UNIVERSITY OF THE PHILIPPINES MANILA

PM 250

An Assessment of the Basic

Political Unit of the

Government The Case of Guitnang Bayan 2, San Mateo, Rizal

Maria Lourdes Bacud 2012- 85126

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Contents Introduction .................................................................................................................................................. 4

Background ..................................................................................................................................................... 5

Brief History of the Inception of the Barangay ................................................................................................. 7

Political Structure ......................................................................................................................................... 7

Challenges .................................................................................................................................................... 11

Recommendation ........................................................................................................................................... 12

Annex ............................................................................................................................................................. i

Annex A: List of Officials ............................................................................................................................ i

Annex B: Background ............................................................................................................................... ii

Annex C: Organizational Chart ................................................................................................................. iii

Annex D: Barangay Map........................................................................................................................... iv

Annex E: Barangay Based Institutions, Committees, and Teams ........................................................... v

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\The primary task at hand was to create an analysis of the local governance with its basic unit, barangay. The

method used was to adopt a barangay. This entails data gathering, desk review of the literature and updated

information, key informant interview and focus group discussion with selected members of the unit.

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Introduction People have the natural instinct of seeking the warmth of belonging and connectivity with others. We unite and form a

group of individuals that complements weaknesses and strengths of everyone. Humans have these tendencies of

building an environment of networks, a structure of support system-- a way of enduring the arena of only the fittest

may live. I see this kind of interaction as a structure of what they refer to as Community.

The roots of the concept of community are as old as this society exists. According to Cambridge dictionary,

community was defined as people living in one particular area or people who are considered as a unit because of

their common interest, social group, or nationality. School of thought divides community into three (3) perceivable

areas; place, belonging, and practice. 1 We may look community with these three (3) different lenses.

In Philippines, this kind of collaboration among individuals was apparent to the oldest form of communities headed by

the Datu, barangay. Even before the period where the intruders invaded the country, barangay was already formed in

the deepest forest of the archipelago.

The Datu led the barangay and other members assumed critical roles. According to Arcellana, these barangays had

the status of city- states. However, the barangays in the country only enjoyed these before the invaders sailed their

galleons and dock off in the archipelago. Before we acquired our freedom from these invaders, Philippines was a

centralized government. Powers and functions of the government were vested to the national government. The

central government managed the affairs and supervision of the services of the state. The Spaniards introduced this

system in the country and was continued by the Americans. It monopolized the management of the entirety of the

state. Invaders saw it as convenient weapon to colonize the country.

In the midst of the infiltration of the colonist, Filipinos already discovered the approach of transferring powers as the

command gets lower in the groundthey were practicing the decentralization through the revolutionary government

of Katipunan. It is the transfer of political and administrative functions from the central to local government. This

decongests the central office of the matters that best addressed at the lower level.2 Decentralization was fully

realized and adapted by the Philippine government through the enactment of the R.A. 7160, famously known as the

Local Government Code of 1991. The enactment of the law changes the landscape of local governance in many local

areas. It provides window for local participation and active engagement of Civil Society Organizations (CSOs) in the

local government; it is devolution and debureaucratization respectively.

The local government has five (5) tiers, Autonomous Regions, Provinces, Cities independent from province and

component cities, municipalities, and barangays. The R.A. 7160 provides the scope and functions of every local

government division.

Among the layers of local government, barangay has the critical role in realizing the self- autonomy of each local

government unit. It is the basic administrative and political unit of local government unit. Each barangay is

empowered to implement and facilitate governance among its constituents. Barangay serves as the primary planning

and implementing unit of government policies, plans, programs, projects, and activities. 3 It is the closest form of the

local government that reaches its constituents through a face- face approach and barangay mediated personal

1 Lyusyena Kirakosyan (2014), Understanding Community in Community Voices: Implications for shared action, Virgin Tech Institute for Policy and Governance, p. 2- 7. 2 Alex B. Brillantes. Jr (1998), Decentralized Democratic Governance Under the Local Government Code: A Governmental Perspective, Philippine Journal of Public Administration, p. 38- 57. 3 The Local Government Code of the Philippines (1991), Book III, Chapter 1: Role and Creation of the Barangay, Section 384.

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matters of families in their jurisdiction. It is also the arm of the national government on their implementation of

regional and local development plans.

Background

The barangay, for this particular study, was chosen because of the geographic convenience it gave to the researcher

and the intention of helping the community to transform and realize the gaps and opportunities from an outside

perspective.

The Municipality of San Mateo found in the outskirt of the Province of Rizal has 15 barangays. One of which is the

Guitnang Bayan 2 (GB2) or Poblacion of the community.

Barangay 1. Ampid 1 2. Ampid 2 3. Banaba 4. Dulong Bayan 1 5. Dulong Bayan 2

6. Guitnang Bayan 1 7. Gutinang Bayan 2 8. Guinayang 9. Gulod Malaya 10. Malanday 11. Maly

12. Pitong Bukawe 13. Silangan 14. Sta. Ana 15. Sto Nio

Figure 1. List of Barangays4

Though San Mateo is a 1st class municipality of

the province of Rizal, its barangays, GB 2, in

particular, is rural in barangay classification. It

has a total of 614 hectares of land and form

12.72% of the total land area of the municipality.

Guitnang Bayan 2 is surrounded with various

barangays from north (Barangay Guitnang

Bayan 1, Ampid 1 & 2, Banaba), south

(Barangay Dulong Bayan 1 & 2, Malanday,

Guinayang, Maly, east (Barangay Silanagan,

Sto. Nino, Gulod Malaya), and west (Barangay

Sta. Ana) of San Mateo. The metes and bounds

of the barangay provided the clear boundaries

and areas of the political unit.

The topography of the barangay is characterized

by rolling mountainous and flat terrain.

Figure 2. Barangay Boundaries

4 Retrieved from sanmateo.gov.ph/government_barangat.html (2009)

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GB 2 has 13,987 population as of 2010 and will reach an approximate of 17, 455 on 2015. It has 2,591 families with

females dominating the population with 67% share compare to males with 33%.

Figure 3. Population Distribution for every Barangay5

GB2 is the 3rd biggest barangay, in

terms of land area in the

municipality. Major establishment

such industrial buildings, livelihood

structures and subdivisions are

found in the said barangay.

The barangay belongs to the 2nd

district of Province of Rizal. It has

two (2) sitio and nine (9) registered

subdivision.

Figure 4. Total Land Area per Barangay6

5 Retrieved December 12, 2014, from: http://www.sanmateo.gov.ph 6 FL Hong Architects & Associates (2010), San Mateo Comprehensive Land Use Plan 2010- 2020, The Setting: Land and

Infrastructure (existing condition), p. 7.

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Through its vision and mission, GB2 is guided as it renders services to their community. The barangay upholds the mandate of the Local Government Code that creates this unit. It delivers services with utmost focus on the need of its community.

Vision

A decent, progressive and peaceful Barangay Community equipped with

the finest tools of morality and perfect economy

Mission

Provide the very basic services and improve the quality of life of the

citizenry through good governance

Brief History of the Inception of the Barangay In 1950, the Municipality of San Mateo, Rizal was politically subdivided in 14 barangays. Its name, Guitnang Bayan

was based on the geographically placement of the barangaymiddle of the Municipality. However, this assumption

was not proven with any evidences or written declarations, it was only assumed since it was the closest and most

sounding reason why it was named Guitnang Bayan. The creation was supported with ordinance passed by the

Sangunian Bayan of San Mateo. Unfortunately, the copy of the said ordinance was nowhere to be found in the

barangay. After a few years of the creation of the unit, Guitnang Bayan was divided into two (2) barangaysGB1 and

GB2. The copy of the ordinance creating two (2) barangays out of the original Gutinang Bayan was not retrieved from

the community. The secretary of the barangay failed to produce the document upon the request made by the

researcher. *Budget of the Barangay last 3- 5 years were not retrieved due to the failure of the barangay secretary to

produce the copy.

Political Structure

The Local Government Code of 1991 provided the structure of every barangay in the country. The code created the

barangay to enhance the delivery of basic services in the communities. It serves as the primary arm of the

government in launching and implementing the policies, programs, projects, and activities of the government towards

inclusive growth. The GB2 has a total of 22 major members and other supporting members of the community

carrying the mandate of the government in developing and delivering services in the community.

Figure 5. Barangay Guitnang Bayan 2- Organizational Chart

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List of Officials Designation

Leo S. Buenviaje Barangay Chairman

August G. Antonio Kagawad/ Chair, Committee on Finance and Committee on Womens and Family Welfare

Ferdinand F. Cruz Kagawad/ Chair, Committee on Community Affairs

Judith A. Balasa Kagawad/ Chair, Committee on Education

Fernando San Andres Kagawad/ Chair, Committee on Agriculture

Merlita Rivera Kagawad/ Chair, Committee on Health and Sanitation and Committee on Justice

Mirlo Pagkatipunan Kagawad/ Chair, Committee on Public Works

Joselito L. Mariano Kagawad/ Chair, Committee on Peace and Order and Committee on Trade, Industry, and Cooperative

Cesar A. Cruz Barangay Treasurer

Rita E. Rivera Barangay Secretary Figure 6. Committee and Chairs7

The GB2 has committees mandated by the Local Government Code, Circulars of DILG, and Administrative Code.

Above are the standing committees of the barangay provided by the Code8 and the general jurisdiction of each

committee will be from the Local Sanggunian of the barangay. And equally important the code says that the creation

of committees shall not be limited to the standing committees, committees/ team may be created as the law provides

its creation and purpose.

Below are barangay based institutions, committees, and teams created for special purposes:

Legal Basis Institutions/ Committees/ Teams

1. DILG MC No. 2004- 007 Barangay Anti- Drug Abuse Committee

2. DILG MC No. 2004- 052, DILG MC No. 2009- 059 Barangay Council for the Protection of Children

3. Republic Act No. 10121, DILG MC No. 2010- 143 Barangay Disaster Risk Reduction and Management Committee

4. Local Government Code of 1991 Sec. 116 Barangay Peace and Order Committee

5. Local Government Code of 1991 Sec. 37 Local Prequalification, Bids, and awards Committee

6. Local Government Code of 1991 Sec. 106- 114 Barangay Development Council

7. Republic Act No. 9003, DILG MC No. 2004-151 Barangay Ecological Solid Waste Management Committee

8. DILG MC No. 2013- 29, Republic Act No. 8504 Barangay HIV/ Aids Committee

9. Local Government Code of 1991 Sec. 16 Barangay Anti- Rabies Committee

10. Section 9 of the 1987 Philippine Constitution, Administrative Order No. 16, S 2008

Barangay Action Team for Pantawid Pamilya

11. DILG MC No. 2001- 121 Inclusion of Agricultural and Fishery Council (AFC) Budget in the Local Government Units (LGUs) Annual Appropriation

Barangay Agriculture and Fishery Committee

12. Presidential Decree No. 1569 Barangay Nutrition Committee

13. Rebulblic Act 9710, PCW MC No. 2011- 01 Barangay GAD Focal Point System

14. Local Government Code of 1991 Sec 399 Lupong Tagapamayapa

15. DILG MC No. 2009- 145 Barangay Peacekeeping Action Team

16. Republic Act No 10121 Barangay Emergency Response Team/ First Transponders/ Incident Response Team

17. Republic Act No. 7883 Barangay Health Workers

18. DILG MC No. 2003- 095 Barangay Health Emergency Response Team

7 Guitnang Bayan 2 Informative Brochure

8 The Local Government Code of the Philippines (1991), Book I General Supervision, Chapter 3: Local Legislation, Section 50.

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19. Republic Act No. 6972 Barangay Day Care Workers Figure 7. GB2 Institutions/ Committees/ Teams

The creation of these committees/ teams/ institutions within the barangay unit strengthens the will of the state to push

forth the development and reach the areas where the national and local government have higher regard.

There are key initiatives from the municipality of San Mateo through its barangays to meet the needs of its

community. They even doubled their effort because most of its barangays are situated to hazardous location prone to

landslide, flooding, and earthquake.

Areas situated near

the San Mateo are highly susceptible

in flooding. West

areas of GB2 are

flood prone areas

based on the flood

susceptible map of

the municipality.

Figure 8. Flood Susceptible Map of San Mateo, Rizal

GB2 areas in eastern part

are susceptible in landslide

as illustrated by the

landslide susceptible areas

in San Mateo map.

These areas are those in

situated in the mountain

side of the municipality.

Visibly, areas in the in low

lying side of the municipality

in western part are low

susceptible in the landslide.

Figure 9. Landslide Flood

Susceptible Map of San Mateo,

Rizal

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Figure 10. Earthquake- Related Hazard Map

GB2 is not only prone in flood and landslide, the barangay has also high earthquake- induced ground accelerations

or Peak Ground Accelerations (PGA). Those on which are within the red mark in the illustration above are high risk in

the occurrence of earthquake.

San Mateo, RizalGuitnang Bayan 2 in particular holds a greater responsibility in keeping its community safe from

the impact of disaster. Indeed, this community is susceptible in the occurrence of flood, landslide, and earthquake.

More than anyone else, the barangay shall make its community resilient in the effects of the disaster that may occur.

The Barangay makes sure

that these threats/impacts

cause by natural or man-

made disaster may be aided

by their facilitieshealth

units. Their barangay health

unit is equipped with basic

equipment with persevering

health staff and community

health team.

Figure 11. Guitnang Bayan 2 Health Unit

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The area is really a disaster prone; their barangay faces challenges on how to sustain the effectiveness and

efficiency of the team in preparing for the worst situation that may occur in the community. These barangay health

centers in the municipality are the only public health units in the area. No bigger public facility the municipality can

offer to its constituents.

Now it brings us to the major challenges that the GB2 faces as the political dispute heightens, the advent of

innovations across all sectors, and how climate changes abruptly. The Barangay Chairman acknowledges the issues/

conflicts their community is currently facing.

Challenges

1. Dispute on the metes and bounds with other barangays

The municipality of San Mateo, Rizal provides a clear metes and bounds for every barangay in the

municipality. It was also supported with document from different agencies concerning the declaration of

boundaries for each community. This may sound well; however, some of the barangays including the GB2

has disputes with other barangay on the boundaries of the communities. And obviously, residences are

affected and having difficulty on the disagreements.

2. Peace and order (security, drug abuse, petty crimes, family feud)

The population of the municipality increases exponentially because of the exodus of greater population from

metro to urban area of San Mateo. The municipality also offers different options for residential areas. As

population increases, management of the peace and order appears to be a big challenge for the

municipality and barangay in particular.

Diverse culture and characteristics bring potential clash, this may be too personal but if conflicts get

accumulated it becomes a problem of the society, and government unit such as barangay gets responsible

in harmonizing the disputes and managing the effects of the chaos.

3. Solid Waste collection

The solid waste management in the country is one of the major challenges as it gears towards urbanization.

The responsibility of managing the solid waste of each community is devolved in the local levels as

mandated by the Local Government Code. The Republic Act of 9003 emphasizes the role of LGUs in solid

waste management. The LGUs shall be primarily responsible for the implementation and enforcement of the

provisions of the R.A. 90039. The code also mandated each barangay to take the responsibility of collecting

and segregating the biodegradable, compostable, and reusable wastes.

The garbage crisis is real, serious, and poses even grave threats to public health if not resolved. The root

causes of the problems are not technical or financial, but rather relate to governance and political will.10

9 Republic Act 9003 (2001), Chapter 1 Basic Policies, Article 1 General Provisions, Section 10. 10 Asian Development Bank (2004). The Garbage Book: Solid Waste Management. p. 24

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However, there are difficulties that Guitnang Bayan 2 is experiencing as they perform their responsibilities in

managing their solid waste.

4. Growing number of informal settlers

The influx of people from Metro and contiguous sub- urban and provinces gives a big leap on the population

of the municipality, Guitnang Bayan 2 in particular. San Mateo, Rizal can be perceived as strategic

residential area if you consider the geographic location and the feel of sub- urban setting. Estate developers

rush as they build the next among their series of subdivisions in the barangay. However, part of the

population perceived these seemingly low cost residential areas as residence of the stable work force of the

country. Thus, they built their home outside the planned areas for residential locationsbeside the river and

within the private and government properties. Informal settlers increase and the community have to solve

the issues rooted from illegal set- up of houses.

5. Disaster Risk Reduction (flood, landslide, earthquake susceptibility)-- Conversion of Fields to

residential areas

Apparently, based on the data presented above, San MateoGB2 in particular is high risk in disaster

occurrences. Floods due to the proximity to bodies of water; landslide because of the nature of its

geography and surrounding the land typology; and earthquake induced accerelation due to the existence of

fault line in the eastern part of the barangay.

The Barangay Chairman cited few among possible reasons of the aggravated situation of the community.

1. Climate Change;

2. Conversion of rice fields to residential areas;

3. Old physical structure;

4. Low- quality structures recently built in the community; and

5. Excessive cutting of trees.

Recommendation

1. Dispute on the metes and bounds with other barangays

Remedies on the territorial disputes among barangays are provided by the local government code of

1991. Sections 118 and 119 of the LGC of 1991 provide stated the specific procedures for the

settlement of boundary dispute. Specifically, it states that boundary disputes involving two (2) or more

barangays in the same city/ municipality shall be referred for settlelemtn to the sanguninang

panglunsod/ sanguniang bayan concerned. However, if the sangunian fais to effect an amicable

settlement within 60 days. Also, R.A. 6128, An Act prescribing the procedure for the settlement of

municipal or barrio boundary provides same remedy/ resort.

The abovementioned prescriptions both specify acceptable resolution to the dispute. A venue to lay the

evidences that will justify the claims of both parties gives an opportunity to settle the disagreement on a

impartial manner.

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2. Peace and order (security, drug abuse, petty crimes, family feud, etc.)

.

The government has primary responsibility in ensuring peace and order in the community.

Barangay unit shall, as mandated by the Local Government Code of 1991 and through the Executive

Order 366, s. 199611 and Executive Order No. 20, S. of 199212 the organization of Barangay Peace and

Order is directed by the law. The statutory specifically, emphasizes the significant role of the local units

in maintaining peace and order, in dealing with insurgency, and in curbing illegal gambling activities.

Law provided by all means all the necessary guidance that the implementers maybe needing in

delivering their services. The DILG is constantly reminding its personnel and Local Government Units

(LGUs) of their responsibilities and commitment to their respective jurisdictions.

In GB2, an established Barangay Peace and Order Committee (BPOC) supports the community to

achieve equilibrium in the situation of the areas, most especially those identified as high risk in any

dispute or irregularities.

Peace and order is the responsibility of every individual in the community, it is the concern of

everybody. BPOC as community machinery can be an effective police system if implemented and

realized well.

Though, capacity buildings for BPOCs were already implemented by LGUs, reinforcement or a regular

training that will develop their capabilities is needed to keep up and sustain quality service to the

community. Peacekeeping and policing are among the many difficult roles of the barangay. Many

expectations were thrown and keep on hitting the basic political unit of the government. The national

and local governments recognize the need to capacitate them. However, evaluating the key

interventions should be made accordingly to upgrade the existing level of skills and capacity.

I have seen and had the opportunity to talk many barangay officials and their respective arms, their

sincere intention of serving the community makes me realize that we should prepare and equip them

with necessary capability to implement and render the services we are expecting from them. We ask so

much with incapable hands.

3. Solid Waste collection

Waste collection in GB2 is managed by the Municipality. Due to increasing number of residence in the

barangay, collection of solid waste became a serious issue. Schedule of the collection becomes

intermittent which causes confusion. And more importantly, it does not contribute to building of habit/

behavior of the community.

Long- term management of solid waste is delegated to the City/ Municipality level. Barangays, in

support to, has management plans and strategies in each area. Programs/ projects that will strengthen

the capabilities of the barangay level in implementing solid waste plans and strategies should be

provided by the local level. The support should also transcend until the monitoring and evaluation of the

11 Reorganizing the Peace and Order Council

12 Organizing the Peace and Order Committees

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plans and strategies implemented. By these, the effectivity of the mechanism used can be measured,

improved and replicated by other barangays or even contiguous Municipalities.

4. Growing number of informal settlers

The existence of informal settlers in most of the cities/ municipalities becomes ubiquitous in the

Philippine urban landscape13. Evidently, increasingly scarce in resources such as urban land become

the point of conflict between state and landowners. Blatantly, the local government failed to control and

imposed law to protect the properties and even the opportunities these informal settlers can gain if the

state provided solution/ resolved their resistance.

On a different view, sometimes, if not most of the time, barangays attract informal settlers for votes.

Barangay officials protect and tolerate the existence of the informal settlers within their jurisdiction to

position themselves in advantage during the local elections. More than the insufficient efforts to

implement the laws in controlling the exponential increase of informal settlers in the area, the

commitment of the barangay officials to mitigate the problems are vague.

Decentralization has significant role in mitigating the conflicts.14 Participation and improvement of urban

governance can be used as way forward in housing poor communities. Clearly, the concept of

participation has been applied in development efforts in the last thirty years and can be located at

several levels, from participatory slum upgrading in communities to active citizenships and civil society

organizations (Carolini et al., 2005: 46).

5. Disaster Risk Reduction (flood, landslide, earthquake susceptibility)

The government recognizes the need to equip the local government in the advent of disaster in their

respective areas. The occurrence of disaster is inevitable; however, impact can be mitigated if the

communities are prepared and equipped.

The DILG, in particular, is on top of making the community chief executives prepared to the maximum

impact of the disaster. The department launches a new disaster alert system called Operational Plan

Listo (Oplan Listo) for a more effective response during emergency situations such as during typhoons.

Roll out strategies are currently implemented for the first component (Disaster Preparedness Manual

Checklist) of Oplan Listo to inform and equip the local government units most especially the Local Chief

Executives (LCEs). This guides the preparedness and response team to the anticipated impact of the

disaster. The national government provided initiatives that highly involve barangays most especially in

preparedness and search and rescue.

13 Marco Stefan B. Lagman (2007), Informal Settlements as Spatial Outcomes of Everyday Forms of Resistance: The case of

Three Depressed Communities in Quezon City, Department of Geography, University of the Philippines, Diliman.

14 Pernille Hattmann Olesen (2009), The Challenge of Squatters: An assessment of Housing Provision in the Philippines in the

Context of Decentarlization, Department of History, International and Social Studies, Aalborg University.

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Impacts of the natural phenomena can be felt by multiple areas, most especially those situated in

identified high risk locations. The problem is best solved if multiple agencies collaborate and share best

practices.

A much notable alliance was formed as one institutional innovation in solving some of the institutional

constraints with regard to the management of the Marikina Watershed. The Alliance of 7 (A7) seeks

and mobilizes various development stakeholders within the Marikina watershed. The alliance is

composed of the following cities and municipalities: Marikina City, Pasig City, Antipolo City, Municipality

of Cainta, Municipality of Rodriguez, Municipality of San Mateo, and Quezon City. Mayors from these

local government units signed a Memorandum of Understanding binding them to their commitment to

collaborate in disaster preparedness.15 They engage themselves in a pro- active disaster readiness and

response program. GB2 form part of this alliance and beneficiary of the results that the alliance may

come up.

This paper used different lenses in viewing the issues and challenges at hand particularly in Guitnang

Bayan 2, San Mateo, Rizal. Recent data were compiled to integrate literatures that support the claims

and assumptions. Each was carefully scrutinized to come up with appropriate prescriptions.

Every Barangay contributes to national building. Its resiliency to any adverse impact of any challenges

is very much recommended. Strengthening their capacities will equip them to much greater hurdles we

may face in the next years.

15 Tuano, Philip Arnold, Sescon, Joselito (2013). The Alliance of 7: Climate Change Adaptation in the Greater Metro manila

Region. Human Development Network Discussion Paper Series 2012/ 2013 No.13.

i

Annex

Annex A: List of Officials

ii

Annex B: Background

iii

Annex C: Organizational Chart

iv

Annex D: Barangay Map

v

Annex E: Barangay Based Institutions, Committees, and Teams

vi