodologies in analyzing the data collected, to identify crucial data
gaps, and to plan for the analysis of rural-urban linkages during Phase II.
Phase II: Identification and Analysis of Rural-Urban Linkages -- 4 Months
Following the analysis and assessment of the existing spatial :.stem
in the Basin, a second phase of the project will identify and analyze
the mjor linkages between rural and urban areas. Physical, economic,
social and political-institutional linkages will be delineated and evaluated
in terms of two major sets of criteria--the degree to which the existing
spatial system facilitates the distribution of "urban services and functions"
to rural areas in support of rural development, and the degree to which
linkages integrate urban centers and rural areas in an articulated
spatial network of production, consumption and exchange that advances
economic growth and agricultural productivity.
A workshop scheduled prior to completion of Phase I will deal
directly with planning for linkage analysis, and another workshop,
scheduled prior to completion of Phase II will review project staff
analyses and explore additional methodologies for linkage identification
and assessment. The project staff, U.S. and GOP Consultants will
also begin planning for Phase III of the project.
Phase III: Plan Formulation-- 6 Months
Based on analysis of the existing spatial system, the current state
of urban and rural development in the Basin, and the articulation of
linkages between urban and rural areas, the project staff will identify
gaps in urban services and facilities needed to serve rural areas, linkages
that must be created between urban and rural areas to form an articulated
spatial system that will increase agricultural productivity and economic
growth in an equitable manner, and programs and projects required to
achieve regional development goals.
- 24 -
The plan will review the development goals for the Bicol River Basin,
propose a conceptual plan for human settlements and supportive services
needed to achieve those goals, make proposals and recommendations for
programs and projects that will create a spatial system conducive to
development, and provide an analysis of the spatial system in the Bicol
that will be useful to the various government agen'ies, local and provincial
governments and the BRBDP in their services and facilities location
decisions.
U.S. Consultant Activities and Work Plan --
The U.S. Consultant, under contract with USAID/W, TA/UD, will
perform seven basic tasks:
1. Project Design Assistance--provide assistance to the GOP
project staff in the development of a detailed conceptual framework
and plan of implementation for the Bicol Urban Functions in Rural
Development Project. This task was substantially completed during
the initial field visit.
2. General Tecihnical Assistance--be available for and offer
general technical assistance on project implementation and development
as requested by the GOP and as, in the consultant's judgment, is necessary
for the successful conduct of the project. This will be an on-going
activity throughout the project period.
3. Monitoring--monitor the progress and technical development
of the project for TA/UD and AID/P, focusing on technical progress,
timing, management and identification of any implementation bottlenecks.
Monitoring will include overall evaluation of the project.
4. Training and Orientation--provide basic conceptual orientations
and assistance with training on spatial and linkage methodologies, and
participate in planning for analysis and plan formulation.
5. Assistance in Recruitment and Orientation of Technical Advisors-
assist TA/UD with recruitment and management of technical personnel required
to carry out the project.
6. Quarterly Field Visits-- visit the project in the Philippines
quarterly to perform monitoring and training tasks and to provide general
and specific technical assistance requested by the GOP.
7. Review and Critique of Final Plan--provide a review and critique
- 25
of the draft of the final pla:L and assist the GOP in drafting nacessary
and appropriate changes.
A work schedule for U.S. Consultant activities was developed
in conjunction with the project staff and is summarized in Table 4.
Figure 4
U.S.
CO
NT
RA
CT
OR
'S
WO
RK
PLA
N
Major COP Activities
Phase
I
)I-
Ph
ase
II
___
-Pha
se
I
Plan Formulation
Complete
Prepare
Assessment of Rural-
IAnalysis of Urban-
Urban Systems
Rural Linkages
Draft Plan
Final Plan
1976
/
1977
/
1978
June
July
Aug.
Sept.
Oct.
Nov.
Dec.
Jan.
Feb. Mar.
Sept.
Oct.
Nov.
Dec.
Jan.
Feb.
Mar.
Apr.
May
--
-General Technical Assistance to AID/W, TA/UD, GOP
.
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