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.

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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.

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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.

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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.

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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.

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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.

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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

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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

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PLA

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Major COP Activities

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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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