People’s Participation in Local Government

Christina Saccharine S. Mamaril

Reviewing Decentralization

Definition of Decentralization:dispersal of authority and responsibility and allocation of powers and functions from the center or top level of government to the lower levels from the central government to regional bodies or special purpose authorities, or from the national to the sub-national levels of government

Rationale for decentralization policiesAim: increase efficiency in the delivery of public goods and services

Assumptions:contributes to efficiency by locating decisions closer to the scene of action, where standard national policies can be better suited to potentially peculiar and changing conditionsMore responsive to the needs of the peopleInvolvement of people in the development processIncrease accountability of government agencies

People’s Participation:Civil Society, POs and NGOs

Civil Society

Civil Society

Civil society is referred to as the ‘third sector’ or the ‘non-profit’ sector, is used to broadly describe all aspects of society that extend beyond the realm of the public sector and the private sector (Pharr, 2003)

‘an area of association and action independent of the state and the market in which citizens can organize to pursue purposes that are important to them.

Association in civil society is voluntary and is characterized by individuals who join together because of common ideas, needs, or causes to promote collective gain—that is they take collective action

Individuals participate to achieve something they would have otherwise not been able to achieve on their own

The need for NGOs

Social movement : when the collective action of a group of individuals is sustained over time in an identifiable way and reflects an important emerging social change

Historically, wide ranging social movements –whether religious, cultural, or ethnic –have called on governments and businesses to respond to dispersed societal interests

Citizens’ growing loss of trust in institutions they rely upon to protect their interests of social import has fanned a need for new mechanisms to foster social capital formation – ‘outward looking’/ ‘bridging’ (Putnam, 2002)

Social movements becoming more organized and influential evolves structurally to form a free-standing presence within the broader institutional environment entity of Non-Government Organizations (NGOs)

Often they undertake to shape the larger political and social reality facing them (Pharr, 2003) or invoke rights of public debate around common concerns.

Their efforts may arise from the neglect of certain individuals by social and political institutions that deny these individuals social identity or support

Civil society actors pursue political ends outside the traditional confines of the state apparatus

Obvious problem: free-riders

NGO defined

Presumably the UN which dealt primarily with governments and wanted to consult private, non-profit organizations which were independent of governments found it convenient to just refer to this distinction

United Nations ECOSOC Resolution No, 288 of Feb 1950: “any international organization which is not established by intergovernmental agreement shall be considered an international nongovernmental organization.”

United Nations (2003) describes an NGO as follows:

Any non-profit, voluntary citizen’s groups which is organized on a local, national or international level. Task-oriented and driven by people with a common interest, NGOs perform a variety of services and humanitarian functions, bring citizens’ concerns to Governments, monitor policies and encourage political participation at the community level. They provide analysis and expertise, serve as early warning mechanisms and help monitor and implement international agreements. Some are organized around specific issues, such as human rights, the environment and health

NGOsThe Philippine Experience

NGOs in the Philippines

They are highly encouraged in the Constitution as a state policy:

The State shall encourage nongovernmental, community-based or sectoral organizations that promote the welfare of the Nation

The participation of the private sector in local governance, particularly in the delivery of basic services, shall be encouraged to ensure the viability of local autonomy as an alternative strategy for sustainable development

Increased NGO participation is seen as a way of expanding the strategy of decentralization operationalizing citizen participation and democratization in the politico-administrative system

NGOs are privately funded, non-profit development organizations engaged primarily in promoting, empowering and providing their members with legal means to improve their socioeconomic and political status

NGO categoriesCategory Function

Welfare organizations Social welfare work with individuals and groups of children, adults, disabled and aged

Socio-civic and professional organizations

Involved in diverse civic and professional work in their own communities

Development organizations Engaged in long term development work with specific communities through community organizing and various forms of participatory strategies

NGO categoriesCategory Function

Issue-oriented organizations Directly involved in the advocacy concerns particularly political issues through community mobilization and popular education on issues such as agrarian reform, human rights, etc.

People’s and grassroots organizations

Include all indigenous, self-help and people-initiated organizations, whose membership may be sectoral (women, youth farmers, landless peasants, etc.) for mutual help and assistance

Networks Functionally specialized organizations that may be political, educational, communication and socialization networks

The Local Government Code of 1991 and its impacts

The passage of the code allowed a more active participation of NGOs and the private sector in local governance.

Rule XIIIArt 62. Role of People’s Organizations, Nongovernmental organizations and the Private sector

Art 63. Local Special BodiesThe number of NGO representatives in each LDC shall not be less that ¼ of the total membership

Art 64. Procedures and Guidelines for Selection of Representatives of Pos, NGOs of the Private sector in Local Special Bodies

Art 65. Delivery of Basic services and Faciltiies

Art 66. Joint Ventures and Cooperative Programs or Undertakings

Art 67. Financial and other forms of assistance

Art 68. Preferential Treatment for Organizations and Cooperatives of Marginal Fishermen

Art 69. Preferential Treatment for Cooperatives

Art 70. Financing, Construction, Maintenance, operation and Management of Infrastructure projects by the Private Sector

The Situation: LGUs in the Philippines

(Legaspi)On devolution of Services and functions

Some have not implemented the provisions because it is not in their development agenda

On appointment of Local Officialssome mandatory positions have not been filled up; these include positions such as the municipal accountant, engineer, and planning and development coordinator

Only assign what is relevant to their LGU

Inability to hire competent and trained personnel

On taxation and fiscal mattersIncreased IRA sharesincrease of annual income

Cost of devolved services increase in annual expenditures

Increasing participation of the private sector in joint ventures in the construction and management of buildings

Increased willingness of local officials to obtain credit loans to implement projects (hindered by stiff requirements of banking institutions)

Alternative means for income generationCharges for use of government local government facilities

Issuance of bonds (not common)

Overview of LGUs in the Philippines:

Code has provided for a stronger role of local governments

• More functions and responsibilities have been transferred to them more influence on decision making of service delivery

• More community governance institutionalization of people participation via memberships in local development councils and special bodies

• LGU concerns:– Financial capacities

• Most LGUs rural-based• No equal footing among LGUs• More lucrative sources of taxes in control of

central government– Little influence in the implementation of plans

that are rooted on national policies

– Private sector-LGU partnerships• Lack of interest of private sector• Lack of political will to adopt more innovative

approaches

Three major roles that NGOs could play in local development (Brilliantes):

• Supplement and complement the government’s local development work or serve as alternative modes for the delivery of basic services.

(1) Catalysts-stimulates

(2) Brokers- negotiates

(3) Providers

Example of NGO-LGU effectiveness in Bangladesh

Proshika

Grameen Bank

Development Activities• Delivery of basic social services (including health,

education, social services)

• Natural resource management

• Enforcement of environmental laws

• Agricultural development including extension and credit delivery

• Maintenance of infrastructure

• Monitoring the implementation of government projects

• Human resources development

• Community organization and mobilization

• Training of extension workers

The Local Government Code and NGOs

o The 1991 Local Government Code provides legal foundation to institutionalize the participation of the private sector context of people empowerment

o LGUs are encouraged to promote the establishment and operation of people’s and NGOs to become active participants in the pursuit of local autonomyo Direct involvement

o NGO-LGU complementary; supplementary; supportiveo Private sector nature effectiveness and cost-

efficiency

• NGO involvement concretized given specific seats in local bodies such as local development council– Primary policymaking– Planning body for the area– The are also allocated seats in the local pre-

bid and awards committee (PBAC), the local health board and the local peace and order council.

• The code also provides that LGUs may enter into joint ventures and cooperative arrangements with POs and NGOs– Delivery of basic services– Capacity building and livelihood projects– Developing local enterprises improve

productivity– Diversifying agriculture– Rural industrialization– Promote ecological balance– Enhance economic and social well-being of

the people– “Build-Operate-Transfer” (BOTs)

Issues and Concerns• TO PARTICIPATE OR NOT

– The history of government and NGO collaborations brings about prevailing suspicion (local politics)

– NGOs can also use LGUs for their development agenda– Mistrust of NGOs and LGUs of each other

• Traditional politicking ( Legaspi)• Too many requirements-financial statement, 4 year track record

Isolation of NGOs from the broader perspective of development develop their own programs and may ignore a fundamental goal (pursued by the LGU)eg. Reproductive Health services

• AUTONOMY AND INDEPENDENCE

• REGULATION BY GOVERNMENT

• Despite all this, NGOs have to take into consideration their limitations– Weak resources, training, organization and membership

commitment

Other Concerns• Lack of training of staff; adequate staff

• Funds; donor-driven nature of most NGOs

• Community and Employment Development Program (CEDP); responsibility to monitor the implementation of government programs– problems with financial resources– Tendency to accept some kind of financial

support negative impact on integrity of NGO

• Growth and Expansion of NGOs

• Leftist label of NGOs

The Case of the Community Primary HospitalsNegros Occidental

Situationer

o one of the four provinces comprising the central Visayas Region

o Negros occidental considered to be one of the biggest

o Agriculture based economy

o Sugar top grosser with three sugar mills in the area

o Province suffers from poverty

• In the 80s, NPA active. They felt that government was neglecting their people’s needs of basic services

• In 1988, NPA attacked Philippine Constabulary’s detachment in broad daylight– Governor Emilio Marcias II goes to hinterlands to

consult people• Lack of hospital facilities• Poor conditions and bad roads• Standard ratio- 1 bed: 500 populatiom

Governor Marcias launches his program on the establishment of ten-bed community program in far0flung and mountainous areas

The Community Primary Hospital Program

• Provincial government initially planned to establish ten units of community primary hospitals in the hinterlands for 5 years

• Envisioned it to be self-reliant and self-sustaining

• Partnership approach to health care. Three key players in program implementation– Community, provincial government, NGO

(Silliman University in Dumaguete City)

• Provincial government provided funds for construction of building, salaries for staff, some medicines and clinic supplies

• NGO-community organizing component

• Community-support mechanisms to assure sustainability

Administration and functions of the

program• Decentralization of functions– The Board– The Municipal Board– The Barangay Board

Within a span of eleven years from 1988-1999, the provincial government has established six community primary hospitals in the mountainous areas of the province.

Each hospital has its unique way of operation ad management.

Some persisting problems

• Need for professional managers to manage the economic enterprises

• Competing interests and needs

• Change in political leadership in the local area

• Lack of financial resources

• Lack of staff

Some persisting problems

• Need for professional managers to manage the economic enterprises

• Competing interests and needs

• Change in political leadership in the local area

• Lack of financial resources

• Lack of staff

The end