Urban Functions In Rural Development-- Bicol River Basin Pilot Project .

- 7 comparatively "data rich" since a number of background, feasibility andregional studies have been conducted over the past few years. Populationand other census materials, and the Social Science Research Unit (SSRU)'smunicipal inventory, together with the Intermodal Transport Study andother secondary sources provide a large amount of available data.5.The project tea m and the U.S. Consultant agreed that one majorgap that will require original studies is of market center activities andmarket flows.They decided to conduct in-depth market analyses ofthe 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 toidentify "minimum necessary data needs" based on the Bicol experience,so that subsequent pilot projects which do not have the Bicol's extensivedata base can be designed more effectively.7. The Project Staff and the U.S. Consultant agreed that, giventhe constraints on time and money, and the need to develop a usablepolicy document, it would not be possible to undertake a comprehensivestatistical analysis of the Bicol River Basin. Where comprehensivecoverage cannot be attained using existing data, partial-analysis,case studies, and sub-area analysis would be done.Formal statisticalstudies might be supplemented, where appropriate, with "informal"analysis, participant observation, interviewing, and other techniqu.o.The U.S. Consultant encouraged creativity in developing analyticalmethodologies suited to conditions and needs in a largely rural region.It was agreed that the objective of the project is not to produce anacademic or scholarly research study, but a realistic and usable policydocument. To the extent that the fundamental validity of the analysiswould hot be weakened, it was agreed to use a wide variety offormal and informal, empirical and judgmental techniques of analysis.

-8-Project InitiationStart 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 byNEDA.A contract for implementation of the project has been signed withthe Center for Policy and Development Studies at the University of thePhilippines at Los Banos, however, and staff has been hiredengaged.and consultantsBut substantive activities cannot begin until US funds aretransferred to GOP, converted to Pesos and released by NEDA.By the end ofthe Consultant's visit substantial progress was made toward transmittingthe request for release of funds.Discussions with Dr. Villevincencio onOctober 29 brought the problem to the attention of NEDA.The projectis now expected to begin on or about November 15, since it will takeat least two weeks for NEDA to release the funds to the BRBC.will continue its data reconnaisance using UPLB funds.assumed responsibility forThe staffMr. Astillerofollow-up action with NEDA and USAID/P.Staff OrganizationThe BRBPO executed a Memorandum of Agreement in August with theCenter for Policy and Development Studies (CPDS) to cotiduct the UrbanFunctions study and implement the project.CPDS Executive Director,Dr. Ramon Nasol, an agricultural economist, will be the Urban Functionsstudy 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., urbanand 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 responsiblefor data collection, analysis and interaction with interagency and governmentparticipants.Nasol and Astillero will travel to Bicol as needed.Three staff offices are in the process of being established: themain base of operations in the Bicol will be in the Naga area, withfield offices in Legaspi and Iriga city.The latter offices were openedat the request of the Governor of Albay and the Mayor of Iriga.

- 9 -Based on preliminary observation, the qualifications of the staffseem excellent.All are trained in some form of research and analysisand all have practical experience.Nasol, Ragragio and Tria are fromthe Bicol region and Astillero has been a consultant to BRBC.Allseem highly motivated to make the project a success.Organization and Duties of GOP Senior ConsultantsA group of senior Philippine consultants has been organized toadvise and assist the project staff with analysis and planning andto review the outputs of each phase of the study.The GOP consultants met initially with the staff at UPLB onOctober 6 and with the U.S. Consultant on October 25.The GOPeonsultants include :Dr. Leandro Viloria, Dean of the UP Institute of EnvironmentalPlanningProf. Geronimo Manahan, UP College of ArchitectureProf. Romeo Ocampo, UP College of Public AdministrationProf. Karina David, UP Institute of Social Work and CommunityDevelopmentDr. Antonio Tan, M.D., Director of the UPLB Institute of HumanEcologyDr. Donato Antiporta, Chairman of the UPLB Department of AgriculturalEconomicsDr. Nora Quebral, UP Institute of Development CommunicationsThe terms of reference for the consultants list a number ofduties: 1) to assist the project staff in the formulation of studyconcepts and approaches; 2) to recommend methodologies and analyticaltechniques; 3) to identify special studies, data or analyses needed toimplement the project effectively; 4) to advise the staff on appropriateliterature and studies relevent to project activities; and 6) to reviewall reports and draft plans and make recommendations for changes andimprovements.GOP consultants are not expected to perform analysesor write the final report, although some might be engaged to conductspecial studies as the need arises.

-10-Geographical Area of Project CoverageThe project staff decided to broaden the study area to include thenew geographical territories added to the Bicol River Basin Program byPresidential Decree 926.The decree enlarged the program area from312,000 to 705,000 hectares, from 33 to 42 towns and from 1000 to 1200barangays.The major implication in the expansion of geographical coverage is thatdata have not been systematically collected for areas of Albay Province atthe same level and detail as for Camarines Sur.Additional data may be.needed for Legaspi and towns within Albay.--Partial analysis will be attemptedrather than delaying the project to await large scale data collection forthe new areas.Secondary sources are expected to provide sufficientinformation to conduct urban, rural and linkage analyses.Data AvailabilityThe project staff has already begun to inventory existing datausing the Rondinelli-Ruddle report as a guideline.The staff hasdetermined that the following data are currently available within theBicol River Basin Development Program's information system:1)' Land tenure information at municipal level2) Soil and water resources--municipal level3) Fisheries resources at specific sites4) Location and types of rural roads--municipal level5) Livestock resources--municipal level6) Types, location and uses of water resources--municipal level7) Population and demographic information--1975 printouts at barriolevel8) Climate and weather conditions--regionwide9) Size and distribution of farms, 1971 data --municipal evel10) Crop yields, 1970,1975, selected crops, sample surveys11) Value of marketed crops, 1975 commodity prices at observation points12) Types of storage facilities for grain, rice, palay13) Types and location of marketing facilities--public markets,marketing days, volume of sales14) Size and distribution of income, 1975--SSRU surveys--barrio level15) Population density--barrio Level16) Population characteristics--barrio level17) Distance to major major metropolitan areas--barrio level18) Type, size and location of public facilities and services- 1974 SSRU municipal inventory

19)20)21)22)23)24)25)26)27)28)29)Types and locations of utilities, SSRU 1974 municipal inventoryCharacteristics of transport services and facilities--municipal It-lelHealth facilities and services--municipal levelRecreational facilities--municipal levelGovernmental services and facilities characteristics--municipal levelType and location of social organizations--municipal levelCharacteristics of educational institutions--municipal levelProfessional services--municipal levelEducational levels of the population--census data, barrio levelNumber,siza, location and quality of road and rai'. linesSoil conditions and water levels--BRBC Comprehensive Water StudyIn addition to the data listed above, which were collected by theBRBC as part of its basin study programs, other information can be derivedfrom national ministry studies of the p ovinces of Camarines Sur andAlbay.Although the quality, level and scope of the data must stillbe investigated, the project staff has determined that the followingtypes of information have been collected:1) Mineral and forestry resources2) Types and Location of Agro-Industry3) Types and location of storagefacilities4)Size and location characteristics5)of commercial establishmentsEmployment sources--Bureau of Mines, ForestryDept. of Trade, NACIDA--Economic Survey--Economic SurveyFamily Income and Expenditures----Survey, NCSO6) Manufacturing and Processing--Economic Surveybusiness for personal services--Economic Survey8) Types ands ources of raw materials--Economic Survey--NEDANEDAIndustry characteristics7)9)10)11)Size, location and volume ofSize, type of regi'onal industriesRetail sales trends--Value added in manufacturingby industry--NEDA12)Size, types of regional shoppingfacilities--Economic Survey13)14)Types, sizes of communications mediaVolume and distribution of invest --Economic Surveyment by location and activity--Board of Investmentand martality rates--Department of HealthFamily and Kinship PatternsEnergy Use and DistributionStructure of GovernmEntTypes, location and distributionof formal government functionsDistribution of governmentoffices and facilities--15)16)17)18)19)20)Changes in natality, morbidityInstitute of Philippine Culture--NEA, NEDA--DLGCD--DLGCD--DLGCD

- 12 21)22)23)24)25)26)Intergovernmental financial transfersTypes, sources and distribution ofgovernment revenuesAllocation of national, provincialand local budget resourcesLicensing and regulatory powersTypes, location and responsibilitiesof autonomous authoritiesTypes, locations and functions ofquasi-public organizations--Budget Commission--budget Commission---Budget CommissionDLGCD--DLGCD--DLGCDAlthough only about 50% of the data identified in the RondinelliRuddle report is currently available in the Bicol, Rondinelli emphasizedto the staff that the list portrayed an "ideal" data collection andthat it was not expected that any given region would have all the listeddata.Nor would the data listed be the "minimum necessary" informationneeded to conduct a regional spatial analysis.The staff was urgedto make use of existing data and to identify crucial gaps beforecollecting additional information through original surveys.Air photos of the River Basin are also available at a scale of1:4.Printouts for the 1975 Census of Population with data disaggregated.o the bara.-ay level will be provided shortlyto supplement the1970 Population Census for Camarines Sur and Albay Provinces.The Bicol River Basin, overall, has an unusually rich data basefor an economically lagging rural region in a developing country.TheSSRU Municipal Inventory, the Intermodal Transport Study and the SSRUTransportation Survey are expected to yield the most extensive andusable data for purposes of the Urban Functions Project.Subsequent pilot projects in Africa and Latin America mightrequirestudies similar to the SSRU Municipal Inventory in the data collectionphase in order to perform adequate analyses of the spatial system and ofthe distribution and adequacy of urban functions and services.USAID/W,TA/UD might conduct a short staff study of the procedures, content andadequacy of the SSRU Municipal Inventory as a replicable instrumentprior to concluding ProAgs with the two other countries in which pilotprojects will be undertaken.

- 13 -Coordination, Participation and TrainingThe project staff recommended a detailed plan for participation bynational government agencies, the BRBC and provincial and l1 governments,which the BRBC adopted at its October 27 meeting.Mr. Jun Bragais of theBRBC Program Office was appointed as liaison officer between the BRBCand the proj,ict staff, and will participate in staff activities.A BRBC Sub-Committee on Urban Development will be the SteeringCommittee for the project.It will '-e chaired by the Regional DLGCDDirector, Jose Delvo, and will meet monthly to review progress, reactto findings and suggest changes.Since the members of this committeerepresent major "users" of the plan, their inputs are seen as crucialfor shaping the analysis to agency decision-making needs.Members ofthe committee will include representatives of NEDA Region V, Departmentsof Education, Social Services, Health and Public Highways, the twoProvincial Governors, and the Mayors of Naga, Iriga and Legaspi.Organ izational relationships with the BRBCC are as follows:I Bicol River BasinCoordination CommitteeSubcommittee onUrban DevelopmentDLGCDBRBP/Provincial Governments/ City GovernmentsDOH/ DSSD/ DEC/ DSSD/ DPH/ Others as NeededI -IInterAgency TechnicalStaff-- EDA, Re ion VDLGCDCenter for Policy andDevelopment Iriga BRBC-POOPDS/LegaspiUrban Functions in RuralDevelopment Project Staff-

- 14 -Through the Subcommittee on Urban Development, the project willbe directly related to the BRBC Board of Governors (CoordinationCommittee) and to the government agencies represented on the BRBCBoard.(See Figure 1)A second committee, the Interagency Technical Staff (IATS), willinvolve, at the working level, representatives from each of themajor government agencies and local governments.The intent of thiscommittee is to supplement the project staff with staff members fromagencies and governments that deal with major decisions related tospatial development, to involve these staff members in implementingthe project, and to train them in methods of spatial analysisthrough on-the-job activities.IATS members would be the core oftrained manpower remaining in the Bicol River Basin after theUrban Functions Project is completed, who would have technicalcompetence in spatial analysis and would be critical disseminatorsof the project's findings and results.The IATS, as formulated on October 28, includes:Team Leader--NEDA Region V:Mr. R. BernalAsst. Team Leader--DLGCD:Mr. E. CarilloPDS/Cam Sur Province:Messrs. Cater and PapicaPDS/Albay Province:Mr. R. NaveraOPDS/Naga:City Administrator CaleraOPDS/Iriga:Mr. E. NadalOPDS/Legaspi:Mrs. I. EvaDOH:Eng. PunzalanDSSD,DEC,DPHTo be AppointedBRBPO:Mr. J. Bragais, Mr. R. SantiagoMr. A. Santiago, Mr. R. BelarmidoThe IATS members wi.l serve on a part time basis to assist withspecific elements of the study as determined through mutual agreement withthe p':oject stiff.needed.Other interagency representatives will be added as

Figure 1BICOLRiV',ErB,-%SINOFGANIZATIONCOUNCILCHARTBREIG BOARDDPWTC,DA,DLGCD,DAR,IEGOVERN OR(CS), EXEC. DIFZEI:TOR)OFFICE OF THE RPROGRAMEXECUTIVEDIECTO,9PLA713 ANID PROGRA.%SA D'.tIU!ISTRATIVEDEPUTY-IDEPUTYDIRECTORP S: LPOJCTLOGSTCS IN ICAOv30ftYOFFICESECTOR.,.-ciATEDIRECTORSOCIAL INFRASTRUCTUREP:iV3IC.L TY DIRECTORROJCT

- 16 -The prospects for interagency cooperation and participation at theinitial stages of the project seem good. Early enthusiasm and politicalsupport will have to be maintained and further cultivated by the projectstaff. The provincial and local government leaders seem anxious to beThe Governor of Albay insisted that the staffopen a project office in Legaspi City, and the Mayors of Iriga andLegaspi have both offered office space for the staff. Director Delvoincluded in the project.of DLGCD expressed strong support for the project at the Workshop onOctober 28 and the members appointed to the Subcommittee on UrbanDevelopment and the IATS are considered to be relatively high-levelrepresentatives of their organizations.Members of these committees also seei the project as a potentiallyimportant input to their own work; Director Delvo argued that thestudy results should be of use to on-going and fnture planning activitiesof regional divisions of national ministries and the BRBC-PO considersthe study a part of the overall Basin planning operations.Other motivations for participation at this stage are somewhatmixed. Some of the agencies are apparently concerred that the UrbanFunctions Project not produce a plan that will displace their ownregional plans, or contradict them. The Governor of Albay clearly desiresto have his province considered as an equal to Camarines Sur in allBRBC activities, and the Mayors of Iriga, Naga and Legaspi seek equalrecognition for their cities in BRBC functions. Moreover, since Legaspihas been designated as the regional center for national ministry offices,location of a project field office there is insidered "politic" by theproject staff.Other agencies are participati., undoubtedly, for informationalpurposes and their cormit

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