ASIAN DEVELOPMENT BANK

TAR:PHI 28302

ASIAN DEVELOPMENT BANK

TECHNICAL ASSISTANCE

TO THE

REPUBLIC OF THE PHILIPPINES

FOR

INSTITUTIONAL CAPACITY BUILDING FOR POLICY FORMULATION,

PLANNING, MONITORING AND EVALUATION

FOR THE

AGRICULTURE SECTOR

December 1996

CURRENCY EQUIVALENTS(as of 30 November 1996)

Currency Unit - Peso (P)

P1.00 = $0.0381

$1.00 = P26.255

ABBREVIATIONS

BASDADMCILGALGCLGUMISMTADPPADPMEUsPMSRETA

Bureau of Agricultural StatisticsDepartment of AgricultureDeveloping Member CountryInstitute of Local Government AcademiesLocal Government CodeLocal Government UnitManagement Information SystemMedium Term Agricultural Development PlanPolicy Analysis DivisionPlanning, Monitoring, and Evaluation UnitsPlanning and Monitoring ServiceRegional Technical Assistance

NOTES

(i) The fiscal year (FY) of the Government ends on 31 December.

(ii) In this Report, "$" refers to US dollars.

panicipatory planning and implementation modality, and prepare a traininq

I. INTRODUCTION

1. During the Bank's Country Programming Mission in 1995, the Government of thePhilippines requested Bank advisory technical assistance (TA) to strengthen the Department ofAgriculture's (DA) capabilities for policy formulation, planning, monitoring, and evaluation ofprograms and projects in the agriculture sector. In response to DA's request, the Bank fieldeda Fact-finding Mission in September 1996 that reached an understanding with the Governmenton the objectives, scope, terms of reference, cost-estimates and financing plan, andimplementation arrangements for the proposed TA.1

II. BACKGROUND AND RATIONALE

2. The Medium Term Agricultural Development Plan (MTADP) 2 of DA provides theframework for food security and overall development strategy for the agriculture sector. Theenactment of the Local Government Code (LGC) empowers Local Government Units (LGUs) toperform functions related to agriculture at the barangay, 3 municipality, provincial, and city levels.The implementation of the MTADP is constrained by the limited institutional capacity of DA andLGUs to formulate and implement appropriate policies, plans, programs, and projects, and tomonitor and evaluate their implementation.

3. The present interim organizational structure of DA consists of threeUndersecretaries, three Assistant Secretaries, and six Services providing staff support at DA'sCentral Office; seven Staff Bureaus; 11 Aft ached Agencies; and 11 Government corporations (seeAppendix 1). Similarly, there are 13 Regional Field Units for agriculture representing theadministrative regions. The Regional Field Units serve as frontline agencies of DA because theprovincial and municipal agricultural offices have been devolved to the LGUs.

4. Among the Services of DA, the Planning and Monitoring Service (PMS) has verycrucial and strategic functions. The PMS is responsible for the (i) formulation, analysis, andadvocacy of agricultural policies; (ii) preparation of strategic aricultural development plans; (iii)coordination with field offices for the planning and implementation of agricultural developmentprograms; and (iv) review of work and financial plans for ongoing projects. The PMS iscomposed of six Divisions with 78 professional staff, namely, the Policy Analysis Division (PAD),the Project Development and Evaluation Division (PDED),the Planning and Programming Division(PPD), the Project Packaging Division (PPD), the Research and Project Development Division(RPDD), and the Program Monitoring and Evaluation Division (PMED). Planning, Monitoring, andEvaluation Units (PMEUs) are located in the Regional Field Units. The major functions of thePMEUs are to (i) prepare regional development plans, and monitor and evaluate theirimplementation; (ii) provide guidance to the provincial planning units; (iii) monitor and evaluatethe regional programs and projects; and (iv) develop and prioritize project proposals forimplementation in the regions.

5. The DA is facing several major constraints in the formulation, planning,implementation, monitoring and evaluation of policies, programs, and projects. These include:(i) the absence of integrated and coordinated agricultural development plans at the regional andLGU levels; (ii) absence of a long-term agricultural strategy; (iii) inadequate data base andinformation system; (iv) the skills and capacity of PAD staff in several major areas of policy

The TA first appeared in ADB Business Opportunities in December 1995.

The Medium Term Agricultural Development Plan (1993-1998), Department of Agriculture.

Smallest administrative unit.

2

analysis, formulation, and advocacy has not kept up with the increased and more complexdemands for agricultural policies at the (subsector) macro level, as also required for internationaltrade agreements and liberalization of the sector; (v) lack of skills and capacity in projectplanning, implementation, monitoring, and evaluation; and (vi) no clearly defined linkages andmechanisms for policy and project/program formulation and implementation between DA,PMEUs, and LGUs. These constraints, have resulted in poor implementation of agriculturaldevelopment programs and projects.

6. To increase the production and productivity of the agriculture sector, higherinvestment in the sector is needed. This requires corresponding improvement in capacity at bothDA as well as the Regional Field Units and LGU level to formulate, plan, implement, monitor,evaluate, and manage projects especially if additional external sources are to be sought. Inaddition, DA needs to strengthen its capacity for agriculture sector policy formulation andadvocacy, and sector planning especially at the regional and provincial levels, involving LGUparticipation. For example, the current MTADP has been criticized for its inadequate consultationsat the LGU level. For this reason, the DA central and regional offices have to build up theircapacity for a participatory approach for agricultural sector planning, which addresses the LGUs'particular problems and needs.

7. As a result of the LGC, expanded democracy and beneficiary participation, theplanning and decision-making mechanism has been broadened and has become more complex,involving other agencies and institutions. In addition, the liberalization of the agriculture sectorand the international trade agreements has transformed agriculture from a closed to an outwardlooking sector. However, PMS capabilities have not been strengthened to handle the moredemanding new tasks dictated by the rapid and complex change of the agriculture sector.

8. The future requirements are twofold: (i) agriculture sector strategy and policyformulation, evaluation, advocacy, preparation for legislative action, and interaction withmacroeconomic policy are responsibilities mainly of DA requiring strengthening of PMS/PAD; and(ii) project planning, implementation, and evaluation are responsibilities mainly of the LGUs, tobe assisted and coordinated by DA. Because they lack the requisite skills, the role of the LGUsin the planning and implementation of the agricultural development programs and projects hasbeen minimal. The success of the Government to develop the agriculture sector and todecentralize the role and functions of central DA will depend on the successful involvement ofLGUs in agricultural development. Essentially, the basis for decentralization has been laid downin the LGC, and the relevant organizational structures need strengthening to achieve theobjectives of decentralization. In view of the foregoing, there is an urgent need for technicalassistance that will assist the Government to identify the organizational and administrativechanges required, and that will strengthen the institutional capability of DA to enable it to performits new functions more effectively. In particular, there is an urgent need to strengthen the PMS,PMEUs, and LGUs in project planning and implementation, monitoring, and evaluation of theimplementation of the MTADP, and to strengthen PAD for policy analysis, formulation, andadvocacy.

9. The Bank's Country Assistance Plan for Philippine agriculture is aimed atincreasing efficiency and productivity through (i) human resource development, institutionalstrengthening infrastructural development, and policy adjustments; (ii) improvement of themanagement of natural resource endowments for increased sustainability; and (iii) povertyreduction. The proposed advisory TA has human resource development and institutionalstrengthening as its central components and will increase the institutional capability in the contextof devolution. During 1996, the Bank provided a regional technical assistance (RETA) for

3

evaluation of Bank assistance to developing member countries (DMCs) for benefit monitoring andevaluation. 1 The RETA included five country studies (including for the Philippines) and twoworkshops to review the existing systems utilized in DMCs for supervising, monitoring, andevaluation of project performance. One of the major conclusions of the RETA was that the Bankshould provide assistance to build capacity in DMCs for performance management.

10. The TA will strengthen the capability of the DA to (I) fulfill its responsibilities andfunctions and improve the formulation and implementation of agricultural development plans,programs, and projects; (ii) rationalize and restructure existing organizations and procedures; (iii)strengthen its capability for policy formulation and implementation; (iv) improve its managementinformation system; (v) improve the formulation and implementation of agricultural projects andinvolve the LGUs through a participatory process; and (vi) bring about increased levels ofexternal assistance for agriculture.

Ill. THE PROPOSED TECHNICAL ASSISTANCE

A. Objectives

11. The objective of the proposed TA is to strengthen DA's capacity for sectoralagricultural policy analysis and advocacy, national and regional project and program formulation,implementation, monitoring and evaluation, and to develop a participatory modality involving the[GUs in the formulation of local agricultural policies, programs and projects, and theirimplementation and evaluation. The proposed TA will focus on the strengthening oforganizational arrangements and procedures, and human resources development.

B. Scope

12. The scope of work under the proposed TA wUl include the following:

1. Institutional Assessment

13. The proposed TA will review and make recommendations on the organizationalarrangements and on the role and functions of DA in policy formulation and advocacy, planning,implementation, monitoring, and evaluation of agriculture sector programs and projects. Theassessment will include the Regional Field Units, and linkage of DA/PMS with the LGUs, takinginto account the changes of the role and responsibilities brought about by the devolutionprocess. Coordinative linkages and interaction among the different DA units such as PMS, theBureau of Agricultural Statistics (BAS), and Computer Services (CS) will be reviewed andproposals for improvements made.

2. Strengthening Policy Analysis, Formulation, and Advocacy Capability

14. The capability of PMS/PAD to analyze agriculture sector policy issues and toformulate and advocate policies to support legislative measures will be enhanced. The TA willprovide proposals on how this can be achieved, and will also develop guidelines and providefor training by organizing training workshops.

RETA No. 5636:Evaluation of Bank Assistance to DMCs for Benefit Monitoring Evaluation, for $450,000,approved on 22 June 1995.

4

3. Improvement in Project Planning, Implementation, Monitoring, and Evaluation

15. This activity has two distinct, but yet closely linked levels, namely: (I) at the sectorand regional level, where the main responsibility and capability rest with DA/PMS and RegionalField Units; and (ii) at the provincial level and below, where the responsibility lies with the LGU.For the latter, DA/PMS through their Regional Field Units will provide advise and assistance tothe LGUs, and also will ensure proper linkages to and from the DA sector plans and programsto facilitate coherence and integration. At DAJPMS, Regional Field Units as well as at selectedLGUs, training will be provided to enhance the agricultural planning, programming, monitoring,and evaluation capability. At the LGU level, present procedures will be reviewed and proposalswill be made for a participatory planning and implementation modality.

16. During the Pilot (implementation) Phase, and as part of the training and testing ofproposed modalities, assistance will be provided in the actual formulation of projects andprograms at selected LGUs, as well as for the preparation of selected provincial and regionalagriculture sector programs. Manuals and guidelines will be prepared for participatory projectplanning, monitoring, and evaluation. Through feedback during the Pilot Phase, the modalitieswill be refined, and a comprehensive proposal prepared for nationwide implementation.

4. Improvement of the Management Information System

17. Existing procedures adopted by DA/PMS for the collection of agricultural data andstatistics, their compilation, analysis and interpretation will be reviewed. Performance indicatorsfor DA's programs and their evaluation will be established. The institutional arrangements for datacollection will be reviewed including the function and role of PMS vis-a-vis BAS. A computerizedmanagement information system will be formulated and tested during the Pilot Phase.

5. Human Resource Development

18. In addition to on-the-job training and training workshops to be held under theactivities above, a comprehensive human resource development program for DA/PMS staff willbe prepared at both Central and Regional levels, and for selected LGUs. Training courses willbe organized (using the services of appropriate national institutions and resource persons) forDA/PMS staff and selected LGU staff. The training will cover key areas of policy analysis andadvocacy, planning, programming, sectoral review, project analysis and implementation, andmonitoring and evaluation, including economic and financial analysis of agricultural projects.

19. Some equipment (e.g., computers/compatible electronic data processingequipment, supplies for data analysis and monitoring) and a vehicle that are required for trainingand field work will be provided. This equipment and vehicle will initially be utilized for the trainingprograms and, thereafter, be assigned to the PMS for continuation of the activities nationwideafter completion of the TA.

C. Cost Estimates and Financing Plan

20. The total cost of the proposed TA is estimated at $1 ,21 2,000 equivalent of which$536,000 is the foreign exchange cost and $676,000 equivalent is the local currency cost. TheBank will provide $976,000, on a grant basis, covering the entire foreign exchange cost and apart of the local currency amounting to $440,000 equivalent. The Government will meet theremaining local currency cost of $236,000 equivalent for expenditures (in cash and kind) for

5

remuneration, per diem, domestic travel cost, and counterpart staff; training facilities and officespace, operating cost, and support staff (see Appendix 2).

D. Implementation Arrangements

21. The Executing Agency for the proposed TA will be DA. DA will provide full-timecounterpart professional and support staff from the PMS and will provide required logisticssupport. The Assistant Secretary for Policy and Planning will serve as Program Director for theTA and will be responsible for overall coordination. A Steering Committee, chaired by anUndersecretary of DA and including representatives of PMS, National Economic andDevelopment Authority (NEDA), Department of Finance (DOF), Department of Interior and LocalGovernment (DILG), Regional DA, and selected LGUs will provide guidance during TAimplementation.

22. The proposed TA will be carried out by a team of five consultants from aconsulting firm, selected and engaged by the Bank in accordance with the Bank's Guidelines onthe Use of Consultants and other arrangements satisfactory to the Bank. Two internationallyrecruited consultants will provide 19 person-months and three domestically recruited consultantswill provide 38 person-months. The consultants will provide expertise in agricultural projectplanning and implementation, participatory planning methodology, policy research and advocacy,institutional and organizational aspects, and management information systems. Equipment andthe vehicle needed for TA implementation will be procured in a manner acceptable to the Bank.Some of the training seminars will be implemented with the assistance of suitable local resourcepersons and institutions, for example, the Institute of Local Government Academies (ILGA). Theterms of reference are given in Appendix 3.

23. The proposed TA will be implemented over a period of 15 months in three distinctphases: a Diagnostic Phase (two months), a Pilot Phase (12 months), and a Third Phase (onemonth) which will be used for evaluation of the Pilot Phase and for the formulation of a projectproposal for implementation nationwide. This proposal will include scope, implementationarrangements, and investment requirements.

24. The consultant team will submit an inception report with a detailed draft workprogram one month after commencement of work, to be discussed at a tripartite meeting withthe Steering Committee and the Bank. At the end of each phase, a report will be submittedcovering the terms of reference for that phase, and to be discussed at a tripartite meeting withthe Steering Committee and the Bank. In addition, the consultants will make regularpresentations to communicate findings and ideas to participants and clients to ensure aninteractive process.

IV. THE PRESIDENT'S RECOMMENDATION

25. The President recommends that the Board approve the provision of technicalassistance, on a grant basis, to the Government of the Republic of the Philippines in an amountnot exceeding the equivalent of $976,000 for Institutional Capacity Building for PolicyFormulation, Planning, Monitoring, and Evaluation for the Agriculture Sector.

Planning andMonitoring Service

internationalAgricultural

Affairs

Agricultural CreditPolicy Council

6 Appendix 1

INTERIM MANAGEMENT STRUCTURE OF THEDEPARTMENT OF AGRICULTURE

SECRETARY

Bureau ofAgricultural Statistics

ComputerService Center

National Agricultureand Fishery Council

NationalNutrition Council

NationalFood Authority

QuedanGuarantee Corporation

NationalIrrigation Administration

PhilippineCoconut Authority

National

HSugar

LAgribusiness Corporat Regulatory Authority

I Philippine Cotton

1 1National

IDevelopment Irngation Administration

for TI _____

Undersecretary for Policy andPlanning, Finance and Field OperationsAdministrative Services

Undersecretary for Fisheries,Livestock and Legislative!

Executive Uaison

Assistant Secretaryfor Policy and Planning

Finance andManagement Service

Adminstrative Service

Assistant Secretary forRegional Operations

- Regional Fields Units- Regional Operations Group,- Agricultural Information

and Management Service,- Marketing Assistance Service,- Special Concerns Office-

Project Assistance Division

Agribusiness Investmentand

information Service

Crops Group

- Bureau of Plant Industry,- Bureau of Soils and Water

Management,- Philippine Rice Research

institute,- National Postharvest Institute

for Research and Extension,• Fertilizer and Pesticide Authority,- Fiber Industry Develoopment

Authority

Assistant Secretaryfor

Livestock Activities

Livestock Group

• Bureau of Animal Industry,- Livestock Development Council,- National Meat Inspection

Commission,- Philippine Carabao Center,- National Stud Farm,- Philippine Dairy Corporation

Fisheries Group

- Bureau of Fisheries andAquatic Resources,

* Philippine Fisheries DevelopmentAuthority,

- Philippine Technical AdministrativeCommittee

- Southeast Asian FisheriesDevelopment Center

LEGISLATIVE LIAISON OFFICE

Research and Training Group

Bureau of Agricultural Research,Agricultural Training Institute

(Reference in text: page 1, para. 3)

386258

151206010

127

976

15

11340251231

236

1,212

7Appendix 2

COST ESTIMATES AND FINANCING PLAN($'OOO)

Item Foreign Local

Exchange Currency

A. Bank Financing

1 Consultantsa. Remuneration and Per Diem

i. International Consultants 386ii. Domestic Consultants

258

2. International and Domestic Travel

10

53. Training

1204. Equipment and Vehicle

60

5. Reports & Communications

106. Contingencies (15%)

70

57

Subtotal (A)

536

440

B. Government Financing

1. Office Accommodation

152. Remuneration and Per Diem

of Counterpart Staff

1133. Training Workshops/Seminars

404. Transport and Local Travel

25

5. Office Supplies and Communications

126. Contingencies (15%)

31

Subtotal (B)

236

TOTAL

536

676

TotalCost

Source: Staff estimates.

Note: The local currency costs financed by the Bank (exclusive of those for domestic consultant services whichamount to $297,000) do not exceed 15%.


8 Appendix 3, page 1

TERMS OF REFERENCE

A. General

1. A multidisciplinary team composed of two international consultants and threedomestic consultants working in close collaboration with DA, DA attached agencies, DILG, andselected LGUs will carry out the TA. The TA is envisaged to be carried out over a period of 15months. It has three phases: Phase I is the diagnostic phase (two months); Phase II, the pilotimplementation phase (12 months); and Phase Ill, evaluation/formulation phase (one month).

2. Phase I of the TA will be centered on diagnostic analyses and assessments of (i)the organizational structure of DA, selected DA-related agencies and selected LGUs, staffingpatterns and linkages among the agencies involved in policy formulation, sectoral planning,monitoring, evaluation, and implementation of agricultural programs/projects; (ii) the capacity ofPMS/PAD in the analysis and formulation of agricultural policies, advocacy capabilities to effectpolicy reforms in agricultural trade, transport, fiscal, credit pricing policies, and other policies ofdirect relevance to the agricultural sector; (iii) the capacity of DA-PMS and Regional Field Unitsfor participatory type of sectoral planning given the changes brought about by the LGC; (iv)DAJPMS capability to monitor and evaluate programs/projects effectively from central to the LGUlevels, and systems and procedures to enhance LGU-centered program/project implementation;(v) the systems and procedures in data collection and analysis and linkages with DA-relatedagencies such as the BAS, PMS, and Computer Services as well as LGUs involved in datageneration, processing, analysis and interpretation, and storage and retrieval of data; (vi) role andfunction of PMS vis-a-vis BAS in data collection for monitoring and evaluation; and (vii) thegeneral capability and professional skills of DA staff in policy analysis, participatory planning,monitoring, evaluation and implementation of programs/projects, and need for human resourcedevelopment and training.

3. The consultants will take stock of relevant project and donor experiences and alsoreview existing proposals for changes in DA which are relevant to their terms of reference. Inparticular, the consultants will take into account the findings, conclusions, and recommendationsof the Bank's RETA on Evaluation of Bank's Assistance to DMCs for Benefit MonitoringEvaluation. As part of the diagnostic/assessment process, a workshop will be organized duringPhase I. At this workshop, the team of consultants will present their findings andrecommendations of Phase I to an audience of DA and relevant DA agencies, DILG, selectedLGUs, and other stakeholders. This will include specific pilot activities, a human resourcesdevelopment and training program to be implemented under the TA in Phase II. It will also outlinespecific institutional strengthening related to DA, Regional Field Units, and selected LGUs, someof which may be implemented during the second phase. This does not (necessarily) meanenlarging of the bureaucracy but rather modalities should be explored which led to a leaner butmore efficient bureaucracy.

4. Phase Il will implement the proposals of Phase I, with specific field activities andtraining on a pilot basis. Subject to the findings of Phase I, three provinces (one in each majorisland groupings of Luzon, Visayas, Mindanao) will be chosen as pilot areas for participatorysectoral planning, monitoring, evaluation, and implementation. The provinces will be selected onthe basis of their participation in the four banner programs (grains, livestock, commercial crops,fisheries) under the MTADP, their accessibility, and willingness of LGUs to collaborate with DAin this pilot phase. Subject to the findings in Phase I, recommendations that are likely to beimplemented in Phase II may include: (i) interim organizational improvements in DA-LGU



organizational set ups that accommodate better participatory planning at the LGU levels(municipal, provincial levels); (ii) planning and implementation procedures that will result in moreeffective management decisions and implementation performance because of feedback andinputs from beneficiaries and other stakeholders in the planning process such as farmerorganizations, women, NGOs, and the private sector; (iii) training activities, workshops, etc., thatwill enhance the capacity of PMS/PAD staff to analyze, formulate, and advocate agriculturalpolicies, including strategies in promoting policy reforms; (iv) strengthening of institutionallinkages in the generation, processing and analysis of data, and monitoring and evaluation ofprojects; and (v) development of a computerized management information system.

5. Phase Ill will consolidate the findings from the pilot regional and provincialagricultural planning and training experiences, subject them to critical evaluation duringworkshops, and finalize participatory planning, evaluation, monitoring and implementationmodalities which can be expanded in a nationwide program. A comprehensive proposal will beformulated to expand the pilot activities nationwide. The proposal will include a realisticimplementation schedule, cost estimates, human resource development, and training program,and manpower requirements.

6. It will be important for the consultant to adopt a work methodology that ensuresthat they work in a facilitating role within DA, and develop ownership and commitment in DA toany proposed changes. In case the required capacity to be trained/strengthened does not exist,alternative strategies may need to be explored the acquire the needed capabilities. As analternative to traditional training programs, alternative methods may be to "workshop" what wouldbe provided in a training program, such as (i) review the objectives of the organizational unit, (ii)establish critical success factors and identify performance indicators to report those factors, and(iii) review processes used to achieve the objectives. Regular presentations will be made tocommunicate findings and ideas to participants and clients to ensure an interactive process.

B. International Consultants

1. Agricultural Project Planning Specialist/Team Leader (15 person-months)

7. The team leader will provide the overall leadership and supervision on the workof consultants and will ensure that reports are prepared on time and according to specifications.In addition, the consultant will

Phase I

(i) in close consultation with relevant parties involved, prepare acomprehensive work program for the duration of the TA;

(ii) with the assistance of the institutional specialist and other members of theteam, review the overall organizational structure of the DA, selected DAattached agencies, Regional Field Units, and LGUs involved in agriculturalpolicy formulation, planning, implementation and evaluation activities, themandated functions, authorities and responsibilities at various levels (fromnational to LGUs); compare these with actual functions and practices; andpropose improvements, including a modified organizational structure ifrequired, clearly delineating functions and responsibilities at each level(national/regional/LGU). The review and recommendations will be in linewith the Local Government Code, which has shifted the focus of planningand implementation to regional and LGU level;


(iii) review DA's existing procedures and data requirements for policyformulation and advocacy, planning, programming, project development,implementation, monitoring and evaluation, and propose specific measuresfor improvement, including how to overcome the problem of staffingconstraints;

(iv) review existing planning, implementation, and monitoring procedures at theLGU level, and propose specific measures for improvement;

(v) review current staff positions involved in policy formulation, planning, andmonitoring and identify additional staff requirement including qualificationsand experience; prepare job descriptions for key positions at each level,and identify staff development needs;

(vi) in consultation with other members of the team, prepare a comprehensivehuman resource development/training program to be implemented duringPhase II, including identification of training institutions/resource personsand preparation of training material;

(vii) similarly, prepare a pilot program to be implemented during Phase II; and

(viii) present the findings and recommendations of Phase I at a workshop.

Phase II

(i) in selected pilot areas implement, together with staff from DA, RegionalOffices, and selected LGUs, a participatory approach for program andproject planning, procedures for project monitoring and evaluation; and

(ii) in relation to (i) above, advise and assist with the organization of trainingprograms and provide an input as a resource person.

Phase III

(i) critically evaluate the pilot provincial experience for participatory planningand improve procedures and mechanisms, and recommend workablemodalities in participatory planning which can be adopted by DA andLGUs; and

(ii) based on the recommended changes in the organization and functionalscope for sectoral planning, policy review, implementation, programmonitoring and evaluation, and based on the pilot experience, prepare aproject proposal and operational plan for participatory planning activitiesnationwide which could be financed jointly or selectively by local resourcesor foreign donors. For this purpose, specify medium and long-term projectactivities, implementation arrangements, and cost estimates.


2. Policy Research and Advocacy Specialist (4 person-months)

8. The policy research and advocacy specialist will assess the policy research needsand directions of DA, the organizational set-up of PMS/PAD, and assist with the development ofan effective procedure and system for policy analysis, formulation, advocacy, andimplementation. The consultant will

Phase I:

(i) review and assess the DA staff institutional capabilities in policy analysis,formulation, and advocacy, and recommend comprehensive proposals tostrengthen this capability;

(ii) assess the institutional set-up of PAD under the PMS and makerecommendations;

(iii) review and introduce improved procedures for sectoral policy review,planning and implementation, and recommend a work program for PhaseII which will address specific policies;

(iv) assess the training needs of DA staff involved in policy analysis,formulation, planning and advocacy, and prepare guidelines and acomprehensive staff development/training program;

(v) advise and assist with developing a policy reform agenda; and

(vi) assist the team leader in proposals for institutional strengthening activitiesparticularly those related to policy and policy.

Phase II

(i) advise and assist with formulation of a sector policy reform and advocacyagenda for the DA and liaise with other branches (e.g., legislative) ofGovernment on how to implement them; and

(ii) assist with the organization and implementation of the training programand provide an input as a resource person.

C. Domestic Consultants

1. Institutional Specialist (15 person-months)

9. Taking into account the shift in role and responsibilities of the various agenciesas a result of the LGC, the broadening and increase in complexity of the planning and decisionmaking process, and the increase in demand for policy work, the institutional specialist willexamine the current functions and organizational structure of DA, DA-attached agencies involvedin policy analysis, project planning/implementation and the LGUs and recommend improvementsand arrangements to facilitate participatory planning and closer interaction between DA, RegionalField Units, and LGUs In particular, the consultant will


Phase I

(i) assess the organizational structures of DA and LGUs and the agriculturalpolicy formulation and planning process at the DA and LGU levels.Recommend modalities that can enhance the DA-LGU participatoryplanning interface. Such modalities will be implemented in the selectedprovinces during the pilot Phase II.

Phase II

(i) assist the participatory development planner in devising feedbackmechanisms for participatory planning at the beneficiary level (farmers),implementor's level (LGU) and DA-Central Office; and

(ii) apply these feedback mechanisms at the pilot provinces.

Phase Ill

(i) assist the team leader in the write-up of the nationwide project proposalrelated to institutional development.

2. Management Information System Expert (9 person-months)

10. The expert in management information system (MIS) will assist with theimprovement of the MIS, which will support DA's management decision-making, and monitoringand evaluation of DA programs and projects up to the LGU levels. More specifically, theconsultant will

Phase I

(i) review the existing procedures for the collection of basic agriculturalstatistics data and information, market intelligence and supply/priceforecasting and propose specific measures for improvements;

(ii) examine the institutional linkages and data bases used for the MTADP andLOU agricultural development plans, specific projects and programs (e.g.,Gintong Ani) and assess their adequacy and reliability for program/projectplanning, monitoring, and evaluation;

(iii) assess the present PMS system for project monitoring and evaluation, andmake recommendations;

(iv) review the role and function of PMS vis-a-vis BAS in data collection formonitoring and evaluation;

(v) identify data gaps and critical data benchmark requirements for policyanalysis, program/project planning, monitoring and evaluation, in particularfor the banner programs of DA and recommend measures to rectify this;and

(vi) prepare a comprehensive training program, to be partly implementedduring Phase II.


Phase II

(i) develop and introduce on a pilot scale a computerized and user-friendlymanagement information system within DA to undertake the followingtasks:

(a) for the banner programs of DA, define impact parameters andcollect data from each level (national/regional/provincial/municipal)to monitor implementation and evaluate impact; and

(b) process and disseminate the information in a suitable format tovarious officials within DA, DA-attached agencies, other Governmentdepartments, and the piloted LGUs.

(ii) advise and assist with the establishment of a documentation center at DAand at selected LGUs to serve as a repository of important policy papers,project plans, feasibility reports and other important documents, includingprocedures to facilitate retrieval and dissemination ofinformation/documents as required; and

(iii) implement (part of the) training program for DA and LGU staff in dataprocessing, data analysis and interpretation, and project benefit monitoringand evaluation at the pilot areas.

Phase Ill

(i) consolidate findings of Phase II and finalize workable modalities in MIS;and

(ii) prepare a project proposal for MIS data computerization that can beadopted nationwide, including impIemntation arrangements and costestimate.

3. Participatory Development Planner (14 person-months)

11. The development planner will provide the framework for ensuring that aparticipatory approach is central to the DA and LGU planning process. In particular, theconsultant will

Phase I

(i) review the DA and LGU planning processes and institutional linkages fromthe point of view of actively involving the beneficiaries and design aparticipatory planning and plan implementation modality; and

(ii) identify staffing and training requirements needed to implement aparticipatory planning and implementation modality, and prepare a trainingproposal for this purpose, including with training material, to be usedduring Phase II.


Phase II

(I) conduct rapid rural appraisals and analysis among planners and farmerbeneficiaries on the DA programs, in general, and the pilot provincialplanning activities, in particular; and

(ii) based on the training experiences obtained during the pilot phase, preparea long-term training and human resources development program forimplementation by DA nationwide, catering for DA and LGU staff. Theprogram will include cost estimates, implementation arrangements, anddetails of resources required.


PROJECT FRAMEWORK

Design Summary Measurable Indicators/Targets Project Risks!Monitoring AssumptionsMechanism

1. Sector/Area Goal

1.1 To strengthen the • Participatory-oriented program/project planning • DA PBME • Local Governmentinstitutional capability of and implementation is integrated into the systems for Code does notDA and LGUs in policy routine planning and implementation systems banner clarify the linkagesanalysis, formulation of DA-LGUs programs under between DA centraland advocacy, program the MTADP office and LGUs inplanning, monitoring, • Annual reports program/projectevaluation, and of LGUs implementationimplementation • TA Mission • Lack of commitment

reports of DA and LGUs inparticipatoryagricultural sectorplanning andimplementationExternal factors(e.g., politicalinterest, bureaucraticconstraints)

2. Objective/Purpose

2.1 To enhance the • establish a functional organizational structure of • Final TA reports • Staffing constraintscapacity to formulate DA with stronger linkage with LGUs • Progress reports • Local Governmentpolicies, plan, monitor, • develop policy analysis and advocacy capability in Phases 1 to 3 Code does notevaluate, and implement at DAJPMS • DA-LGUs MOAs clarify the linkagesagricultural Projects • enhance participatory sectoral planning, • Executive and between DA central

monitoring, evaluation, and sectoral program administrative office and LGUs in• enhanced MIS and synchronized data orders program/project

generation, analysis, and interpretation. • Number of implementation• HAD/staff training of DA and LGUs trained courses • Lack of commitment• increased level of ODA to agricultural sector organized of DA and LGUs in• formulation and implementation of policies participatory

agricultural sectorplanning andimplementation

• External factors(e.g., politicalinterest, bureaucraticconstraints)



Design Summary Project Targets Monitoring Risks!_____________________ (Verifiable indicators) Mechanism Assumptions

3. Components!Outputs

3.1 Reorganized • Executive Order signed by the President, and • Executive and • Lack of commitmentStructure of DAJPMS Administrative Order signed by DA Secretary administrative of DA and LGUs in

orders participatory3.2 Formulated • major agricultural policies formulated and bills • Final TA reports agricultural sectorPolicies for Advocacy to be proposed to Congress • Progress reports planning and

in Phases 1 to 3 implementation3.3 Guidelines for • participatory planning manuals • External factorsParticipatory Planning, • PBME manuals (e.g., politicalMonitoring, and interest, bureaucraticEvaluation for DA-LGUs constraints)

Lack of commitment3.4 User-friendly • MIS manuals to policy changeComputerized MIS • proposal for computerized MIS • Budget for MIS

implementation3.5 Trained DA-LGU • trained staffStaff • at least 75 DA

at least 100 LGUs

4. Activities INPUTS

4.1 Phase 1: • Consultants • TAworkplan . FundingDiagnostic Assessment • Diagnostic commitment forof DA-LGU Constraints International (19 months) Report nationwideand Need in • Team Leader, Planning Specialist Consolidated computerized MISParticipatory Planning, • Policy Analyst/Advocacy Expert Phase 1 Report • Competent TAMonitoring, Evaluation, • Agreed Pilot Consultantsand Implementation Local (38 months) Program • DA-LGUs willingness

HAD/Training Specialist • Evaluation of to collaborate4.2 Phase 2: • Institutional Specialist Pilot Programimplementation of • MIS/Computer Expert • Final Report • Suitable donor orRecommended Program • Participatory Development Planner • Implementation budget forin 3 Pilot Provinces

of nationwide nationwide programprogram

4.3 Phase 3:Evaluation of the PilotProvincial Experiencesand Preparation of aNationwide Program

agricultural sector

ASIAN DEVELOPMENT BANK

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