The Role of Non Government Organization and Civil Society in Participatory Planning

Process and Local Government Development:

The Case of Muntinlupa City, Philippines

Filbert Anthony B. Mejorada*

Bachelor of Arts in Political Science
Political Science Department
Pamantasan ng Lungsod ng Muntinlupa

______________________________________________________________________________
Abstract:
This paper examines the working governance of urban local government units in the Philippines,
specifically a qualitative and quantitative study of the significant role of Non Government
Organizations (NGO) and other Civil Society Organizations (CSO) in the development of politics
of local governance in the City of Muntinlupa. This paper used the combination of structuralist
framework of study to clearly analyse institutions and social structures as the key factor in the
development of Local Government Units; and the traditionalist framework as I cited and
analysed several laws and rules with regards to the research study.

The paper also emphasizes the measures being take up by the City Government and the NGO’s
in their collaborative efforts to promote good governance, efficacy and development in the city;
as well as issues, perspectives and prospects of the local government unit in capacity building
with the participation of NGO’s and Civil Society organizations; as well as the local
government’s readiness towards shifting from a unitary to federal type of government system as
proposed by the current administration.

Keywords: Politics of Local Government, NGO, CSO, Decentralization, Devolution,

Participatory Planning, Local Government Code, Muntinlupa City

*The author expressed his warmest appreciation and gratitude to Mr. Jhe-rico Sam Colina,
course instructor, for giving ideas and theories for the study; Ms. Menchie Mutuc, for her
sounding and heart-warming effort to inspire and help the author in surfing the internet for
essential readings; The Muntinlupa City Government, especially the City Planning and
Development Office, Sangguniang Panglungsod Secretariat & City Councilors, NGO
representatives and all other personnel for allowing the author to conduct interviews,
discussions, observations and giving of relevant documents & data for the study; Classmates
from Political Science 3A, and the citizenry of Muntinlupa for inspiring the author to work for
the development and welfare of the city.
Introduction:

In the Southeast Asia Region, only the Philippines had the vast and rich experience of
expanding its sphere of governance. With the local government as the most nearest and feasible
government that the grassroots may lean on, several frameworks and strategies had been done
through the years to effectively implement the main objectives of local governments: delivery of
basic social services and effective governance among the marginalized sectors of the society.1
The Republic Act 7160, also known as the Local Government Code of 1991 clearly emphasizes
the power of local government units to manage its own affairs and fully realize the essence of
decentralization towards a federal type of government as the next politico – administrative
system of the country. (Brilliantes, Moscare 2002, p.1) The Local Government framework in the
Philippines is an asymmetrical type of federalism wherein higher budget, concentration of
development and more decentralized authority are given to sub – national governments with
higher income class. (Atienza, Abueva 2016) Decentralization has three key areas; namely,
devolution, deconcentration, and delegation. (Salvador 2014, pp. 199-205) These focal areas of
decentralization can be also considered as critical areas of development since not all local
government units in the Philippines had maximize their full potential for progress. For instance,
fifth and sixth class municipalities had a slow process of development as the three focal and
critical areas of decentralization had some issues,2 and in deeper perspective, the patron – client
factional (pcf) framework as coined by Carl H. Lande and Benedict J. Kerkvliet, and elitist
democratic system as described by Paul D. Hutchcroft, as well as other scholars who studied the
assessment of democracy in Philippine politics, are very evident in most local government units
of the archipelago.3

Despite of the existing patron – client and elitist democratic framework of the Philippine
politics, one of the most important feature of the local government code and the process of
decentralization is the intensive and extensive participation of Non – Government Organizations
(NGOs) and Civil Society Organizations (CSOs) in participatory planning process and local
government development. As a manifestation, citizen – groups and organizations had been given
a seat to the local development councils, the planning department of local government units, as
well as consensus building and partnership strategies through exclusive domains of bidding,
budgeting and procurement (Salvador 2014, p. 206) in order to deliver effectively the basic
social services without compromising the small manpower and budget, depending on the income
class of the local government units. Several studies and researches had been conducted, both by
Filipino and foreign scholars to analyse and formulate effective methods and strategies for the
local government development in the Philippines, especially the participation of NGOs and
CSOs. Takeshi Kawanaka, in his breakthrough study of Naga City’s style of transitional
development of good governance, showed that the “Robredo Style” (Kawanaka 1998, p. 54)
political mobilization had emphasized the participation of organizations in the city. Former
Mayor Jesse Robredo, institutionalize organizations by sector and incorporate them into the
public services and city governance.

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 In the year 2015, Muntinlupa City rewarded as one of the recipients of Seal of Good
Local Governance Award and its agenda towards the constituents had been remarkable and
significantly improved because of the effective measures and participation and cooperation of
citizens and organizations.4 Muntinlupa engraved its image as one of the rising cities in the
southern part of the National Capital Region. The sphere of governance and various projects and
programs towards prosperity and development had been impactful, thanks to the administration
and active participation of citizens. Similar to LGU’s in the Philippines that exemplifies
competitive administration and good local governance, Muntinlupa is working hand in hand with
various Non Government Organizations and Civil Society for the realization of its long term goal
towards full development and progress.5

This paper intends to examine and analyse the role and participation of NGOs and CSOs
in one of the cities in the heart of Metro Manila; Muntinlupa City. This study is quite different
from other existing studies, not only because of area of concentration, but also most of the
scholars had been focusing in the national level rather than the grassroots level of governance.6
In addition, this paper also give vital information, clarification, recognition and analysis towards
the city’s strategies, frameworks, projects and laws in favor of the participation of NGOs and
civil society in the ongoing, long and tiredly process of good governance and local government
development in the Philippines. A combination of structural and traditional framework will be
used for this study. According to Leslie Thiele (2002), structuralist framework is based on the
concept that social structures (e.g. customs, laws, traditions and institutions) influence the way
politics shaped the world. Social structures largely determine how individual members of a
society behave and interact. (p.73 – 74) Institutions like NGOs and CSOs play a vital role in
influencing local politicians and community leaders towards giving large contribution to the
development of local government in the Philippines. Traditional framework, according to Elen
Grigsby (2012), seeks to understand politics by examining laws, governmental offices,
constitutions, and other official institutions associated with politics. (p. 14) The Local
Government Code of 1991 served as the basic legal framework to analyse the influence of
NGO’s and CSO in local government development. As for the method of research, there are
three methods that I used; First, the case study framework wherein intensive research and
analysis of past and recent studies of scholars in political science and public policy had been
initiated; comparative case studies of local government units in the Philippines, past and recent
Muntinlupa City’s framework on NGO and CSO participation, as well as essential data, studies,
articles and strategies of state and non – state actors in the city are the main focus of this study.
Second, the key informant interview were also used to obtain key information and opinion about
the study. This includes the local chief executive, Sangguniang Panglungsod members, local
planning and development council members, DILG satellite director, NGO and CSO
representatives and other key persons who have the knowledge in the focus area of the study.
Lastly, focus group discussions were also conducted for the ordinary members of NGOs and
CSOs that I randomly selected.

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 This paper will also provide several conclusions and reccomendations for the city
government of Muntinlupa and other local government units to look forward into greater heights
and prepare for more prospects and challenges as Duterte and his cohorts in the administration
are working with perseverance towards possible shift of government system from unitary to
federal (vertical structural reform) and presidential to parliamentary form (horizontal structural
reform) simultaneously. (Abueva 2005, p.2) wherein LGUs are the most affected by the
proposed shift of the government system.

Understanding the Milieu of NGO and CSO Participation:

Local governments had been complemented active participation of NGOs and CSOs in
local development and legislation, through social project participation, and political participation
(Gaventa &Valderamma, 1999). Several studies had been conducted to assess the participation of
NGO’s and CSO’s in local governance development whether high or low in their level of
participation. Organizations, especially sectoral based and socio economic in nature, which is
outside of the control of local governments had a very intensive role in participation. Gaventa
and Valderamma (1999) pointed out two facets of the role or participation of NGO’s and CSO’s
in local governance development. First, participation in the local level is often located in
development projects and serves as the programmers as the effective means of strengthening
their relevance, quality and sustainability. This participation is palpable through the methods of
appraisal, planning, monitoring, training, awareness building and mobilization. Second, the
participation wherein the main concern is in action by citizens and organizations aimed at
influence decisions taken mainly by representative and officials. These participation is evident
through the methods of voting, lobbying, campaigning, contacting and group action, as well as
protest actions to express the redress of grievances and arouse the people on the issues of local
government. Brilliantes (1992) explained that Non Governmental Organizations should be seen
as “complementary, supplementary, and supportive” in the efforts of the local government. Such
close ties with the NGO’s and the local government could lead to the vantage point of facilitating
coordination and cooperation.7 Malay (2001) point out that a significant level of NGO and CSO
participation in local development process can result in effective and efficient delivery of
services needed by the constituents. In addition, Salvador (2014) also point out that NGOs are
given discretion to identify policy goals in the budget of the local government unit, to
incorporate projects in local plans and influence the sanggunian to propose new legislation in
favor of the marginalized.

The Need for Participatory Planning of Local Government Units and NGOs
Why is there a need for active participatory planning with the NGOs and CSOs?
Demetrio Imperial (1998) listed 4 points for emphasis to address the need for participatory

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planning. First, there is a lack of complementation of integration of sectoral plans. Coherence of
various sectoral plans must be in the primary objective of the planning body for the organizations
and state actors to come up with a more comprehensive and united plan. Hence, the role of non –
state actors such as NGOs and CSOs is very crucial to the integration of plans for the welfare of
the citizens. Second, projects and proposals are merely intended for internal funding stet. Some
proposals and projects done by the officials alone are not beneficial to effectiveness of citizens
welfare, instead, it will be passed to come up with funding and specific budget and eventually,
there is a possibility of corruption and bogus projects that vitiate peoples interests and needs.
That is why NGOs and CSOs are encourage to participate and serve as watchdog in planning
bodies to avoid such unlawful acts. Third, politics continues to influence the identification and
prioritization of projects and proposal, based on the biases and interests of the local executives.
This problem is very rampant especially in a set – up of elitist democracy wherein personal
political agenda is the primary concern through the use of position power to influence and coerce
the grassroots to follow their paths of wrongdoings. Lastly, there is a very little exposure of
planners in project proposal preparation. Initial stage of planning are mostly comprise of local
government officials, with little or no NGO or a third – party sector that serves as stakeholders in
local governance development. As a result, policies crafted by the planning board could be
possibly favor the interest of the few and not of the many. Experts, like those from the NGO had
been encouraged to participate from pre - planning up to post – evaluation to ensure projects and
programs are not monopolized by the few elitist class.

Issues and Perspectives Pertaining NGO and CSO Participation

Amidst of all the proposals and significancy of NGOs participation in local governance
development, these may also be a double edged sword. Gaventa and Valderamma (1999) listed
some of the problems of NGO participation. First, is the power relations, wherein local elites and
traditional politicians are co – opting popular movements in order to fulfil their own personal
agenda because in the first place, they are the ones who control the structure and process of
participation. In Zimbabwe, Mutizwa - Mazinga (1996) observed that “certain powers of
traditional structures of decision-making were taken away and granted to village development
and ward development committees. As a result frictions between traditional leaders and
democratically elected leaders emerged.”8 Second, is the level of strength of citizen participation.
In Bolivia, local governments with strong union traditions were able to influence decisions made
by the government, while those organizations who lacked of strength in capacity the influence is
relatively low. Third, the participatory skills of the organization in terms of skills, knowledge,
experience, leadership and managerial capabilities. Weak participatory skills would result to
difficulty on pursuing particular concerns of the grassroots. In Tanzania, Mukandala (1998)
found out that “many councillors had very poor educational qualifications. Many found it
difficult to contribute meaningfully to the discussions.”9 Fourth, is the political will wherein there
is a lack of determined and pro – people government officials that provide and enforce

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opportunities for participation. Lastly, the lack of financial resources due to insufficient funds
allocated by the national government.

Salvador (2014) explained that NGOs role in particatory planning for local governance
development is very critical and at the same time dependent on the host of political factors. The
local chief executive (LCE) has the power to recognize or reject NGOs in the local government
unit. If an NGO had a strong connection or loyalty to the mayor, there is a big possibility that the
organization would have a strong influence over the participatory planning process. In most
cases, Development oriented NGOs perceived by the city government as “too left or too
reformist,” (p.207) because they are viewed as threat to the interest or policies of the local
government. While on the other hand, profit – oriented NGOs are mostly favored because of
their capacity to support the investments, raising of revenues and strong support to fund the
programs and plans of the local government.

Let us discuss in the next few paragraphs the role of NGOs in participatory planning in
Muntinlupa city, as well as experiences from other LGUs in the Philippines, and identify the
similarities and the issues and problems raised by LGUs .

Muntinlupa City: Brief History and Background

From its humble beginnings as a small town, Muntinlupa blossomed into a full – pledged
10
city committed to provide quality social services and promote effective governance among its
agencies and instrumentalities. Originally part of the Rizal Province, in December 19, 1917
Muntinlupa gained its independence from the province. In November 7, 1975, Muntinlupa was
included in the 17 local government units and cities comprising Metro Manila. Finally through
trailblazing development, Muntinlupa became a full – pledged city by the virtue of Republic Act
7926 on the first day of March in the year 1995. Muntinlupa City is the southernmost city in the
National Capital Region (NCR), with a classification as 1st Class Highly Urbanized City, with a
land area of 46.70 square kilometre, and bounded by the City of Taguig in north, Parañaque City
in the northwest, Las Piñas City in the west, Province of Laguna, particularly San Pedro City in
the south, Province of Cavite, particularly City of Bacoor in southwest, and Laguna de Bay in the
east. (2015 Annual Report & BPLO Guidebook)

The city, according to the 2015 Annual Report, has become the premier residential,
commercial, recreational, and business hub in the Metro. Declared as Top 9 Most Competitive
City in the Philippines (Highly Urbanized City Category) by Cities and Municipalities
Competitiveness Index in 2015, 3rd Safest City in the Philippines with 84.90 % safety index by
the Persquare Philippines, and recipient of various prestigious awards, such as theISO 9001:2008
Certification by AVA BRS (also awarded to Ospital ng Muntinlupa – OSMUN and Pamantasan
ng Lungsod ng Muntinlupa – PLMUN),2015 Seal of Good Local Governance by DILG, Dr. Jose
Rizal and Melchora Aquino Award by DOH, Special Citation for Most Business Friendly LGU
by Philippine Chamber of Commerce and Industry (PCCI) and among many others, is a crystal
clear evidence that Muntinlupa City is full geared towards its greater heights and attainment of

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the long – term development goals of the city. In the following paragraphs of this paper, I wil
discuss the role of NGOs in participatory planning and local governance development of
Muntinlupa through the agencies and instrumentalities of the city government.

The City Development Council: Strengthening Participatory Initiatives

In 2013, The City Development Council (CDC) was revived and reconstituted by the city
government through the Executive Order No. 10, Series of 2013. It is composed of the
Representative of lone district, Chairman of the Committee on Ethics, Rules and Privileges of the
Sangguniang Panglungsod, Head of the City Planning and Development Office (CPDO),
Chairpersons of 9 Barangays, and 4 seats coming from the Non Government Organizations, as
duly selected by a consensus meeting of all recognized NGO and CSO in the city. The council’s
primary function is to formulate the long – term, medium – term and annual socio – economic
development plans and policies of the City.

NGOs played a vital role in this body. First,they’ve given a chance to discuss and show
the proposals and programs that they consolidated and consulted from its members, purok
leaders and all other stakeholders to influence and pressure the elected officials (Representative,
Barangay Chairpersons and Sanggunian members) to pass appropriate resolutions and ordinances
in favor of the NGO and society’s interest. Second, NGOs have voting powers on the council.
They’ve given the opportunity to participate on deliberations and voice out their concerns, and
points in order to come up with a positive result that emanates fruitful decisions for the welfare
of all constituents of the city. Third, NGOs serve as watchdogs in the council. Being a non –
profit, and non – partisan community based and private organizations, NGOs evaluate and
monitor previous programs and pressure the elected officials to implement projects and programs
based on the interests of the many and not of the few.

The City Planning and Development Office: Towards Effective Implementation of Plans &
Programs
The City Development Council, together with the City Planning and Development Office
(CPDO), are the main instrumentalities of the city government that formulates appropriate,
timely and comprehensive plans and programs for the city. Ranging from education to
environmental protection, these two agencies are the primary databank of information11 and the
only office that analyze data from other departments and build strategies and feasible solutions to
solve inefficiencies and woes of the constituents and stakeholders.

In this department, NGOs are the most active stakeholders. These are manifested by; first,
a dyadic, dialogic oriented planning consultation wherein once per month, the office conducted
meetings with the recognized NGOs and CSOs to consult on matters regarding possible plans

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and programs, issues, clarifications and suggestions for the formulation of relevant projects and
programs for Muntinlupeños. Second, NGOs are delegated in different programs and actions to
maximize their support and manpower. This is the most effective partnership of the city
government and NGOs in the implementation stage of projects and programs. For example, the
community mortgage program of the city government is being partnered by the Muntinlupa
Development Foundation (MDF) to provide cash incentives and loans to the informal settlers in
the city. Third, NGOs and CSOs are very active evaluation, monitoring and rectifying errors of
the projects and programs. Ensuring transparency and accountability on the government officials
are the main concerns of the NGOs especially development or sectoral type oriented NGOs.
Their primary concern is to pressure the officials to release financial statements, documentations
and all other relevant information to ensure publics interest are in the top rather than the few
elites.

A Tale of Two NGOs: Muntinlupa Development Foundation (MDF) and Zonta Club of
Muntinlupa & Environs Foundation (ZCME)
These three Non Government Organizations are having the high level of influence in the
local governance development. They are also the members of the City Development Council
whose contributions are remarkable in transforming the governance into its greater heights. Ever
since Muntinlupa gained its cityhood in 1995, these NGOs are working hand in hand with the
local government officials to ensure that basic social services will be delivered to the most in
need with effective and efficient implementation; thus resulting to promotion of transparency and
accountability as pillars of good local governance and development. All of these NGOs are
facilitated and administered by professionals and the marginalized. As a result, they have the
capability and capacity to provide influence to the politics of local governance and to become
catalysts of change towards the development of the city.

First is the Muntinlupa Development Foundation (MDF). It is a non – stock an non –

profit organization established in 1986 by Muntinlupa residents, mostly from Alabang area. It
was established to help uplift the social and economic conditions of the Muntinlupa
communities. (MDF Website) Since the organization was established, it is the number one Non
Government Organization partner of the local government to help extend the services and
programs provided by the city government. According to the foundations official website, their
services are first, generating and mobilizing resources through providing manpower in
implementation of various socio – economic programs and donations and cash aids to those wo
are in dire straits. Second, Developing linkages and alliances with various sectors and
organizations with similar purposes, through partnerships with international non government
organizations such as USAID and UNDP; and third, supporting and undertaking programs that
promote self-reliance and economic empowerment, through conducting of seminars, workshops
and livelihood programs. In the sphere of the politics of local governance, the organization had a
very strong role and influence. Being the consistent NGO representative in the City Development
Council in almost 30 years the Muntinlupa Development Foundation’s initiative and voice is

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heard by the local body and transformed into projects and programs that minimally alleviate
poverty and other perennial problems of the Muntinlupeños. In the current eight point agenda of
the city government, almost all of the points of focus the organization had a great influence. One
good example is the socialized housing program. In 1991, through a tripartite partnership with
the national and local government, MDF guided and helped the Samahang Magkakapitbahay ng
Purok 6 – Tunasan (SMP – 6) to strengthen their organization and raise funds amounting to P
300,000 to acquire the land they occupy. (Manasan and Mercado, 1999) Another is the Putatan
Hillside Neighbourhood Association (PHNA), wherein the MDF helped the association to
resolve the eviction case and secureda contract to the landowners. As a result of these 2
successful projects of the MDF, the city government formally employed the assistance of MDF
in its housing program for the urban poor. A P17 million fund was set aside for this program for
interim financing of community associations organized by the MDF. (Manasan and Mercado,
1999) Up until now, MDF is very active in assisting and guiding urban poor organizations in
strengthening their ranks and help to secure their goals to have a decent, safe and sound home to
be lived in the city. Aside from the housing program, livelihood and employment workshops and
seminars were given to the urban poor and scholarships were given to poor but deserving
students to suffice their educational needs. (MDF Website)

Second, is the Zonta Club of Muntinlupa & Environs Foundation Incorporated (ZCME).
It is a non – stock and non – profit women's sectoral non government organization established in
1988 by a group of 20 women, professional in their respective fields. The organizations primary
concern is to implement sustainable and relevant programs toward the empowerment of the
women's sector through educational, economic and political initiatives. (ZCME Guidebook,
2008) Being the women’s sector partner of the city government in genuine women
empowerment, the organization established remarkable projects and programs for local
government development. As the leading women’s organization of the city, the founded the
SAGIP (Saklolo at Gabay ng Ina at Pamilya sa Muntinlupa), a 24 hour multi – agency Crisis
Response Center which aims to provide temporary shelter, assistance and services, to women
and children in the city who are experiencing sexual abuse, maltreatment and battery. It assisted
over 2,500 women and children and provide them efficient and enough assistance and programs
like psychological counseling and therapy, medical and legal assistance. (ZCME Guidebook,
2008) Aside from the SAGIP, ZCME also conducted numerous workshops, seminars and
campaigns to educate and give information to communities regarding combating VAW – C,
parenting effectiveness, RA 9262 (Anti – Violence Against Women and Children Act) and RA
7610 (Anti Child Abuse Act). Another is the Tulong Dunong project wherein over 100 high
school students were given scholarship to continue their education and serve to the community as
catalysts of change. The organization had a significant role in local governance, wherein they
helped the city government to strengthen and institutionalized the Gender and Development
(GAD) Office to administer programs and projects for the common good of the Muntinlupeñas.
In the following chapters of the research paper, let us find out what are the perspectives of the
role of NGO participation and Philippine context

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NGO and CSO Participation in the Philippine Context
Since local government units were deeply emphasized and focused by several regimes in
the post – Marcos era, the local government had been engaging in institutionalization of the
participation of NGOs to become active partners in local autonomy. (Brilliantes 1992) In the
local government code of 1991, several provisions (Section 34 – 37) had been set for the legal
foundations of the active participation of NGOs in local governance development. NGO
participation had been manifested through the allocation of specific seats in various local bodies.
This mechanism of the opening the governance for NGO and civil society promotes not only the
popular participation but also the exercise of local transparency and accountability. (Atienza
2013) Best manifestation of these is the Local Development Council (LDC) is the primary policy
making and planning body of LGU’s wherein NGO’s are allocated with a maximum of ¼ of the
seats. (Brilliantes 1992) Other local boards such as Pre Bids and Awards Committee, (PBAC),
Health Board, School Board, and the Local Peace and Order Council are allocated seats for the
NGOs to participate in the initiation of projects and programs. Due to the rising number of
NGOs, the Department of Interior and Local Government (DILG) set the qualifications for
accreditation of organizations. According to Alex Brilliantes (1992), which he also cited Article
56 of Rule XIII of the IRR of LGC, there are 4 important qualifications to consider for the
accreditation of NGOs. First, registration with Securities and Exchange Commission (SEC),
Department of Labor and Employment (DOLE), or any recognized national agency that accredits
NGOs. The Local Sanggunian are the one who accredit and recognize organizations and give
them opportunity to participate. Second, NGOs objectives must include community organizing &
development, institution building, local enterprise development, livelihood development,
capacity building and similar development considerations. Third, NGOs must be community
based with project development and implementation of at least one year. Lastly, reliability of
NGOs as evidenced by preparation of annual reports and conduct of annual meetings as certified
by the board secretary. In the case of PBAC, the NGO representative and its members shall have
no conflict of interest in the awarding process of the projects.

There are antecedents of local government units that emphasized and provide greater
opportunities for NGO in participation for development of local governance. Naga City is one of
the many local governmental units that initiated intensive participation of NGO and Peoples
Organization in the promotion of good governance and development of the city. Takeshi
Kawanaka (1998) emphasized the style used by former mayor Jesse Robredo in transforming
local governance of Naga City into a full blown developed and highly remarkable local
government unit. Dubbed as the “Robredo Style” of local governance, Naga city government,
NGOs and CSOs used as political machines to carry out basic social services and realization of
good governance and political development of the city. Johann Dela Rosa, Director of Naga City
Peoples Council (NCPC) presented a paper wherein he pointed out several programs and
achievements of the NCPC in the participation for local governance development. In his paper,
he discussed the City Ordinance No. 95 – 192 or the “Empowerment Code” is the first in the

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country that fully recognized and institutionalized the participation of NGO and CSO in shaping
Naga City’s prosperity. The Naga City government viewed NCPC as the vital political strategic
arm, not only because it is mandated through the law, but also the council is the primary body
that serves as the key factor in promoting various pro – people important projects and programs.
Actions including participation on legislation and capacity building, participation as regular
members in Sangguniang Panglungsod committees, graft and corruption program,
implementation of projects such as skills development and sectoral / barangay programs, and
many more. Building integrity, establishing credibility and forging mutual trust (Dela Rosa
2013) are the pillars of NCPC and Naga City government partnership towards progress.

Another good example is the case of the Municipality of Baao, Camarines Sur. Rebecca
Malay (2001) gave the historical background and presented the achievements of the
municipality. The Municipal Development Council (MDC) started its initiative in 1992 – 1995 as
the confidence building stage of accepting and recognizing NGOs and CSOs. Started with 30
Barangay Chairperson and 17 representatives from the NGO / PO, and with strict qualifications
on NGOs that they must be a community based organization with implementation track of at
least one year. With the passage of Municipal Ordinance No. 2 series of 1998, NGO participation
in local governance development was institutionalized and immediately come up with a strategic
plan that was shared with a common framework for agro – industrial development of the
municipality. Significant contributions of NGOs are being the forefront of environmental
awareness, allotted donation funds for natural resource management projects, capacity building
with KAMARIN12, livelihood programs and with technically competent staff.

In Metro Manila context, I cited two cities which exemplified effective implementation
of program through strategic participatory planning with NGOs. First is the Marikina City River
Park Management. In a case study conducted by Manasan and Mercado (1999) they discussed
Marikina City’s initiative to address the broader concern which is to improve the living
environment and condition of Marikeños through “Save the Marikina River Project” by the
Marikina River Development Program of the city government. Resettlement program with
community mortgage program was initiated to informalsettlers near the Marikina River and
Country Wide Development Fund Program was given by 2 Senators under their pork project.
NGOs and private sector such as China Chamber of Commerce and Marikina Zonta Club
donated funds and deploy manpower for the realization of the program for the environmental
protection, as well as tourism project of the city government. Second, is the Las Piñas City
Urban Renewal and Design. Coming also from the case study of Manasan and Mercado (1999),
they discussed the main focus which is the participation and capacity building of NGO and CSO
in the planning and implementation of the said program. It is a “Historical Corridor Project”
wherein it promotes cultural and historical heritage of the city. Because of its relevance, it gained
support from residents, private sectors, business clubs and peoples organizations; they gave
donations and offered free services to support the project. Among of those who contributed are
Las Piñas Homeowners Association, Las Piñas Chamber of Commerce and Industry, Las Piñas

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Garden Club, Zonta Club of Las Piñas and Las Piñas Lions Club. As a result, the project was a
sounding success and until now we can saw this project in the heart of Las Piñas City.

It is very clear and eminent in the case studies conducted that the active participation of
NGOs gave a significant progress to actualization of projects and programs created for the
welfare of the people and promotion of other aspects in the local government, such as tourism
and environmental protection. Engaging cooperative measures between the local government
unit and NGOs / CSOs provide tremendous opportunities for partnership an further local
governance development. (Brilliantes 1992) The practice of such cooperative measures is
ostensive in the Philippine setting. This is a clear manifestation of the openness of the local
government for opportunities and hear the opinion and suggestion of grassroots organizations to
thrive in the realm of local governance development.

Conclusions:
Participatory planning process of non government organizations and civil society in local
government development in Muntinlupa City is indeed a key contributory factor in the long and
tiring process of trailblazing local government development into greater heights. The masses,
especially the marginalized sector are in need of effective and efficient local government system
in respond to their perennial and basic needs to uplift their status in the city. Analyzing the
qualitative basis of the need of participatory planning in local government development process
of Muntinlupa, as well as the experiences of local government units mentioned above, there are
four (4) points that I put a big emphasis;
First, a remnance of democratic process in the local level is being practiced through
strengthening participatory initiaves, collaborative mechanisms, consensual agreements and
partnership with Non – Government Organizations, Civil Society Organizations and Private
Sectors. Muntinlupa city, as well as other local government units are engaging in close ties with
the non government units and other non – state actors to ensure the deliberation of diverse
brilliant ideas of the society are conceptualized and united as one for formulating relevant and
useful programs and plans for the people. These ties are manifested by intensive participation in
Local Development Councils, City Planning and Development Office and all other
instrumentalities of the local government.

Second, profit or business oriented type NGOs in Muntinlupa are the first to recognize
and gave emphasis by the local government, as well as its members are mostly professionals. As
we reiterate, the capacity of these NGOs are significant to the economic development of a local
government unit, such as raising of investments and revenues and funding support to the projects
of the LGU. Muntinlupa, Marikina and Las Piñas City’s primary partner NGOs are those from
the private business oriented sector. It would be a possible situation that legislations and
programs were in favor of these NGOs and somehow set aside the interests of sectoral or
development type organizations. While in Naga City and Baao, Camarines Sur, they had a

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balanced recognition of NGOs as they viewed various oriented organizations as a key contributor
to the political development of their local governments and the people as a whole.

Third, development or sectoral type NGOs also had a significant impact in the local
governance development, but minimal in nature compare to business and profit oriented
organizations. Muntinlupa City’s women sector organizations such as the Zonta Club of
Muntinlupa’s remarkable initiative, SAGIP Program, contributed a significant role in the
promotion of womens rights in the city and strengthening campaign with regards to anti violence
against women and children. Zonta Club also influence local politics by its members who had
strong connection to the local chief executive, but unlike in Naga City wherein various sectoral
based organizations had a strong role in participatory planning, Muntinlupa city lacked these
characteristics. Youth sectors are mostly organized for the purpose of sports development and
community leadership but they have been always overpowered by some political factors such as,
experience, financial constraints and sustainability.
Fourth, most NGOs had been used as political machines in two sides; the affirmative and
the negative side. Affirmative in a way that these NGOs are strong partners towards effective
partners in delivery of social services and promotion of good governance in the city. On the
other hand, negative in a way that the local officials are using NGOs for their own personal
agenda, and NGOs are indirectly funding local officials for favor and loyalty to recognize as part
of the clientelist system of Philippine politics. Accreditation of independent and non – partisan
NGOs are in struggle because of lack of connections and viewed as a threat to stability of the
politics in local level.

As an overall impression, the role of Non Government Organizations, Civil Society and
Private Organizations in participatory planning and collaborative mechanisms for local
governance development in Muntinlupa City is applaudable. Through past and present
administrations, the signifant role of NGOs and CSOs as partners in delivery of basic social
services, promotion of transparency and accountability, initiatives for good governance and local
government political development. There are also discernible issues and problems confronting
the participation of non government officials but these could be solved by a strong political will
of NGOs and more strong democratic partnership betwen local government and NGOs.

Reccomendations:
Learning from the experience of different successful local government units in the
Philippines, I reccomend for the city government and Non Government Organizations to expand
and improve its sphere for participatory planning of non government organizations through the
following points:

One, an independent, non – partisan and impartial body together with the respective
sanggunian councilors must be institutionalize to filter community, sectoral, profit oriented and
development based organizations to participate in the local planning body of the local

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government units. The body must ensure these organizations are not clients or loyalists of the
local officials and not be used for the perpetration of personal political agendas of some abusive
officials of the government. Naga City and Baao, Camarines Sur experience of these mechanism
gave opportunity to organizations to participate in deliberations pertaining to the concerns on
plans and suggestions for further development of the local government unit without the dictate or
threat of an outside actor.

Two, a review of existing legislation and programs that emphasizes participation of

NGOs in local governance development. Revision of loopholes and inconsistencies, more stricter
rules in accreditation of organizations to avoid political biases and self interests of the local
officials, and creation of ordinances, resolutions and proposals that strengthen, encourage ajd
engage intensive and extensive dialogue and partnership with development and sectoral based
organizations, aside from business and profit oriented organizations.

Three, recognized Non Government Organizations in Muntinlupa city must create and
institutionalize a mother organization, such as the case of Naga City Peoples Council (NCPC) to
unite organizations to stand for their interests through legal amenas and collect ideas and
suggestions for the realization of the local governance development of the city. This will be a
stepping stone for organizations to walk upstair toward participatory planning and decision
making process of the local government unit.

Fourth, NGOs must strengthen themselves in terms of sustainability and effectiveness of

their organizations to be able to contribute to the local governance development. Political will
and non – partisan interests are the key factors in sustaining the strength and influence of the
organization in local governance development.

Muntinlupa City’s road to achieve its greater heights in terms of full development and
progress is a long way to go. There is no impossible in achieving such dream. In opening the
opportunities and chances to the grassroots to participate in the local governance process wherein
they are the primary benefactors, surely the city will trailblaze among local government units in
the Philippines with happy and satisfied citizens and promote as a new icon for good governance
and local governance development in the Philippines. Further study must be followed in order to
maintain the continuity and relevance of research. Political scientists and practitioners of public
policy must analyze the real condition of the majority of the people and contribute to the
development of local governance development through education, organization and mobilization.

Notes:
1) Scholars and political scientists widely agreed that the local government, since it was
established through law in 1898, are the most basic institutions that the people may address
their concerns and suggestions. See Kawanaka (1998), Atienza (2013), and Salvador (2010).
2) See Brilliantes (1992).

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3) These are the standard definition and application to the framework of Philippine Politics and
Governance. See Lande (1965), Kerkvliet (1972), and Hutchcroft (1998).
4) From the Department of Interior and Local Government 2015 Seal of Good Local
Governance. This was awarded to local government units in the Philippines to recognize
significant and exemplary efforts done in promotion of transparent, accountable and effective
governance at the local level.
5) Interview with Mr. Jose David Adriano, Project Development Officer of Muntinlupa City
Planning and Development Office last November 18, 2016.
6) There are only few, or no study had been conducted for the role of NGO and CSO in
participative local government development. Mostly are theoretical in nature and do not
necessarily applied in praxis by the author itself.
7) See Brilliantes (1992).
8) See Gaventa and Valderamma (1999).
9) Ibid.
10) From 2015 Muntinlupa Annual Report.
11) Interview with Mr. Jose David Adriano, Project Development Officer of Muntinlupa City
Planning and Development Office last November 18, 2016.
12) KAMARIN is a peoples organization in Baao, Camarines Sur which focuses on farming and
other agricultural livelihood.

References:
I. Textbooks:

 Atienza, Maria Ela L. 2013. “Local Governments and Devolution in the Philippines.”
In Philippine Politics and Governance: An Introduction, edited by Teresa
Encarnacion – Tadem, 415 – 439. Quezon City: University of the Philippines Press,
2013.

 Grigsby, Ellen. 2012. Analyzing Politics: An Introduction to Political Science, Fifth

Edition, 12 – 14.California: Cengage Learning, 2012.

 Salvador, Maria Alma O. 2010. “Decentralization, Democracy, and Local

Governance in the Philippines: Concepts, Issues and Practices.” In Philippine
Politics: Democratic Ideals and Realities, 191 – 212. Quezon City: Ateneo De
Manila University Press, 2014.

 Thiele, Leslie Paul. 2002. Thinking Politics: Perspectives in Ancient, Modern and
Postmodern Political Theory Second Edition, 73 – 74. New York City: Seven Bridges
Press LLC, 2002.

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II. Articles, Journals, Conference Papers:

 Abueva, Jose V. 2005. “Some Advantages of Federalism and Parliamentary

Government for the Philippines.” Quezon City: Kalayaan College, 2005.

 Atienza, Maria Ela L. & Abueva, Jose V. 2016. Discussion on FedPH: Prospects of
Federalism in the Philippines held last September ___, 2016 at UP Diliman Main
Library. Quezon City: University of the Philippines, 2016.

 Brilliantes, Jr. Alex B. & Moscare, Donna. 2002. “Decentralization and Federalism
in the Philippines: Lessons from Global Community.” Discussion Paper at the
International Conference. Kuala Lumpur: East West Center, 2002.

 Brilliantes, Jr. Alex B. 1992. “Essay on the Local Government Code of 1991 and
NGOs.” CSC Issue Paper Series No. 1. Baguio City: University of the Philippines
Baguio Cordillera Studies Center, 1992.

 Dela Rosa, Johann. 2013. “Peoples Participation in The Governance of The City of
Naga: Active Citizenry: Constituents as Stakeholders.” Naga City: Naga City Peoples
Council, 2013.

 Gaventa, John & Valderamma, Camilo. 1999. “Participation, Citizenship and Local
Governance.” Discussion Paper Presented at the Workshop “Strengthening
Participation in Local Governance.” Institute of Development Studies, 1999.

 Imperial, Demetrio. 1998. “Introducing Participatory Planning Practices With Local

Governments: A Philippines Case Study.” Research Paper Presented at the Workshop
“Decentralized Rural Development and the Role of Self Help Organizations” last
November 4 – 6 , 1998 at Chiang Mai, Thailand. Bangkok: Food and Agriculture
Organization, 1998.

 Kawanaka, Takeshi. 1998. “The Robredo Style: Philippine Local Politics in

Transition.” In Introduction to Philippine Politics: Local Politics, the State, Nation –
Building, and Democratization, edited by Maria Ela L. Atienza, 41 – 70. Quezon
City: University of the Philippines Press, 2013.

Mejorada, NGO and CSO Participation in Muntinlupa City Page - 16 -

  Malay, Rebecca L. 2001. “Engaging Local Government in Social Development
Planning: The Case of Baao, Camarines Sur.” Quezon City: Social Watch
Philippines, 2001.

 Manasan, Rosario G. & Mercado, Ruben G. 1999. “Governance and Urban

Development: Case Study of Metro Manila.” Philippine Institute of Development
Studies Discussion Paper Series No. 99 – 03. Makati City: National Economic and
Development Authority, 1999.

 Muntinlupa City. 2015. “Muntinlupa 2015 Annual Report.” Muntinlupa City: City
Planning & Development Office (CPDO) and Public Information Office (PIO), 2015.

 Muntinlupa City. 2015. “Business Permits and Licensing Office Guidebook.”

Muntinlupa City: Business Permits & Licensing Office (BPLO) and City Planning &
Development Office (CPDO), 2015.

 Republic of the Philippines. Local Government Code of 1991 (RA 7160).

 Zonta Club of Muntinlupa & Environs Foundation Inc. 2008. “Celebrating 20 Years
of Joyful Service: A Guidebook.” Muntinlupa City: Zonta Club of Muntinlupa &
Environs Foundation Incorporated, 2008.

III. Internet Links and News Release:

 Muntinlupa Development Foundation (MDF). About The Foundation.

http://muntinlupafoundation.org.ph/about-us.php

 Muntinlupa Development Foundation (MDF). 2016, November 2. “Lives Touched:

MDF Celebrates 30 Years of Serving the Muntinlupa Communities.” News Release.
http://muntinlupafoundation.org.ph/news-single.php?id=14

Cite this Research Article:

Mejorada, Filbert Anthony B. 2016. “The Role of Non Government Organization and Civil Society
in Participatory Planning Processand Local Government Development: The Case of Muntinlupa
City, Philippines.” Pamantasan ng Lungsod ng Muntinlupa, 2016

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