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NEDA-ADB Technical Assistance (TA) on Strengthening Provincial/ Local

Planning and Expenditure Management (Phase 2)


A. Provincial Development and Physical Framework Plan (PDPFP)

1. Q: What is the involvement of the LCE in the preparation of the PDPFP and
A: The Governor as well as the Provincial Development Council (PDC) provides
overall policy direction in the preparation of the PDPFP and PDIP. In PDPFP
formulation, the Governor is expected to articulate the provincial vision, goals,
objectives, targets, and PPAs in the PDC and RDC, in order to harmonize
them with those of component cities/ municipalities and other provinces in the
region. Note that the PLPEM guidelines recognize the active support of the
LCE as the single most important factor that can enhance the quality and
implementation of the PDPFP.

2. Q: What should be the timeframe of the PDPFP and how should it be

A: The initial timeframe of the PDPFP is 2007-2013. However, as the PDPFPs
are still being prepared under the current NEDA-ADB TA, the timeframe can
have different starting year depending on the preference of the LGU/LCE but
end year will be the same (i.e., 2013).

The PDPFP is a six-year medium-term development plan, guided by a long-

term vision, with the first three years aligned with the priorities of the
Governor. The PDPFP is updated on the third year to take into account
recent developments thrusts of the new/re-elected governor.

3. Q: How should PDPFP updating be handled if there would be change in

A: With a change in leadership, the new local chief executive (LCE) may opt to go
through a new planning exercise. In practical terms, however, most of the
components of the PDPFP will just be updated (similar to MTPDP and RDP
formulation in the past). Most likely, it will be the objectives, targets, and list
of programs, projects and activities (PPAs) that will be reviewed. With a
reelected LCE in the second political term, the PDPFP is subject to a mid-
term review only to firm up targets for the second half of the plan’s coverage.

4. Q: How does the PDPFP address long-term development concerns?

A: The PDPFP addresses long-term development concerns thru planning
analyses that extend beyond the medium-term especially when considering
longer term environmental issues. Note, however, that the PDPFP can begin
to address these longer term issues through projects identified for
implementation within the medium term.

5. Q: What sectors should be involved in the formulation of the vision?

A: All sectors and stakeholders of the province should be included in the
visioning activity, which is spearheaded by the Governor and the PDC.

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7. Q: Should the PDPFP be subjected to review and approval by the
Sangguniang Panlalawigan given the previously approved Provincial
Physical Framework Plan (PPFP) and Provincial Development Plan
A: Yes. The PDPFP will follow the same approval process as prescribed by the
LGC (Section 114). The PDPFP preparation does not deviate from existing
procedures of approving the development and physical framework plans.
Given EO 72, provinces shall submit the entire PDPFP to HLURB for

6. Q: What is the role of the RLUC in the approval process of the PDPFP?
A: The RLUCs are among the stakeholders that will be consulted during the
preparation of the draft PDPFP. The draft PDPFP, with appropriate revisions
according to public hearing, will be submitted to the Sanggunian for approval.
The RLUC (of which HLURB is a member) shall review the PDPFP prior to
the Sangguniang Panlalawigan’s approval.

7. Q: Should the Provincial PLPEM Core team (PCT) include the members of
the Provincial Land Use Committee (PLUC) and other agencies that can
provide data as well as assistance needed for PDPFP preparation?
A: The province may include PLUC/RLUC members in the composition of the
core team.

8. Q: Does the merger of PDP and PPFP conform to the Local Government
Code (LGC) that mandates the preparation of these plans?
A: The merger of these traditionally separate plan documents into PDPFP does
not contradict the LGC inasmuch as the PDPFP contains land use and
physical framework and practically covers the contents of both development
and physical framework plans (see Question No. 11). The merger is intended
to eliminate overlaps in these documents and addresses the spatial-sectoral
disconnect that characterized provincial plan documents.

9. Q: Can the province opt to prepare two separate plans (i.e., PDP and
A: The province may still decide to do so given its autonomy. However, NEDA
will be providing technical assistance to provinces for the preparation of the
PDPFP. This initiative has been well-received given the Memorandum of
Agreement/Understanding between the provinces and the NROs.

10. Q: What is the advantage/purpose of merging the PDP and PPFP?

A: The merger responds to some of the issues raised during the consultations
with provinces before the implementation of the NEDA-ADB technical
assistance, as follows: (a) multiplicity of plans and planning overload; (b) plan
overlap particularly in the analysis of planning environment; and (c) political
ownership of plans. The conceptual advantage of a single plan should be
considered, particularly the rationale for viewing spatial/physical and sectoral
factors simultaneously with the land use and physical framework being an
integral part of the plan environment.

11. Q: How does the PDPFP differ from the PPFP?

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A: The PDPFP has practically the same contents as the PPFP although the
approach, framework, methodology, and logic of preparation are different.
Furthermore, the PDPFP has a land use and physical framework component
that meets the requirement set by HLURB.

Content of the PPFP Content of the PDPFP

• Introduction • Introduction
• Situational Analysis
A. Historical Background
B. Plan Objectives and Context
A. Physical Characteristics
C. Coverage of the Plan
B. Population
D. Outline of the Plan
C. Economy
D. Settlements • Vision
E. Land Resources
F. Sustainability of Land Use
• The Planning Environment
A. Location, Land Area and Political
G. Environmental Considerations
H. Constraints to Future Land Use
B. Population and Settlements
I. Infrastructure
C. Physical Resources
J. National and Regional Policies
D. Economy
Applicable to the Province
E. Transportation, Access and Circulation
K. Provincial/City/Municipal/CDPs,
F. Income, Employment, Service Access,
CLUPs and other Physical Plans
• The PPFP G. Land Use and Physical Framework
A. Goals, Objectives, and Vision 1. Existing land use, trends and
B. Alternative Spatial Strategies potential expansion
C. Preferred Strategy 2. Physical Framework
D. Plan Components (i.e., demand; supply; demand and
supply integration; physical
• Implementation
• Draft PPFP Integration, Endorsement,
• Development Issues, Goals,
Consultations and Public Hearing
• Refinement of the Draft PPFP A. Development Issues and Problems
• Final PPFP Adoption, Approval and B. Development Goals, Objectives/Targets
Implementation • Strategies, Programs, Projects and
• Plan Monitoring, Evaluation and Re- Activities
planning A. Strategies, Programs, Projects and
B. Summary of Strategies and PPAs
• Draft PDPFP
• PDPFP Approval

12. Q: Ideally, there should be a common planning model followed at the

provincial and sub-provincial levels. Are the planning models being
promoted by NEDA for provinces the same as the planning model
implicit in the planning manuals being promoted by DILG at the
municipal and city levels?
A: NEDA’s PDPFP guidelines do not generally deviate from the planning models.
It, however, does not prescribe the contents of the provincial development
plan but emphasizes the “planning logic”. Hence the chapters/sectors to be
covered in the PDPFP will depend on the situations in each LGU.

13. Q: How should sector plans proceed from the PDPFP?

A: The PDPFP planning framework and approach result in a greater
understanding of the development challenges and opportunities of the
province specifically in sectors or areas that are relevant to its development.
It is not necessary then to discuss all sectors equally. Instead of preparing

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separate plans for women, children, and other sectors, accompanying action
plans may just be prepared.

For the children sector, NEDA has been advocating to agencies such as
DSWD, CWC, UNICEF and Local Councils for the Protection of Children, in
various meetings, the importance of just preparing a comprehensive action
plan for children instead of preparing a development plan and other separate
plans concerning children.

14. Q: Could the PDPFP serve as the ELA required by DILG?

A: No. The PDPFP is the main development plan of the province. However, the
ELA may be derived from the PDPFP and PDIP by taking off from the
identified and prioritized PPAs and determining the legislative requirements
that would support the implementation of the LGU executive department’s
priority projects.

15. Q: How will disaster risk reduction be mainstreamed in the PDPFP?

A: The DRM mainstreaming guidelines will take off from PDPFP planning
framework. It will enhance the sub-national planning analyses by introducing
vulnerability and risk factors brought about by the natural hazards that affect
key elements of the planning environment.

16. Q: What will provinces do if they lack the data for PDPFP preparation? For
instance, what income data will they use in the absence of provincial
GDP and 2006 FIES income data for provinces?
A: The PLPEM guidelines recognize that lack of data hinders straightforward
technical analysis, but assume that planning decisions will be made with
incomplete information. Provinces could use the latest available, projected or
proxy data, or derive estimates from available data.

In the absence of provincial GDP, the total family income by household head
kind of business/industry by province and sector (from FIES) may be used.
Since provincial breakdown is not available in the 2006 FIES, provincial
estimates can be derived by applying the 2000 FIES (a) percentage
distribution of provincial income within the region and (b) percent share of
sectors within a province, to the 2006 total family income of a region (by
household head kind of business/industry), in order to arrive at provincial and
sectoral income estimates. This methodology assumes that items a and b are
still the same in 2006.

Another methodology for estimating the 2006 FIES provincial income is the
extrapolation of percent share of provincial income based on historical data
(1994, 1997, 2000 FIES). The same applies to provincial income by sector.

17. Q: How are annual population growth rates (APGR) computed?

A: The computation is provided in PLPEM Volume 2 (Annex C, page 121). The
most commonly used method is based on geometric growth, using the
following formula:
APGR = (X-1)*100

Where X=antilog [log (Pt/Po]/t

Pt is projected total population after t years

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Po is current or base year population
T is number of year projected

In Excel format, APGR may be computed by using the following formula


B. Provincial Development Investment Program (PDIP)

18. Q: What programs, projects and activities (PPAs) should be included in the
A: The PPAs that should be included in the PDIP should emanate from the vision,
goals, objectives and strategies under the PDPFP. Additional PPAs identified
as a result of unforeseen circumstances (e.g., natural disasters) may be
included in the updating of PDIP/Annual Investment Program (AIP).

19. Q: Why is there a need to prepare an AIP if the PDIP is already formulated?
A: The Annual Investment Program (AIP) constitutes the annual slice of the
PDIP, or the indicative yearly expenditure requirements of the LGUs’ PPAs to
be integrated into the annual budget. It is updated annually to take into
account the changes in priority PPAs due to revised provincial/ regional/
national priorities, fiscal situation, and/or unforeseen events prior to the
budgeting process.

Insofar as budgeting is concerned, the AIP constitutes the total resource

requirements for the budget year including the detailed yearly allocation of
each PPA and the regular operational budget items broken down into PS,
MOOE, and Capital Outlay.

20. Q: What forms should be used for AIP?

A: For the preparation of a multi-year PDIP the PLPEM form with 5 sectoral
categories (i.e., infrastructure, economic, social, environment, local
administration and management) should be followed (see page 60 of PLPEM
Vol. 3).

For budgeting purposes, the JMC AIP form with 3 sectoral categories (i.e.,
economic, social, and general public services) should be used.

NOTE: The JMC AIP form (see JMC Annex) which consolidates the 4 AIP
forms in the Updated Budget Operations Manual’s was adopted by the
PLPEM guidelines (see page 62 of PLPEM Vol. 3)

21. Q: The infrastructure PPAs identified in the PDIP may be classified in any of
the 5 sectors indicated in PLPEM Volume 3. How will these be classified
to fit the JMC AIP form with 3 sectoral categories?

A: PLPEM Vol. 3 categorizes projects into 5 sectors that are mainly along the
devolved responsibilities of LGUs. For budgeting purposes, these could be
funneled through the 3 categories prescribed by the LGC (Sec. 317), namely:
economic, social and general public services. As categorization at the local
level is done by office (not by project), PDIP projects could easily be classified

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according to these categories (see table below). Note however that
infrastructure projects could be placed under economic services (if these
involve construction) and general public services (if these involve repair and

Sector Office
Economic Agriculture, Engineering (includes construction of infrastructure
Services projects), Environment and Natural Resources, Economic
Enterprises, Market Administration, Business Permit and
Licenses, Tourism and Cultural Affairs
Social Services Health, Education and Manpower, Housing and Community
Development, Social Welfare
General Public Administrative (includes repair and maintenance of
Services infrastructure projects), Treasury, Executive, Legislative

22. Q: What are the alternative measures to legitimize the PDIP especially when
the prioritized PPAs identified by the PCT (after undergoing the planning
and investment programming process) are not the priorities of the
legislative body of the province?
A: The issue of legitimization could be addressed by following the PLPEM-
suggested composition of LDC for PDPFP formulation and the expanded
PDIP committee for PDIP preparation. The PLPEM also identifies consultation
points to make the planning/programming activity a participatory process.
Wider representation and involvement shall give all stakeholders a sense of
ownership of the PDIP and facilitate its legitimization.

23. Q: Should the PDIP be submitted to Sangguniang Panlalawigan for

A: Sanggunian approval of the PDIP will be optional under the current NEDA-
ADB TA considering that not all provinces will be able to do this due to the
concept of rolling PDIP, timing, and political factors. However, it is strongly
recommended that provinces still go through the approval process as this is
an important innovation in the PLPEM which will ensure that priorities
emanating from the plan are committed to be funded.

C. PLPEM Guidelines

24. Q: What is the basis for adopting the PLPEM guidelines in the preparation
of local plans?
A: The JMC, though it does not have the effect of an EO, is the basis for
adopting the PLPEM guidelines for the preparation of PDPFP and PDIP. The
process is further adopted at the provincial level through the NEDA-Province

25. Q: Why do the PLPEM Guidelines exclude the HRLUB review and
ratification of local plans?
A: The PDPFP preparation/approval process reflected in the PDPFP Guidelines
is confined to LGU processes. Thus, it ends with the approval of the PDPFP
by the Sanggunian.

HLURB is not included in the JMC as the latter focuses on the harmonization
of local planning-investment programming-budgeting-revenue administration

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efforts of the oversight agencies (DILG, NEDA, DBM a nd DOF). Nonetheless,
DILG is coordinating with HLURB to harmonize their efforts at the
municipal/city level.

26. Q: Why does PLPEM have a volume on budgeting (Volume 4) considering

that DBM already has the UBOM?
A: PLPEM Volume 4 is not meant to replace the UBOM, thus, it covers only
budgeting tools and techniques (i.e., revenue and expenditure forecasts). It
emphasizes the importance of horizontal linkages that show planning-
investment programming-budgeting as phases of a single cycle. UBOM is
considered the main guide for budgeting, thus, PLPEM does not prescribe
new budgeting procedures and forms.

D. JMC and Related Matters

27. Q: There are too many reference manuals being endorsed by NG agencies
to LGUs. Which one should the LGUs follow?
A: The LGUs may follow the guidelines/manuals endorsed by oversight agencies
under the JMC. The JMC defines the delineation of the oversight agencies’
guidelines/ manuals and it clarifies which guidelines apply to specific LGU
level. But given LGUs’ autonomy, the LGUs will decide which guidelines they
are going to use.

However, NEDA will be providing technical assistance to provinces for the

preparation of the PDPFP, PDIP, and FS, and this has been well-received
given the Memorandum of Agreement between the provinces and the NROs.

28. Q: How does the JMC harmonize agency guidelines such as NEDA’s
PLPEM and DILG’s CDP manual?
A: The JMC harmonized the oversight agencies’ guidelines/ manuals by
clarifying which of these apply to an LGU level.

DILG’s RPS sourcebook and CDP manual have been updated to conform to
the JMC. The PLPEM may serve as framework in the preparation of more
detailed guidelines for municipalities. For this purpose, it has been agreed
that the oversight agencies will review the revised RPS and CDP manual for
consistency with the JMC. (Note: The PLPEM is already consistent with the
JMC. The JMC was formulated to resolve issues raised in the course of
PLPEM preparation. The PLPEM was finalized taking into account the
agreements of the oversight agencies as embodied in the JMC.)

29. Q: How can complementation of planning at provincial, city and municipal

levels be ensured?
A: With the oversight agency guidelines (and the Joint Memorandum Circular),
LGUs will be able to come out with an integrated and rationalized program
every calendar year. It can be expected that plans and investment programs
will be realized given the existence of appropriations and availability of
support resources.

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30. Q: How does the province integrate municipal and component city plans?
A: The province integrates municipal and component city plans through the
vertical integration process. The vertical integration process requires constant
coordination by the PPDO with counterpart planning agencies at the, city, and
municipal levels as well as with concerned national government agencies and
regional offices to ensure consistency in vision, goals and objectives, strategic
thrusts, and, to the extent possible, complementation of PPAs. Similarly, it is
expected that the Governor will articulate the provincial vision, goals,
objectives, targets, and PPAs in the PDC and RDC, to harmonize these with
those of component cities/municipalities and other provinces in the region.
Towards this objective, provinces as well as component cities and
municipalities could pool resources for planning and implementation of
mutually beneficial PPAs. (Also see JMC, Section 5.2 on province-city/
municipality complementation.)

31. Q: Despite the intention of the JMC to rationalize the many plans required
by NG agencies, there are still directives to prepare separate sector
plans. Isn’t this inconsistent with the JMC?
A: The JMC supports the preparation of a single development plan for LGUs.
But it does not prevent LGUs from preparing action plans that would
accompany the development plan. Action plan formulation is better than
preparing separate plans for specific sectors. The important thing is that LGUs
are able to rationalize their planning work by not going through the entire
planning process again.

32. Q: What is the role of the Local Development Councils (LDC) in the
synchronization and harmonization of plans?
A: As defined in the LGC and JMC, the LDC is the body mandated to assist the
Sanggunian in setting the direction of economic and social development, and
coordinating development efforts within their respective territorial jurisdictions.

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