The document discusses guidelines for participatory budgeting and planning-budget linkage for local government units according to a revised Budget Operations Manual. It advocates allowing non-government groups, civil society, and the private sector to participate in decision making. Participatory budgeting promotes transparency, accountability, and continuity between planning and budgeting. The guidelines lay out legal basis, principles of good governance, stakeholder identification and roles, and benefits of participatory governance in increasing ownership and commitment to plans.
The document discusses guidelines for participatory budgeting and planning-budget linkage for local government units according to a revised Budget Operations Manual. It advocates allowing non-government groups, civil society, and the private sector to participate in decision making. Participatory budgeting promotes transparency, accountability, and continuity between planning and budgeting. The guidelines lay out legal basis, principles of good governance, stakeholder identification and roles, and benefits of participatory governance in increasing ownership and commitment to plans.
The document discusses guidelines for participatory budgeting and planning-budget linkage for local government units according to a revised Budget Operations Manual. It advocates allowing non-government groups, civil society, and the private sector to participate in decision making. Participatory budgeting promotes transparency, accountability, and continuity between planning and budgeting. The guidelines lay out legal basis, principles of good governance, stakeholder identification and roles, and benefits of participatory governance in increasing ownership and commitment to plans.
Operations Manual for Local Government Units (LGUs) advocates the principle of participative governance, specifically in the budget process. It attempts to persuade local thinking on the benefits of allowing Non- Government Organizations (NGOs), civil society groups, and the private sector in collective decision-making. Parallel with participative budgeting is the relevance of connecting the plan to the budget. Planning- budgeting linkage promotes continuity, transparency, and accountability in fiscal management. If practised locally, it will give meaning and importance to planning as a function that should precede the budget.
PART I. ADVOCACIES ON PARTICIPATIVE BUDGETING AND PLAN-BUDGET LINKAGE
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Chapter 1. Participative Budgeting in Local Governance
1.0 Introduction
2.0 Legal Basis of Participative Budgeting
3.0 Sustainable Human Development and Good Governance 3.1 Good Governance: the New Approach 3.2 Basic Principles of Good Governance
4.0 Guidelines on Participative Budgeting
5.0 Benefits of Participative Governance in the Budget Process
6.0 Identification of Stakeholders
7.0 Role of Stakeholders in the Budget Process
8.0 Elements of Quality Participation
9.0 Best Practices in Participative Budgeting
3 The participation of the private sector in local governance, particularly in the delivery of basic services, shall be encouraged to ensure the viability of local autonomy as an alternative strategy for sustainable development (Section 3 [1], R.A. No. 7160).
Local government units shall promote the establishment and operation of peoples and non-governmental organizations to become active partners in the pursuit of local autonomy (Section 34, R.A. No. 7160)
Participative Budgeting in Local Governance
1.0 Introduction
The first chapter of the Manual introduces the user to the general guidelines and concepts of good governance as advocated by the United Nations Development Program (UNDP). The specific process in the application of participative budgeting is laid down step by step as part of the LGU-wide initiative to make fiscal administration in LGUs more transparent.
2.0 Legal Basis
Figure 1. Why Participation is Necessary
3.0 Sustainable Human Development and Good Governance
Sustainable human development is the new approach to local development. This approach depends on good governance, and the empowerment and participation of individuals and communities in
Empowerment Commitment
4 decisions that affect their lives and the well-being of their communities. LGUs are encouraged to adopt the new approach.
3.1 Good Governance: the New Approach
3.1.1 Good governance is the exercise of economic, political and administrative authority to manage local government affairs. It comprises the mechanism, processes and institutions through which citizens and groups articulate their interests, exercise their legal rights, meet their obligations and mediate their differences. (UNDP Policy Paper on Governance).
3.1.2 Good governance is being close to the people as in a democratic government of the people, by the people and for the people. Its bedrock is the Rule of Law and Justice rather than that of mans whims or caprices.
3.1.3 Good governance enables and empowers people to participate more directly in decision-making processes that respond to their needs. It involves civil society organizations and the private sector as partners in local development. It makes development more sustainable as people can claim ownership of it.
3.1.4 Good governance demands efficiency in public management. It emphasizes high standards of integrity and identified needs, and continuous quality capacity-building activities to formulate goals, policies, strategies and processes that capture consensus and support from stakeholders.
3.1.5 Consensus and effective participation, allow community- driven local development in which people can have direct control over key project decisions, including management of investment funds.
3.1.6 The harmonization of local planning, investment programming, revenue administration, budgeting and expenditures management institutionalized under DBM- NEDA-DILG-DOF Joint Memorandum Circular (JMC) No. 1, Series of 2007 (March 8, 2007) reduces the number of plans prepared by LGUs to be provided with budgetary 5 allocations and integrates strategic responses to local issues through collective decision-making which is in keeping with good governance.
3.1.7 Through the participative process, planning and budgeting linkage is institutionalized in LGUs. This linkage is provided through the harmonized concept of the Annual Investment Program (AIP) as clarified under the aforementioned JMC.
3.2 Basic Principles of Good Governance
Some basic principles of good governance:
3.2.1 Respect for human rights, including the rights of women and children;
3.2.2 Respect for the rule of law, political openness, participation and tolerance;
3.2.3 Accountability and transparency; and
3.2.4 Administrative and bureaucratic capacity and efficiency.
4.0 Guidelines on Participative Budgeting
4.1 LGUs shall allow and practise genuine participation of people in the planning and budgeting processes to promote and establish transparency and accountability in all their fiscal transactions.
4.2 LGUs shall expand participation and involvement of people in Local Development Councils (LDC) and Local Finance Committees (LFC) in the sharing of ideas, information, and experiences in setting directions and allocating available resources. The purpose is to draw concerned citizens together to participate in decision-making.
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4.3 LGUs shall apply democratic principles in group decision-making techniques in arriving at choices and preferences that are genuinely responsive to peoples needs, especially to those of the marginalized and disadvantaged segments of society:
Decision 1. Priority development issues that need to be resolved Decision 2. Vision and goal to be achieved Decision 3. Objectives, policies, and strategies that will lead to the goal Decision 4. Specific PPAs to be implemented Decision 5. Projects and activities to be prioritized Decision 6. Available resources to be used
4.4 LGUs shall embody decisions arrived at in the plan and budget as products of broad-based consultation and participation that engender peoples collective consensus, commitment, and ownership.
4.5 LGUs are encouraged to enhance participative planning and budgeting in different venues:
Digital Governance
Formal Institutions Local Development Council (LDC) Local School Board (LSB) Local Health Board (LHB)
Workshops
Figure 2. How Decisions in Planning and Budgeting are Made
4.6 LGUs shall establish priorities and allocate resources during investment programming of PPAs as major links to budgeting. The ranked PPAs and their corresponding resource requirements 7 become the bases for preparing annual budget proposals. The expected results in each phase of the budget process are shown in the table below to indicate the relevance of participation and involvement of stakeholders in local government budgeting.
Table 1. Expected Results of the Budget Process
Budget Process
Expected Results
Projections of Income and Expenditures and Establishment of Priorities
Income and Expenditure levels Ranked Development PPAs
AIP Preparation
Approved AIP for the Budget Year by the Local Sanggunian
Budget Preparation
Executive Budget
Budget Authorization
Approved Appropriation Ordinance
Budget Review
Review action
Budget Execution
PPAs Implemented and Major Final Outputs Produced/Delivered
Budget Accountability
LGU Performance Measured
8 5.0 Benefits of Participative Governance in the Budget Process
LGUs are encouraged to allow stakeholders to participate in the budget process because of the benefits arising from their involvement:
Service gaps due to fund or resource constraints may be addressed by the private sector or civil society groups.
Delays in project implementation are most often caused by conflicts arising from concerned groups who were not involved in the formulation of the project.
Bringing the government closer to the people enhances partnership in all government undertakings.
People who have ownership of the plan are committed to its effective implementation until completion even when there is a change in leadership.
The vigilance of stakeholders in monitoring the status of approved PPAs from the authorization, review, execution and accountability phases of the budget will ensure the successful delivery of goods and services to target clients.
6.0 Identification of Stakeholders
Decisions involving sources of financing, defining priorities in the use of funds and arriving at a rational allocation of scarce resources call for stakeholders who can share ideas and information on sound fiscal administration. Stakeholders may come from either within or outside the LGU. Helps the LGU maximize the use of resources Reduces delay in the implementation of urgent projects Develops trust in government Ensures continuity and sustainability of plans and budgets Ensures the integration and implementation of the approved AIP 9
Internal stakeholders like department heads, planning and budgeting staff, LDC, and the Sanggunian may be invited through formal invitation or internal memorandum to all staff to participate in the consultation process.
External stakeholders may include representatives from NGOs and from national line agencies assigned in the area; community leaders; members of the academe, the private/business sector, and the basic sectors such as women, farmers, fishermen, senior citizens, differently-abled persons and other disadvantaged groups. Such stakeholders may be invited via print media, radio/TV broadcast, or formal invitation-letters.
The participation of stakeholders may be engaged in all phases of the budget process.
7.0 Role of Stakeholders in the Budget Process
Step 1 Stakeholders, such as civil society groups, NGOs, the private sector, etc. as observers of the LFC, shall represent the aggregate needs of the people, particularly the weak and the disadvantaged. These observers may provide relevant inputs to the LFC and the LCE in the formulation of policy decisions that are embodied in the AIP.
Step 2 Stakeholders may also provide inputs to department heads of line agencies that could help these decision makers in the accurate determination of targets or in the identification of beneficiaries in the delivery of agency services.
Budget Preparation 10
Step 3 Stakeholders may participate in the Sanggunian deliberation of the Executive Budget during public or committee hearings and consultation with specific sector groups affected by the budget.
Step 4 Stakeholders may clarify or ask questions on changes in the executive budget not found in the approved AIP.
Step 5 Stakeholders may relay information to the reviewing authority on the consistency or inconsistency of the budget with the AIP.
Step 6 Stakeholders may assist implementors in advocating the benefits of the PPAs to prospective clients.
Step 7 Stakeholders may also assist the LGU in providing for the service gaps due to fund constraint.
Step 8 Stakeholders shall see to it that the standards of service delivery, in terms of quality and proper specifications, are observed by the LGU.
Step 9 Stakeholders shall serve as monitors during PPA implementation to ensure that services and goods are properly delivered to target beneficiaries.
8.0 Elements of Quality Participation
In participative budgeting, it is important that LGUs shall give premium to the quality of participation.
The consultation process shall have the following elements to ensure quality participation of stakeholders. Budget Authorization Budget Execution Budget Review Budget Accountability 11
8.1 Skilled Facilitators
There must be a facilitator or group of facilitators skilled in the application of the Technology of Participation (ToP). Facilitators from within the LGU may be trained to use the ToP tool to elicit effective participation from the stakeholders.
ToP is a unique method of facilitation that helps groups think, talk and work together and provides group facilitators with structured methods that recognize and honor contributions of all, let a group deal with more data in less time, pool individual contributions into larger more informative matters, and welcome diversity while minimizing polarization and conflict.
ToP covers three methods of facilitation developed by the Institute of Cultural Affairs (ICA), a US-based organization long involved in organizing works in marginalized communities. These methods include (a) the Focused Group Discussion Method (b) Consensus Workshop Method, and (c) the Action Planning Method.*
8.2 Consciousness of Issues
Stakeholders are not only aware of the issues to be discussed, but are also willing to share ideas and information in an atmosphere of mutual respect and cordial relationship.
8.3 Focus on Issue
All discussions shall be guided by a focus question, or issue, to be resolved. At the end of the day, every stakeholder is satisfied with the collective decision made by the group on how the issue will be resolved.
8.4 Persons of Authority as Resource Persons
The LFC members shall be the resource persons during the consultation process. As stakeholders themselves, they shall be ready to share all the plan-budget information necessary to arrive at good decisions.
_____________ *Barcillano, Malu C., Ph.D. The Technology of Participation (ToP) and its Application 12
9.0 Best Practices in Participative Budgeting
Local Resource Management and Fiscal Sustainability: The Case of Naga City 1
The Naga City case illustrates effective fiscal and financial management strategies which are anchored on a governance framework that involves strong and active multi - stakeholder participation in urban governance. Naga Citys strategy is built on the philosophy that economic growth and improvement in the lives of the people should go hand in hand and that good governance is the trigger. By capitalizing on three key factors, namely, its progressive development perspective, functional partnerships with stakeholders, and people participation, Naga City has built on individual and institutional capabilities and mainstreamed their roles in local development. The city government adopted productivity and service excellence programs to reorient its personnel to business and customer service orientation and foster efficient and quality service for its constituents.
One important innovation made by Naga City was the codification in 2004 of its Revenue Code, compiling and effectively revising tax-related ordinances dating back to 1975. Majority of business tax rates and user fees were reconsidered and the presumptive income approach to business taxation was adopted under the Code. On real property taxation, the city government remains conservative in increasing its assessment levels and tax rates. However, market values of properties have soared, indicating economic progress as evidenced by the influx of investments and business activities. The citys adoption of the Investment Code in 1997 may also have contributed to the influx of investments.
Computerization has been an important support mechanism to the citys efforts to foster transparency, efficiency, and effective governance. Its computerization efforts such as the i-Governance and city website, GIS, SMS-facilitated reporting mechanism, i-Serve project have helped to improve local resource generation and quality of government service.
By mobilizing all factors in city governance towards attracting investments and buoying up business activities, Naga City has generated local income without the necessity of putting too much tax burden on its constituencies. For the past ten years (1996-2005), tax revenues, specifically business taxes, have been the major income generator of the City. Consistent with the adopted governance framework, the city government has also observed prudent utilization of government resources through its doing more with less approach and a budget programming strategy which is aligned to the Citys vision and mission.
1 Perla A. Segovia with Nino B. Alvina, Local Resource Management and Fiscal Sustainability: The Case of Naga City. Sourcebook 4, Selected Case Studies on Strengthening Local Government Resource Management. Small Projects Facility, European Commission-Philippines Partnership. 13
Mandaluyong Citys Marketplace: A Joint Venture with the Private Sector 2
Background of the Project
A public market is the most common local enterprise operated by local government units (LGUs), particularly cities and municipalities in the Philippines. The number and size of the public market of a city or municipality is an indicator of its level of economic development as many economic activities are carried out in this facility. All cities have one or more public markets but not in the case of municipalities. Lower-income class municipalities, for instance, do not own a public market facility.
The operation of a public market is also considered a public service. Thus, Philippine cities and municipalities are mandated by the 1991 Local Government Code (Sec 17) to provide this basic facility and service.
Mandaluyong City faced the problem of providing a new infrastructure facility when its public market was gutted by fire in August 1990. Confronted with the necessity and urgency to provide this facility/service to his constituents and constrained financially to construct a new market, Mayor Benjamin Abalos, the Citys local chief executive, decided to implement stopgap measures while mulling over what would best address the problem. He studied all options that could be done. Meantime, temporary stalls for vendors were constructed along the sidewalks of the street perpendicular to the burned market. Stalls were also built in one part of a city park.
This measure brought about untold inconvenience to the public. It created traffic congestion as market goers and commuters alike milled along the busy street. Market goers also complained about the inconvenience of going to a street market especially during the rainy days. Since only the stalls had roofs, only the vendors were protected from the elements. Such set up also created health and sanitation problems. As a result, numerous complaints from residents and offices along that street were a daily fare for the city government. This situation continued for more than a year.
The city government was under tremendous pressure from the vendors and other constituents to build a new market. The Mayor, in consultation with the City Council, decided to construct a multi-storey shopping mall cum market. This decision was premised on certain considerations. One was the strong desire of the Mayor for the city to have a shopping mall or commercial complex of its own. Two, he knew very well that the place where the mall would be built is strategically located as it is along a major artery of the city. Three, he was convinced that a project confined to the construction of a public market project (i.e. without the commercial complex component) would not attract private sector investors because of the high risk involved. It was likely that it would take a long period of time (more than 10 years) for the investor to recover the investment. The revenue stream expect ed from the operation of the market would not be very substantial since the city government could not rely on increasing stall rentals as such cost increases would surely be passed on by the vendors to the buying public.
Tapping the Private Sector Through the Build-Operate-Transfer Scheme
The Mayors dream for the city to own a shopping mall seemed to many to be an impossibility because the city government did not have the financial means to fund a capital - 14
intensive infrastructure project. Where to get the funding for the construction of a commercial complex was a primary problem. The city government ruled out taking a huge long-term loan from commercial banks because a significant portion of city funds would be tied up to yearly loan amortizations rather than being used to support other basic services of the city.
The strong political will of the Mayor to pursue his dream for his city propelled him to go for a Build-Operate-Transfer (BOT) scheme. At that time, the Philippine Congress had just passed the BOT law and there were no implementing rules and regulations that could be used by the city government as a guide. Even government agencies like the Commission on Audit and the Department of Finance were at that time clueless about how to help the city government implement a BOT programme.
Nonetheless, this did not deter the city government from pursuing its dream. The Mayor scouted for developers, investors, and businessmen who might be interested in the BOT project. The invitation to pre-qualify for the BOT project was advertised in major newspapers for several weeks in May 1991. It called for the construction of a seven-storey building.
Identifying the Right Private Sector Partner
Two conferences with interested parties/investors were held in 1991, one year after the burning of the public market. Thirteen interested developers and investors attended the first conference. The concept of BOT was explained to them. They were made to understand that they have to shoulder all the costs in the construction of the commercial mall and that ownership of the facility would have to be turned over to the city government upon completion of its construction. Subsequently, another conference was held. This time only five of the 13 attended. The eight others backed out immediately after the first conference. When the bidding for pre-qualification was finally held, the number of interested parties dwindled to two. One of them, the Market Realty Development and Credit Funders Corporation won the bid. To further expand its capitalization, this business entity merged with nine other firms forming a business consortium with the name Macro Funders and Developers Incorporated (MFD). It was formed purposely for the BOT project. The Mayor was instrumental in the formation of this group and it was he who enlisted the help of his friends in the private sector to form the consortium (Interview with Atty. Ernesto Santos, March 20, 2002).
The contract for the development, financing, construction and operation of the commercial center was awarded on August 29, 1991, one year after the burning of the old public market. The total cost was P377,468,932 (or US$ 12.5M). When the project was fully completed, the cost was almost P600M or (US$ 24.6M).
Negotiating with the Private Sector Partner
The cooperation of the private sector in financing this capital-intensive piece of urban infrastructure was made possible through the negotiation skills of the city government headed by the Mayor himself. The Mayor was assisted by the citys Administrator not just in the conceptualization of the project but throughout its implementation. According to the former administrator of the city government, there were actually no demands made by MFD, the private partner. It was, in fact, the city government itself that offered the private partner a 15
two-year moratorium from payment of mayors permit and building permits (Interview with Atty. Ernesto Santos, March 25, 2002). This strategy would enable the private partner to attract business establishments to locate in the commercial complex. The city government also contracted the services of MFD to provide maintenance and security of the public market located on the ground floor of the commercial complex. For five years, it was MFD which maintained and secured the public market.
Problems Encountered
Engaging the participation of the private sector in the provision of a public facility and service that requires enormous capital outlays was not an easy task for the city government of Mandaluyong. The major problems it encountered were the following:
Getting the trust and confidence of the private sector. This was the most significant problem. It took the city government more than six months to convince a private contractor to enter into a joint venture where the city would provide the land and the private contractor to provide the capital and expertise in the construction and management of the BOT project.
Difficulty on the part of the private contractor to obtain loans from the commercial banks. The MFD, the business consortium, could not use the land where the infrastructure was to be built as collateral because it was owned by the city government. By obtaining loans from commercial banks on an individual basis, the business consortium remedied the problem. This meant that each member of the consortium was able to obtain a loan on its individual financial capacity to pay. (Interview with Atty. Eusebio Santos, March 20, 2002).
Much paperwork entailed by the BOT. This was a secondary problem encountered in the BOT project in connection with the reports on technical and economic data requirements prepared for the pre-qualification and bidding process. The paper work was taxing on the part of the city government and represented a hidden cost to the project.
Benefits of the Partnership
The beauty of this BOT project is that it provided mutual benefits for the public and private sector partners. The joint project could not have been successful if only one party received benefits from it.
Benefits for the City Government
The BOT scheme allowed the city government to develop and own the needed urban infrastructure without incurring a substantial financial burden. It was the private sector partner that provided the funds for the project. The city government was thus freed from paying loan amortizations, which fund could be utilized for other development projects and services.
Conservative estimates of around P10M-P20M revenues per annum from the public market and business establishments in the commercial complex are now 16 accruing to the city government coffers. This additional income is plowed back to city coffers for the improvement of city government services.
A new commercial district was developed. The increased activity in the area led to the appreciation of land value in its vicinity. Before the construction of the complex, the land in the area cost P8,000 per square meter. At present, it costs P28,000 to P30,000 per square meter. This can be translated into higher real property taxes for the city government.
Benefits for the Private Sector Partner
The terms of the contract between the local government and the private sector developer allowed the latter to benefit from the project in the following ways:
The MFD is now earning revenues from the operation of the numerous business establishments in the commercial complex. It was given the right to operate the complex for 40 years with the option for renewal. At present, the commercial complex registers 95 percent occupancy. Technically, the MFD is a lessee of the commercial complex since ownership belongs to the city government. However, it is not paying rent to enable it to recoup its investment. According to the Vice- President of the firm who used to be the Administrator of the city government, the firm, which is now on its seventh year of operating the complex, has almost recovered its investment. Ninety-percent (90 percent) of its loans have already been paid (Interview with Catty. Ernesto Santos, March 25, 2002).
It is also exempted from paying real property taxes (around P10M annually) since it is the city government that owns the lot and the edifice.
Other Socio-Economic Benefits
External to both the local government unit and its private partner are other benefits brought about by the joint venture.
The commercial complex not only services the city population of Mandaluyong but also around 10 percent of the population of its neighboring LGUs like San Juan, Sta. Ana, and Sta. Mesa, Manila.
The commercial complex provides for a public market with all the facilities and amenities of a modern public market operated under the most convenient, sanitary, and secure conditions.
The market is controlled and supervised exclusively by the city government. The rental rates are fixed by the city government to guarantee that the goods are sold at the lowest possible prices and within the reach of low-income groups.
The building of the commercial complex cum market generated employment. More than 1,000 laborers are employed there to date.
The perennial traffic problem in the area was solved. The commercial complex provided for a two-level parking facility. Flooding, pollution, and garbage 17
problems were likewise solved by providing for a centralized collection and spillway and wastewater and pollution control systems integrated into the project.
Lessons Learned
As can be gleaned from the case presented, several lessons illustrating the success of the partnership can be drawn:
The strong political will of a public sector leader to pursue the PPP through BOT made a lot of difference. Undeniably, Mayor Abalos of Mandaluyong City played a crucial role in the realization of the BOT project. He left no stone unturned when wooing the private sector into a joint venture. He was able to convince his friends in the business community about the importance and value of the project
The city government and its private sector partner shared the risks of the project. The former offered concessions to the latter to compensate for project risks (like cost overruns) it bore. For instance, a two-year moratorium from payment of some taxes (Mayors permit, building permit) was offered to the investor. Moreover, the city government does not share in the revenues from the operation of the commercial complex. Since the city government operates the public market, it bears the risk of having all stall collections fall below the operating cost of the public market. In effect, the project risks were borne by both parties.
The city government recognized the need for flexibility in project packaging. It allowed the private investor to repackage the public market to make it financially attractive.
The presence of at least one component authority that provided support to the Mayor in all negotiations contributed to the success of the project. Mayor Abalos utilized his Administrator, both a certified public accountant and a lawyer, in negotiations with the private partner. The local governments Administrator played a key role since it was he who saw to it that the details of the agreements between the two parties were carried out.
In conclusion, the partnership of the city government and the public sector investor succeeded because the joint venture was beneficial to both parties. The BOT case of Mandaluyong City is a concrete example of a win-win project.
2 Alicia B. Celestino, Public-Private Sector Partnership for Urban Infrastructure: The Build-Operate-Transfer Program of Mandaluyong City. Sourcebook 1, Perspective and Approaches in Local Government Resource Management. Small Projects Facility, European Commission-Philippines Partnership. 18
Chapter 2. Plan - Budget Linkage
1.0 Introduction
2.0 Legal Basis of Plan-Budget Linkage
3.0 Harmonizing Plans with the Budget 3.1 Development Plan for Provinces and Highly-Urbanized Cities 3.2 Development Plan for Cities and Municipalities 3.3 Local Development Investment Program 3.4 Annual Investment Program 3.5 Policy Guides on a Plan-Budget Linkage 3.6 Synchronizing the Plan-Budget Calendar 4.0 The Plan-Budget Cycle
5.0 AIP Preparation 5.1 Key Players in AIP Preparation 5.2 The AIP Process Flow Chart 5.3 Guidelines on AIP Preparation
6.0 The PPA Structure 6.1 What is a PPA Structure? 6.2 Samples of a PPA Structure 6.3 Review of Existing PPA Structure 6.4 Redesigning of Current PPA Structure 6.5 PPA Performance
7.0 Reforms in Local Government Budgeting 7.1 Public Expenditure Management (PEM) Reforms Medium Term Expenditure Framework (MTEF) Organizational Performance Indicator Framework (OPIF) OPIF Process Formulation of Major Final Output (MFO) Identification of PPAs Performance Indicators (PIs) Suggested Steps in Determining PIs Sample Illustration of Department/Office Logical Framework
19 Local budget plans and goals shall, as far as practicable, be harmonized with national development plans, goals and strategies in order to optimize the utilization of resources and to avoid duplication in the use of fiscal and physical resources (Section 305 [h], R.A. No. 7160).
Local budgets shall operationalize approved local development plans (Section 305 [i], R.A. No. 7160).
Local governments shall formulate sound financial plans, and the local budgets shall be based on functions, projects and activities in terms of expected results (Section 305 [g], R.A. No. 7160).
Budgets of LGUs shall include a brief description of the functions, projects and activities for the ensuing fiscal year; expected results for each function, project and activity; and the nature of work to be performed, including the objects of expenditure for each function, project and activity (Section 317 [b] [3], R.A. No. 7160). Plan-Budget Linkage
1.0 Introduction
This chapter discusses the general concepts and procedural guidelines on how local plans are linked to the budget that should harmonize with national development goals and objectives. It provides specific guideposts in the application of the Annual Investment Program (AIP) as a tool that connects the plan to the budget; introduces the program- project-activity (PPA) structure, Major Final Output (MFO) and Performance Indicators as new budget tools in local government budgeting; and finally it outlines the plan-budget linkage through a synchronized local planning and budgeting calendar.
2.0 Legal Basis
3.0 Harmonizing Plans with the Budget
The purpose of harmonizing local plans with budgets is clearly provided in DBM-NEDA-DILG-DOF JMC No. 1, Series of 2007 dated 08 March 2007. It will set a common direction in the implementation and achievement of local endeavors in harmony with national development 20 goals and objectives. It will strengthen the interface and complementation between LGUs, national government agencies (NGAs), among all LGUs in all levels (vertically and horizontally), and funding institutions and donor agencies in the planning, investment programming, budgeting and expenditure management, and revenue administration.
The harmonization of local plans with national development goals is essential in achieving efficiency and effectiveness in the allocation of resources. It starts with the preparation of a development plan at least for 6 years for provinces.
3.1 Development Plan for Provinces and Highly-Urbanized Cities
The Provincial Development and Physical Framework Plan (PDPFP) is a six-year plan that merges the traditionally separate provincial physical framework plan and provincial development plan to address the disconnection between spatial and sectoral factors and between medium-and long-term concerns. The PDPFP contains the long-term vision of the province, and identifies development goals, strategies, objectives/targets and corresponding PPAs which serve as primary inputs to provincial investment programming and subsequent budgeting and plan implementation (DBM-NEDA-DILG-DOF JMC No. 1, Series of 2007).
3.2 Development Plan for Cities and Municipalities
The long-term development plan for cities and municipalities is called the Comprehensive Development Plan (CDP). The CDP is a multi-sectoral plan formulated at the city/municipal level embodying the vision, sectoral goals, objectives, development strategies, and policies within the term of LGU officials and the medium-term. It contains corresponding PPAs which serve as primary inputs to investment programming and subsequent budgeting and implementation of projects for the growth and development of local government territories (DBM-NEDA-DILG- DOF JMC No. 1, Series of 2007).
3.3 Local Development Investment Program
Section 305 (i) of R.A. No. 7160 explicitly provides that local budgets shall operationalize approved local development plans. This implies that the preparation of local plans shall precede the preparation of local budgets. On the basis, therefore, of the 21 approved PDPFP for provinces and CDP for cities and municipalities, a programming document called the Local Development Investment Program (LDIP) shall be prepared. Investment programming covers 3 to 6 years. The LDIP at the provincial level is a six-year rolling program coinciding with the time frame of the PDPFP.
The LDIP is a basic document linking the local plan to the budget. It contains a prioritized list of PPAs which are derived from the CDP in the case of cities and municipalities, and the PDPFP in the case of the provinces, matched with financing resources, and to be implemented annually within a three to six-year period. The first three (3) years of the LDIP shall be firmed up along with the priorities of the incumbent LCEs (DBM-NEDA-DILG-DOF JMC No. 1, Series of 2007).
3.4 Annual Investment Program
Another document to be submitted by the LDC to the LFC as mandated under Article 410 of the IRR of R.A. No. 7160 is the AIP prepared and approved during the fiscal year before budget preparation.
The AIP refers to the annual slice of the LDIP which constitutes the total resource requirements for all PPAs, consisting of the annual capital expenditure and regular operating requirements of the LGU.
The AIP, therefore, is the yearly program of expenditures both for capital and current operating requirements of the LGU that will serve as basis for the preparation of Annual and Supplemental Budgets. As a document reflecting the total resource requirements for the year, the AIP is a document that reinforces plan-budget linkage.
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The plan-budget linkage is shown in the following diagram:
Figure 3. Plan-Budget Link Model
L L D D I I P P
L LI IN NK K D DE EV VE EL LO OP PM ME EN NT T P PL LA AN NN NI IN NG G ( (6 6- -1 15 5 Y Ye ea ar rs s) ) ( (3 3- -6 6 Y Ye ea ar rs s) )
I IN NV VE ES ST TM ME EN NT T P PR RO OG GR RA AM MM MI IN NG G
( (1 1 Y Ye ea ar r) ) B BU UD DG GE ET TI IN NG G ( (1 1 Y Ye ea ar r) )
A A I I P P
P P D D P P F F P P / / C C D D P P
A AN NN NU UA AL L B BU UD DG GE ET T A AN ND D S SU UP PP PL LE EM ME EN NT TA AL L B BU UD DG GE ET T P PL LA AN N B BU UD DG GE ET T 23 3.5 Policy Guides on a PlanBudget Linkage
3.5.1 Development planning shall not be limited to projects and activities to be funded by the 20% Development Fund. The entire annual/supplemental budgets shall be dedicated to sustainable human development in order to achieve the twin goals of eliminating poverty and promoting economic growth. Development planning in general is medium-term and for provinces, covers a six-year period rolling plan.
3.5.2 Local elective officials shall develop the capacity to mobilize resources and ensure program sustainability. It is their responsibility to develop the capabilities of their people in the long-term so that the well-being of present and future generations is not undermined.
3.5.3 Local budgets shall be policy-driven and performance based. Policy formulation shall include:
Explicit policy directions to eliminate poverty and unemployment; and
Policies on how the budget shall be financed in the medium-term and how it shall be allocated among priority PPAs in the short-term. The LFC shall recommend to the LCE alternative sources of financing the budget and a rational criteria for allocating available resources.
3.6 Synchronizing the Plan-Budget Calendar
The budget calendar is presented separately for provinces and highly-urbanized cities and for cities and municipalities for easy execution of the plan-budget calendar as synchronized.
24 Table 2. SYNCHRONIZED LOCAL PLANNING-BUDGETING CALENDAR
PERIOD COVERED ACTIVITY OUTPUT/S
ACTOR/S
January (First Week) PPDC sets guidelines for data gathering Guidelines for data Gathering PPDCs January to March Updating of planning and budgeting Database (socioeconomic, physical resources, time series revenue and expenditure data, project profiles/ status, among others) Update planning, Budgeting and Financial database LPDCs, budget Officers, Treasurers, Department Heads, NGAs/ RLAs April-May Analysis of planning environment for plan preparation/review/updating Draft situational analysis and assessment of plan implementation LPDCs, NGAs/ RLAs April to May
June 1 to 15
Not later than First Week of August
Updating of appropriate AIP in the LDIP as input to budgeting
Preparation of the AIP using the AIP Summary Form (Annex A) for the budget year
Approval of the AIP Indicative AIP (the first year of the LDIP in the case of election year)
AIP Summary Form
AIP for the Budget Year LDCs, LPDCs
LPDCs, local budget officers
Sanggunian
1 st week of July during election year
Whole month of July
PDPFP/CDP Preparation
Reconstitution of the LDC based on initial guidelines, including mechanism for choosing private sector representatives, prepared by LPDC
Formulation of development vision, goals, strategies, objectives/targets and identification of PPAs
Timetable and tasking for plan preparation/ updating
Vision, goals, Strategies, Objectives/Targets and PPAs
LCEs
LDCs, LPDC, Department Heads, NGAs/RLAs
25
PERIOD COVERED ACTIVITY OUTPUT/S
ACTOR/S
Harmonization and complementation of development vision, goals, strategic direction between and among province and component cities/municipalities
Approval of the PDPFP/CDP Harmonized vision, goals and strategic direction
PDPFP/CDP Jointly by the province and component LGUs
Sanggunian
June to July 1-31 during election year
LDIP Preparation
Identification of areas for complementation of PPAs between and among provinces and their component cities/municipalities
Prioritization of PPAs
Matching of PPAs with available financing resources and determination of additional revenue sources to finance the PPAs
Approval of LDIP Prioritized PPAs
LDIP, revenue generation measures
Approved LDIP
Joint programs/ projects
Prioritized PPAs
LDIP, revenue generation measures
Approved LDIP
Provinces and their component cities and municipalities, NGAs/RLAs
LDC, LFC, NGAs/RLAs
LDC, LFC, NGAs/RLAs
Sanggunian
June 16 to 30 0r 1 st week of July during election year Budget Preparation
Issuance of Budget Call
Budget Call
LCEs of Provinces, Cities, Municipalities July 1 -15
Submission to LCE of detailed 3-year statement of income and expenditures Certified statement of income and expenditures Local Treasurers (Province, Cities, Municipalities)
26
PERIOD COVERED ACTIVITY OUTPUT/S
ACTOR/S
Preparation and submission of budget proposals Budget Proposals Local department heads
July 16 August 31
Conduct to technical budget hearings on budget proposals submitted by Department Heads
Reviewed budget proposals
LFCs and LCEs
On or before the 15 th day of September
Submission to the Punong Barangay of the estimated Income and Expenditure for the ensuing fiscal year
Certified Statement of Income and Expenditure
Barangay Treasurer
September 16 to 30
Consolidation of Budget Proposals into the Local Expenditure Program and preparation of the BESF
LEP and BESF
LFC
Not later than October 16
Preparation of the Budget Message and Submission of Executive Budget to the Sanggunian
Budget Message and Executive Budget
LCEs (Provinces, Cities, Municipalities)
October 17 onwards
Enactment of the Annual Budget of the ensuing fiscal year by the Sanggunian concerned
Enacted Annual Budget
Sanggunian (Provinces, Cities, Municipalities and barangays)
Within three (3) days from the approval by the LCE of the annual supplemental budget
Submission of the Annual or Supplemental Budgets of Provinces, Cities and Municipalities to appropriate reviewing authority
Annual Supplemental Budget submitted for review
Secretary to the Sanggunian
Within ten (10) days from the approval by the Punong Barangay of the Annual or Supplemental Budgets of Barangays
Submission of the Annual or Supplemental Budgets for review
Annual or Supplemental Budgets submitted for review
Sanggunian 27
PERIOD COVERED ACTIVITY OUTPUT/S
ACTOR/S
Within sixty (60) days from receipt of the submitted Annual or Supplemental Budgets of barangays for review
Review of the Annual or Supplemental Budgets of Barangays
Reviewed Annual or Supplemental Budgets of Barangays
Sangguniang Panlungsod, Sangguniang Bayan, City or Municipality Budget Officers
Within ninety (90) days from the receipt of the submitted Annual or Supplemental Budgets for review of Provinces, Cities and Municipalities
Review of the Annual or Supplemental Budgets of Provinces, Cities and Municipalities
Reviewed Annual or Supplemental Budgets of Provinces, Cities and Municipalities
DBM Regional Offices, Sangguniang Panlalawigan
January 1 to December 31
Implementation/Execution of the Annual or Supplemental Budgets
Annual of Supplemental Budgets
LCEs or Provinces, Cities Municipalities And Barangays
NOTE: Detailed activities will be provided through subsequent guidelines, including cross-referencing to the technical guides/manuals such as the RPS-CDP/ELA, PLPEM, UBOM and Revenue Administration.
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4.0 The Plan-Budget Cycle
4.1 The planning-budgeting cycle is a continuous process of improving and evolving a systematic and logical procedure of validating data from the field to come up with an accurate database necessary for selecting the best alternative choice in planning and decision- making.
4.2 The plan needs to be linked to the budget. LGU plans and budgets must see to it that development issues are clearly identified within the context of improving general welfare and basic services delivery. PPAs to be implemented must be consistent with the plan objectives. They must determine the extent to which these objectives can be achieved on the basis of available resources.
4.3 Flexibility in adjusting local plans and budgets with national goals is an important ingredient in planning. However, the ability to adjust to new programs coming from the national government must be matched with the financial capacity and resource endowment of LGUs.
4.4 LGUs shall determine what MFOs or goods and services will impact on the long-term goals. They shall evaluate what goods and services are within their capability to produce. Priority projects and activities of LGUs whose funding/technical requirements are beyond their capacity to implement may be proposed to a higher- level LGU or to the NGA concerned or to civil society for possible assistance.
4.5 The annual projected output or targets of PPAs to be implemented during the budget year as reflected in the AIP shall be synchronized with outputs of NGAs in the regions, provinces, cities and municipalities to determine their synergy and impact on society.
4.6 Lessons learned in the plan-budget execution shall be input data in the next plan-budget cycle, shown in the following diagram.
29
Figure 4. PlanBudget Cycle
5.0 AIP Preparation
5.1 Key Players
5.1.1 Local Development Council The LDC, through its technical secretariat, the PPDO/CPDO/MPDO for provinces, cities and municipalities respectively shall:
align development plan with current development issues;
cull out the current slice of the LDIP as input and annual component of the Capital Expenditure (CapEx) into the AIP Summary Form; CURRENT YEAR (Jan.-June) BUDGET YEAR (Jan.-Dec.) CURRENT YEAR (July-Dec.)
BUDGET ACCOUNTABILITY
DEVELOPMENT PLANNING (6-15 years) INVESTMENT PROGRAMMING (3-5 years)
BUDGET EXECUTION
BUDGET REVIEW
BUDGET AUTHORIZATION ION
BUDGET PREPARATION
AIP (1 year) 30 determine resource requirements of PPAs for basic services delivery; and
prepare draft AIP Summary Form and present to the LCE for comment/review.
5.1.2 Local Planning and Development Coordinator The LPDC shall input the annual component of the Capital Expenditure (Capex) into the AIP Summary Form.
5.1.3 Local Budget Officer The LBO shall integrate the Capex together with the PS, MOOE, and other CO into the total resource AIP to be reflected in the AIP Summary Form.
5.1.4 Local Chief Executive The LCE shall present the AIP Summary Form to LDC for deliberation and concurs with the AIP Summary Form as agreed upon by the LDC.
5.1.5 Sanggunian The Sanggunian shall approve the AIP.
5.1.6 NGOs, Civil Society Groups and Other Stakeholders NGOs, civil society groups and other stakeholders shall serve as key informants on major development issues in the LGU. They shall provide relevant information in the identification and prioritization of PPAs for inclusion in the AIP.
5.2 The AIP Process Flow Chart
As an annual slice of the LDIP, the AIP shall be updated by the Planning and Development Coordinator or an LDIP committee prior to the yearly budgeting exercise to take into account new developments as well as to consider PPAs from the previous year which were not implemented. The AIP is prepared jointly by the LPDC who does consistency analysis of the priorities and objectives for a particular year with the PPAs programmed for the same year in its LDIP and the LBO who determines the expected outputs and financial requirements of the PPAs, including source of funds. This draft AIP is discussed with the LCE for comments before they are finalized for deliberation by the LDC. Once consensus is arrived at the LDC level, the AIP is endorsed to the Local Sanggunian for approval and enactment.
31
LDC Local Chief Executive (LCE) / Local Sanggunian PPDO/CPDO/MPDO/LBO Local Development Council (LDC
Figure 5. The AIP Process Flow Chart
LDC Deliberates on/ Endorses AIP to Local Sanggunian Aligns Development Plan/ELA (PDPFP/CDP) with Current Development Issues Determines Annual Resource Requirements of Priority Development Projects from LDIP Funded from 20% of IRA, General Fund and Other Sources Funds Determines Resource Requirements of PPAs for Basic Services Delivery and Administrative/ Legislative Services Prepares Draft AIP and present to LCE for Review LCE Presents AIP to LDC for Deliberation Approves AIP for the Budget Year Updates AIP to consider new and unimplemented PPAs 32 5.3 Guidelines on AIP Preparation
5.3.1 The AIP shall be categorized under general public, social, economic and other services sector (Section 317 [a], R.A. No. 7160). Pursuant to the New Government Accounting System (NGAS) of the Commission on Audit, the services falling under each of these basic sectors are as follows.
5.3.1.1 General Public Service Sector
Executive Services Legislative Services Planning and Development Coordination Services Budgeting Services Treasury Services Accounting Services Administrative Service Civil Registry Services General Services Assessment of Real Property Services Auditing Services Information Services Legal Services Prosecution Services Administration of Justice Services Land Registration Services Mining Claim Registration Services Police Services Fire Protection Services Repair Maintenance of Government Facilities
5.3.1.2 Social Services Sector
Education and Manpower Development Public Education Services Medical Subsidiary Services Manpower Development Services Sports Center, Athletic Field, and Playground Maintenance Services Cultural Project Services 33 Cultural/Conference/Convention Center Operation Services
Health Health Services Field Projects (Immigration, Inoculation, Blood Donor Services) Day Care Clinic Hospital Services Chest Clinic
Housing and Community Development Housing Projects Sanitary Services Street Cleaning Garbage Collection Sewerage and Drainage Street Lighting Community Development Services
Social Welfare Social Welfare Services Family Planning Services Miscellaneous and Other Social Services
5.3.1.3 Economic Services Sector
Agricultural Services Veterinary Services Natural Resources Services Architectural Services Engineering Services Economic Enterprises and Public Utilities Operation Services Tourism Services
5.3.1.4 Other Services
Services that cannot be categorized in any of the sectors identified above shall be under other services.
34 5.3.2 The AIP Summary Form
The AIP Summary Form (Figure 6) is prescribed under DBM- NEDA-DILG-DOF JMC No, 1, Series of 2007 (Annex A), containing the following information:
5.3.2.1 AIP Reference Code (Column 1) - The AIP Reference Code is vital to the Plan-Budget Linkage process. The sectoral code classification is consistent with the NGAS/sectoral coding of the Commission on Audit, with its three (3) major sectors, including the five (5) sub-sectors under social services.
SECTOR CODE (Denoted by 4 digits) General Public Services Sector 1000 Social Services Sector 3000 Sub-Sector Education and Manpower Development 3000-100 Health, Nutrition and Population Control 3000- 200 Labor and Employment 3000- 300 Housing and Community Development 3000- 400 Social Security, Social Services and Welfare 3000-500 Economic Services Sector 8000 Other Services 9000
AIP Reference Coding
A sector is denoted by the first 4 digits 1000 to 9000 A program is denoted by a fifth digit in numerical order 1,2,3,4,5,6 as there are many programs in a particular sector. A Project/Activity is denoted by a sixth digit also in numerical order 1,2,3,4,5 as there are many projects/activities in a particular program.
Illustrative Example:
1000 1 1 Project/Activity - - Tax Mapping Program - - - - - - - Real Property Tax Administration Sector - - - - - - - - General Public Services 35
5.3.2.2 Program/Project/Activity Description (Column 2) - The PPA is a brief and concise description of the work to be done in a particular sector which includes both the short and long-term results of the program.
Example of PPAs under the Agricultural Services Program Extension and On-Site Research Services Demonstration/Farm Nurseries Operation of Farm Equipment Pool Quality Control of Agricultural Products Construction of Small Irrigation System
5.3.2.3 Implementing Office/Department (Column 3) - The Implementing Office/Department refers to the Office/Department responsible for implementing the PPAs and for delivering the services as mandated by the Local Government Code of 1991. The implementing Office/Department should be presented by sector.
5.3.2.4 Schedule of Implementation (Columns 4 and 5) - The implementation schedule is categorized by PPAs: 1) PPAs that are implemented regularly and 2) PPAs which have specific time frames for the starting dates (month/year) and completion dates (month/year).
Examples:
PPAs Implemented Regularly
Extension and On-site Research Services - January 2009 to December 2009 Operation of Demonstration Farm - January 2009 to December 2009
PPAs with a Time Frame
Construction of San Jose Irrigation Dam - April 2009 to November 2009.
5.3.2.5 Expected Outputs (Column 6) All PPAs to be implemented may have one or two MFOs or results (goods and services) to be produced. Each MFO, in turn, shall have 36 at least two (2) Performance Indicators that will serve as measures of change or development over the years. For example:
MFO: Agricultural Services PIs: Number of farmer beneficiaries Extension Services Percentage increase in harvest/production
5.3.2.6 Funding Source (Column 7) All PPAs described in the AIP shall have their corresponding funding sources ranked in the following order:
Specific Sources of Fund Tax revenue, non-tax revenue, other sources of revenue that accrue to the General Fund.
Financial Assistance/Aid from Other LGUs - consists of financial assistance, aid or grant from other local governments whose purpose is not defined or specified.
Financial Assistance/Aid from National Government Agencies (NGAs) - grants or subsidy from the national government which are released for a specific purpose or for the general operating requirements of the recipient LGU.
Loan Proceeds - receipts of funds coming from approved loans negotiated for a specific purpose, usually for infrastructure purposes or for the acquisition of heavy equipment.
5.3.2.7 Estimated Cost (Columns 8, 9, 10, and 11) - The total cost of the PPA is broken down into PS, MOOE, and CO.
For purposes of the AIP, the total PS and MOOE costs of a particular program or office, both line departments and administrative/legislative support services, shall represent the current operating cost for all regular activities. Costs which add to the fixed assets of the LGU are categorized as capital outlays.
37 Province/City/Municipality/Barangay:________________________ Prepared By: Attested by: Planning Of f icer/PLDC Budget Of f icer Local Chief Executive Date: Date: _____________ Date: _______________ Personal Services (PS) (8) FUNDING SOURCE (7) Social Services (30) Annex A Summary Form Capit al Out lay (CO) (10) TOTAL (11) General Public Services (10) Economic Services (80) STARTING DATE (4) COMLETION DATE (5) AMOUNT (in t housand pesos) Maint enance and Ot her Operat ing Expenses (MOOE) CY ______ Annual Investment Program (AIP) By Program/Project/Activity by Sector As of _______________________ AIP REFERENCE CODE (1) PROGRAM/ PROJECT/ ACTIVITY DESCRIPTION (2) IMPLEMENTING OFFICE/ DEPARTMENT (3) SCHEDULEOFIMPLEMENTATION EXPECTED OUTPUTS (6) The identification of the expected outputs, sources of funds and the breakdown of the costs by PS and MOOE is the responsibility of the LBO. The LPDC, on the other hand, shall be responsible for accomplishing the reference code, PPA description, and implementing office/department as well as implementation schedule.
Figure 6. The AIP Summary Form
6.0 The PPA Structure
The translation into specific budgetary language of development objectives, strategies and results are given flesh through the formulation and development of a PPA structure.
38 PROGRAM - a homogenous group of activities necessary for the performance of a major purpose for which the government agency is established, for the basic maintenance of the agencys administrative operations, or for the provision of staff support to the agencys administrative operations or the agencys line functions.
PROJECT - a special undertaking to be carried out within a definite time frame which is intended to result in some pre-determined measure of goods and services.
ACTIVITY - a work process designed to contribute to the accomplishment of specific objectives and the implementation of a program, sub- program, or project.
6.1 What is a PPA Structure?
A PPA structure consists of programs, projects and activities designed to achieve specific objectives or MFOs with corresponding Performance Indicators.
6.2 Samples of a PPA Structure
GENERAL PUBLIC SECTOR
PROGRAM: Public Order and Safety Policy Objectives: This program shall accomplish the following: Provide a safe, secure and peaceful community. Protect lives and property Expected Output: Low incidence of crime against persons and properties Zero casualty in man-made disasters PROJECTS: Purchase of patrol cars, fire trucks and firefighting equipment Conduct of training programs, security and safety drills for firemen and police officers ACTIVITIES: 24-hour police surveillance and monitoring activities Public awareness on peace and security measures Seminars, training and orientation courses for firemen and law enforcement officers
39
SOCIAL SECTOR
PROGRAM: Health
Policy Objectives: This program shall accomplish the following: Increase access to quality and affordable health services. Improve the knowledge and competency of public health personnel.
Expected Output: Increased number of patients diagnosed and treated for emergency and non-emergency cases Increased knowledge and competency skills of public health personnel
PROJECTS: Construction of additional health facilities Purchase of medical equipment . ACTIVITIES: Public health awareness activities Health care assistance Training of public health personnel on the latest medical technology
ECONOMIC SECTOR
PROGRAM: Agriculture
Policy Objectives: This program shall accomplish the following: Increase agricultural productivity by 15 percent. Accelerate agricultural income of marginalized farmers by 20 percent.
Expected Output: Increased production in agriculture Increased yield per hectare
PROJECTS: Construction of Irrigation Facilities
ACTIVITIES: Agricultural Extension in Palay Production Demonstration Farms Research Activities Training on New Farm Technologies
40 6.3 Review of Existing PPA Structure
Local budgeting shall include a periodic review (at least every three years) and evaluation of the PPA structure to determine the programs capacity to produce desired results. Performance indicators shall be identified in LGU budget proposals to serve as bases for measuring annual performance. The review of existing programs should ascertain the relevance of present operations to the wider policy objectives of the LGU as approved by the Local Sanggunian.
The review of the current PPA structure follows a process as shown in the diagram.
Figure 7. PPA Structure Review Process
6.4 Redesigning of Current PPA Structure
Current PPA structure found inconsistent with strategic policy objectives as planned shall be redesigned following these steps:
Step 1. Review the existing regular activities or projects of a specific program.
What are the objectives of the program? Are the projects/activities relevant to the mission? What are the output indicators of the program? Are the results consistent with program objectives? What activities/projects must be redesigned/abolished?
A AN NA AL LY YZ ZE E R RE ES SU UL LT TS S/ / O OU UT TP PU UT TS S O OF F P PP PA As s
S ST TA AT TU US S Q QU UO O
R RE ED DE ES SI IG GN N P PR RO OG GR RA AM M S ST TR RU UC CT TU UR RE E Relevant to or Consistent with
P PO OL LI IC CY Y O OB BJ JE EC CT TI IV VE ES S
Y YE ES S / / N NO O
D DE ET TE ER RM MI IN NE E C CA AU US SE E/ /S S I If f N NO O I If f Y YE ES S 41
Step 2. Design the proper organization structure that will best carry out the program objectives.
What are the tasks to be performed? What is the optimum number of personnel that can carry out the tasks efficiently and effectively? What qualifications are required of personnel to perform the tasks well?
Step 3. Redesign cost allocation and financial reporting systems to improve efficiency.
What projects/activities produce results relevant to the program objective? What are the relevant costs/inputs that produce results? What is the cost (direct/indirect) on a per unit of output? Is the output cost effective? What is the actual cost per activity/project for one semester? Are there variances between budget and actual cost? What is the actual output per activity/project? Are there variances between target output and actual results? Are the existing financial reporting systems useful for management decision-making purposes?
6.5 PPA Performance
The PPA structure is the primary link between the plan and budget. It should be understood, however, that the strength or weakness of this linkage depends on the efficiency, effectiveness, and quality of service delivery.
The review of PPA structures shall ensure that there is a clear policy statement of objectives that define the purpose of the program and the expected results to be used as basis in assessing performance.
42 7.0 Reforms in Local Government Budgeting
The major budget reform introduced in the national government in the late 1990s is the Public Expenditure Management (PEM) which is operationalized by two basic frameworks:
The Medium-Term Expenditure Framework (MTEF) and The Organizational Performance Indicator Framework (OPIF)
7.1 PEM reforms have been introduced/cascaded in local government budgeting in 2005 by giving focus to an output-based and policy- driven budget. PEM has three (3) basic outcomes aggregate fiscal discipline (living within means), allocative efficiency (spending on the right things), and operational efficiency (obtaining value for money).
7.1.1 MTEF One of the means to achieve the three basic outcomes of PEM is through MTEF which seeks to improve predictability of funding and to identify strategic funding priorities. It is both a top-down resource allocation approach (expenditures are driven by credible policy priorities and disciplined by reasonably projected revenues) and a bottom- up estimation of the medium-term (3 years) cost of existing policies of on-going PPAs. MTEF tries to link policies and plans with the Medium Term Development Plan and its 3- year expenditure program. It has two main components:
Forward Estimates (FEs) and Paper on Budget Strategy (PBS)
FE is a computation of the 3-year future costs of existing approved programs which are automatically rolled over into budgeting allocations on an annual basis. At the local level, this annual slice is the plan and budget integrated into the AIP.
PBS is a budget document that contains the status of the development priorities of government, the macroeconomic outlook, budget performance and the projected budget ceilings in the medium-term. It assists government to link policy priorities, budget allocations and budget performance to the preparation of the annual budget.
43
7.1.2 OPIF aims to account for outputs at the organization level/perspective to measure LGU performance. It is an expenditure management approach which allows the strategic allocation and direction of resources towards the achievement of desired outputs and results. It also provides a mechanism for specifying and documenting expected performance of each department/office in the LGU and establishing its accountability.
7.1.3 The OPIF Process
The process discussed here is not rigidly structured. It is simplified as an evolving process until it matures and becomes part of the organizational culture. The OPIF process includes the following:
Figure 8. The OPIF Process
7.1.4 The building of a logical framework (Logframe) is the first basic step in OPIF. It gives the LGU a clear and logical description why it exists, whom it will serve, what goods/services are to be provided, how services/goods will lead to the societal and sectoral goals. The formulation of the logframe is shown in the following analytical framework:
Formulation of a logical framework Formulation of MFOs Identification of PPAs Determination of Performance Indicators 44
7.1.5 The formulation of MFO is the key basic element of the OPIF. This means analyzing the agency/LGU mandate and determining the goods and services it is expected to deliver to its clients and understanding why the output is so.
7.1.6 Identification of PPAs constitutes the strategy for the delivery of MFOs. In this step, it is basic that the programs, projects and activities shall be established as directly connected and aligned to MFOs to determine which are directly relevant and contributory to MFO delivery. With budget allocated at the PPA level, expenditure may be integrated at the MFO targets.
7.1.7 Performance Indicators are units of measures that best represent the effectiveness and efficiency of a department/office in a LGU in the delivery of is MFO. It is also a measure to determine performance of a department/office. It is a means of measuring what actually happened against what has been planned in terms of quantity and quality. At the MFO level, the quantity question will refer to How much service/good did we deliver? while the quality question will refer to How well did we deliver it?
Other attributes integrated into the measures include:
accessibility and timeliness of the service delivery cost efficiency or cost of producing a unit of output
Performance Indicators should have the SMART attributes:
Specific (results the department/office is trying to achieve) Measurable (stated in quantifiable terms) Achievable (realistic or capable of being achieved) Relevant (logically related to the MFO) Time-bound (with specific target dates)
Performance Indicators should have the CREAM attributes:
Clear, precise, unambiguous Relevant, appropriate, timely Economic, available at reasonable cost Adequate, sufficient for performance assessment Monitorable, or can be independently measured
7.1.8 Suggested steps in determining Performance Indicators
1. Involve policy-makers, planners, financial managers and implementers in evolving relevant Performance Indicators for a particular MFO. Make process more interactive.
2. Develop Performance Indicators for MFOs before determining impact and outcome indicators. For budgeting concern develop Performance Indicators for MFOs, to be evaluated and measured on a regular basis (quarterly) to enable policy-makers to arrive at informed decision for strategic planning and prioritizing PPAs for resource allocation.
3. Develop Performance Indicators for impact and outcome. These are necessary to measure and validate organizational outcomes and confirm the sectoral and societal goals 46 Performance Indicators - . 7.1.9 Sample illustration of a department/office logframe. Logical Framework (Agriculture Office)
SOCIETAL GOAL
SECTORAL GOALS
ORGANIZATIONAL OUTCOMES
MFOs
PPAs
7.1.10 Sample illustration of an MFO and Performance Indicator
Office - Agricultural Office MFO - Agricultural Services Farmer beneficiaries served Percentage reduction in cost of agricultural inputs Percentage increase in wages of agricultural workers Percentage increase in export
Poverty Reduction and Improved Standard of Living Food Security Global Competitiveness Increased Rural Income Sustainable Development Increased agricultural production/ productivity Reduced cost of primary inputs Improved quality of agricultural products Increased employment in agriculture Research and Development Services Plans and Policies Development Services Agricultural Support Services Operation of Research Center for Agriculture Formulation of Plans and Policies Development Seed Production and Distribution 47 The core of the Manual is the updated Budget Process. The Manual attempts to integrate into the local budget process some budget reforms introduced at the national government level, e.g. the shift from an input-based budget to a policy-driven and output-based budget, preparation of local expenditure program and budget of expenditures and sources of financing in budget preparation, the use of the local budget matrix and allotment release order in budget execution, and evaluation of budget performance in budget accountability.
PART II. THE LOCAL BUDGET PROCESS
48
The Budget Process
The budget process in Local Government Units (LGUs) consists of five (5) phases. These are: (1) Budget Preparation; (2) Budget Authorization; (3) Budget Review; (4) Budget Execution; and (5) Budget Accountability.
These phases are all part of a continuing process as shown in the diagram below.
Figure 9. The Budget Process
BUDGET PREPARATION
BUDGET AUTHORIZATION
BUDGET ACCOUNTABILITY
BUDGET REVIEW
BUDGET EXECUTION
49
Chapter 1. Budget Preparation Phase
1.0 Introduction
2.0 Legal Basis of Budget Preparation
3.0 Key Players in Budget Preparation
4.0 The Budget Preparation Flow Chart
5.0 Steps in the Budget Preparation Phase Step 1. Issue the Budget Call What is a Budget Call? Why is the Budget Call Important? Conduct Budget Forum Step 2. Prepare and Submit Budget Proposals 2.1 Determine Expected Outputs for the Budget Year 2.2 Estimate Costs for the Budget Year 2.3 Prepare the Project Procurement Management Plan for the Budget Year Review and Consolidation of Budget Proposals Step 3. Conduct Budget Hearings and Evaluate Budget Proposals 3.1 Conduct Technical Budget Hearings 3.2 Evaluate Budget Proposals Step 4. Prepare the Local Expenditure Program (LEP) Legal Basis of the LEP Guidelines in the Preparation of the LEP Step 5. Prepare the Budget Message and Budget of Expenditures and Sources of Financing (BESF) Legal Basis of the Budget Message What is a Budget Message? Contents of the Budget Message How to Prepare the Budget Message Legal Basis of the BESF What is the BESF? Purposes of the BESF Step 6. Submit Executive Budget to the Sanggunian
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BESF Tables BESF Table No. 1 - Summary of Statement on Receipts and Expenditures BESF Table No. 2 - Estimated Expenditures by PPA and by Sector BESF Table No. 3 - Actual and Estimated Expenditure Program by Sector/Office BESF Table No. 4 - Staffing Summary BESF Table No. 5 - Summary Statement of Statutory and Contractual Obligations and Budgetary Requirements BESF Table No. 6 - Summary Statement of Long-term Obligations and Indebtedness 6.0 Local Budget Preparation Forms LBP Form No. 1 - Statement of Receipts LBP Form No. 2 - Statement of Receipts and Expenditures LBP Form No. 3 - Programmed Appropriation and Obligation by Object of Expenditure LBP Form No. 3A Consolidated Programmed Appropriation and Obligation by Object of Expenditure LBP Form No. 4 - Personnel Schedule LBP Form No. 5 - Functional Statements, Objectives and Expected Results LBP Form No. 6 - Statement of Debt Service LBP Form No. 7 - Statement of Statutory and Contractual Obligations and Budgetary Requirements LBP Form No. 8 - Statement of Fund Operation Supplemental Budget Preparation Forms LBP Form No. 9 - Certified Statement of Funding Sources LBP Form No. 10 - Statement of Supplemental Appropriation
7.0 Illustrative Example of a Budget Call
8.0 Illustrative Example of a Local Expenditure Program
9.0 Illustrative Example of a Budget Message
10.0 Technical Notes on Budget Preparation
51 The local chief executive shall prepare the executive budget for the ensuing fiscal year (Section 318, R.A. No. 7160).
Budget Preparation Phase
1.0 Introduction
The budget preparation is the first phase in the local budget process. It involves cost estimation per PPAs, preparation of budget proposals, executive review of budget proposals, and preparation of the Budget Message, Local Expenditure Program (LEP), and the Budget of Expenditures and Sources of Financing (BESF). The last three (3) documents comprise the Executive Budget. This phase starts with the issuance of Budget Call and ends with the submission of the executive budget to the Sanggunian on or before October 16 of each year.
2.0 Legal Basis
3.0 Key Players in Budget Preparation
3.1 Local Chief Executive The LCE shall prepare the executive budget for the ensuing fiscal year upon receipt of the statements of income and expenditure from the treasurer, the budget proposals from the heads of departments and offices, and the estimates of income and budgetary ceilings from the LFC. He shall submit the said executive budget to the Sanggunian concerned not later than the 16 th of October of the current fiscal year (Section 318, R.A. No. 7160).
3.2 Local Finance Committee The LFC composed of the LPDC, LBO, and the Local Treasurer shall, among others, have the following functions:
a. Determine the income reasonably projected as collectible for the ensuing fiscal year; b. Recommend the appropriate tax and other revenue measures or borrowings which may be appropriate to support the budget; 52 c. Recommend to the LCE the level of annual expenditures and ceilings of spending for economic, social, and general public services based on the approved local development plan; d. Recommend to the LCE concerned the proper allocation of expenditures for each development activity between current operating expenditures and capital outlays; and e. Recommend to the LCE concerned the amount to be allocated for capital outlay under each development activity or infrastructure project (Section 316, R.A. No. 7160).
3.3 Local Treasurer The Local Treasurer shall submit to the LCE a certified statement covering the income and expenditures of the preceding fiscal year, the actual income and expenditures of the first two (2) quarters of the current year, and the estimated income and expenditures for the last two (2) quarters of the current year (Section 315, R.A. No. 7160).
3.4 Local Budget Officer - The LBO shall review and consolidate the budget proposals of different departments and offices of the LGU. Assist the LCE in the preparation of the budget and during budget hearings (Section 475 [b (2-3)], R.A. No. 7160).
He shall prepare the draft Budget Message, the LEP, and the BESF in coordination with the other members of the LFC prior to the submission of said documents to the LCE.
3.5 Local Planning and Development Coordinator The LPDC shall analyze the income and expenditure patterns, and formulate and recommend fiscal plan and policies for consideration of the finance committee of the LGU (Section 476 [6], R.A. No. 7160).
3.6 Local Accountant The Local Accountant, jointly with the Local Treasurer, shall certify all statement of income and expenditures of the preceding fiscal year, the actual income and expenditures of the first two (2) quarters of the current year and the estimated income and expenditure for the last two (2) quarters of the current year (Article 411, IRR of R.A. No. 7160).
The Local Accountant may, by virtue of an Executive Order of the LCE, be added as a member of the LFC in order for the Committee to come up with an accurate data on actual income and expenditures. 53 3.7 Heads of Departments and Offices The Heads of Departments and Offices shall submit budget proposals for their respective departments or offices to the LCE thru the LFC on or before the 15 th of July of each year. Said budget proposal shall be prepared in accordance with the AIP, and guidelines and spending ceilings contained in the Budget Call and the other general requirements prescribed under Section 317 of R.A. No. 7160.
4.0 The Budget Preparation Flow Chart
The budget preparation flow chart below (Figure 10) shows the sequence of activities in preparing the executive budget for the budget year.
Figure 10. The Budget Preparation Flow Chart
CONDUCT BUDGET FORUM PREPARE AND SUBMIT BUDGET PROPOSALS START END ISSUE THE BUDGET CALL CONDUCT BUDGET HEARING PREPARE THE LEP PREPARE BUDGET MESSAGE AND BESF SUBMIT EXECUTIVE BUDGET TO THE SANGGUNIAN June 5 October 10 July 5 July 15 August 15 September 30 October 16 ACTIVITY INDICATIVE SCHEDULE LCE LCE/LFC Department Heads OFFICIALS RESPONSIBLE Department Heads
LCE/LFC LCE/LFC LCE/LFC LCE
REVIEW AND CONSOLIDATE BUDGET PROPOSALS LBO
54 5.0 Steps in the Budget Preparation Phase
There are six (6) steps in Budget Preparation:
Step 1. Issue the Budget Call
The Budget Call signals the start of the budget preparation phase. This executive directive is prepared based on the approved AIP.
Embodied in the Budget Call are the spending ceilings, resource allocation scheme or fiscal policy decisions, objectives, strategies, priority PPAs and expected results. These are explained in budget workshops or fora prior to the preparation of budget proposals.
Departments and Offices of the LGU shall be guided by the policies, ceilings and proposed targets embodied in the Budget Call in the cost estimation of their proposals.
Budget Proposals are reviewed as to their consistency with the AIP and the Budget Call.
What is a Budget Call?
A Budget Call is a directive from the LCE that contains the general objectives, specific sectoral objectives, policy decisions, strategies, and prioritized PPAs by sector/office as reflected in the AIP. It provides specific guidelines in the preparation of individual budget proposals:
Expenditure ceiling by sector/office Allocation scheme by MFO and PPA Budget calendar and budget preparation forms Other administrative guidelines
This directive shall be issued between June 15 and June 30 to allow more time for the Department Heads to formulate reasonable proposals for the budget year.
Why is the Budget Call Important?
The Budget Call is important because:
It provides a venue for aligning the budget with the approved AIP; 55 It describes guidelines to be observed in the preparation of budget proposals; It focuses on the specific outputs or outcomes aimed to be attained through the budget for the year; It firms up policy decisions on how the budget shall be financed; and It prescribes the budget preparation schedule and forms.
An illustrative example of a Budget Call is shown on pages 88-91.
Conduct Budget Forum
A one-day forum on the Budget Call for all Department Heads is necessary to explain the following:
Specific objectives for the budget year, major thrusts and policy directions; Sources of income for the past three (3) years; Major assumptions used in estimating the income for the budget year; and Spending ceilings and budget strategies.
The Budget Forum shall be initiated by the LFC and coordinated by the LBO, with the following topic assignments:
Objectives and Targets for the Budget Year - LPDC Income Estimates and Sources of Income for the Budget Year - Local Treasurer Spending Ceilings and Budget Strategies - LBO Budget Policies for the Budget Year - LCE
Step 2. Prepare and Submit Budget Proposals
The budget proposals are prepared by the department heads and submitted to the LBO for review and consolidation. There are two (2) factors to consider in preparing the budget proposal for the budget year:
The objectives and expected outputs; and The cost estimates within budgetary ceilings.
56 2.1 Determine Expected Outputs for the Budget Year
The specific objectives or expected outputs for the budget year shall be based on the MFOs and Performance Indicators of a particular department/office. These are likewise found in the approved AIP for the budget year. A review of the MFOs and Performance Indicators on a per PPA basis shall be undertaken to determine the contribution of the PPAs to the expected outputs for the budget year.
2.2 Estimate Costs for the Budget Year
There are two primary costs to be estimated for the budget year: the current operating expenditures and the capital outlays. Current operating expenditures refer to the costs of providing services/delivering goods to target clientele or service area primarily for the implementation of the regular activities of the department or office. Capital outlay costs refer to the costs of procuring civil works projects or the acquisition of equipment to facilitate or enhance delivery of goods or services.
2.3 Prepare the Project Procurement Management Plan (PPMP) for the Budget Year
The preparation of the PPMP should be guided by the expected outputs and cost estimates embodied in the approved AIP. The PPMP is prepared simultaneously with the budget proposal to provide details on the mode of and schedule of procurement, technical description and specifications of the goods, equipment and civil works to be procured and their proposed budgets. This plan is an important factor in determining and projecting the quantity and quality of the expected outputs of the PPAs.
Review and Consolidation of Budget Proposals
The LBO shall review budget proposals as to their consistency with the policies set forth in the budget call and compliance with the budgetary requirements, general limitations and other provisions under R.A. No. 7160. Budget proposals not in conformity with the policies and guidelines shall be returned for revision.
All budget proposals shall be consolidated by the LBO for submission to the LFC to be used in the conduct of budget hearings. 57
Step 3. Conduct Budget Hearings and Evaluate Budget Proposals
The hearing and evaluation of budget proposals shall follow these sub- steps:
3.1 Conduct technical budget hearings
The purpose of technical budget hearings is to rationalize the existence of the department/office and to validate the expected outputs and cost estimates for the budget year. This should be conducted for at least ten (10) working days (August 15 to 25).
3.2 Evaluate budget proposals
The members of the LFC shall evaluate all budget proposals using the output and cost criteria. The proposal shall provide enough basis to establish that outputs can be accomplished vis--vis the funding allocation for the purpose.
Step 4. Prepare the LEP
The first major document of the executive budget to be prepared is the LEP.
Guidelines in the Preparation of the LEP
4.1 The first part of the LEP is the receipts program. The income structure shall cover the immediate past year, the current year, and the budget year.
Beginning Cash Balance shall be net of amounts earmarked for specific purposes (e.g., continuing appropriations, 20% Development Fund). Legal Basis
Local government budgets shall primarily consist of two (2) parts, namely, the estimates of income; and the proposed appropriations covering the current operating expenditures and capital outlays (Section 314[a], R.A. No. 7160).
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Receipts sources These are generated from LBP Form Nos. 1 and 2.
Local (Internal) Sources 1. Tax Revenue 2. Non-Tax Revenue External Sources 1. Shares from National Internal Revenue Taxes (IRA) 2. Share from GOCCs 3. Other shares from National Tax Collection 4. Extraordinary Receipts 5. Inter-local transfers 6. Capital/investment receipts Receipts from loans and borrowings
Other Sources of Revenue
Any proposed measure/s to increase the income of the LGU shall be subject to approval by the Sanggunian. These new revenue measures may include the following:
New or additional local taxes, charges, fees, fines or penalties Loan proceeds (to finance capital projects).
4.2 The second part of the LEP is the expenditure program. The details of the expenditure program shall be presented by sector, department or office, special purpose appropriations, PPA, and expense class for a three year period (past year, current year, budget year). Each department or office shall have the following presentation of the expenditure program:
Functional statement, objectives and expected results. Each department or office shall present, by PPA, the programs and functions under its present mandate.
The program structure shall reflect the expected outputs and Performance Indicators for each PPA since it is the key result area and responsibility center (Please refer to LBP Form No. 5 on page 80).
59 Proposed new appropriations language for the budget year. This is presented by PPA and the corresponding budget requirements are broken down by expense class. (Please refer to LBP Form No. 5 on page 80).
Information on personnel to be hired on casual or contractual basis shall also be included. The number of personnel and their respective salaries shall be disclosed to determine the overall salaries and wages of a department or office (Please refer to LBP Form No. 4 on page 79).
Special Provisions. Policies on the use of funds, specific purpose/s or expected outputs and measures to reduce cost shall be provided after the presentation of the expenditure program for each department or office.
4.3 Special Purpose Appropriations shall be provided for the following purposes:
Appropriation for Development Projects - 20% of IRA (Section 287, R.A. No. 7160)
Appropriation for Unforeseen Expenditures Arising from the Occurrence of Calamities - 5% of regular income (Section 324 [d], R.A. No. 7160)
Appropriation for Debt Service Not exceeding twenty percent (20%) of the regular income (Section 324 [b], R.A. No. 7160)
Budgetary Support to Local Economic Enterprises/Public Utilities (Section 313, R.A. No. 7160)
Aid to Barangays (Section 324 [c], R.A. No. 7160 )
Other authorized special purpose appropriations
The presentation of the Special Purpose Appropriation shall follow a similar sequence as the department or office expenditure program except the staffing and compensation profile where there are no personnel and office to operate.
60 A Special Provision shall also be included to provide guidelines in the use of the fund pursuant to existing accounting, budgeting and auditing rules and regulations.
For easy monitoring and evaluation of fund utilization, the LFC shall formulate the guidelines on the release and use of Special Purpose Appropriations under the Needing Clearance of the Local Budget Matrix.
The LCE shall be responsible for the execution of Special Purpose Appropriations.
4.4 The fourth part of the LEP, the General Provisions, includes guidelines on receipts, income and expenditure policies.
Explicit provisions on the manner and procedure for revenue generation and utilization shall be provided as guideposts for avoiding delays in the implementation of development projects and activities.
General guidelines, for example, on the treatment of income coming from the operation of local economic enterprises and public utilities, shall be clearly provided.
The LEP shall also provide guidelines on the expenditure side, specifically for personal services and all other personnel benefits, for maintenance and other operating expenses, and for capital outlays.
These guidelines shall be supported by rules and policies coming from oversight agencies like the COA, the CSC, the DBM and the DILG.
4.5 The last part of the LEP is a Summary of the Fiscal Year New Appropriations by Department/Office and Special Purpose Appropriations. It reflects the total proposed budget for the budget year.
The LEP shall be the material document for deliberation by the Sanggunian. It shall serve as part of the appropriations bill to be submitted to the Sanggunian for authorization or legislation.
An illustrative example of LEP is shown on pages 92-98. 61 Step 5. Prepare the Budget Message and Budget of Expenditures and Sources of Financing
What is a Budget Message?
A Budget Message is a summary of the proposed executive budget prepared by the LCE highlighting the following:
Previous Years Fiscal Performance Development Goals and Objectives Policy Thrusts Priority PPAs Estimates of Income and Sources Thereof Major Items in the Expenditure Program Expected Outputs
Contents of the Budget Message
The Budget Message provides justification for the policy decisions contained in the proposed executive budget. It should include, among others, the following:
Proposed budget by sector, office and expenditure class;
Justification for the need to expand (increased number of beneficiaries) without sacrificing quality of service delivery;
Identification of new/additional beneficiaries if service delivery is expanded; and
Justification statements for new PPAs to be implemented during the budget year.
Legal Basis
The budget document shall contain A budget message of the local chief executive set forth in brief the significance of the executive budget, particularly in relation to the approved local development plan. (Section 314 [b], R.A. No. 7160) 62
How to Prepare the Budget Message
5.1 Present the objectives, policies, strategies, and priority programs/projects activities of the LGU for the budget year and relate their consistency with the proposed revenue and expenditure structure.
Explain the program thrusts and the justification or reasons why resources have to be focused on said programs.
Include with the justification the expected results of the projects and activities that will rationalize budget allocation and accountability.
5.2 Identify the flagship projects by sector and by program and relate how they are envisioned to carry out the development goals for the next three (3) years.
5.3 Review the past five (5) years revenue and expenditure patterns and disclose what basic services and facilities were provided.
Present in simple graphs or charts the income trend and expenditure pattern showing what results or output were produced during the period.
5.4 Discuss the current years income and expenditure performance and disclose any improvements in the production of results as compared with those during the past five (5) years.
5.5 Disclose service gaps to show the inability of the LGU to deliver basic services. This may be used as a major justification for proposals to expand the budget for a sector/office.
Show the analysis in graphical form: The comparison of performance for the last five (5) years vis--vis the performance for the current year.
Discuss and explain policy decisions that will improve service delivery in terms of quality, quantity, and 63 Legal Basis
The budget document shall contain a summary of financial statements setting forth the following:
The actual income and expenditures during the immediately preceding year;
The actual income and expenditures for the first two (2) quarters and the estimates of income and expenditures for the last two (2) quarters of the current fiscal year;
The estimates of income for the ensuing fiscal year from ordinances and laws existing at the time the proposed budget is transmitted, together with other revenue-raising proposals;
The estimated expenditures necessary to carry out the functions, projects and activities of the local government unit for the ensuing fiscal year;
All essential facts regarding the bonded and other long-term obligations and indebtedness of the local government unit, if any;
Summary statement of all statutory and contractual obligations due; and
Such other financial statements and data as are deemed necessary or desirable to disclose in practicable detail the financial condition of the local government unit (Section 314 [b(3)], R.A. No. 7160).
timeliness criteria. Relate the funding to the issues being resolved by the proposed spending policies.
Summarize the goods and services to be delivered for the budget year. These are the expected results of the budget designed to close the service gaps.
An illustrative example of a Budget Message is shown on pages 99-103.
Budget of Expenditures and Sources of Financing
64 What is the BESF?
The Budget of Expenditures and Sources of Financing or BESF is a detailed and graphical presentation of the expenditure program of an LGU covering actual obligations for the past year, actual and estimated expenditures for the current year, and the proposed budget program for the ensuing year. The sources of financing the expenditure program for the budget year are also disclosed to show how the past, current, and proposed budget are financed by the LGU.
The BESF shall be prepared by the LFC to be approved by the LCE.
Purposes of the BESF
Provide a three-year comparative data of the income/receipts and expenditure program by sector, department/office, and expense class.
Disclose the extent of compliance of the LGU with the budgetary requirements.
Disclose the LGUs compliance with statutory and contractual obligations.
Provide information on the sources of financing the expenditure program for the three-year period.
Provide information on the capacity of the LGU to service its long-term obligations and indebtedness.
Step 6. Submit Executive Budget to the Sanggunian not later than the 16 th of October of the current year (Section 318, R.A. No. 7160).
BESF Tables BESF Table No. 1
SUMMARY STATEMENT OF RECEIPTS AND EXPENDITURES 65 (In 000 Pesos) Particulars Account Code
Past Year (Actual) Current Year Budget Year (Estimate) Total (Actual) (Estimate) Total (1) (2) (3) (4) (5) (6) (7) (8) I. Beginning Cash Balance
II. Receipts: A. Local Sources 1. Tax Revenue a. Real Property Tax b. Special Education Tax
c. Other Local Taxes
Total Tax Revenue
2. Non-Tax Revenue a. Regulatory Fees 1. License Fees 2. Permit Fees 3. Other Fees b. Business and Service Income
c. Other Income/Receipts Total Non-Tax Revenue
B. External Sources
1. Shares from National Internal Revenue Taxes (IRA)
2. Share from GOCCs 3. Other Shares from National Tax Collections
a. Share from Ecozone b. Share from EVAT c. Share from National Wealth d. Share from Tobacco Excise Tax
4. Extraordinary Receipts a. Grants and Donations b. Other Subsidy Income
5. Inter-local Transfers
a. Subsidy from LGUs
b. Subsidy from Other Funds 6. Capital/Investment Receipts a. Gain on Sale of Assets b. Gain on Investments C. Receipts from Borrowings Total Receipts
Total Available Resources for Appropriation (I II)
III. Expenditures 1.0 Current Operating Expenditures
1.1 Personal Services Salaries and Wages Regular Salaries and Wages Others ______________________ ______________________
1.2 Maintenance and Other Operating Expenses Travel Expenses
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BESF Table No. 2
ESTIMATED EXPENDITURES BY PPA AND BY SECTOR (In 000 Pesos) Programs/Projects/Activities Office/ Department Budget Year (Estimate) (1) (2) (3) Training and Scholarship Expenses ______________________ ______________________
2.0 Capital Outlay
Buildings and Other Structures Office Equipment Land Transport Equipment ______________________ ______________________
3.0 Financial Expenses
Total Expenditures
Ending Balance [(I+II)-III] INSTRUCTIONS
BESF Table No. 1 summarizes actual and estimated receipts coming from all sources (tax and non-tax revenue) and actual and estimated expenditures by allotment class. This table reflects how the past, current, and budget year expenditures are financed. It also discloses balances in income/receipts, if there are any, that were not appropriated during the year. Data for this form shall be taken from LBP Form Nos. 1 and 3A.
Beginning cash balance shall be net of amounts earmarked for specific purposes {e.g., continuing appropriations, 20% Development Fund, payables, others (restricted funds)}.
A separate BESF Table No. 1 shall be prepared for local each economic enterprise/public utility, if applicable.
67 1. General Public Services Sector Program Activity 1 Activity 2 Project 1 Project 2
Sub-Total 3. Social Services Sector Program Activity 1 Activity 2 Project 1 Project 2
Sub-Total 4. Other Services Sector Program Activity 1 Activity 2 Project 1 Project 2
Sub-Total T O T A L
INSTRUCTIONS
BESF Table No. 2 shall reflect the proposed expenditures by program, project, activity within a sector and by office/department. The classification of PPAs that should fall within a sector shall follow these guidelines:
1. General Public Services Sector- All PPAs that provide planning, financial, administrative, legal and legislative services to the front-line services of the LGU shall be categorized within this sector. 2. Economic Services Sector- All PPAs directed towards promoting growth in the economy, using all factors in production, like increasing productivity in agriculture and all other industries, generating employment and other livelihood projects, shall fall within this sector. 3. Social Services Sector- All PPAs that promote the well-being and general welfare of constituents or people like education, health, public safety, and protection of the marginalized and disadvantaged members of society, shall be classified within this sector. 4. Other Services - PPAs that cannot be categorized in any of the sectors identified above
It is possible that a PPA may not be categorized under either social or economic services sector. In cases like this, it is safest to classify it under the general public services sector.
Data for this form shall be taken from LBP Form No. 5.
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TOTAL
BESF Table No. 3
ACTUAL AND ESTIMATED EXPENDITURE PROGRAM BY SECTOR/OFFICE (Three (3)-Year Period) (In 000 Pesos)
Sector/Office Past Year Current Year Budget Year (1) (2) (3) (4)
General Public Services ______________ ______________ Economic Services ______________ ______________ Social Services ______________ ______________
Other Services ______________ ______________
INSTRUCTIONS
BESF Table No. 3 classifies expenditure by sector and the implementing offices within the sector using BESF Table No. 2 as a guide. Data here show comparative figures in magnitudes for the past year (Actual) current year (Actual and Estimated) and for the budget year (Estimated). It is possible that an office or department may appear in two or more sectors, like the engineering office where it provides infrastructure services to all sectors. It is all right for as long as the total amount shall not exceed the appropriations for the whole office. Other Services Sector are services that cannot be categorized in any of the sectors identified above.
Data for this form shall be taken from LBP Form Nos. 3, 5 and 8.
69 BESF Table No. 4
STAFFING SUMMARY
Particulars Past Year (Actual) Current Year (Actual) Budget Year (Proposed) No. Salaries & Wages No. Salaries & Wages No. Salaries & Wages (1) (2) (3) (4) (5) (6) (7)
A. Permanent Positions (Filled)
1. Key Positions with RATA
2. Other Technical Positions
3. Administrative Positions
Total: Filled Permanent Positions
Add: Unfilled Authorized Positions
TOTAL: Permanent Positions
B. Non-Permanent Positions (Filled)
1. Contractual
2. Casual/Emergency
Total: Filled Non-Permanent Position
Add: Unfilled Non-Permanent Positions
TOTAL: Non-Permanent Positions
Total Permanent/Non-Permanent Positions
INSTRUCTIONS
BESF Table No. 4 provides information on the staffing complement of the LGU. It segregates permanent positions into key, technical, administrative positions. These data are important in evaluating whether the LGU is under or over staffed as reflected in the number of non-permanent positions. The comparative data for three (3) years will show the number and salaries and wages of authorized and proposed positions for the current and budget years, respectively.
Data for this form shall be taken from LBP Form No. 4.
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BESF Table No. 5
SUMMARY STATEMENT OF STATUTORY AND CONTRACTUAL OBLIGATIONS AND BUDGETARY REQUIREMENTS (In 000 Pesos)
Particulars Basis of Computation Computed Amount (1) (2) (3)
1. Statutory and Contractual Obligations 1.1 Contribution of LGUs in NCR to MMDA (R.A. No. 7924) 1.2 Prior Years Obligation (if any)
1.3 Terminal Leave and Retirement Gratuity Benefits (compulsory retirement age/end of term for elective officials) 1.4 Debt Service
Regular income only X 5% Appropriation Ordinance Service Record
Should not exceed 20% of regular income for BY
2. Budgetary Requirements 2.1 20% of IRA for Development Fund
2.2 5% Calamity Fund
2.3 Financial Assistance to Barangays (P1,000 minimum aid)
IRA for the budget Year X 20% Regular income for BY X 5% No. of barangays in a particular LGU X P1000
T O T A L
BESF Table No. 6
SUMMARY STATEMENT OF LONG-TERM OBLIGATIONS INSTRUCTIONS
BESF Table No. 5 shall disclose relevant data on the computation of mandatory obligations of the LGU. Any deficiencies reflected herein shall be corrected at once to show compliance with R. A. No. 7160. A separate schedule to show actual computation may be done by the LGU to advocate the principle of transparency.
Data for this form shall be taken from LBP Form No. 7.
71 AND INDEBTEDNESS (In 000 Pesos)
Creditor Date Contracted Term Amount Previous Payment Amount Due BY Balance Interest Principal Total Interest Principal Total Interest Principal Total (1) (2) (3) (4) (5) (6) (7) (8) (9) (10) (11) (12) (13)
T O T A L
6.0 LOCAL BUDGET PREPARATION FORMS
LBP Form No. 1 INSTRUCTIONS
BESF Table No. 6 shows the capacity of the LGU to service its debt, reflecting thereat the amount to be paid as provided in R.A. No. 7160. The period covered includes previous payments for the past and current years to show how much more is to be paid for the budget year and next coming years which are within the debt service cap.
Data for this form shall be taken from LBP Form No. 6
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STATEMENT OF RECEIPTS __________________________ Province/City/Municipality
General Fund
Particulars Account Code Income Classification Amounts Past Year (Actual) Current Year (Estimate) Budget Year (Proposed) (1) (2) (3) (4) (5) (6) I. Beginning Cash Balance
II. Receipts:
A. Local (Internal) Sources
1. Tax Revenue
a. Real Property Tax
b. Special Education Tax
c. Other Local Taxes
Total Tax Revenue
2. Non-Tax Revenue
a. Regulatory Fees
1. License Fees
2. Permit Fees
3. Other Fees
b. Business and Service Income
c. Other Income/Receipts
Total Non-Tax Revenue
B. External Sources
1. Shares from National Internal Revenue Taxes (IRA)
2. Share from GOCCs
3. Other Shares from National Tax Collections
a. Share from Ecozone
b. Share from EVAT
c. Share from National Wealth
d. Share from Tobacco Excise Tax
4. Extraordinary Receipts
a. Grants and Donations
b. Other Subsidy Income
5. Inter-local Transfers
a. Subsidy from LGUs
b. Subsidy from Other Funds
6. Capital/Investment Receipts
a. Gain on Sale of Assets
b. Gain on Investments
C. Receipts from Loans and Borrowings
Total Receipts
Total Available Resources for Appropriation
Continuation of LBP Form No. 1
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We hereby certify that the foregoing estimated receipts are reasonably projected as collectible for the Budget Year.
_________________ _____________________ ___________________ LOCAL TREASURER LOCAL BUDGET OFFICER LOCAL PLANNING AND DEVELOPMENT COORDINATOR
Approved by:
______________________ LOCAL CHIEF EXECUTIVE
LBP Form No. 2 INSTRUCTIONS
This form is intended to reflect the following:
Column 1 Indicate receipts by major source. Beginning cash balance shall be net of amounts earmarked for specific purposes {e.g., continuing appropriations, 20% Development Fund, payables, others (restricted funds)}.
Column 2 Indicate the account code for each itemized receipt using the Chart of Accounts prescribed by COA.
Column 3 Indicate for each receipt the letter R if the receipt is classified as regular or NR if non-regular.
Column 4 Indicate past years actual receipts. The past years and the first two quarters of the current years actual receipts shall be jointly certified by the Local Treasurer and the Local Accountant.
Column 5 Indicate current years estimated receipts. The current years estimated receipts shall be prepared by the Local Budget Officer.
Column 6 Indicate budget years projected receipts. The budget years estimated receipts shall be the income reasonably projected as collectible for the ensuing fiscal year as the LFC may determine.
A separate LBP Form No. 1 shall be prepared for each local economic enterprise/public utility.
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STATEMENT OF RECEIPTS AND EXPENDITURES __________________________ Province/City/Municipality
General Fund Particulars Account Code Past Year (Actual) CURRENT YEAR APPROPRIATION First Semester (Actual) Second Semester (Estimate) TOTAL (1) (2) (3) (4) (5) (6) I. Beginning Cash Balance
II. Receipts
A. Local Sources
1. Tax Revenue
a. Real Property Tax
b. Special Education Tax
c. Other Local Taxes
Total Tax Revenue
2. Non-Tax Revenue
a. Regulatory Fees
1. License Fees
2. Permit Fees
3. Other Fees
b. Business and Service Income
c. Other Income/Receipts
Total Non-Tax Revenue
B. External Sources
1. Share from National Internal Revenue Taxes (IRA)
2. Shares from GOCCs
2. Other Shares from National Tax Collections
a. Share from Ecozone
b. Share from EVAT
c. Share from National Wealth
d. Share from Tobacco Excise Tax
4. Extraordinary Receipts
a. Grants and Donations
b. Other Subsidy Income
5. Inter-local Transfers
a. Subsidy from LGUs
b. Subsidy from Other Funds
6. Capital/Investment Receipts
a. Gain on Sale of Assets
b. Gain on Investments
C. Receipts from Loans and Borrowings
Total Receipts ( I + II )
Continuation of LBP Form No. 2
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III. Expenditures
A. General Public Services
B. Economic Services
C. Social Services
D. Other Services TOTAL EXPENDITURE
IV. Ending Balance ( I = II ) - III
Certified Correct:
____________________ _________________________ _________________________ LOCAL TREASURER LOCAL BUDGET OFFICER LOCAL ACCOUNTANT
Approved:
________________________ LOCAL CHIEF EXECUTIVE
INSTRUCTIONS
This form is intended to reflect the following:
Column 1 Indicate receipts by major source. Beginning cash balance shall be net of amounts earmarked for specific purposes (e.g., continuing appropriations, 20% Development Fund).
Column 2 Indicate the account code for each itemized receipt using the Chart of Accounts prescribed by COA.
Column 3 Indicate past years actual receipts and expenditures. The past years and the first two quarters of the current years actual receipts and expenditures shall be jointly certified by the Local Treasurer and the Local Accountant.
Columns 4, 5 and 6 Indicate current years estimated receipts and expenditures, as follows: first semester actual receipts and expenditures jointly certified by the Local Treasurer and the Local Accountant second semester estimated receipts and expenditures prepared by the Local Budget Officer
Prepare the same form for each local economic enterprise/public utility.
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LBP Form No. 3
PROGRAMMED APPROPRIATION AND OBLIGATION BY OBJECT OF EXPENDITURE
OFFICE / SPECIAL PURPOSE APPROPRIATIONS:
Object of Expenditure Account Code Past Year (Actual) Current Year (Estimate) Budget Year (Proposed) (1) (2) (3) (4) (5)
1.0 Current Operating Expenditures
1.1 Personal Services Salaries and Wages Regular Salaries and Wages Others ______________________ ______________________
1.2 Maintenance and Other Operating Expenses Travel Expenses Training and Scholarship Expenses ______________________ ______________________
2.0 Capital Outlay
Buildings and Other Structures Office Equipment Land Transport Equipment ______________________ ______________________
3.0 Financial Expenses
Total Appropriations
Prepared: Reviewed: Approved:
_________________ ____________________ ____________________ Department Head Local Budget Officer Local Chief Executive
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PROGRAMMED APPROPRIATION AND OBLIGATION BY OBJECT OF EXPENDITURE
INSTRUCTIONS
This form is intended to reflect the following:
Column 1 Indicate the applicable Objects of Expenditures.
Indicate under Financial Expenses whether the amounts represent bank charges, interest expense, commitment charges, documentary stamp expense and other financial charges, losses incurred relative to foreign exchange transactions and debt service subsidy to GOCCs consistent with NGAS.
Column 2 Indicate account code using the Chart of Accounts as prescribed by COA.
Column 3 Indicate the actual amounts incurred in the Past Year per column (3) of LBP Form No. 2.
Column 4 Indicate the estimated amounts for the current year per Column (6) of LBP Form No. 2.
Column 5 Indicate the proposed amounts to be appropriated.
Prepare the same form for each local economic enterprise/public utility.
The Local Budget Officer shall prepare a summary for all offices using this form.
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LBP Form No. 3A
CONSOLIDATED PROGRAMMED APPROPRIATION AND OBLIGATION BY OBJECT OF EXPENDITURE
SUMMARY FOR ALL OFFICES / SPECIAL PURPOSE APPROPRIATIONS:
Object of Expenditure Account Code Past Year (Actual) Current Year (Estimate) Budget Year (Proposed) (1) (2) (3) (4) (5)
4.0 Current Operating Expenditures
1.1 Personal Services Salaries and Wages Regular Salaries and Wages Others ______________________ ______________________
1.2 Maintenance and Other Operating Expenses Travel Expenses Training and Scholarship Expenses ______________________ ______________________
5.0 Capital Outlay
Buildings and Other Structures Office Equipment Land Transport Equipment ______________________ ______________________
6.0 Financial Expenses
Total Appropriations
Prepared: Reviewed: Approved:
_________________ ____________________ ____________________ Department Head Local Budget Officer Local Chief Executive
This form is intended to reflect the summary of Programmed Appropriation and Obligation by Object of Expenditure for all offices as reflected in LBP Form No. 3 79
LBP Form No. 4
PERSONNEL SCHEDULE Budget Year : ______________ Province/City/Municipality: ___________________ OFFICE:
Item Number Position Title Name of Incumbent Current Year Authorized Rate/Annum Budget Year Proposed Rate/Annum Increase/ Decrease SG/ Step Amount SG/ Step Amount (1) (2) (3) (4) (5) (6) (7) (8)
Prepared: Reviewed:
_________________________________ __________________ Human Resource Management Officer Local Budget Officer
Approved:
___________________ Local Chief Executive
INSTRUCTIONS
This form is intended to reflect the following:
Column 1 - The item number. Columns 2 and 3 - The position title and the name of the incumbent occupying each position. If the position is unfilled, indicate the word vacant. If the position is proposed for abolition, bracket the old item number, position title, and the authorized salary for the current year. If the position is proposed for reclassification, bracket the previous position title and indicate the proposed position title below it. Columns 4 and 5 - For the authorized salary for the current year. Indicate the circular implemented and the salary grade/step and rate per annum of each position. For initial implementation/changes in approved PAL, attach copy thereof. Columns 6 and 7 - For the proposed salary for the budget year. Indicate the salary grade/step and rate per annum of each position.
Column 8 - The proposed salary increase/decrease is the difference between the old and new rates of compensation per annum for the budget year.
Prepare the same form for each local economic enterprise/public utility. 80
LBP Form No. 5
FUNCTIONAL STATEMENTS, OBJECTIVES and EXPECTED RESULTS Department/Office :____________________ Budget Year_________________
I. FUNCTIONAL STATEMENTS _____________________________________________________________________ _____________________________________________________________________ II. OBJECTIVES _____________________________________________________________________
III. PROGRAMS/PROJECTS/ACTIVITIES Reference Code Program/Project /Activity Description Cost (000) Performance/ Output Indicator Annual Targets Implementation Schedule FROM TO (1) (2) (3) (4) (5) (6) (7)
Prepared: Reviewed: Approved: __________________ ___________________ _____________________ Department Head Local Budget Officer Local Chief Executive
Reviewed as to consistency with approved AIP.
INSTRUCTIONS
Summarize briefly the function of the Department/Office in outline or capsulized statement. The mandate of the office should be clearly described.
Specify the objectives of the office for the budget year.
Part III contains the following: Column 1 - Indicate in the AIP Reference Code for the specific PPA to be implemented for the budget year. Column 2 - Describe briefly the PPA to be implemented. Column 3 - Indicate the proposed funding for the PPA. Column 4 - Specify the expected output of the PPA in terms of performance indicators, e.g., number of children provided pre-education, kilometers of road cemented. Column 5 - Specify the quantity, quality and timeliness of PPA in terms of targets. Columns 6 and 7 - Indicate the start and completion of the PPA within the year.
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LBP Form No. 6
STATEMENT OF DEBT SERVICE Budget Year : ____________________ Province/City/Municipality:_________________ FUND/SPECIAL ACCOUNT:
Creditor Date Contracted Term Principal Amount Previous Payments Made Amount Due (Budget Year) Balance of the Principal Principal Interest Total Principal Interest Total (1) (2) (3) (4) (5) (6) (7)
T O T A L
Certified Correct: Noted:
________________ ___________________ Local Accountant Local Chief Executive
INSTRUCTIONS
This form is intended to reflect the following:
Column 1 - Full name of creditors with their corresponding addresses under each fund/special account and under each office.
Column 2 - Date when the obligation is incurred
Column 3 Period (months/years) within which to pay the loan.
Column 4 Principal amount of the loan.
Column 5 Total payments prior to budget year, including payments within the current year.
Column 6 - Amounts due and budgeted for the budget year.
Column 7 - Balance of the principal after deducting previous payments and amount due for the budget year [Columns 4 - (5+6)].
Prepare the same form for each local economic enterprise/public utility.
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LBP Form No. 7
STATEMENT OF STATUTORY AND CONTRACTUAL OBLIGATIONS AND BUDGETARY REQUIREMENTS Budget Year: ____________________ Province/City/Municipality:_________________
1. Statutory and Contractual Obligations
1.1 5% MMDA Contribution for LGUs in NCR only (R.A. No. 7924) 1.2 Prior Years Obligation (if any) 1.3 Terminal Leave and Retirement Gratuity Benefits (compulsory retirement age/end of term for elective officials) 1.4 Debt Service
A m o u n t
2. Budgetary Requirements
2.1 20% of IRA for Development Fund
2.2 5% Calamity Fund
2.3 Financial Assistance to Barangays (P1,000 minimum aid)
A m o u n t
T O T A L
Certified Correct: Approved:
Local Finance Committee:
_________________ _____________ _________________ ____________________ Local Budget Officer Local Treasurer Local Planning and Local Chief Executive Development Officer
INSTRUCTIONS
This form is will present the statutory and contractual obligations, and budgetary requirements.
Prepare the same form for each local economic enterprise/public utility. 83
LBP Form No. 8
STATEMENT OF FUND OPERATION Budget Year: ____________________ Province/City/Municipality: _______________ FUND/SPECIAL ACCOUNT:
Particulars Account Code General Public Services Social Services Economic Services Other Servic es TOT AL (1) (2) (3) (4) (5) (5) (6) I. Beginning Cash Balance
II. Receipts:
Total Available Resources for Appropriations (I+II)
III. Expenditures
A. Current Operating Expenditures
1. Personal Services Salaries and Wages Regular Salaries and Wages Others Personnel Economic Relief Allowance (PERA) Additional Compensation (AdCom) Representation Allowance Transportation Allowance Clothing Uniform Allowance Year-end Bonus Other Bonuses and Allowances Honoraria Life & Retirement Insurance Contributions PAG-IBIG Contributions PHILHEALTH Contributions ECC Contributions Pension Benefits Regular Retirement Benefits Regular Vacation and Sick Leave Benefits Other Personnel Benefits
2. Maintenance and Other Operating
Expenditure Travel Expenses Training and Scholarship Expenses Water Electricity Fuel Office Supplies Expenses Hospital Supplies Expenses Medical, Dental & Laboratory Supplies Expenses Fuel, Oil & Lubricants Expenses Other Supplies Expenses Postage and Deliveries Telephone Expenses Landline Telephone Expenses Mobile Internet Expenses Cable, Satellite, Telegraphs & Radio Expenses
84 General/Janitorial Services Security Services Repair and Maintenance Buildings and Other Structures Repair and Maintenance Office Equipment Repair and Maintenance Furniture and Fixtures Repair and Maintenance Land Transport Equipment Subsidy to National Government Agencies Subsidy to Local Government Units Other Subsidies Donations Confidential and Intelligence Expenses Extraordinary & Miscellaneous Expenses Taxes, Duties and Licenses Insurance/Reinsurance Premiums Membership Dues & Contributions to Organizations Awards and Rewards Indemnities and Other Claims Advertising and Marketing Expenses Printing Expenses Rent/Lease Expenses Representation Expense
B. Capital Outlay Land Land Improvement Buildings and Other Structures Office Equipment Furniture and Fixtures Books Technical and Scientific Machinery Equipment Construction/Port Equipment Hospital Equipment Medical, Dental and Laboratory Equipment Land Transport Equipment Public Infrastructures
C. Financial Expenses
Total Appropriations
Ending Balance = [(I+II)-III]
Certified Correct: Approved:
_____________________ _____________________ ______________________ LOCAL BUDGET OFFICER LOCAL ACCOUNTANT LOCAL CHIEF EXECUTIVE
85
INSTRUCTIONS
The Statement of Fund Operation is a summary of the total estimates of revenues and other receipts and appropriations covering the proposed expenditures of the budget year.
Beginning cash balance shall be net of amounts earmarked for specific purposes (e.g., continuing appropriations, 20% Development Fund).
Under the expenditures portion, indicate all expenditures by sector/service, inclusive of lump-sum appropriations for 5% Calamity Fund, 20 % Development Fund, Aid to Barangays and Financial Expenses.
Deduct the total appropriations from the total available resources for appropriations to arrive at the ending or unappropriated balance.
Prepare the same form for each local economic enterprise/public utility.
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LBP Form No. 9
STATEMENT OF FUNDING SOURCES (SUPPLEMENTAL BUDGET) Fiscal Year _____ __________________________ Province/City/Municipality
___________________ ___________________ Local Treasurer Local Accountant * _____________ _____________ Date Date
*As recommended by COA INSTRUCTIONS
1. The column under new revenue source shall be filled for Supplemental Budget funded from new revenue source. 2. The column under savings shall be filled for Supplemental Budget funded from savings. 3. The column under Realignment/Reversion shall be filled for Supplemental Budget funded from reversion or realignment. 4. Indicate under column 2 the account classification using the chart of accounts as prescribed by COA. 5. Indicate under column 3 the appropriate amount for whatever funding source of the Supplemental Budget. 6. The certification to be signed by the Local Treasurer and Local Accountant shall depend on funding source (i.e., additional realized income, savings, new revenue measure/s, realignment in times of public calamity) of the Supplemental Budget to be enacted. 87
______________________ ______________________ Local Budget Officer Local Chief Executive INSTRUCTIONS
1. Indicate under Column 1 the implementing office of the item of appropriation. 2. Indicate under Column 2 the particulars/purpose of the appropriation and in Column 3 the object of expenditure. 3. Indicate under Column 4 the appropriate account code using the chart of accounts as prescribed by COA. 4. Indicate under Column 5 the amount corresponding to each purpose and object of expenditures being implemented by the office concerned. 88
7.0 Illustrative Example of a Budget Call
Provincial/City/Municipal Budget Memorandum No. 1-2008 14 June 2008
TO: All Heads of Offices, Departments Heads, Chairman of the Committee on Appropriations, Members of the Sanggunian and Others Concerned.
SUBJECT: Guidelines on the Preparation and Submission of Annual General Fund Budget of Offices/Departments for Fiscal Year 2009
I. Purpose: This Budget Call for FY 2009 is issued primarily to prescribe guidelines to be observed by offices/departments in the preparation of budget proposals consistent with the Annual Investment Program for FY 2009 and the Local Government Code.
II. Objectives and Policy Guidelines:
1. Consistent with the approved AIP, the LGU shall focus its resources to the attainment of the following general objectives:
1.1 To increase per capita income of constituents by 20%;
1.2 To provide accessibility in the delivery of basic services to all constituents of the LGU; and
1.3 To provide full employment to poor urban residents.
2. For FY 2009, the LGU shall direct its resources towards increased agricultural productivity; promote quality in the production of competitive products in the world and domestic markets; and provide health, social, education services geared towards promoting economic growth with equity to marginalized citizens.
3. To support the budget for FY 2009 the following fiscal policies and measures were approved and endorsed by the Sanggunian:
3.1 Enhance tax collection efficiency by launching a vigorous tax info campaign supported by an intensified tax collection effort.
3.2 Upgrade the scale of fees comparable with other LGUs belonging to the same class; and
3.3 Finance the completion of the San Jose Bridge in Barangay Dita through borrowing from the DBP in the amount of P3.1 M payable in 10 years at 10% per annum.
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4. The allocation scheme of the net amount available for appropriation for FY 2009 shall be based on the following priority:
Guidelines to be observed in the allocation of free resources:
1 st Priority Expansion of existing services/facilities 2 nd Priority Execution of new development projects 3 rd Priority Increased personnel benefits of local personnel
III Receipts Estimates and Spending Ceiling:
The receipts estimates for FY 2009 are to be generated from the following sources:
Sources of Financing Amount % ages to Total IRA National Wealth Local Tax Revenues Operating and Misc. Income Borrowings Others (Grants and Sale of Fixed Assets) 103,841 1,143 3,516 3,151 3,100
- 90.00% 1.00% 3.50% 2.80% 2.70%
- 114,751 100.00% A. General Services Sector Particulars PS MOOE CO TOTAL Office of the LCE Sanggunian Treasurer Accounting Office Budget Planning and Development Office Legal General Services 1500 2500 800 300 300 300 200 200 500 500 500 200 100 200 100 100 500 100 300 300 100 100 100 14000 2500 3100 1500 800 500 600 400 14300 TOTAL 6100 2200 15400 23700
Priority Functional Activity Amount (P000) Percent ages of Total 1 2 3 4 5 Basic Services Operation Support to Basic Service Gen. Policy/Legislative Development Projects Statutory/Contractual 58.1 3.4 23.7 20.9 8.6 51% 3% 20% 18% 8% 114.7 100% 90
B. Social Services Sector
Particulars PS MOOE CO TOTAL Health Services Day Care Social, Welfare and Development Population Development 5100 1000 4000 1500 4000 500 3000 2000 1000 - 1400 1000 10100 1500 8400 4500 TOTAL 11600 9500 3400 24500
B. Economic Services Sector
Particulars PS MOOE CO TOTAL Engineering Assessor Agricultural Services Environment and Natural Resources Development of Cooperatives Veterinary Services 3500 1500 3500 2500
2500 5500 2000 1500 1500 1000
500 3400 24600 - 10500 1500
- 1000 30100 3000 15500 5000
3000 9900 TOTAL 19000 9900 37600 66500
GRAND TOTAL 36700 21600 56400 114700
Budget Calendar and Budget Preparation
1. All concerned are enjoined to follow the schedule as directed in the memorandum, particularly on the submission of budget proposals at designated inclusive dates and on the prescribed forms herein attached. Schedule of Activities Activity Inclusive Dates
1.1 Budget Call Issuance June 17 1.2 Budget Workshop on Budget Call June 24 28 1.3 Preparation/Submission of Budget Proposal July 1 15 1.4 Technical Budget Hearing Aug.16 Sept. 15 1.5 Consolidation of Budget Proposal Sept. 16 30 1.6 Budget Message, Local Expenditure Program and BESF Preparation Oct. 1 15 1.7 Submission of Executive Budget Oct. 16
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2. The Budget Preparation forms to be submitted together with other documents are:
2.1 Local Budget Preparation Form No. 1 - To be prepared/certified by - Statement of Receipts LFC
2.2 Local Budget Preparation Form No. 2 - To be prepared/certified by - Statement of Receipts & Expenditures Local Treasurer and, Local Budget Officer (LBO)
2.3 Local Budget Preparation Form No. 3 - To be prepared by Office/ - Programmed Appropriation Department Head and Obligation by Object
2.4 Local Budget Preparation Form No. 3A - To be prepared by LBO - Consolidated Programmed Appropriation Department Head and Obligation by Object
2.5 Local Budget Preparation Form No. 4/ - To be prepared by Office/ - Personnel Schedule Department Head
2.6 Local Budget Preparation Form No. 5 - To be prepared by Office/ - Financial Statement, Objectives & Expected Department Head Results
2.7 Local Budget Preparation Form No. 6 - To be prepared/certified - Statement of Debt Service by Local Accountant
2.8 Local Budget Preparation Form No. 7 - To be prepared/certified - Statement of Statutory/Contractual Obligation by the LFC and Budgetary Requirements
2.9 Local Budget Preparation Form No. 8 - To be prepared/certified - Statement of Fund Operation by the Local Budget Officer and Local Accountant
2.10 Organizational structure of the implementing - To be prepared by office Office/Department Head
2.11 Proposed special provisions/operating policies - To be prepared by to be incorporated in the Executive Budget. Office/Department Head
3 These budget preparation forms (LBP Form Nos. 3, 3A, 4 and 5) and documents (organizational structure, staffing summary, and special provisions) shall be submitted to the LFC, thru the Local Budget Officer, on or before August 15 for consolidation and review.
4 Any queries, clarificatory questions, issues and observations relative to these guidelines shall be referred at once to the Local Finance Committee for resolution during the budget workshop. Technical and other assistance in the preparation of the 2009 Annual Budget may be requested from the Local Budget Officer.
Please be guided accordingly.
Local Chief Executive
92 8.0 Illustrative Example of a Local Expenditure Program (LEP)
1. The LEP starts with a Title Page which provides a central theme or thrust for the budget year.
A Budget for Unity Amidst Diversity
LOCAL EXPENDITURE PROGRAM January 1 to December 31, 2009
Municipality/City/Province of ___________________________
Official Seal 93
2. The second page is a location map of the LGU indicating its population and land area.
3. The Table of Contents follows the location map. The contents shall start with a general introduction, followed by the details of the receipts program and the expenditure component.
4. The general introduction summarizes briefly the Receipts Program for the budget year and the Expenditure Program. A snap-shot analysis of the receipts structure shall disclose the proportionate share of the receipts of the LGU as against its IRA share. It shall also reveal the level of expenditures and will show what sector (economic, social, general public services) got the lions share of the budget in the past year, current year, and as proposed for the budget year.
Fiscal policies for the budget year in both receipts and expenditures are discussed and explained in the introductory part of the LEP.
PART 1. This is the first part of the LEP where the receipts indicated in LBP Form Nos. 1 and 2 are reflected as major sources of funds. These sources, declared as realistic and probable to be collected, include funds from new tax measures, borrowings, etc. which are supported by ordinances from the Local Sanggunian authorizing the collection and loan negotiation. The Receipts Program is presented in the following tables.
Table 1 RECEIPTS PROGRAM FY 2007-2009 (In 000 Pesos)
Receipts Past Year Receipts (Actual) Current Year Receipts (Actual/ Estimate) Budget Year Receipts Estimate LFC Final Recommendation 1. Receipts: A. Local (Internal) Sources 1. Tax Revenue a. Real Property Tax b. Special Education Tax c. Other Local Taxes Total Tax Revenue 2. Non-Tax Revenue a. Regulatory Fees 1. License Fees 2. Permit Fees 3. Other Fees b. Business and Service Income c. Other Income/Receipts 94
Total Non-Tax Revenue
B. External Sources 2. Shares from National Internal Revenue Taxes (IRA) 2. Share from GOCCs 4. Other Shares from National Tax Collections a. Share from Ecozone b. Share from EVAT c. Share from National Wealth d. Share from Tobacco Excise Tax 4. Extraordinary Receipts a. Grants and Donations b. Other Subsidy Income 5. Inter-local Transfers a. Subsidy from LGUs b. Subsidy from Other Funds 6. Capital/Investment Receipts a. Gain on Sale of Assets b. Gain on Investments C. Receipts from Loans and Borrowings Total Receipts
Total Available Resources for Appropriation
PART 2. The Expenditure Program is presented by Office or Department. Each Office shall have the following expense structure: Functional Statement, Objectives and Expected Results Proposed New Appropriations Language for the Budget Year Obligations by Object of Expenditure Personnel Schedule
(These data shall be taken from LBP Forms No. 3, 4, 5)
A special provision is included for every presentation of the expenditure program which outlines the purpose and manner of utilization of the appropriated funds. Existing guidelines of COA and DBM relative to fund utilization shall be the mother guidelines for all transactions.
A sample format of the expenditure program is shown below:
Office of the Mayor
A. Functional Statement
1. Exercise general supervision and control over all programs, projects and activities of the municipal government.
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2. Enforce all laws and ordinances pertinent to the effective governance of the municipality.
B. Objectives
1. Formulate policy guidelines relative to the efficient and effective implementation of all the programs, projects and activities of the municipal government and shall be responsible to the Sanggunian Bayan.
2. Direct the implementation of municipal plans and project as indicated in the Annual Investment Plan.
3. Provide extension services in planning and budgeting to all barangays in the municipality.
4. Deliver public assistance services to all marginalized constituents, farmers, fisher folks, disadvantaged women, disabled and elderly folks.
5. Provide consultative services to all punong barangays on local governance.
6. Implement the rehabilitation of El Nido Bridge in barangay San Isidro under the Annual Investment Program.
C. Projects/Activities (000)
AIP Implementation CODE Activities/Projects Cost Output Indicator Target Schedule REF. From To 10.1 1. General Administrative and Support services 3,200 Policy guidelines formulated 10 1/1/2009 12/31/2009 Projects implemented 20 1/1/2009 12/31/2009 10.1.1 2. Extension services in Planning and Budgeting 1,500 Training Conducted 16 3/1/2009 10/15/2009 10.1.2 3. Public assistance Services 1,600 Assistance provided
Farmers 50 1/1/2009 12/31/2009 Fisher folks 15 *do* *do* Disabled 5 *do* *do* Elderly 20 *do* *do* Squatters 18 *do* *do* 10.1.3 4. Consultative Services to All Barangays 1,000 Punong Barangays trained 16 1/1/2009 12/31/2009 10.1.4 5. Rehabilitation of El Nido Bridge in Barangay San Isidro 800 El Nido Bridge Rehabilitated 1 4/15/2009 8/15/2009 TOTAL 8,100
D. Proposed New Appropriation Language
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For general administration and support service, Office of the Mayor, extension offices, public assistance services, and implementation of locally-funded projects.P8,100,000
New Appropriations by Program/Project
Current Operating Expenditures Programs/ Projects/ Activity Personal Maintenance & Capital TOTAL Services Other Operating Outlay Expenses A. Programs I. General Administration Services a. General Administration & 1200 1000 1000 3200 Support Services, Sub-total 1200 1000 1000 3200 II. Operations a. Extension Offices 1200 300 1500 b. Public Assistance Services 1500 100 1600 c. Consultative Services 700 300 1000 Sub-total Operations 3400 700 4100 TOTAL Programs 4600 1700 1000 7300 B. Projects I. Locally Funded Project a. Barangay Development Project 800 800 Sub-total Project 800 800 Total New Appropriations 4600 2500 1000 8100
Programmed Appropriation and Obligation by Object (In Thousand Pesos) Account Past Year Current Budget Object of Expenditure Code 2007 Year 2008 Year 2009 (Actual) (Estimate) (Estimate) PERSONAL SERVICES Salaries and Wages - Regular 701 1200 1600 1600 Salaries and Wages Others 706 1000 500 300 Personnel Economic Relief Allowance (PERA) 707 100 200 200 Additional Compensation (ADCOM) 708 100 200 200 Representation Allowance 710 40 150 150 Transportation Allowance 711 40 300 300 Clothing and Uniform Allowance 712 50 200 250 Honoraria 713 10 100 100 Year End Benefit 714 1000 1050 800 Cash Gift 714 50 50 50 Other Bonuses and Allowance 719 30 50 50 Life & Retirement Insurance Contribution 721 400 500 1000 PAG-IBIG Contributions 722 30 50 50 PHILHEALTH Contributions 723 20 30 30 ECC Contributions 724 30 20 20 Vacation and Sick Leave Benefits 737 210 308 500 TOTAL PERSONAL SERVICES 4510 5308 5600
Training and Scholarship Expenses 767 50 100 15 Telephone Expenses - Landline Telephone Expenses - Mobile 773 774 30 40 10 Postage and Deliveries 772 5 25 5 Subscription Expenses 796 3 5 3 Rent/Lease Expense 786 5 10 10 Office Supplies Expenses 751 1000 1200 550 Fuel, Oil & Lubricant Expenses 757 300 350 250 Repairs & MaintenanceLand Transport Equipment 814 227 300 100 Repairs & Maintenance-Office Equipment 807 50 50 50 Repairs & Maintenance-Buildings and Other Structures 804 30 30 30 Donations 841 100 100 50 Representation Expense 782 50 50 20 Confidential and Intelligence Expenses 794 40 40 15 Other Professional Expenses 845 800 600 472 TOTAL MOOE 3690 4342 1700 PROPERTY PLANT & EQUIPMENT Office Equipment 207 500 Technical and Scientific Machinery Equipment 218 500 Land Improvements 202 3800 TOTAL PROPERTY PLANT & EQPT. 4800 TOTAL APPROPRIATIONS 8200 9650 12100
D. Personnel Schedule
Office of the Mayor Ordinance /Item Number Position Title Name of Incumbent Current Year Authorized Rate/Annum Budget Year Proposed Rate/Annum Increase/ Decrease Grade/ Step Amount Grade/ Step Amount (1) (2) (3) (4) (5) (6) (7) (8)
PART 3. The following Special Purpose Appropriations are reflected in the LEP:
5% Calamity Fund 20% Development Fund (to be supported with an AIP Authorized for the purpose) Aid to Barangays Others as may be authorized
Each of these funds shall have its own presentation of the following:
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Proposed New Appropriations Language for the Budget Year Obligations by Object of Expenditure Special Provisions on the Use of Funds
PART 4. General Provisions. This portion of the LEP provides general guidelines on the receipts and expenditure program for the budget year which shall be consistent with existing operating guidelines of COA, DBM, DILG and CSC.
PART 5. This last portion of the LEP summarizes the proposed appropriations by office & lump-sum funds of the Municipal Annual Budget. Its title shall be: SUMMARY OF THE FY 2009 NEW APPROPRIATIONS
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9.0 Illustrative Example of a Budget Message
Republic of the Philippines Province/City/Municipality of _______________
B B U U D D G G E E T T M M E E S S S S A A G G E E
___(Date)___
The Honorable Members Sangguniang Panlalawigan/Panlungsod/Bayan
Gentlemen:
May I submit the proposed Annual Budgets for FY 2009 of the Provincial/City/Municipal Government for both the General Fund and Operation of Economic Enterprise pursuant to Section 318 of RA 7160. A. I NTRODUCTI ON
This Executive Budget was prepared after a thorough deliberation with all concerned offices/departments and interested citizens to make it an effective tool for equitably allocating the limited resources of government to the different sectors, thus making the Budget an instrument for the economic and social upliftment of our people. We have substantially committed funds for the programs, projects and activities needed for an efficient and effective delivery of the basic services enumerated in the Local Government Code.
It is important to stress at this point that the preparation of this Budget has been open to the public through private sector representation to make decisions more participative and democratic. This is also in keeping with governments thrust for transparency and accountability in the budget-making processes. We take full cognizance of the significant roles demonstrated by non-government organizations, other private sector associations, and the general public in the planning and pre-budget preparation stage by way of their membership in the Local Development Council Executive Committee.
In particular, they took active part in the review of the visions and goals in the Provincial/City/Municipal Development Plan and the prioritized projects in the Medium-Term Provincial/City/Municipal Development Investment Program to 100
address current needs and provide inputs to the formulation of the Annual Investment Program. These programs have been duly approved by the honorable members of the Sanggunian under Resolution No. 4004.
This Budget integrates the Provincial/City/Municipal Development Plan into the expenditure program by proposing only those projects which have been ranked as top priority in the AIP.
The balanced General Fund Budget for FY 2009 is composed of the Expenditure Program and Sources of Financing, both amounting to P114,750,761. It means a per capita spending of P614, a moderate increase compared to the current years per capita of P557. The Expenditure Program and Sources of Financing are illustrated in Exhibits 1 and 2
Exhibit 1
Exhibit 2
DISTRIBUTION BY TYPE OF REVENUE Budget Year (in million pesos) 76% 17% 2% 1% 3% 1% IRA P87.00M Operating & Misc. Rev. 1.58 Borrowings 3.10 Hospital Income 1.58 Local Taxes 19.08 Transf. Fr. Eco. Ent. 2.00
EXPENDITURE PROGRAM (Distribution by Sector)
Budget Year (in million pesos)
33% 1% 34% 1% 9% 2% 1% 19% Health, Nutrition, Population P37.3M Soc. Sec. And Welfare 0.7 Economic Services 37.2 Reserve for Calamity 1.4 Gen. Public Services 21.3 Aid to Barangays 0.8 Reserve for Salary Stand'n 9.4 Debt Servicing 2.3 101
B. GOALS AND OBJ ECTI VES
The province/municipality expects to attain the following objectives during the plan period: Increase per capita income by a stated realistic percentage Provide accessibility to all basic needs and services Realistic percentage of citizens/constituents of the province Provide expanded employment opportunities to the urban poor residents; and Increase agricultural productivity and enhance delivery of health care services.
C. FI SCAL POLI CI ES
Revenue-generating measures include enhanced tax collection via a vigorous tax information campaign and intensified tax collection effort.
Exhibit 4 shows the trend of expenditures for FY 20__ to FY 20__. The Health, Nutrition and Population Control Sector has registered sizeable increases for the three-year period. This is attributed to the absorption of devolved health services. Expenditure for Economic Sector has also been increasing due to the provision of more infrastructure projects and bigger allocation for the agriculture sub-sector.
Exhibit 4
36 26.3 30.2 3.2 2.4 0.8 29 31.5 35.1 4.6 2.48 0.8 21.3 37.3 37.2 5.5 2.4 9.5 0.8 0 5 10 15 20 25 30 35 40 GPS HNPC ESR RC DS RSS AB EXPENDITURE PROGRAM BY SECTOR Comparative Trend, 20__ to 20__ (in millions)
Past Year Current Year Budget Year 102
D. Distribution by Functional Activity
It has been long recognized that in order for a local government unit to achieve efficient and effective operation, it should aim for the improvement of the ratio of its overhead costs to cost of production and service delivery. Thus, it is important to present in this Message, through the chart below, the direct cost of public goods and services produced and delivered vis--vis its associated cost. This presentation slices the budget pie on the basis of functional activity
Exhibit 5
The distribution of the LGU budget (Exhibit 5), shows that P58,092,677 or 51% is allocated for the operation of frontline services; P3,441,320 or 3% is provided support to frontline services; P26,888,301 or 18% will be spent for development projects; P23,671,197 or 20% is provided for General Policy, Administration and Finance Services; and P8,657,266, representing 8% of the total budget will be for Other Purposes (Aid to Barangays, Reserve for Calamity and Debt Service). E. DISTRIBUTION BY MAJOR EXPENSE CLASS Personal Services The total expenditures for Personal Services for the budget year is P50,138,976 inclusive of the provision for Salary Standardization of P9,418,928. Total Personal Services accounts for 44% of the total LGU budget. Maintenance and Other Operating Expenses The amount of P34,687,449 has been set aside for MOOE, representing 30% of the budget.
Capital Outlays Expenditures for Capital Outlays will amount to P23,628,361 or 21% of the total expenditures. It includes provisions for development projects, Loan Outlay,
51% 21% 7% 18% 3% DISTRIBUTION OF LGU BUDGET By Functional Activity Budget Year (in million pesos) Front line services P58.1M Gen. Policy, Adm./Fin. 23.7 Other Purposes 8.6 Projects 20.9 Support to FLS 3.4 103
Livestock and Crops Outlays, Equipment Outlays in the amounts of P20,288,000, P2,361,291, P879,070 and P100,000, respectively. The amount of P20,288,000 for development projects include P16,800,000 funded from the 20% Development Fund. Other Purposes The amounts of P5,479,975 and P816,000 are set aside as reserve for Calamity and Aid to Barangays, respectively.
F. OPERATION OF ECONOMIC ENTERPRISE
The proposed Budget for the Operation of Economic Enterprise (Operation of Telephone Service) in FY 20__ shall be sourced from the estimated Telephone Service Income of P33,400,000 allocated as follows:
Particulars Amount (P) % to Total Personal Services Maintenance and Other Operating Expenses Capital Outlays Transfer to General Fund Debt Servicing 5% Reserve Unappropriated Balance 7,600,000
Submitted together with this Message are the Local Revenue and Expenditure Program and the Budget of Expenditures and Sources of Financing (Table 1 to 9).
Gentlemen of the Sanggunian, this budget proposal manifests our determination to lay a strong foundation for a greater and progressive province/city/municipality. Let us join our hands together as we go about our mission of providing a brighter future for our constituents.
Very truly yours,
______________________________________ PROVINCIAL GOVERNOR/CITY MAYOR/ MUNICIPAL MAYOR
10.0 Technical Notes on Budget Preparation 104 AREA SERVED (500 pre-schoolers) = 25% SERVICE GAP (1,500 pre-schoolers) = 75% 100%
In evaluating the targets for the budget year the following guide questions are suggested:
1. What are the mandated regular activities of the department?
1.1 Are these activities within the mandated function of the office/department? If there are activities which do not contribute to the mandate of the office, these shall be subjected to further review for possible discontinuance or to challenge the rational of their continued implementation. If the basis is doubtful then these activities may be recommended for abolition. It is possible that activities recommended for abolition may not be fully implemented during the budget year. One option is to reduce targets to show their minimal contribution to the realization of the overall mandate of the office/department.
1.2 What is the total service area of the office/department? Service area means the identified geographical location of the area and the people to be served or benefited by the service. It may be people- based service areas catering to a number of marginalized farmers, families, malnourished children, senior citizens, differently-abled persons, disadvantaged women, pre-schoolers, out-of school youth, unemployed, etc. They are the target beneficiaries in reducing poverty. It can be also an asset-based service area expressed in terms of road density, irrigated land, forested area, mining and water resources and other physical assets of the service area which will provide the LGU a strong economic base in promoting growth.
The purpose of determining the total service area is to identify the service gap. The service gap is the difference between the total service area and clientele served. It could also mean the area that is not served due to budget constraints. This is illustrated by the following examples:
A. People-based service area
SERVICE AREA (No. of Pre-schoolers) 2,000
25% 75% SERVICE GAP 105 100% B. Asset-based service area
Total Land Area (Palay Production) . . . . 200 Hectares (100%) Less: Irrigated Area . . . . . . . . . . . . . . . . 150 Hectares ( 75%) Non-Irrigated Area (Service Gap) . . . . . . 50 Hectares ( 25%)
If the objective for the budget year is to maintain its present share of providing services/goods to its existing clientele, then its current budget will have to be maintained for the budget year, plus adjustments due to inflation. A substantive increase in the budget will mean an increase in the clientele to be served or reducing the service gap. Please see illustration below:
2. Estimate Costs for the Budget Year These are two primary costs to be estimated for the budget year: the current operating expenditures and capital outlays. The current operating costs refer to the cost of providing services/goods delivery to its target clientele or service area primarily for the implementation of the regular activities of the office or department. Capital outlay costs refer to the costs of procuring civil works projects or the acquisition of equipment to facilitate or enhance delivery of goods or services.
Cost of doing regular activities:
There are two (2) approaches in costing regular activities of the office/department: the Per Capita Cost and the Fixed and Variable Costing methods.
Per Capita Cost
Per Capita Cost is simply the total cost of doing an activity (direct labor and direct materials + overhead or administrative expenses) divided by the total number of beneficiaries/clientele.
25% 75% SERVICE GAP 25% 55% 20% SERVICE GAP SERVICE AREA AREA SERVED for Current Year AREA TO BE SERVED for Budget Year 25% + 20% = 45% 106 Direct Labor + Direct Materials + Overhead Expenses Per Capita Cost = --------------------------------------------------------- Total Clientele Served
Where : Direct labor cost refers to all cost in personal services that is directly incurred in delivering/rendering the goods or services.
Direct materials cost refers to direct supplies/materials used in delivering or rendering the services.
Overhead expenses refer to the cost of supervision or administration and all attendant costs that are indirectly incurred while providing the delivery of goods and services.
For example:
What is the cost per capita in providing primary health care services at the municipal level?
Assume that:
Annual PS cost of Rural Health Physician and a Nurse II . . . . . . . . . . . . . . . . . . . . . . . P 500,000 Annual MOOE cost for supplies & medicine . . . . 200,000 Annual Overhead expenses for office supplies and materials, light, water, gasoline, communication, repair of motor vehicles. . . 100,000 TOTAL COST P 800,000 Number of clientele/patients served per annum - 2,000
____800,000__ 2,000
For budgeting purposes, the per capita cost becomes the benchmark in computing the cost of providing primary health care services if ever the clientele is increased or decreased. If the clientele or service area is increased to 1000 then the budgetary requirements would be (P400x 3000) or P 1,200,000. If it is decreased by 1000, the budget would be (P400 x 1000) or P400,000.
Per Capita Cost = = P 400/patient/clientele 107 To comply with the budgetary ceiling, it is suggested that the target clientele shall, as much as possible, be matched with available resources when compared with the cost per capita.
Fixed and Variable Costs
The disaggregation of the current operating expenditures into fixed and variable costs that will match with the target output is the main purpose of this costing technique.
What are fixed costs? These are current operating costs that do not vary or change regardless of the number of output indicators or of the goods/services produced/delivered or rendered.
Examples of fixed costs:
Salaries and Other Personnel Services Cost of Providing General Administrative and Support Services Rent Utility Expenses Taxes, Insurance and Other Fees Subscription Expenses
What are variable costs? These are current operating costs that vary or change proportionately with the increase or decrease in output.
Examples of variable costs:
Wages of Regular Employees and Laborers Supplies and Materials Traveling Expenses Communication Expenses Representation Expenses Transportation & Delivery Expenses Storage Expenses Repair & Maintenance of Government Facilities
For budgeting purposes, it is important to consider the total cost of producing the goods or services (Fixed Cost + Variable Cost) that will match with the available resources or budgetary ceiling.
108 For example given the following data:
Total Fixed Cost = 500,000 Total Variable Cost = 200,000 Total Cost = 700,000 Output = 100,000
Budget ceiling for the budget year is P1M. First, compute for the variable cost per unit or 200,000/1000 = 200/unit Second is compute the total cost on the basis of the budget ceiling.
Total Cost = 500,000 + 200 (x) 200x = 500,000 or x = 500,000 = 2,500 units 200 Total Cost = 500,000 + 200 (2,500) Total Cost = 500,000 + 500,000 Total Cost = 1,000,000
The computation above shows the relationship between the budget ceiling and the target output. It gives the department head a choice to increase the target, maintain the status quo, or increase the target but reduce cost to optimize available resources. This is illustrated in graphical form as:
If the budget ceiling is limited to P700,000 then the total cost is:
Estimating cost for Capital Outlays shall use current market prices (labor and materials) for civil works projects plus provision for cost overruns or price escalation. Cost estimates based on feasibility studies shall be updated and validated for more realistic costing.
5.0 Steps in the Budget Authorization Phase Step 1. Enact the Appropriation Ordinance 1.1 Check the Budget Documents Submitted For Annual Budget For Supplemental Budget 1.2 Evaluate the Budget The Receipts Portion of BESF Table No. 1 The Expenditures Portion of BESF Table No. 1 1.3 Deliberate on the Budget Presentation of the Executive Budget to the Sanggunian Deliberation Proper (with Guide Questions for Deliberation) 1.4 Authorize the Annual Budget Contents of the Appropriation Ordinance Rules Governing the Enactment of an Appropriation Ordinance Limitations on Legislative Action Failure to Enact the Annual Appropriations o The Reenacted Budget Step 2. Approve the Appropriation Ordinance Approval by the LCE Veto by the LCE o Veto Power of the LCE o Override of the Veto
111
Step 3. Submit the Appropriation Ordinance for Review
6.0 Changes in the Annual Budget 6.1 Supplemental Budget 6.2 Use of Appropriated Funds and Savings
7.0 Effectivity of Budgets Effectivity of the Annual Budget Effectivity of the Supplemental Budget Posting Requirement
8.0 Local Budget Authorization Forms LBA Form No. 1A - Checklist on Documentary and Signature Requirements for the Annual Budget LBA Form No. 1B - Checklist on Documentary and Signature Requirements for the Supplemental Budget
9.0 Illustrative Example of Ordinance Authorizing the Annual Appropriations
10.0 Sample Formats 10.1 Ordinance Authorizing the Supplemental Appropriations 10.2 Approval Letter of the LCE 10.3 Veto Message 10.3.1 Partial Veto 10.3.2 Total Veto 10.4 Ordinance Authorizing Use of Savings and Augmentation
112 Budget Authorization Phase
1.0 Introduction
Budget authorization is the second phase in the local budget process. This legislative function of enacting the ordinance authorizing the budget is in accordance with the fundamental principle that no money shall be paid out of the local treasury except in pursuance of an Appropriation Ordinance or law. This phase starts from the time the Sanggunian receives the executive budget submitted by the LCE and ends with the enactment of the Appropriation Ordinance and approval thereof by the LCE.
2.0 Legal Basis
3.0 Key Players in Budget Authorization
3.1 Local Chief Executive The LCE shall submit the executive budget to the Sanggunian for authorization (Section 318, R.A. No. 7160). After the enactment of the Appropriation Ordinance, the LCE shall approve or veto the same (Sections 54 and 55, R.A. No. 7160).
3.2 Sanggunian - As the legislative body of the LGU, the Sanggunian shall authorize annual and supplemental budgets for the general welfare of the locality and its inhabitants (Sections 447, 458 and 468, R.A. No. 7160).
The Sanggunian may, by ordinance, authorize the LCE or the Presiding Officer of the Sanggunian to augment any item in the approved annual budget for their respective offices from savings in other items within the same expense class of their respective appropriations (Section 336, R.A. No. 7160; Article 454 [b], IRR of R.A. No. 7160). On or before the end of the current fiscal year, the Sanggunian concerned shall enact, through an ordinance, the annual budget of the local government unit for the ensuing fiscal year on the basis of the estimates of income and expenditures submitted by the local chief executive (Section 319, R.A. No. 7160). 113
3.3 Committee on Appropriations/Finance The Committee on Appropriations/Finance, as one of the standing committees of the Sanggunian, shall be responsible for conducting a preliminary review and evaluation of the executive budget. It shall submit its report and recommendation to the Sanggunian proper.
3.4 Secretary to the Sanggunian The Secretary to the Sanggunian shall stamp the Appropriation Ordinance with the seal of the Sanggunian and record the same in a book kept for the purpose. He shall affix his signature to the enacted Appropriation Ordinance and present the same to the Presiding Officer for the Presiding Officers signature and forward copies thereof to the LCE for approval. Subsequently, he shall forward copies of the duly approved Appropriation Ordinance to the reviewing authority (Section 469, R.A. No. 7160).
The Secretary to the Sanggunian shall cause the posting of an ordinance or resolution on the bulletin board at the entrance of the provincial capitol, or city or municipal hall, as the case may be, and in at least two (2) conspicuous places in the LGU not later than five (5) days after approval thereof (Section 59 [b], R.A. No. 7160).
3.5 Local Finance Committee The LFC shall assist the Sanggunian in the analysis and review of the annual and supplemental budgets to determine compliance with statutory and administrative requirements (Section 316 [g], R.A. No. 7160).
3.6 Heads of Departments and Offices - Upon request of the Sanggunian, Heads of Departments and Offices shall appear before the body or the Committee on Appropriations/Finance to explain or justify their proposals.
4.0 The Budget Authorization Flow Chart
The budget authorization flow chart below (Figure 11) shows the sequence of activities from the time the LCE presents the Executive Budget to the Committee on Appropriations/Finance until the approved Appropriation Ordinance is posted and copies thereof are forwarded to the reviewing authority.
114
Local Chief Executive Sanggunian Local Finance Committee Heads of Departments and Offices Presents the Executive Budget Conducts a preliminary review and evaluation of the executive budget. [Committee on Appropriations/Finance]
Assists the Sanggunian in the analysis and review of the annual and supplemental budgets Justifies their budget proposals Deliberates on the budget Authorizes the Annual Budget Forwards the Appropriation Ordinance to the LCE [Secretary to the Sanggunian] Vetoes the Appro- priation Ordinance Approves the Appro- priation Ordinance Overrides the veto by 2/3 vote of the majority of all members Posts the Appropriation Ordinance and forwards copies thereof to the reviewing authority [Secretary to the Sanggunian]
Figure 11. The Budget Authorization Flow Chart
115 5.0 Steps in the Budget Authorization Phase
There are three steps in Budget Authorization:
Step 1. Enact the Appropriation Ordinance
Section 319 of R.A. No. 7160 provides that On or before the end of the current fiscal year, the Sanggunian concerned shall enact, through an ordinance, the annual budget of the local government unit for the ensuing fiscal year on the basis of the estimates of income and expenditures submitted by the local chief executive.
1.1 Check the Budget Documents Submitted
Using the Local Budget Authorization (LBA) Form Nos. 1A and No. 1B (Checklists on Documentary and Signature Requirements for the Annual/Supplemental Budget), the Sanggunian, with the assistance of the LFC, shall check if the following documents are submitted for authorization:
1.1.1 For Annual Budget (Please refer to LBA Form No. 1A on page 131)
Document Signatory Budget Message LCE Local Expenditure Program LCE BESF LFC LCE
AIP (Approved by the Sanggunian through a Resolution) Secretary to the Sanggunian Presiding Officer Personnel Schedule HRMO LCE
116 1.1.2 For Supplemental Budget (Please refer to LBA Form No. 1B on page 132)
Document Signatory
Funds Actually Available: Certified Statement of Additional Realized Income Certification of Savings
Local Treasurer and Local Accountant* Local Treasurer and Local Accountant* *As recommended by COA
New Revenue Measure/s: Certified Statement of Income from New Revenue Measure/s Copy of duly enacted ordinance which imposes new local taxes, charges, fees, fines or penalties or which raises existing local taxes, charges, fees, fines or penalties Copy of official communication stating that the LGU is a recipient of new or higher remittances, contributions, subsidies or grants in aid from the National Government or from government corporations and private entities
Local Treasurer and Local Accountant*
*As recommended by COA
Realignment of Appropriations in Times of Public Calamity: Certificate of Source of Funds Available for Appropriations
Local Treasurer Local Accountant LCE
117 1.2 Evaluate the Budget
The Sanggunian, with the assistance of the LFC, may refer to the BESF to facilitate the evaluation of, and deliberation on, the executive budget in terms of compliance with the budgetary requirements and general limitations. The Summary of Receipts and Expenditures is checked for specific purposes.
The Receipts Portion of BESF Table No. 1
To check the budget years aggregate estimated income which will be compared with the aggregate expenditure program (Section 324 [a], R.A. No. 7160);
To validate the amount of regular income for the budget year that will serve as basis for computing the 20% ceiling for the amount of appropriations for debt servicing (Section 324 [b], R.A. No. 7160);
To validate the amount of regular income for the budget year that will serve as basis for computing the 5% lump-sum appropriation for unforeseen expenditures arising from the occurrence of calamities (Section 324 [d], R.A. No. 7160);
To validate the amount of regular income realized in the next preceding fiscal year (Past Year column) that will serve as basis for computing the PS Limitation (Section 325 [a], R.A. No. 7160);
To verify the amount of actual receipts derived from basic real property tax in the next preceding calendar year as basis for computing the 2% ceiling of the annual appropriations for discretionary purposes of the LCE (Section 325 [h], R.A. No. 7160); and
To validate the amount of the IRA for the budget year that will serve as basis for computing the minimum 20% appropriation for development projects (Section 287, R.A. No. 7160).
118 The Expenditures Portion of BESF Table No.1
To determine the overall level of appropriations by department/ office/unit and special purpose appropriations, and the overall total;
To check the provisions for associated PS costs, e.g., PhilHealth, GSIS premiums, Pag-IBIG, PERA, AdCom, Year- end Bonus and Cash Gift, RATA, etc.; and
To verify if the projects in the budget are consistent with the AIP.
1.3 Deliberate on the Budget
The Sanggunian shall consider the executive budget as a priority measure which shall take precedence over all other pending and proposed measures. As a rule, all Sanggunian sessions shall be open to the public, unless otherwise provided by law (Article 105 [b], IRR of R.A. No. 7160).
Presentation of the Executive Budget to the Sanggunian
On the first day of the deliberation on the executive budget, the LCE may address the members of the Sanggunian to present the thrusts, programs and priorities of the budget under consideration. The LCE may likewise brief the Sanggunian on the level of proposed expenditures; how these are allocated among the three (3) mandated sectoral services, namely, economic, social, and general services; and the sources of financing, i.e., revenues, other receipts, and borrowings that will support the budget.
Deliberation Proper
The procedures observed in budget deliberation may vary from one LGU to another depending on the Internal Rules of Procedure adopted by the Sanggunian and the prevailing work linkages between the LCE and the Sanggunian members.
The Committee on Appropriations/Finance may conduct its own budget hearing and may call upon the LFC and Heads of Departments and Offices during the preliminary review and evaluation of the budget. The Committee then renders its report and recommendation to the Sanggunian proper. 119
The LFC, in assisting the Sanggunian, shall:
Make available pertinent data to enable the Sanggunian and the Committee on Appropriations/Finance to carry out a more objective review and analysis of the proposed expenditure program and its component activities, the projected revenues and other sources of financing; and
Be present during committee hearings and Sanggunian sessions as may be required by the legislative body to explain any detail of the executive budget that the members may wish to be clarified on.
The Heads of Departments and Offices, when requested to appear before the Sanggunian to explain or justify their budgets, shall present the following:
The objectives, functions and corresponding projects of the department/office and their relevance to the total development efforts of the LGU;
The nature of the work to be performed for each function, project and activity measured in terms of expected results, as well as the level of funding being proposed, including the organizational setup/staffing modification, if any, and the personnel complement tasked to perform the work; and
The accomplishment of the department/office for the preceding fiscal year, particularly the extent to which it has met its target.
The Sanggunian shall, among others, ensure that the provisions on budgetary requirements and general limitations under R.A. No. 7160 and other laws are strictly complied with in the proposed budget.
During budget deliberation, the Sanggunian may use the following guide questions, among others:
Is the budget consistent with the AIP?
120 Does the budget adequately provide funds for the delivery of basic services and maintenance of facilities enumerated under Section 17 of R.A. No. 7160?
Are the requirements of component LGUs considered and equitably allocated for in the budget?
Is the proposed expenditure program within the recommended ceiling for economic, social, and general public services? Does the budget provide for a proper balance among these various services?
Are the existing/proposed organizational structure and staffing pattern designed and implemented taking into consideration the service requirements and financial capability of the LGU subject to the minimum standards and guidelines of the Civil Service Commission (CSC) and the provisions of R.A. No. 7160? Does the existing/proposed complement have the capability to implement the plans and programs and to deliver basic public services?
Are there some expenditures that need to be reduced to ensure reasonable economy in local government operations?
Will some projects or activities need to be fast tracked, and procedures to be simplified to maximize utilization of resources?
Are the estimated revenues and other receipts of reasonable probability of collection? Are the new tax and other revenue measures proposed to finance the budget covered by tax ordinances? Is the proposed borrowing or other credit financing scheme within the capability of the LGU to pay?
1.4 Authorize the Annual Budget
After budget deliberation, the Sanggunian authorizes the annual budget through an Appropriation Ordinance. (An illustrative example of an ordinance authorizing the annual appropriations is shown on page 133).
An ordinance is enacted to cover legislative actions of a general or permanent character (Article 107 [a], IRR of R.A. No. 7160).
121 An appropriation refers to an authorization made by ordinance directing the payment of goods and services from local government funds under specified conditions or for specific purposes (Section 306 [b], R.A. No. 7160).
Contents of the Appropriation Ordinance
The Appropriation Ordinance shall contain, among others, the following:
An assigned number, a title or caption, an enacting or ordaining clause, and the date of proposed effectivity (Article 107 [b], IRR of R.A. No. 7160).
By department/office/unit and special purpose appropriation:
Functional statement, objectives and expected results New Appropriations by PPA, by expense class and by object of expenditure General Provisions (if applicable) Special Provisions (if applicable)
A summary of totals of the new appropriations by department/office/unit
A provision identifying the budget documents appended to the Appropriation Ordinance that will form part of the authorized budget such as, but not limited to, the following:
BESF AIP Personnel Schedule by department/office/unit (LBP Form No. 4 on page 79) Others
A provision that the budget complies with the budgetary requirements and general limitations provided under R.A. No. 7160.
A provision that any change in the budget shall be made in accordance with Sections 321 and 336 of R.A. No. 7160 and Article 417 (as amended by Administrative Order [A.O.] No. 47 122 dated 12 April 1993) and Article 454 of the IRR of the same R.A.
Such other conditions as may be imposed by the Sanggunian to ensure the effective implementation of the budget programs and to institute adequate safeguards in the disbursement of local funds
Rules Governing the Enactment of an Appropriation Ordinance
The enactment of the proposed Appropriation Ordinance shall be governed by the rules prescribed under Section 54 of R.A. No. 7160 and Article 107 of its IRR, as well as the Internal Rules of Procedure adopted by the Sanggunian concerned. In summary, the following may constitute the basic requirements and process of enactment:
A majority of all the members of the Sanggunian who have been elected and qualified shall constitute a quorum to transact official business. Should a question of quorum be raised during a session, the Presiding Officer shall immediately proceed to call the roll of the members and thereafter announce the results (Section 53, R.A. No. 7160; Article 106, IRR of R.A. No. 7160).
The proposed Appropriation Ordinance shall be accompanied by a brief explanatory note containing the justification for its approval (Article 107 [b], IRR of R.A. No. 7160).
The proposed Appropriation Ordinance shall be signed by the author or authors and submitted to the Secretary to the Sanggunian who shall report the same to the Sanggunian at its next meeting.
However, if the proposed Appropriation Ordinance is certified as urgent by the LCE, it may be presented to and considered by the Sanggunian at the same meeting when it was first reported to the Sanggunian, whether or not it is included in the calendar of business without need of suspending the rules (Article 107 [b] and [e], IRR of R.A. No. 7160).
No ordinance shall be considered on second reading in any regular meeting unless it has been reported out by the proper 123 committee to which it was referred, normally the Committee on Appropriations, or certified as urgent by the LCE (Article 107 [d], IRR of R.A. No. 7160).
If the proposed Appropriation Ordinance is certified as urgent by the LCE, it may be submitted for final voting immediately after debate or amendment during the second reading (Article 107[f], IRR of R.A. No. 7160).
The Secretary to the Sanggunian shall prepare copies of the proposed Appropriation Ordinance in the form it was passed during the second reading and shall distribute to each Sanggunian member a copy thereof for the third reading and final consideration (Article 107 [f], IRR of R.A. No. 7160).
The proposed Appropriation Ordinance shall require the affirmative vote of a majority of all the Sanggunian members (that is, 50% plus one) for its passage (Article 107[g], IRR of R.A. No. 7160).
The approved Appropriation Ordinance shall be stamped with the seal of the Sanggunian and recorded in a book kept for the purpose (Article 107 [h], IRR of R.A. No. 7160).
The Secretary to the Sanggunian shall affix his signature to the enacted Appropriation Ordinance and present the same to the Presiding Officer for his signature (Section 469 [c] [2], R.A. No. 7160).
The Secretary to the Sanggunian shall forward the Appropriation Ordinance enacted by the Sanggunian and duly certified by the Presiding Officer to the LCE for approval (Section 469 [c] [3], R.A. No. 7160).
Limitations on Legislative Action
The Sanggunian may not increase the proposed amount in the executive budget nor include new items except to provide for statutory and contractual obligations but in no case shall it exceed the total appropriations in the executive budget (Article 415, IRR of R.A. No. 7160).
124 Failure to Enact the Annual Appropriations (Section 323, R.A. No. 7160)
In case the Sanggunian concerned fails to pass the ordinance authorizing the annual appropriations at the beginning of the ensuing fiscal year, the ordinance authorizing the appropriations of the preceding year shall be deemed reenacted. The Sanggunian shall continue to hold sessions, without additional remuneration for its members, until the ordinance authorizing the annual appropriations is approved, and no other business may be taken up during such sessions (Article 415, IRR of R.A. No. 7160).
If the Sanggunian still fails to enact such ordinance after 90 days from the beginning of the fiscal year, the preceding years budget shall remain in force and effect until such time that the ordinance authorizing the annual appropriations is passed by the Sanggunian concerned (Article 415, IRR of R.A. No. 7160).
The Reenacted Budget
Only the annual appropriations for salaries and wages of existing positions, statutory and contractual obligations, and essential operating expenses authorized in the annual and supplemental budgets for the preceding year shall be deemed reenacted and disbursement of funds shall be in accordance therewith (Section 323, R.A. No. 7160).
In the implementation of the reenacted ordinance, the local treasurer concerned shall exclude from the estimates of income for the preceding fiscal year those realized from nonrecurring sources like national aids, proceeds from loans, sale of assets, prior year adjustments, and other analogous sources of income. National Aids shall not include the IRA of LGUs and their shares in the utilization and development of national wealth (Section 323, R.A. No. 7160; Article 415, IRR of R.A. No. 7160).
In case the revised income estimates be less than the aggregate reenacted appropriations, the local treasurer concerned shall accordingly advise the Sanggunian concerned which shall, within 10 days from receipt of such advice, make the necessary adjustments or reductions. The revised appropriations authorized by the Sanggunian 125 concerned shall then be the basis for disbursements (Section 323, R.A. No. 7160).
No ordinance authorizing supplemental appropriations shall be passed in place of the annual appropriations (Section 323, R.A. No. 7160).
Step 2. Approve the Appropriation Ordinance The Appropriation Ordinance enacted by the Sanggunian shall be presented to the LCE for approval, in which case, he shall affix his signature on every page thereof (Sample Format No. 2 Approval Letter of the LCE, page 139). Otherwise, he shall veto it and return the same with his objections to the Sanggunian, which may proceed to reconsider the same. A veto may be partial (Sample Format No. 3, page 140) or total (Sample Format No. 4, page 141).
The veto shall be communicated by the LCE to the Sanggunian within 15 days in the case of a province, and 10 days in the case of a city or municipality; otherwise, the ordinance shall be deemed approved as if the LCE had signed it (Section 54 [b], R.A. No. 7160).
Veto Power of the LCE (Section 55, R.A. No. 7160)
The LCE may veto any ordinance on the ground that it is ultra vires (that is, beyond the powers) or prejudicial to the public welfare, stating his reasons therefore in writing.
The LCE, except the Punong Barangay, shall have the power to veto any particular item or items of an Appropriation Ordinance, an ordinance or resolution adopting a local development plan and public investment program, or an ordinance directing the payment of money or creating liability.
The veto shall not affect the item or items that are not objected to.
The vetoed item or items shall not take effect unless the Sanggunian overrides the veto; otherwise, the item or items in the Appropriation Ordinance of the previous year corresponding to those vetoed, if any, shall be deemed reenacted.
The LCE may veto an ordinance or resolution only once. 126
Override of the Veto (Section 55 [c], R.A. No. 7160; Article 109 [c], IRR of R.A. No. 7160)
The Sanggunian may override the veto of the LCE by two-thirds (2/3) vote of all its members.
Such override will make the ordinance effective for all legal intents and purposes even without the approval of the LCE.
Step 3. Submit the Appropriation Ordinance for Review
For component cities and municipalities, the Secretary to the Sangguniang Panlungsod or Sangguniang Bayan, as the case may be, shall forward to the Sangguniang Panlalawigan within three (3) days after approval, copies of the approved Appropriation Ordinance for review in accordance with Section 327 of R.A. No. 7160 (Section 56, R.A. No. 7160).
For provinces, highly urbanized cities, independent component cities and municipalities within the Metropolitan Manila Area, the Secretary to the Sangguniang Panlalawigan, Sangguniang Panlungsod, or Sangguniang Bayan, as the case may be, shall transmit to the DBM within three (3) days after its approval, copies of the approved Appropriation Ordinance for review in accordance with Section 326 of R.A. No. 7160 (Section 56, R.A. No. 7160 adopted as a policy).
127 6.0 Changes in the Annual Budget
6.1 Supplemental Budget
General Rule
All budgetary proposals shall be included and considered in the budget preparation process. After the LCE shall have submitted the executive budget to the Sanggunian, no ordinance providing for a supplemental budget shall be enacted (Section 321, R.A. No. 7160).
Exceptions
Changes in the annual budget may be done through supplemental budgets under the following circumstances (Article 417, IRR of R.A. No. 7160 as amended by A.O. No. 47):
6.1.1 When supported by funds actually available as certified by the local treasurer
Funds actually available refer to the amount of money actually collected, as certified by the local treasurer, at any given point during the fiscal year, which is over and above the estimated income collection for that point in the year.
Thus, funds are actually available when realized income exceeds estimated income as of any given day, month, or quarter of a given fiscal year.
Funds are likewise deemed actually available when there are savings.
Savings refer to portions or balances as of any given point in the fiscal year or any programmed or allotted appropriation which remain free of any obligation or encumbrance and which are still available after the satisfactory completion or the unavoidable discontinuance or abandonment of the work, activity or purpose for which the appropriation was originally authorized, or which result from unobligated compensation and related costs pertaining to vacant positions and leaves of absence without pay.
128 6.1.2 If covered by new revenue source/s
New revenue source refers to money measure not otherwise considered during the preparation and enactment of the annual budget. Such new revenue measures include ordinance passed by the Sanggunian during the fiscal year but after the annual budget had already been enacted into law which imposes new local taxes, charges, fees, fines or penalties, or which raises existing local taxes, charges, fees, fines or penalties.
Such revenue sources also include new or higher remittances, contributions, subsidies or grants in aid from the National Government or from government corporations and private entities which have not been included in the estimates of income which served as basis for the annual budget.
6.1.3 In times of public calamity (Section 321, R.A. No. 7160; Article 417, IRR of R.A. No. 7160, as amended by A.O. No. 47).
By way of budgetary realignment to set aside appropriations for the purchase of supplies and materials or the payment of services, which are exceptionally urgent or absolutely indispensable to prevent imminent danger to, or loss of, life or property, in the jurisdiction of the LGU or in other areas declared in a state of calamity by the President.
In such case, the Appropriation Ordinance shall clearly indicate the following:
The sources of funds available for appropriations as certified under oath jointly by the local treasurer and the local accountant and attested to by the LCE;
The items of appropriations affected; and
The reasons for the change.
Sample Format No. 1 on pages 135-138 illustrates an ordinance authorizing supplemental appropriations.
129 6.2 Use of Appropriated Funds and Savings
General Rule
Funds shall be available exclusively for the specific purpose for which they have been appropriated. No ordinance shall be passed authorizing any transfer of appropriations from one item to another (Section 336, R.A. No. 7160).
Exception
The LCE or the Presiding Officer of the Sanggunian may, by ordinance, be authorized to augment any item in the approved annual budget for their respective offices from savings in other items within the same expense class of their respective appropriations {Section 336, R.A. No. 7160; (Article 454 [b], IRR of R.A. No. 7160)}.
Savings refer to portions or balances of any programmed appropriation free from any obligation or encumbrance, still available after the satisfactory completion or the unavoidable discontinuance or abandonment of the work, activity or purpose for which the appropriation is authorized, or arising from unpaid compensation and related costs pertaining to vacant positions and leaves of absence without pay (Article 454 [b] [1], IRR of R.A. No. 7160).
Augmentation implies the existence in the budget of an item, project, activity or purpose with an appropriation which, upon implementation or subsequent evaluation of needed resources, is determined to be deficient (Article 454 [b][2], IRR of R.A. No. 7160).
Sample Format No. 5 on pages 142-143 illustrates an ordinance authorizing the use of savings and augmentation.
7.0 Effectivity of Budgets
The ordinance enacting the annual budget shall take effect at the beginning of the ensuing calendar year (Section 320, R.A. No. 7160).
An ordinance enacting a supplemental budget shall take effect upon its approval or on the date fixed therein (Section 320, R.A. No. 7160).
130 Posting requirement and effectivity of Appropriation Ordinance (Section 59, R.A. No. 7160; Article 113, IRR of R.A. No. 7160).
Unless otherwise stated in the ordinance or resolution approving the local development plan and public investment program, the same shall take effect after 10 days from the date a copy thereof is posted on the bulletin board at the entrance of the provincial capitol or city or municipal hall, as the case may be, and in at least two (2) other conspicuous places in the LGU.
The Secretary to the Sanggunian shall cause the posting of an ordinance or resolution in the bulletin board at the entrance of the provincial capitol, or city or municipal hall, as the case may be, and in at least two (2) conspicuous places in the LGU not later than five (5) days after approval of the ordinance or resolution.
The ordinance or resolution shall be disseminated and posted in Filipino or English and in the language or dialect understood by the majority of the people in the LGU. The Secretary to the Sanggunian shall record such fact in a book kept for the purpose, stating the dates of approval and posting.
In the case of highly urbanized and independent component cities, the main features of the ordinance or resolution duly enacted or adopted shall, in addition to being posted, be published once in a local newspaper of general circulation within the city, provided, that in the absence thereof, the ordinance or resolution shall be published in any newspaper of general circulation.
131 8.0 LOCAL BUDGET AUTHORIZATION FORMS
LBA Form No. 1A
CHECKLIST ON DOCUMENTARY AND SIGNATURE REQUIREMENTS FOR THE ANNUAL BUDGET
Document Signatory
Budget Message
Local Chief Executive
Local Expenditure Program
Local Chief Executive
BESF
Local Finance Committee Local Chief Executive
AIP (Approved by the Sanggunian through a Resolution)
Secretary to the Sanggunian Presiding Officer
Personnel Schedule
HRMO Local Chief Executive
132
LBA Form No. 1B
CHECKLIST ON DOCUMENTARY AND SIGNATURE REQUIREMENTS FOR THE SUPPLEMENTAL BUDGET
Document Signatory Funds Actually Available: Certified Statement of Additional Realized Income Certification of Savings
Local Treasurer and Local Accountant Local Treasurer and Local Accountant
New Revenue Measure/s: Certified Statement of Income from New Revenue Measure/s
Copy of duly enacted ordinance which imposes new local taxes, charges, fees, fines or penalties or which raises existing local taxes, charges, fees, fines or penalties
Copy of official communication stating that the LGU is a recipient of new or higher remittances, contributions, subsidies or grants in aid from the National Government or from government corporations and private entities
Local Treasurer and Local Accountant
Realignment of Appropriations in Times of Public Calamity: Certificate of Source of Funds Available for Appropriations
Local Treasurer Local Accountant and LCE
133
9.0 Illustrative Example
Ordinance Authorizing the Annual Appropriations
APPROPRIATION ORDINANCE NO. _______ Series of ________
AN ORDINANCE AUTHORIZING THE ANNUAL BUDGET OF (Name of LGU) FOR FISCAL YEAR _____ IN THE TOTAL AMOUNT OF ______________________________ (P_____________) COVERING THE VARIOUS EXPENDITURES FOR THE OPERATION OF THE ____________ GOVERNMENT FOR FISCAL YEAR ______, AND APPROPRIATING THE NECESSARY FUNDS FOR THE PURPOSE
Introduced by:
Be it ordained in Regular Session assembled:
Section 1. The Annual Budget of the (Name of LGU) for Fiscal Year _____ in the total amount of ______________________________ (P____________) covering the various expenditures for the operation of the Provincial/City/Municipal Government for the year ____ is hereby approved.
The budget documents consisting of the following are incorporated herein and made integral part of this Ordinance: 1. Budget of Expenditures and Sources of Financing 2. Annual Investment Program 3. Personnel Schedule by department/office/unit 4. Others
Section 2. Sources of Funds. (Refer to the illustrative example of the LEP on pages 92-98)
Section 3. Use of Funds. (Refer to the illustrative example of the LEP on pages 92-98_)
Section 4. Use of Savings and Augmentation. In accordance with Section 336 of Republic Act No. 7160, the Local Government Code of 1991, the Governor/Mayor and the Presiding Officer of the Sanggunian are authorized to augment any item in the approved annual budget for their respective offices from savings in other items within the same expense class of their respective appropriations.
For this purpose, savings refer to portions or balances of any programmed appropriation free from any obligation or encumbrance, still available after the satisfactory completion or
134
the unavoidable discontinuance or abandonment of the work, activity or purpose for which the appropriation is authorized, or arising from unpaid compensation and related costs pertaining to vacant positions and leaves of absence without pay.
Augmentation implies the existence in the budget of an item, project, activity or purpose with an appropriation which, upon implementation or subsequent evaluation of needed resources, is determined to be deficient.
Section 5. Priority in the Use of Personal Services Savings. Priority shall be given to the personnel benefits of local employees in the use of Personal Services savings. (Sample policy only)
Section 6. Separability Clause. If, for any reason, any Section or provision of this Appropriation Ordinance is disallowed in Budget Review or declared invalid by proper authorities, other Sections or provisions hereof that are not affected thereby shall continue to be in full force and effect.
Section 7. Effectivity. The provisions of this Appropriation Ordinance shall take effect on January one, Two thousand and _____________.
ENACTED: This ____ day of __________ at ____________________.
x--------------------------------------------x
I HEREBY CERTIFY THAT THIS IS A TRUE AND ACCURATE COPY OF THE ORDINANCE DULY ENACTED BY THE SANGGUNIAN ON ___________________.
NAME AND SIGNATURE OF THE SECRETARY TO THE SANGGUNIAN
NAME AND SIGNATURE OF THE PRESIDING OFFICER
APPROVED:
NAME AND SIGNATURE OF THE LOCAL CHIEF EXECUTIVE DATE OF APPROVAL:
135
10.0 Sample Formats
10.1 Sample Format No. 1 Ordinance Authorizing Supplemental Appropriations
APPROPRIATION ORDINANCE NO. __________ Series of _______
AN ORDINANCE AUTHORIZING SUPPLEMENTAL BUDGET NO. __, SERIES _______ INVOLVING AN AMOUNT OF____________________ (P__________) FOR ____________(purpose)_____________________________________
Be it ordained in Regular Session assembled:
Section 1. The Supplemental Budget of the (Name of LGU) Government for Fiscal Year _____ in the total amount of ______________________________ (P____________) for ________________________________ is hereby approved.
The budget documents consisting of the following are incorporated herein and made integral part of this Ordinance:
1. 2. 3. 4.
Section 2. Sources of Funds. The sources of funds for the Supplemental Budget in the total amount of _____________________________________ (P___________) shall be as follows:
Beginning Balance P___________ Add: Income Sources (Funds Actually Available Certified by Local Treasurer or New Revenue Source or Item/s to be Realigned in Times of Public Calamity) ____________
Total P___________
Section 3. Use of Funds. The amount of _____________________________(P_______) is hereby appropriated for the Supplemental Budget of the ( Name of LGU), as follows:
136
Proposed New Appropriations Language
For __________________________________________ .P___________
New Appropriations by Program/Project/Activity (000)
Program/Project/Activity Current Operating Expenditures Capital Outlay Financial Expenses Total Personal Services Maintenance and Other Operating Expenses
A. Programs
I. General Administration Services a. General Administrative and Support Services b.
Sub-total
II. Operations a. b. c.
Sub-total Total, Programs
B. Projects
I. Locally-funded Project a. b.
Sub-total Total, Projects Total New Appropriations
137
Program Appropriation and Obligation by Object (000)
Object of Expenditure Account Code* Past Year Current Year Budget Year
Personal Services (PS)
Total PS
Maintenance and Other Operating Expenses (MOOE)
Total MOOE
Capital Outlay (CO)
Total CO
Financial Expenses
Total Financial Expenses
TOTAL APPROPRIATIONS
Section 4. Separability Clause. If, for any reason, any section or provision of this Ordinance is declared invalid or unconstitutional, other sections or provisions thereof which are not affected thereby shall continue to be in full force and effect.
138
Section 5. Effectivity. The provisions of this Ordinance shall take effect on _________________.
ENACTED: This ____ day of __________ at ____________________
x--------------------------------------------x
I HEREBY CERTIFY THAT THIS IS A TRUE AND ACCURATE COPY OF THE ORDINANCE DULY ENACTED BY THE SANGGUNIAN ON ___________________.
NAME AND SIGNATURE OF THE SECRETARY TO THE SANGGUNIAN
NAME AND SIGNATURE OF THE PRESIDING OFFICER
APPROVED:
NAME AND SIGNATURE OF THE LOCAL CHIEF EXECUTIVE DATE OF APPROVAL:
139
10.2 Sample Format No. 2 Approval Letter of the LCE
Date
THE HONORABLE PRESIDING OFFICER THE HONORABLE MEMBERS OF THE SANGGUNIAN
Ladies/Gentlemen:
Today, I sign Appropriation Ordinance No. __________ for Fiscal Year ____ entitled, AN ORDINANCE AUTHORIZING THE ANNUAL BUDGET OF (Name of LGU) FOR FISCAL YEAR _____ IN THE TOTAL AMOUNT OF ______________________________ (P_____________) COVERING THE VARIOUS EXPENDITURES FOR THE OPERATION OF THE ____________ GOVERNMENT FOR FISCAL YEAR ______, AND APPROPRIATING THE NECESSARY FUNDS FOR THE PURPOSE (or AN ORDINANCE AUTHORIZING SUPPLEMENTAL BUDGET NO. __, SERIES _______ INVOLVING AN AMOUNT OF____________________ (P__________) FOR ____________(purpose)_____________________________________).
With the passage of the FY ____ Annual/Supplemental Budget of the (Name of LGU) under Appropriation Ordinance No. _____, we will be giving better basic services to our constituents.
Very truly yours,
NAME AND SIGNATURE OF THE LOCAL CHIEF EXECUTIVE
140
10.3 Veto Message Format
10.3.1 Sample Format No. 3 Partial Veto
Date
THE HONORABLE PRESIDING OFFICER THE HONORABLE MEMBERS OF THE SANGGUNIAN
Ladies/Gentlemen:
Today, I sign Appropriation Ordinance No. __________ for Fiscal Year ____ entitled, AN ORDINANCE AUTHORIZING THE ANNUAL BUDGET OF (Name of LGU) FOR FISCAL YEAR _____ IN THE TOTAL AMOUNT OF ______________________________ (P_____________) COVERING THE VARIOUS EXPENDITURES FOR THE OPERATION OF THE ____________ GOVERNMENT FOR FISCAL YEAR ______, AND APPROPRIATING THE NECESSARY FUNDS FOR THE PURPOSE (or AN ORDINANCE AUTHORIZING SUPPLEMENTAL BUDGET NO. __, SERIES _______ INVOLVING AN AMOUNT OF____________________ (P__________) FOR ____________(purpose)_____________________________________).
On the other hand, pursuant to the powers vested in me by the Local Government Code of 1991, I am duty bound to veto some items of appropriation in the above-cited Appropriation Ordinance No. ______ on the grounds that they result from ultra vires acts of the Sanggunian and are prejudicial to public welfare, as follows:
1.
2.
In view of the foregoing, with the passage of the FY ______ Annual/Supplemental Budget of the (Name of LGU) under Appropriation Ordinance No. _____, we will be giving better basic services to our constituents.
Accordingly, I am returning the approved Appropriation Ordinance No. _____ together with my partial veto, to the Sanggunian, for their appropriate action.
Very truly yours,
NAME AND SIGNATURE OF THE LOCAL CHIEF EXECUTIVE
141
10.3.2 Sample Format No. 4 Total Veto
Date
THE HONORABLE PRESIDING OFFICER THE HONORABLE MEMBERS OF THE SANGGUNIAN
Ladies/Gentlemen:
Today, I veto Appropriation Ordinance No. __________ for Fiscal Year ____ entitled, AN ORDINANCE AUTHORIZING THE ANNUAL BUDGET OF (Name of LGU) FOR FISCAL YEAR _____ IN THE TOTAL AMOUNT OF ______________________________ (P_____________) COVERING THE VARIOUS EXPENDITURES FOR THE OPERATION OF THE ____________ GOVERNMENT FOR FISCAL YEAR ______, AND APPROPRIATING THE NECESSARY FUNDS FOR THE PURPOSE (or AN ORDINANCE AUTHORIZING SUPPLEMENTAL BUDGET NO. __, SERIES _______ INVOLVING AN AMOUNT OF____________________ (P__________) FOR ____________(purpose)_____________________________________).
Pursuant to the powers vested in me by the Local Government Code of 1991, I veto the above-entitled Appropriation Ordinance No. ______ for the following reasons:
1.
2.
These acts of the Sanggunian are ultra vires and prejudicial to public welfare.
Hence, I am respectfully returning Appropriation Ordinance No. _____, together with this Veto Message to the Sanggunian, for its appropriate action.
Very truly yours,
NAME AND SIGNATURE OF THE LOCAL CHIEF EXECUTIVE
142
10.4 Sample Format No. 5 Ordinance Authorizing Use of Savings and Augmentation
ORDINANCE NO. __________ Series of _______
AN ORDINANCE AUTHORIZING THE GOVERNOR/MAYOR AND/OR THE PRESIDING OFFICER OF THE SANGGUNIAN TO USE SAVINGS FOR AUGMENTATION IN ACCORDANCE WITH THE LOCAL GOVERNMENT CODE OF 1991
Be it ordained in Regular Session assembled:
Section 1. Use of Savings and Augmentation. In accordance with Section 336 of Republic Act No. 7160, the Local Government Code of 1991, the Governor/Mayor and/or the Presiding Officer of the Sanggunian is/are authorized to augment any item in the approved annual budget for their respective offices from savings in other items within the same expense class of their respective appropriations.
For this purpose, savings refer to portions or balances of any programmed appropriation free from any obligation or encumbrance, still available after the satisfactory completion or the unavoidable discontinuance or abandonment of the work, activity or purpose for which the appropriation is authorized, or arising from unpaid compensation and related costs pertaining to vacant positions and leaves of absence without pay.
Augmentation implies the existence in the budget of an item, project, activity or purpose with an appropriation which, upon implementation or subsequent evaluation of needed resources, is determined to be deficient;
Section 2. Priority in the Use of Personal Services Savings. Priority shall be given to the personnel benefits of local employees in the use of Personal Services savings.
Section 3. Separability Clause. If, for any reason, any section or provision of this Ordinance is declared invalid or unconstitutional, other sections or provisions thereof which are not affected thereby shall continue to be in full force and effect.
Section 4. Effectivity. The provisions of this Ordinance shall take effect on _______________.
ENACTED: This ____ day of __________ at ____________________.
x--------------------------------------------x
143
I HEREBY CERTIFY THAT THIS IS A TRUE AND ACCURATE COPY OF THE ORDINANCE DULY ENACTED BY THE SANGGUNIAN ON ___________________.
NAME AND SIGNATURE OF THE SECRETARY TO THE SANGGUNIAN
NAME AND SIGNATURE OF THE PRESIDING OFFICER
APPROVED:
NAME AND SIGNATURE OF THE LOCAL CHIEF EXECUTIVE DATE OF APPROVAL:
(Note: This form may be adopted in case the Sanggunian decides to grant the authority for use of savings and augmentation under Section 336 of R.A. No. 7160 and the same authority was not incorporated in the Ordinance authorizing the Annual Appropriations of the LGU)
144
Chapter 3. Budget Review Phase
1.0 Introduction
2.0 Legal Basis of Budget Review
3.0 Key Players in Budget Review
4.0 Reglementary Period of Review
5.0 The Budget Review Flow Chart
6.0 Steps in the Budget Review Phase Step 1. Check the Appropriation Ordinance with the Appended Budget Documents Step 2. Review the Appropriation Ordinance Step 3. Issue the Review Action Review Actions Effects of the Review Action Format of the Review Action Nature of the Review Action Stamp of Review Return of the Reviewed Appropriation Ordinance to the LGU Concerned Failure to Review the Appropriation Ordinance within the Mandated Period Review Actions and Corrective Measures Enforcement of Ordinances or Resolutions after Disapproval by Reviewing Authority
7.0 Local Budget Review Forms LBR Form No. 1A - Checklist on Documentary and Signature Requirements for the Annual Budget LBR Form No. 1B - Checklist on Documentary and Signature Requirements for the Supplemental Budget LBR Form No. 2 - Table Recapitulating the Findings and Possible Review Action
145
8.0 Illustrative Example Table Recapitulating the Findings and Possible Review Actions
9.0 Sample Formats 9.1 Review Letter Declaring the Appropriation Ordinance Operative in its Entirety 9.2 Review Letter Declaring the Appropriation Ordinance Operative in its Entirety Subject to Some Conditions 9.3 Review Letter Declaring the Appropriation Ordinance Inoperative in its Entirety 9.4 Review Letter Declaring the Appropriation Ordinance Inoperative in Part 9.5 Resolution Declaring the Appropriation Ordinance Operative in its Entirety 9.6 Resolution Declaring the Appropriation Ordinance Operative in its Entirety Subject to Some Conditions 9.7 Resolution Declaring the Appropriation Ordinance Inoperative in its Entirety 9.8 Resolution Declaring the Appropriation Ordinance Inoperative in Part 9.9 Stamp of Review
146 The Department of Budget and Management shall review ordinances authorizing the annual or supplemental appropriations of provinces, highly-urbanized cities, independent component cities, and municipalities within the Metropolitan Manila Area in accordance with Section 326 of R.A. No. 7160.
The Sangguniang Panlalawigan shall review the ordinance authorizing annual or supplemental appropriations of component cities and municipalities in the same manner and within the same period prescribed for the review of other ordinances (Section 327, R.A. No. 7160).
Budget Review Phase
1.0 Introduction
Budget Review is the third phase in the local budget process. Its primary purpose is to determine whether the ordinance has complied with the budgetary requirements and general limitations set forth in the Local Government Code of 1991 as well as provisions of other applicable laws. It starts from the time the reviewing authority receives the Appropriation Ordinance for review and ends with the issuance of the review action.
2.0 Legal Basis
3.0 Key Players in Budget Review
3.1 Secretary to the Sanggunian - Within three (3) days after approval of the ordinance authorizing annual or supplemental appropriations, the Secretary to the Sanggunian shall forward the said ordinance to the Department of Budget and Management Regional Office (DBM RO) or Sangguniang Panlalawigan for review (Section 56 in relation with Sections 326 and 327, R.A. No. 7160).
3.2 Sangguniang Panlalawigan - The Sangguniang Panlalawigan shall review the ordinance authorizing annual or supplemental appropriations of component cities and municipalities within the province (Section 327, R.A. No. 7160). 147
3.3 Provincial Finance Committee The Provincial Finance Committee shall assist the Sangguniang Panlalawigan in the review and evaluation of budgets of component cities and municipalities and recommend the appropriate action thereon (Section 315 [f], R.A. No. 7160).
3.4 Department of Budget and Management Regional Office The DBM RO shall review the ordinance authorizing the annual or supplemental appropriations of provinces, highly-urbanized cities and independent component cities within its jurisdiction, and municipalities within the Metropolitan Manila Area (Section 326, R.A. No. 7160).
4.0 Reglementary Period of Review
The Appropriation Ordinance of provinces, highly-urbanized cities, independent component cities, component cities and municipalities shall be reviewed within 90 days from receipt of copies of such ordinances (Section 327, R.A. No. 7160).
5.0 The Budget Review Flow Chart
The budget review flow chart below (Figure 12) shows the sequence of activities from the time the Secretary to the Sanggunian submits the approved Appropriation Ordinance to the reviewing body/office until the same is returned together with the budget review action to the Sanggunian concerned through the LCE.
148
Figure 12. The Budget Review Flow Chart
1. Checks compliance with budgetary requirements and general limitations 2. Checks compliance with AIP 3. Checks for items that are prohibited by law Issues the Review Action 1. Prepares LBR Form No.2 2. Prepares Review Action Advises the Sanggunian on the Budget Review Action Secretary to the Sanggunian
Reviewing Authority
Local Chief Executive
Approves the Appro-priation Ordinance Submits the Appropriation Ordinance Checks the Appropriation Ordinance and budgetary requirements Reviews the Appropriation Ordinance Prepares LBR Form Nos. 1A and 1B Acts on the Budget Review Action Sanggunian
149 6.0 Steps in the Budget Review Phase
Step 1. Check the Appropriation Ordinance with the Appended Budget Documents. 1.1 Using LBR Form Nos. 1A and No. 1B (Checklists on Documentary and Signature Requirements for the Annual Budget and Supplemental Budget), the DBM RO or Sangguniang Panlalawigan shall check if the following budget documents with the required signatures have been submitted together with the Appropriation Ordinance:
1.1.1 For Annual Budget (Please refer to LBR Form No. 1A)
Document Signatory Transmittal Letter Secretary to the Sanggunian Appropriation Ordinance Secretary to the Sanggunian Presiding Officer LCE BESF LFC LCE AIP (Approved by the Sanggunian through a Resolution)
Secretary to the Sanggunian Presiding Officer Personnel Schedule HRMO LCE Veto message, if any LCE Sanggunians action on veto, if any Secretary to the Sanggunian Presiding Officer
150 1.1.2 For Supplemental Budget (Please refer to LBR Form No. 1B)
Document Signatory Transmittal Letter Secretary to the Sanggunian Appropriation Ordinance Secretary to the Sanggunian Presiding Officer LCE Funds Actually Available: Certified Statement of Additional Realized Income Certification of Savings
Local Treasurer
Local Treasurer and Local Accountant New Revenue Measures: Certified Statement of Income from New Revenue Measures Copy of duly enacted Tax Ordinance which imposes new local taxes, charges, fees, fines or penalties, or which raises existing local taxes, charges, fees, fines or penalties Copy of official communication stating that the LGU is a recipient of new or higher remittances, contributions, subsidies or grants in aid from the National Government or from government corporations and private entities
Local Treasurer and Local Accountant
Realignment of Appropriations in Times of Public Calamity Certificate of Source of Funds Available for Appropriations
Local Treasurer Local Accountant LCE Veto message, if any LCE Sanggunians action on veto, if any Secretary to the Sanggunian Presiding Officer
All Appropriation Ordinances must carry the seal of the LGU. 151 Incomplete Submission
If the Appropriation Ordinance submitted for review lacks any of the documents or the required signatures mentioned under item 1.1 above, the said Appropriation Ordinance shall not be reviewed and shall be officially returned, in writing, by the DBM RO or Sangguniang Panlalawigan to the LGU concerned through its Secretary to the Sanggunian, requiring the resubmission of the same with the necessary budget documents and/or signatures.
Step 2. Review the Appropriation Ordinance
Using the BESF, the reviewing officer shall validate the provisions of the Appropriation Ordinance for compliance with the budgetary requirements and general limitations. In addition, the following checks/validation should also be undertaken:
2.1 Check that no official or employee is allowed a salary rate higher than the maximum fixed for his position or other positions of equivalent rank (Section 325 [b], R.A. No. 7160).
Using the Personnel Schedule and Index of Occupational Services (IOS), check the authorized salary grade and the corresponding salary for each position and compare with the authorized rate in the Salary Schedule being implemented by the LGU.
2.2 Check that no local fund is appropriated to increase or adjust salaries or wages of officials and employees of the National Government, except as may be expressly authorized by law (Section 325 [c], R.A. No. 7160).
2.3 In cases of abolition of positions and the creation of new ones resulting from the abolition of existing positions in the career service, check that such abolition or creation is made in accordance with pertinent provisions of R.A. No. 7160 and civil service laws, rules and regulations (Section 325 [d], R.A. No. 7160).
2.4 Check that all positions in the official plantilla for career positions, which are occupied by incumbents holding permanent appointments, are covered by adequate appropriations (Section 325 [e], R.A. No. 7160).
152 2.5 Check that there are no changes in designation or nomenclature of positions resulting in a promotion or demotion in rank or increase or decrease in compensation, except when the position is actually vacant (Section 325 [f], R.A. No. 7160).
2.6 Check that the effectivity of the creation of new positions and salary increases and adjustments is not made retroactive (Section 325 [g], R.A. No. 7160).
2.7 Check if the projects in the Appropriation Ordinance are found in the approved AIP (Section 305 [i], R.A. No. 7160).
2.8 Check if there are items in the Appropriation Ordinance that are specifically prohibited by law.
Step 3. Issue the Review Action
The DBM RO or Sangguniang Panlalawigan may prepare the Table Recapitulating the Findings and Possible Review Action (LBR Form No. 2 on page 160).
This Table summarizes the various findings of the reviewing authority and indicates the possible action that may be taken (See illustrative example on page 161).
3.1 Review Actions
After the evaluation of the Appropriation Ordinance and its supporting documents, the reviewing authority may take any of the following actions:
3.1.1 Declare the Appropriation Ordinance operative in its entirety.
The Appropriation Ordinance shall be declared operative in its entirety when it fully complies with the budgetary requirements and general limitations set forth under R.A. No. 7160 (Section 327, R.A. No. 7160).
3.1.2 Declare the Appropriation Ordinance operative in its entirety, subject to conditions.
153 The Appropriation Ordinance shall be declared operative in its entirety but subject to conditions in the following cases:
Certain items of appropriation require prior clearance or documentation
Certain items of appropriation require prior approval by appropriate authorities
Certain items of appropriation are found to be deficient from what is prescribed by law and need to be increased (e.g., insufficient provisions for PhilHealth, GSIS premiums for some employees, etc.), except in cases where the Appropriation Ordinance has to be declared inoperative in its entirety.
Other conditions that may restrain the declaration of the Appropriation Ordinance as operative
3.1.3 Declare the Appropriation Ordinance inoperative in its entirety.
The Appropriation Ordinance shall be declared inoperative in its entirety under any of the following cases:
When appropriation exceeds estimates of income (Section 324 [a], R.A. No. 7160)
Non-provision or insufficient provision for any of the budgetary requirements under Section 324 of R.A. No. 7160
Non-provision or insufficient provision of the 20% of the IRA for development projects (Section 287, R.A. No. 7160)
When all the projects included in the Appropriation Ordinance are different from those listed in the AIP
When no sufficient appropriation is provided for payment of loans and other indebtedness incurred or when no provision is made to redeem or retire bonds, debentures, 154 securities, notes and other obligations issued (Section 303, R.A. No. 7160)
3.1.4 Declare the Appropriation Ordinance inoperative in part.
The Appropriation Ordinance may be declared inoperative in part under the following conditions:
When some items are contrary to limitation or in excess of the amount prescribed by R.A. No. 7160, such as, but not limited to, Discretionary Purposes, Personal Services, Funds for Confidential/Intelligence Expenses, Appropriation for Debt Servicing
When some items have no legal basis (e.g., rice subsidy, COLA, 14 th month pay, etc.)
3.2 Effects of the Review Action
3.2.1 When the Appropriation Ordinance is declared operative in its entirety, it shall continue to be in full force and effect.
3.2.2 When the Appropriation Ordinance is declared operative in its entirety, subject to conditions, those items not subject to conditions shall continue to be in full force and effect. The items of appropriation subject to conditions shall take effect only upon compliance with the conditions imposed.
3.2.3 When the Appropriation Ordinance is declared inoperative in its entirety:
The Appropriation Ordinance loses force and effect.
If it is the ordinance authorizing the annual appropriations that has been declared inoperative in its entirety during the fiscal year covered thereby, the LGU concerned shall operate under a reenacted budget effective immediately until such time that the new ordinance authorizing the annual appropriations is enacted and approved.
The local treasurer shall not make further disbursements of funds from any of the items of appropriation declared 155 inoperative, disallowed, or reduced (Section 327, R.A. No. 7160).
The budget shall be revised to comply with the provisions of law and authorized through another Appropriation Ordinance which shall then be submitted to the reviewing authority.
3.2.4 When the Appropriation Ordinance is declared inoperative in part:
The local treasurer shall not make further disbursements of funds from any of the items of appropriation declared inoperative, disallowed, or reduced (Section 327, R.A. No. 7160).
Only the items of appropriation that have not been declared inoperative, or have not been disallowed, shall continue to be in full force and effect.
3.3 Format of the Review Action
The review action by the DBM RO shall be in the form of a letter, while that of the Sangguniang Panlalawigan shall be in the form of a Resolution. All the findings must be disclosed in the review action. (Sample Formats of Review Letters and Resolutions can be found on pages 162-169).
3.4 Nature of the Review Action
3.4.1 The review action does not amend the act of the Sanggunian as embodied in the Appropriation Ordinance.
The primary purpose of the review is to determine whether the Appropriation Ordinance has complied with the provisions of law.
The findings of the reviewing authority are merely enumeration of infractions of budgetary requirements, general limitations and other provisions of R.A. No. 7160 and other applicable laws, as well as recommendations of what specific actions the Sanggunian will take to comply with the provisions of law. 156
The condition requiring provision for deficiencies shall be acted upon in the next supplemental budget.
3.4.2 The review action, likewise, does not authorize an item or items of appropriation that is/are specifically prohibited by law.
Based on jurisprudence, For an ordinance to be valid, it shall not violate any law or statute. (Magtajas vs. Pryce Properties Corp., Inc., 234 SCRA 255)
3.5 Stamp of Review
The stamp of review of the DBM RO or Sangguniang Panlalawigan shall be affixed on every page of the reviewed Appropriations Ordinance and duly signed by the Regional Director or by the Secretary to the Sanggunian and/or the Presiding Officer, as the case may be. (Sample Format of the Stamp of Review on page 170).
3.6 Return of the Reviewed Appropriation Ordinance to the LGU Concerned
The DBM RO or Sangguniang Panlalawigan shall, within the 90- day reglementary period, advise the Sanggunian concerned, through the LCE, of the action on the Appropriation Ordinance reviewed (Section 327, R.A. No. 7160).
3.7 Failure to Review the Appropriation Ordinance within the Mandated Period
If within 90 days from receipt of the copy of the Appropriation Ordinance, the DBM RO or Sanggunian Panlalawigan takes no action thereon, the same shall be deemed to have been reviewed in accordance with law and shall continue to be in full force and effect (Section 327, R.A. No. 7160).
157 3.8 Review Actions and Corrective Measures
REVIEW ACTIONS CORRECTIVE MEASURES Appropriation Ordinance is declared inoperative in its entirety. Sanggunian shall enact a new Ordinance authorizing Annual Appropriations based on a new executive budget proposal Appropriation Ordinance is declared inoperative in part.
For items without legal basis.
For items in excess of budgetary requirement and general limitations.
For items that are in excess of the amount prescribed by law
For items found to be deficient from that prescribed by law
The LGU, through the Treasurer, shall not make further disbursements of funds from any of the items of appropriation declared inoperative, disallowed or reduced and the LCE shall notify the reviewing authority of such action.
Sanggunian shall enact a new Ordinance authorizing Supplemental Appropriations based on a proposed supplemental budget to cover the deficiency. Appropriation Ordinance is declared operative subject to conditions.
The LGU shall comply with the conditions imposed before any disbursements are made and the LCE shall notify the reviewing authority of such action.
3.9 Enforcement of Ordinances or Resolutions after Disapproval by Reviewing Authority
Any attempt to enforce any disapproved ordinance or resolution adopting the local development plan and public investment program, after disapproval by the LCE or by the reviewing authority, shall be sufficient ground for the suspension or dismissal of the official or employee concerned (Article 112, IRR of R.A. No. 7160). 158 7.0 LOCAL BUDGET REVIEW FORMS
LBR Form No. 1A
CHECKLIST ON DOCUMENTARY AND SIGNATURE REQUIREMENTS FOR THE ANNUAL BUDGET
_____________ _____________ Date Received Deadline _________________________________________ _____ Local Government Unit Class
_________________________________ _______________________ Title General Fund
Check each item
Signatory
Remarks
a. Transmittal Letter
Secretary to the Sanggunian
b. Budget Message
LCE
c. Appropriation Ordinance
Secretary to the Sanggunian Presiding Officer LCE
d. Budget of Expenditures and Sources of Financing.
Local Finance Committee LCE
e. Annual Investment Program
Secretary to the Sanggunian Presiding Officer
f. Personnel Schedule
HRMO LCE
g. Veto message, if any
LCE
h. Sanggunians action on veto, if any
Secretary to the Sanggunian Presiding Officer
_______________________ Reviewing Officer
159
LBR Form No. 1B
CHECKLIST ON DOCUMENTARY AND SIGNATURE REQUIREMENTS FOR THE SUPPLEMENTAL BUDGET _____________ _____________ Date Received Deadline _________________________________________ ______ Local Government Unit Class _________________________________ _______________________ Title General Fund Check each item Signatory Remarks
a. Transmittal Letter
Secretary to the Sanggunian
b. Budget Message
LCE
c. Appropriation Ordinance
Secretary to the Sanggunian Presiding Officer LCE
d. Funds Actually Available: Certified Statement of Additional Realized Income Certification of Savings
Local Treasurer and Local Accountant Local Treasurer and Local Accountant e . New Revenue Measures: Certified Statement of Income from New Revenue Measures; Copy of duly enacted Tax Ordinance which imposes new local taxes, charges, fees, fines or penalties or which raises existing local taxes, charges, fees, fines or penalties; and Copy of official communication stating that the LGU is a recipient of new or higher remittances, contributions, subsidies or grants in aid from the National Government or from government corporations and private entities
Local Treasurer and Local Accountant
f. Realignment of Appropriations in Times of Public Calamity Certificate of Source of Funds Available for Appropriations
Local Treasurer Local Accountant LCE
g. Veto message, if any
LCE
h. Sanggunians action on veto, if any
Secretary to the Sanggunian Presiding Officer
_______________________ Reviewing Officer 160
LBR Form No. 2
TABLE RECAPITULATING THE FINDINGS AND POSSIBLE REVIEW ACTIONS
FINDINGS POSSIBLE REVIEW ACTIONS
An illustrative example of LBR Form No. 2 with entries on findings and possible review actions is shown on page 161.
161
1.0 Illustrative Example
Table Recapitulating the Findings and Possible Review Actions
FINDINGS POSSIBLE REVIEW ACTIONS Incomplete budget documents appended to the Appropriation Ordinance Return in writing, the Appropriation Ordinance with the budget documents and require resubmission with complete budget documents Lack of required signatories in the Appropriation Ordinance or budget documents Return in writing, the Appropriation Ordinance with the budget documents and require resubmission duly signed Appropriation Ordinance fully complies with the budgetary requirements and general limitations Declare the Appropriation Ordinance operative in its entirety Some items of appropriation require prior approval by appropriate authorities, prior clearance or documentation, and other conditions. Declare the Appropriation Ordinance operative in its entirety with some conditions The aggregate amount appropriated exceeds the estimates of income Declare the Appropriation Ordinance inoperative in its entirety The Appropriation Ordinance did not sufficiently provide for payment of loans and other indebtedness Declare the Appropriation Ordinance inoperative in its entirety Provision for debt servicing exceeds 20% of the regular income Declare the Appropriation Ordinance inoperative in part, disallowing the excess.
162
9.0 Sample Formats
9.1 Sample Format No. 1 - Review Letter Declaring the Appropriation Ordinance Operative in its Entirety
____________________ Date
The Honorable Members of the Sanggunian Province/City/Municipality of _____________
Thru: The Provincial Governor/City/Municipal Mayor
Ladies/Gentlemen:
Pursuant to the provisions of the Local Government Code of 1991 (Republic Act [R.A.] No. 7160), our review of the FY 2007 Annual/Supplemental Budget No. ___ of the Province/City/Municipality of ____________, involving a total appropriation of P___________ under Appropriation Ordinance No. _________, submitted to this Office for review on_________, reveals substantial compliance with the same law and its Implementing Rules and Regulations.
Accordingly, the said Appropriation Ordinance is declared operative in its entirety effective on ________________, subject to the posting requirement under Section 59 of R.A. No. 7160.
It is understood that this review action does not authorize any item of appropriation that is specifically prohibited by or inconsistent with the provisions of law.
Compliance with all existing laws, rules and regulations shall be the responsibility of the implementing local government unit.
Very truly yours,
By Authority of the Secretary of Budget and Management:
______________________ Director IV
163
9.2 Sample Format No. 2 - Review Letter Declaring the Appropriation Ordinance Operative in its Entirety Subject to Some Conditions
____________________ Date
The Honorable Members of the Sanggunian Province/City/Municipality of _____________
Thru: The Provincial Governor/City/Municipal Mayor
Ladies/Gentlemen:
Pursuant to the provisions of the Local Government Code of 1991 (Republic Act [R.A.] No. 7160), our review of the FY 2007 Annual/Supplemental Budget No. ___ of the Province/City/Municipality of ____________, involving an appropriation of P___________ under Appropriation Ordinance No. _________, submitted to this Office for review on_________, reveals substantial compliance with the same law and its Implementing Rules and Regulations, except for the following:
1. 2.
Notwithstanding the above, the Appropriation Ordinance is declared operative in its entirety effective on ___________, subject to the posting requirement under Section 59 of R.A. No. 7160, and further subject to the following conditions:
1. 2.
The Province/City/Municipal government shall comply with the herein conditions and notify this Office of the actions taken thereon.
It is understood that this review action does not authorize any item of appropriation that is specifically prohibited by or inconsistent with the provisions of law.
Compliance with all existing laws, rules and regulations shall be the responsibility of the implementing local government unit.
Very truly yours,
By Authority of the Secretary of Budget and Management:
_______________________ Director IV
164
9.3 Sample Format No. 3 - Review Letter Declaring the Appropriation Ordinance Inoperative in its Entirety
____________________ Date
The Honorable Members of the Sanggunian Province/City/Municipality of _____________
Thru: The Provincial Governor/City/Municipal Mayor
Ladies/Gentlemen:
Pursuant to the provisions of the Local Government Code of 1991 (Republic Act [R.A.] No. 7160), our review of the FY 2007 Annual/Supplemental Budget No. ___ of the Province/City/Municipality of ____________, involving an appropriation of P___________ under Appropriation Ordinance No. _________, submitted to this Office for review on_________, shows that it has not complied with the budgetary requirements and general limitations as well as other provisions of law as enumerated hereunder:
1. 2. 3. 4. 5.
In view thereof, the said Appropriation Ordinance is declared inoperative in its entirety effective immediately. Consequently, the previous years budget is deemed reenacted pending the submission of a new ordinance authorizing the annual appropriations, taking into account the above-mentioned findings. Nevertheless, it is understood that, in the implementation of the reenacted budget, only the annual appropriation for salaries and wages of existing positions, statutory and contractual obligations, and essential operating expenses authorized in the annual and supplemental budgets for the preceding year shall be deemed reenacted.
Very truly yours,
By Authority of the Secretary of Budget and Management:
__________________________ Director IV
165
9.4 Sample Format No. 4 - Review Letter Declaring the Appropriation Ordinance Inoperative in Part
____________________ Date
The Honorable Members of the Sanggunian Province/City/Municipality of _____________
Thru: The Provincial Governor/City/Municipal Mayor
Ladies/Gentlemen:
Pursuant to the provisions of the Local Government Code of 1991 (Republic Act No. 7160), our review of the FY 2007 Annual/Supplemental Budget No. ___ of the Province/City/Municipality of ____________, involving an appropriation of P___________ under Appropriation Ordinance No. _________, submitted to this Office for review on_________, shows substantial compliance with the same law and its Implementing Rules and Regulations, except for the following: 1. 2. 3. 4. 5.
Notwithstanding the above, the budget is declared inoperative in part effective on ______________, subject to the posting requirements under Section 59 of R.A. No. 7160. The Province/City/Municipal government shall comply with the herein review findings and notify this Office of the actions taken thereon.
It is understood that this review action does not authorize any item of appropriation that is specifically prohibited by or inconsistent with the provisions of law.
Compliance with all existing laws, rules and regulations shall be the responsibility of the implementing local government unit.
Very truly yours,
By Authority of the Secretary of Budget and Management:
_________________________ Director IV
166
9.5 Sample Format No. 5 Resolution Declaring the Appropriation Ordinance Operative in its Entirety
RESOLUTION NO. ___
A RESOLUTION DECLARING THE APPROPRIATION ORDINANCE NO. __ OF THE CITY/MUNICIPALITY OF ____________________ OPERATIVE IN ITS ENTIRETY
WHEREAS, Appropriation Ordinance No. ___ of the City/Municipality of ___________ authorizing its Annual Budget for Fiscal Year _____, involving an appropriation of P____________ , was submitted to this Sanggunian for review on __________________ pursuant to the provisions of Republic Act (R.A.) No. 7160;
WHEREAS, the subject Appropriation Ordinance shows substantial compliance with the same law and its Implementing Rules and Regulations;
NOW, THEREFORE, on motion of SP Member ___________ duly seconded by SP Member _____________;
THE SANGGUNIANG PANLALAWIGAN IN SESSION DULY ASSEMBLED:
RESOLVED, to declare Appropriation Ordinance No. ____ of the City/Municipality of ____________ operative in its entirety, effective on ______________, subject to the posting requirements under Section 59 of R.A. No. 7160.
RESOLVED FURTHER, to inform the City/Municipality that this review action does not authorize any item of appropriation that is specifically prohibited by or inconsistent with the provisions of law.
RESOLVED FINALLY, to send a copy of this Resolution to the Sangguniang Panlungsod/Bayan of the City/Municipality of _____________ through the City/Municipal Mayor.
I hereby certify that the foregoing is a true and accurate copy of the Resolution which was duly adopted by the Sangguniang Panlalawigan of ___________ during its Regular Session held on _________________.
_________________________ Secretary to the Sanggunian ________________ Presiding Officer
167
9.6 Sample Format No. 6 - Resolution Declaring the Appropriation Ordinance Operative in its Entirety Subject to Some Conditions
RESOLUTION NO. ___
A RESOLUTION DECLARING THE APPROPRIATION ORDINANCE NO. ____ OF THE CITY/MUNICIPALITY OF ____________________________ OPERATIVE IN ITS ENTIRETY SUBJECT TO SOME CONDITIONS
WHEREAS, Appropriation Ordinance No. ___ of the City/Municipality of _______________ authorizing its Annual Budget for Fiscal Year _____, involving an appropriation of P____________, was submitted to this Sanggunian for review on __________________ pursuant to the provisions of Republic Act (R.A.) No. 7160;
WHEREAS, subject Appropriation Ordinance reveals substantial compliance with the same law and its Implementing Rules and Regulations except for the following: 1. 2.
NOW THEREFORE, on motion of SP Member ______ duly seconded by SP Member ___________;
THE SANGGUNIANG PANLALAWIGAN IN SESSION DULY ASSEMBLED:
RESOLVED, to declare Appropriation Ordinance No. ____ of the City/Municipality of ____________ OPERATIVE IN ITS ENTIRETY, effective ______________, subject to the posting requirements under Section 59 of R.A. No. 7160, and subject further to the following conditions: 1. 2.
RESOLVED FURTHER, to require the City/Municipality to comply with the herein conditions and notify this body of actions taken thereon.
RESOLVED FURTHER, to inform the City/Municipality that this review action does not authorize any item of appropriation that is specifically prohibited by or inconsistent with the provisions of law.
RESOLVED FINALLY, to send a copy of this Resolution to the Sangguniang Panlungsod/Bayan of the City/Municipality of _____________ through the City/Municipal Mayor.
I hereby certify that the foregoing is a true and accurate copy of the Resolution which was duly adopted by the Sangguniang Panlalawigan of ___________ during its Regular Session held on ________________. __________________________ Secretary to the Sanggunian _________________ Presiding Officer 168
9.7 Sample Format No. 7 Resolution Declaring the Appropriation Ordinance Inoperative in its Entirety
RESOLUTION NO. ___
A RESOLUTION DECLARING THE APPROPRIATION ORDINANCE NO. ____ OF THE CITY/MUNICIPALITY OF ___________ INOPERATIVE IN ITS ENTIRETY
WHEREAS, Appropriation Ordinance No. ___ of the City/Municipality of _______________ authorizing its Annual/Supplemental Budget for Fiscal Year _____, involving an appropriation of P____________, was submitted to this Sanggunian for review on __________________ pursuant to the provisions of Republic Act (R.A.) No. 7160;
WHEREAS, the subject Appropriation Ordinance has not complied with the budgetary requirements and general limitations as well as other provisions of law as enumerated hereunder: 1. 2.
NOW THEREFORE, on motion of SP Member ______ duly seconded by SP Member ___________;
THE SANGGUNIANG PANLALAWIGAN IN SESSION DULY ASSEMBLED:
RESOLVED, to declare Appropriation Ordinance No. ____ of the City/Municipality of ____________ inoperative in its entirety effective immediately.
RESOLVED FURTHER, to inform the Sangguniang Panlungsod/Bayan of the City/Municipality of ___________, through the City/Municipal Mayor, that the previous years budget is deemed reenacted pending the submission and enactment/approval of the new ordinance authorizing the annual appropriations, taking into account the above- mentioned findings; and that, in the implementation of the reenacted budget, only the annual appropriation for salaries and wages of existing positions, statutory and contractual obligations, and essential operating expenses authorized in the annual and supplemental budgets for the preceding year shall be deemed reenacted.
RESOLVED FINALLY, to send a copy of this Resolution to the Sangguniang Panlungsod/Bayan of the City/Municipality of _____________ , through the City/Municipal Mayor.
I hereby certify that the foregoing is a true and accurate copy of the Resolution which was duly adopted by the Sangguniang Panlalawigan of ___________ during its regular session held on __________________. _______________________ Secretary to the Sanggunian _______________ Presiding Officer
169
9.8 Sample Format No. 8 - Resolution Declaring the Appropriation Ordinance Inoperative in Part
RESOLUTION NO. ___
A RESOLUTION DECLARING THE APPROPRIATION ORDINANCE NO. ___ OF THE CITY/MUNICIPALITY OF ________________ INOPERATIVE IN PART
WHEREAS, Appropriation Ordinance No. ___ of the City/Municipality of _______________ authorizing its Annual Budget for Fiscal Year _____, involving an appropriation of P____________, was submitted to this Sanggunian for review on __________________ pursuant to the provisions of Republic Act (R.A.) No. 7160;
WHEREAS, the subject Appropriation Ordinance has substantially complied with the budgetary requirements and general limitations as well as other provisions of law, except for the following items of appropriation: 1. 2.
NOW THEREFORE, on motion of SP Member ____________ duly seconded by SP Member ___________;
THE SANGGUNIANG PANLALAWIGAN IN SESSION DULY ASSEMBLED:
RESOLVED, to declare Appropriation Ordinance No. ____ of the City/Municipality of ____________ inoperative in part, effective ______________, subject to the posting requirements under Section 59 of R.A No. 7160:
RESOLVED FURTHER, to require the City/Municipality to comply with the herein review findings and notify this body of actions taken thereon.
RESOLVED FURTHER, to inform the City/Municipality that this review action does not authorize any item of appropriation that is specifically prohibited by or inconsistent with the provisions of law.
RESOLVED FINALLY, to send a copy of this Resolution to the Sangguniang Panlungsod/Bayan of the City/Municipality of _____________, through the City/Municipal Mayor.
I hereby certify that the foregoing is a true and accurate copy of the Resolution which was duly adopted by the Sangguniang Panlalawigan of ___________ during its regular session held on _______________. _________________________ Secretary to the Sanggunian _______________ Presiding Officer
170
9.9 Sample Format No. 9 Stamp of Review
A.
B.
REVIEWED PURSUANT TO THE PROVISIONS OF REPUBLIC ACT NO. 7160
BY AUTHORITY OF THE SECRETARY OF BUDGET AND MANAGEMENT
______________________________ DIRECTOR IV
REFERENCE: REVIEW LETTER DATED: _____________
REVIEWED PURSUANT TO THE PROVISIONS OF REPUBLIC ACT NO. 7160
BY AUTHORITY OF THE SANGGUNIANG PANLALAWIGAN
______________________ ____________________ (Authorized Signatory/ies per the Internal Rules of Procedures)
REFERENCE: RESOLUTION NO.____ DATED: _____________ Seal of the Province 171
Chapter 4. Budget Execution Phase
1.0 Introduction
2.0 Legal Basis of Budget Execution
3.0 Key Players in Budget Execution
4.0 The Budget Execution Flow Chart
5.0 Budgetary Accounts in Budget Execution
6.0 Steps in the Budget Execution Phase Step 1. Record the Approved Appropriations per Appropriation Ordinance in the Appropriate Registry Step 2. Release of Allotments Step 3. Prepare the Cash Program and Summary of Financial and Physical Performance Targets 3.1 Prepare the Cash Program 3.2 Prepare the Summary of Financial and Physical Performance Targets 3.3 Prepare the Detailed Financial and Physical Performance Targets 3.4 Revise and Adjust the Project Procurement Management Plan (PPMP) and Corresponding Annual Procurement Plan (APP) Step 4. Obligate and Disburse Funds Step 5. Adjust Cash Programs for Shortages and Overages Step 6. Provide Corrective Actions for Negative Deviations
7.0 Local Budget Execution Forms LBE Form No. 1 Local Budget Matrix LBE Form No. 2 Allotment Release Order LBE Form No. 3 Summary of Financial and Physical Performance Targets LBE Form No.3A Detailed Financial and Physical Performance Targets
172 The financial affairs, transactions, and operations of local government units shall be governed by the following fundamental principles:
(a) No money shall be paid out of the local treasury except in pursuance of an appropriations ordinance or law; (b) Local government funds and monies shall be spent solely for public purposes; (c) Local revenue is generated only from sources expressly authorized by law or ordinance, and collection thereof shall at all times be acknowledged properly; (d) All monies officially received by a local government officer in any capacity or on any occasion shall be accounted for as local funds, unless otherwise provided by law; (e) Trust funds in the local treasury shall not be paid out except in fulfillment of the purpose for which the trust was created or the funds received; (f) Every officer of the local government unit whose duties permit or require the possession or custody of local funds shall be properly bonded, and such officer shall be accountable and responsible for said funds and for the safekeeping thereof in conformity with the provisions of law; (g) Local governments shall formulate sound financial plans, and the local budgets shall be based on functions, activities, and projects in terms of expected results. (Section 305, R.A. No. 7160) Budget Execution Phase
1.0 Introduction
Budget execution is the fourth phase in the local budget process. It involves the release of allotments and the certification of available appropriations and cash; the recording of actual obligations and disbursement of funds for authorized PPAs to produce goods and services that will benefit the general public. A critical aspect of this phase is the collection of funds, such that disbursements do not exceed appropriations. While seemingly a separate activity, the collection and/or receipt of revenues are considered an integral part of budget execution.
2.0 Legal Basis
173 The ordinance enacting the annual budget shall take effect at the beginning of the ensuing calendar year. An ordinance enacting a supplemental budget, however, shall take effect upon its approval or on the date fixed therein. The responsibility for the execution of the annual and supplemental budget shall be vested primary in the Local Chief Executive concerned (Section 320, R.A. No. 7160).
3.0 Key Players in Budget Execution
3.1 Local Chief Executive The LCE shall be responsible for the execution of the Annual Budget or General Appropriations Ordinance and all subsequent supplemental budgets (Section 320, R.A. No. 7160).
3.2 Vice Governor/Vice Mayor The Vice Governor/Vice Mayor shall sign all warrants drawn on the provincial/city/municipal treasury for all expenditures appropriated for the operations of the Sangguniang Panlalawigan/Panlungsod/Bayan (Sections 466, 456 and 445, R.A. 7160).
3.3 Local Budget Officer The LBO shall be responsible for the preparation of release documents (Local Budget Matrix, Allotment Release Order) and the certification on the availability of appropriations for obligation requests; as well as the preparation and submission of quarterly and annual reports or statement of allotments, obligations and balances. The LBO also coordinates with the planning and development coordinator, treasurer, and accountant in the execution of the budget (Section 475, R.A. No. 7160).
3.4 Local Treasurer The Local Treasurer shall be responsible for the custody and proper management of the funds of the LGU concerned. He takes charge of the collection of revenues and disbursement of local government funds and such other funds the custody of which may be entrusted to him by law or other competent authority and the maintenance and updating of the tax information system of the LGU. The Local Treasurer also certifies as to the availability of funds prior to any disbursements (Section 470, R.A. No. 7160).
174 3.5 Local Accountant The Local Accountant shall be responsible for the maintenance of the validity, reliability and propriety of all financial transactions of the LGU concerned; the installation and maintenance of the preparation and submission of financial statements to the local chief executive and to the Sanggunian concerned and maintenance of registries to control the appropriations, allotments and obligations for all authorized expenditures.* The Local Accountant also reviews supporting documents before preparation of vouchers to determine completeness of requirements; and controls the Books of Accounts pursuant to the New Government Accounting System (Section 474, R.A. No. 7160).
3.6 Local Planning and Development Coordinator The LPDC shall be responsible for the formulation of integrated economic, social, physical, and other development plans and policies for consideration of the local development council; the monitoring and evaluation of the implementation of the different development programs, projects and activities in the LGU concerned, in accordance with the approved development plan; the analysis of income and expenditure patterns; and the formulation of fiscal plans and policies for consideration of the local finance committee (Section 476, R.A. No. 7160 ).
3.6 Department Head The Department Head shall be responsible for the preparation of financial and physical performance targets and obligation requests for authorized programs, projects and activities for the department/office concerned; implementation of programs, projects and activities to produce desired results/goods and services; monitoring and evaluation of actual performance of PPAs to provide corrective actions for negative deviations.
* Subject to the final guidelines to be issued by the Commission on Audit (COA) 175 4.0 The Budget Execution Flow Chart
Figure 13. The Budget Execution Flow Chart
5.0 Budgetary Accounts in Budget Execution
The budgetary accounts maintained during the budget execution process are composed of appropriations, allotments and obligations.
Appropriation: an authorization made by ordinance, directing the payment of goods and services from local government funds under specified conditions or purposes
Allotment: the authorization issued by the Local Chief Executive (LCE) to a Department/Office of the LGU which allows it to incur obligations for specified amounts within its appropriations
Obligation: the specific amount within the allotment which is committed to be paid by the LGU for any lawful expenditure made by an accountable officer for and in behalf of the LGU concerned. Record the approved budget in the Registries
Release the Allotment (LBM /ARO) Prepare the Cash Program and Financial/Physical Performance Targets Obligate and Disburse Funds for the Implementation of Programs/Project/Activities
Adjust Cash Programs, Financial and Physical Performance Targets for Shortages and Overages Provide Corrective Actions for Negative Deviations
176
6.0 Steps in the Budget Execution Phase
Step 1. Record the approved appropriations per Appropriation Ordinance in the appropriate registry
1.1 On the first business day of the fiscal year, the Local Accountant shall record the entire annual budget of the LGU in the Registry of Appropriations, Allotments and Obligations (RAAO). Separate registries shall be maintained for the four classes of expenditures per responsibility center (Section 474, R.A. No. 7160):
Registry of Appropriations, Allotments and Obligations Capital Outlays (RAAOCO) Registry of Appropriations, Allotments and Obligations Maintenance & Other Operating Expenses (RAAOMOOE) Registry of Appropriations, Allotments and Obligations Personal Services (RAAOPS) Registry of Appropriations, Allotment and Obligations Financial Expenses (RAAOFE)
Guidelines to be Observed in Step 1
Budgetary reserves, which are stand-by appropriations ready for release in case of calamities, as well as supplemental budgets, are similarly recorded in the RAAO.
If the Sanggunian fails to enact the Ordinance at the beginning of the fiscal year, only the annual appropriations for salaries and wages of existing positions, statutory and contractual obligations, and essential operating expenses authorized in the annual and supplemental budgets for the preceding year shall be deemed reenacted (Section 323, R.A. No. 7160).
Said re-enacted budget shall likewise be recorded in the registries. Once the current budget is approved, the necessary adjustments shall be made.
The system of recording in the registries shall follow the New Government Accounting System (NGAS) prescribed by the Commission on Audit.
177
Step 2. Release of Allotments
2.1 The Local Budget Matrix (LBM) (LBE Form No. 1) is issued to effect the comprehensive release for a particular department/office. Release of reserve amounts or amounts for later release, including appropriated amounts under the needing clearance of the LBM shall be effected through the use of Allotment Release Order (ARO) or Local Budget Execution Form No. 2.
2.2 Use the following control tools in the execution of the budget:
Cash Programs and Cash Flow Analysis; and Financial and Physical Performance Targets.
The Cash Program includes the scheduling of cash inflows and outflows on a monthly basis.
The Cash Flow Analysis (CFA) is a critical tool in the control of cash outflows matched with cash inflows to ensure that sufficient cash is available to settle obligations as they fall due.
The Financial and Physical Performance Targets (FPPT) contain the total cost of doing a particular PPA, performance indicators, prior years accomplishments and physical targets for the year.
2.3 Prepare the LBM and the corresponding Cash Program for each department/office. The LBM contains the released allotment or fund that will finance the implementation of the PPAs and the Cash Program ensures that there is available cash to be disbursed in the payment of actual obligations.
2.4 Issue the LBM to each department/office that will give the department head the comprehensive authority to incur obligations that will not exceed the released amount. Include in the LBM reserve imposition, earmarking of funds for clearance and withholding of funds for later release to provide safeguards for shortfall in the collection of anticipated revenues. These are all policy-based actions to be reflected in the Appropriation Ordinance for the budget year prior to the issuance or release of the LBM.
178 2.5 Include the following budgetary items in the LBM:
By source of appropriation, whether the appropriation is authorized under the Annual Budget or under the Supplemental Budget
By fund, whether the expenditure item is classified into any of the funds established for LGUs, i.e., General Fund (100) and Special Education Fund (200)
By program/project or by department/office, according to the specific services rendered by a department/office, e.g., Executive Services-Mayors Office and Others
By allotment class, according to the class of the expenditure item, i.e., Personal Services, Maintenance and Other Operating Expenses, and Capital Outlays
By need for clearance, whether for further clearance or authority prior to the release of funds (Needing Clearance), or whether the release requires no further prior authority (Not Needing Clearance)
2.6 Specify the unreleased portion of the LBM, the Needing Clearance (NC), which can only be released upon receipt of and compliance with certain documentary requirements, like the creation and reclassification of position, payment of Retirement Gratuity and Terminal Leave Benefits and purchase of motor vehicles, computers, guns and ammunition, etc.
2.7 Reflect the not needing clearance in the LBM. These shall include all budgetary requirements for all PPAs, reserve imposition, if supported by a Sanggunian Resolution or if embedded in the Appropriation Ordinance. The reserve imposition is to cover any possible shortfall in revenue and to generate savings for the department/office.
2.8 Record and provide copies of LBM releases. After the LBM is approved by the LCE, the released amount shall be stamped with the official seal of the LGU and shall be recorded in the proper registry by the LBO and Local Accountant. Copies of the LBM as approved shall be distributed, as follows:
179 Original - Local Budget Officer Duplicate - Department Head Triplicate - Local Accountant Quadruplicate - Records
2.9 Release LBM for Supplemental Budgets (SBs). Enacted SBs shall follow same process in the release of allotments. But for augmentation of deficiencies in allotment from one object of expenditure to another within the same class for respective offices within the executive branch and Sanggunian or realignment of savings from one expense class to another, the ARO shall be the release document to effect the changes. The former can be done by a new ordinance or resolution of the Sanggunian and the latter requires the submission of a Supplemental Budget for authorization by the Sanggunian.
Step 3. Prepare the Cash Program and Summary of Financial and Physical Performance Targets
3.1 Prepare the cash program.
Determine a realistic cash inflow on a monthly basis. Use as basis the actual inflow of revenues for the past three (3) years. Consider the months where revenue is high, like when payments of taxes become due, or months where revenue collection is low. Use a line graph to show the high and low points of revenue collection to provide a historical or empirical basis of cash inflows.
Determine a realistic cash outflow on a monthly basis. Analyze in detail the timing of expected payments affecting regular operations (payment of PS and MOOE) and payments for the acquisition of civil works under R.A. No. 9184 (land and land improvements, building construction and acquisition of equipment). Also, include in the projected cash outflows the financial requirements for calamities.
Compute the difference between the cash inflows and outflows within a given period, month by month to be more specific, that will indicate a net cash flow. A projected cumulative net cash flow will indicate the capacity to generate surplus and conversely a cumulative negative cash flow will reveal the amount of additional cash requirements to sustain operations. 180
3.1.1 Prepare a Statement of Cash Flow Forecast (SCFF). This statement is a schedule of anticipated receipts and disbursements of the LGU for the fiscal year with a quarterly breakdown to show the beginning and ending cash balances for each quarter.
The Local Treasurer shall prepare the first section of the SCFF to show the schedule of all income collections and other receipts derived from local and external sources. The LBO shall prepare the second portion of the SCFF for the whole LGU using as basis the data in column 2 of the Detailed Financial and Physical Performance Targets prepared by all department heads on a quarterly basis
Prepare the SCFF as basis of the statement of cash flow forecast.
Identify the estimates of receipts from taxes (local and eternal sources) Consider the estimates of other revenues taking into consideration the seasonality of operations and past performances Determine all regular and recurring expense Identify and assess all accounts payables and outstanding obligations due for payment Determine schedule of project construction, project cost estimates and schedule of progress billings, amounts of payment during the year and cost of mobilization. Estimate payments for debt servicing Consider other current costs of operations specially non-recurring/unforeseen expenses.
3.1.2 Do a Cash Flow Analysis (CFA). The CFA is to be prepared by the Local Treasurer and Local Accountant. Use CFA as a cash flow monitoring tool to give up-to-date information on the LGUs overall cash position, liquidity and solvency.
Analyze the actual flow of funds/revenues and pattern of expenditures against the projections throughout the year. 181 Determine any cash overages/shortages on a quarterly basis for purposes of having timely decisions in the use of available cash. Minimize the interval between the time when cash is received and the time it is available for payment of valid obligations. Analyze the variances between actual collections and disbursements against estimates indicated in the SCFF.
3.1.3 Determine over-collection of taxes and other revenues. Substantial cash receipts or collections are indicative of high tax collection efficiency. All positive variances shall be submitted to the LCE for the preparation of a supplemental budget, or for appropriation in the next budget year.
3.1.4 Determine overall under-collection of taxes and other revenues. Any shortfall in revenue collection should signal the deferment of non-priority expenditures and the non- release of allotments indicated as reserve, for later release or needing clearance under the LBM.
3.1.5 Identify over-spending and savings in expenditures. Avoid cost overruns by spending within limits defined in the budget. Proper timing and scheduling of payments are necessary ingredients in avoiding overspending. Savings in expenditures may be realized when proper economy measures are imposed as policy.
3.1.6 Invest excess idle cash in productive investments. Keeping excess cash on hand reduces both the growth and return on investment. Invest idle cash in high-yielding, productive investment at controlled risks taking into account the safety, liquidity and effective return on investment. Placements in short-term treasury bills, money market or time deposit accounts will make idle cash more productive and generate additional income for the LGU.
3.2 Prepare the Summary of Financial and Physical Performance Targets. The department heads shall prepare the summary of financial and physical performance targets for the entire calendar year to serve as basis in comparing actual level of accomplishment for the preceding year and knowing the available resources for the budget year. 182
3.2.1 Hold a dialogue with staff to determine the financial and physical targets for the calendar year using the This Release amount in the LBM and all other allotments to be released for the year.
3.2.2 Revisit the approved AIP for the year to determine what PPAs are to be implemented with their corresponding major final outputs.
3.2.3 Identify which department/office shall implement the PPAs as authorized in the AIP and approved Appropriation Ordinance.
3.2.4 Cross-check consistency of expenditure with the amount provided in the LBP Forms No. 3 and 4, the former to provide data on costs and the latter on the expected outputs or targets for the calendar year.
3.3 Prepare the detailed financial and performance targets. This document presents the quarterly breakdown of the financial allocation that is needed to accomplish a specific level of targets. It serves the following purposes:
To match available resources with the level of efforts to deliver the goods/services or outputs of the department To determine the timing and magnitude of additional releases.
3.4 Revise and adjust the Project Procurement Management Plan (PPMP) and corresponding Annual Procurement Plan (APP).
Department heads of the LGU concerned shall adjust/revise the individual PPMPs which were prepared during the budget preparation phase where there are significant changes in the amount as authorized by the Sanggunian. This amount shall be matched with the amount as approved in the LBM. If the amount is reduced, then there should be a corresponding reduction in the quantity to be procured and vice versa. Consequently, the APP shall be adjusted. In cases where the authorized amount in the LBM is the same as the proposed amount submitted during budget preparation, the PPMP/APP need not be adjusted.
183 Step 4. Obligate and Disburse Funds
Pursuant to the modified accrual system under the New Government Accounting System (NGAS), obligations shall be taken up in the registry (RAAO) as they are incurred (Please refer to COA Circular No. 2001- 005 dated 30 October 2001). Accordingly, expenditures and obligations incurred during the fiscal year shall be taken up in the accounts of that year.
Obligations already incurred but not yet paid (accounts payable) shall be settled in accordance with existing budgeting, accounting and auditing rules and regulations.
Step 5. Adjust cash program for shortages and overages.
The LFC, through the Local Treasurer, shall use the results of the cash flow analysis as basis for adjusting the cash program and the financial and physical targets.
5.1 Determine amounts considered as over-collection of taxes then effect upward adjustments in the cash disbursement program to match the increase in the cash receipts forecast. If this is not done, a significant amount of cash will be idle at the end of the year.
5.2 Identify amounts considered as under-collection of taxes and revenues. This is a signal that the original cash receipts forecast is overstated. It becomes necessary to decrease the cash disbursement program for the remaining months to prevent the incurrence of a cash overdraft.
Step 6. Provide corrective actions for negative deviations.
The Local Finance Committee shall:
6.1 Compare the actual performance in both the financial and physical accomplishments vis--vis the targets for the quarter.
6.2 If the actual financial performance is greater than the estimated cost, it means that there was overspending beyond the available resources. This reflects inefficiency if the actual physical performance is below the target. This needs corrective action.
184 6.3 If the actual financial performance is lower than the estimated cost; it means that the estimated cost was overstated and performance is ineffective if the physical targets were not met. This also needs corrective action.
6.4 If the actual physical performance is greater than the target; it indicates that financial resources were utilized to the maximum resulting in better than ordinary performance. This is assuming that targets were realistically set and not understated. In this case, no corrective action is needed.
6.5 If the actual physical performance is lower than the target; it indicates that the targets were overambitious or the people worked below par. Corrective action is needed in this case.
6.6 Let concerned department heads explain substantial negative deviations and let them further recommend remedial measures to address negative deviations.
6.7 Let concerned department heads prepare adjustments in the original targets to catch up with plans for the fiscal year.
6.8 Proposed corrective action shall be submitted by concerned department heads to the LPDC for review and evaluation after which it shall be discussed with the LFC members for final deliberation. The proposed corrective action is then recommended by the LFC to the LCE for approval. Upon approval, the concerned department head may implement corrective action to be on track with planned targets for the fiscal year.
6.9 In accomplishing the SFPPT and DFPPT, Department/Office Heads with the assistance of their staff, should focus on the core functions of their department/office and on the delivery of high impact activities at reasonable costs and qualities. Allocation of resources and expenditure management are directed towards results and accounts for performance.
The monitoring of actual performance vis--vis the targets set at the start of the year, as contained in LBE Form No. 3 and 3A, is an important aspect in budget execution.
185 6.10 The Financial and Physical Performance Targets of each department/office aim to:
Establish a means of measuring performance and corresponding level of efforts in the implementation of the PPA of each department/office;
Encourage efficiency, effectiveness and accountability of the department/office within the limits of scarce public sector resource; and
Institutionalize the shift from input-based to performance-based budgeting.
The LPDC and the LBO are tasked to monitor and evaluate the physical and financial performances of all PPAs of line departments, respectively.
186
7.0 Local Budget Execution Forms
STATEMENT OF CASH FLOW FORECAST FORM PRESCRIBED BY BLGF
CASH FLOW ANALYSIS (CFA) LBE Form No. 3-A
DETAILED FINANCIAL AND PHYSICAL PERFORMANCE TARGETS ( DFPPT) LBE Form No. 3 SUMMARY OF FINANCIAL AND PHYSICAL PERFORMANCE TARGETS (SFPPT ) LBE Form No. 1
LOCAL BUDGET MATRIX (LBM)
CASH RECEIPTS FORECAST (CRF)
CASH DISBURSEMENTS FORECAST (CDF) LBE Form No. 2
ALLOTMENT RELEASE ORDER (ARO) 187
LBE Form No. 1
LOCAL BUDGET MATRIX FY_________ Annual Budget Supplemental Budget LOCAL GOVERNMENT UNIT: ________________ FUND: ___________ PROGRAM/ PROJECT/ ACTIVITY (DEPARTMENT/OFFICE) AUTHORIZED APPROPRIATION RESERVE NOT NEEDING CLEARANCE NEEDING CLEARANCE P S M O O E C O TOTAL P S M O O E C O TOTAL THIS RELEASE FOR LATER RELEASE P S M O O E C O TOTAL (1) (2) (3) (4) (5)
a.
b.
c.
d.
TOTAL
Recommended by: Approved:
___________________ ___________________ Local Budget Officer Local Chief Executive
INSTRUCTIONS:
The LOCAL BUDGET MATRIX shall be accomplished as follows:
Local Government Unit Name of the Province/City/Municipality implementing the budget. Source of Appropriation Indicate the appropriation source, i.e. either annual or supplemental budget. Fund Fund codes under the NGAs for Local Government Units 100 General Fund 200 Special Education Fund 300 Trust Fund
Col. 1 Program/Project/Activity Pertains to the f unctional grouping of appropriations and the services rendered by the implementing units of the LGU to wit: Executive Services Accounting and Internal Audit Services Legislative Services Budget and Management Services Delivery of Social Services Planning, Monitoring & Evaluation Services Financial Services Delivery of Health Services Legal Services Delivery of Veterinary Services Assessment Services Delivery of Engineering Services Delivery of Social Services Delivery of Agricultural Services
Col. 2 Authorized Appropriation This column pertains to the appropriations in the approved budget, or from the supplemental budget.
Col. 3 Reserve This column shall reflect the amount set aside to provide contingencies and emergencies which may later arise in the execution of the budget.
Col. 4 Not Needing Clearance This column shall include all other budgetary requirements that do not fall under the NC column. This shall be separated into: This Release and For Later Release
Col. 5 Needing Clearance This column pertains to the portion of the departments budget which can only be released upon clearance and/or compliance with documentary requirements.
The last page of the LBM shall be machine-validated with an amount that shall tally with the amount of the This Release. The LBM shall be signed by the Local Budget Officer and Local Chief Executive. 188
The allotments herein authorized shall be used solely for the purposes indicated and disbursements therefrom shall be made in accordance with existing budgeting, accounting and auditing rules and regulations. It is the primary responsibility of the head of the Department/ Office or Unit concerned to keep expenditures within the limits of the amount allotted.
__________________ _______________________________ Date of Issue Local Chief Executive
Page ___ of ___ page(s) ARO No. ________________
INSTRUCTIONS:
The Allotment Release Order (ARO) shall be accomplished by the Local Budget Officers as follows:
Caption For the Fiscal Year The current budget year Local Government Unit Name of the province/city/municipality concerned Department /Office Name of the requesting department/office of the LGU Fund/Code Fund/code under the NGAs for Local Government Units 100 General Fund 200 Special Education Fund 300 Trust Fund Appropriation Source The appropriation source, i.e. either annual/supplemental budget Purpose Brief explanation of purpose or other information or details pertaining to Particulars This column shall include the following: Program/Activity/Project Allotment Class Object of Expenditure Object Class/Account Code The account code of the object of expenditure based on the NGAs for LGUs (Please refer to COA Circular 2008-001 dated 29 January 2008) Amount Authorized Amount of allotment to be released Amount in Words Amount in words of the total amount authorized Notes Legal bases for such release and/or the period of validity of the allotment Date of Issue Date of the preparation of ARO Approved by Name and signature of the LCE approving the release of the allotment Page ___ of ___ page(s) Number of pages of the ARO. ARO No. Assign ARO Number to the form. 189
LBE Form No. 3
SUMMARY OF FINANCIAL AND PHYSICAL PERFORMANCE TARGETS
Program/ Project/ Activity Total Cost Performance Indicator Prior Year (ACTUAL) Physical Targets Remarks (1) (2) (3) (4) (5) (6)
Prepared by: Approved by:
_________________________ _________________________ Department Head Local Chief Executive
INSTRUCTIONS:
The report on physical performance targets shall be accomplished as follows:
Local Government Unit Name of the province/city/municipality concerned. Department/Office Name of the implementing department/office, e.s. Governor's Office Major Final Output Services provided by the different department and offices to external clients, such as but not limited to:
Executive Services Agricultural Services Legislative Services Social Services Veterinary Services Engineering Services Planning, Monitoring & Evaluation Services Health Services Budget and Management Services
Services which are not directly consumed by the external clients such as the following shall be subsumed under executive services:
Ex. MFO: Executive Services ( Accounting and Internal Services) P/P/A: Preparation and submission of reports PI : 90% Financial report submitted on time Procurement Services Accounting and Internal Services Financial Services Legal Services Assessment Services
(Col. 1) Program/Project/Activity Programs, projects and activities which are identifiable to the final output. Example: MFO: Agricultural Services ; PPA; Swine dispersal program
(Col. 2) Budget Allocation Amount approved for the current year by allotment class
(Col. 3) Performance Indicators Performance standards/ criteria and indicators set that will be accomplished by the LGU ( Ex. No. of beneficiaries of swine dispersal program)
(Col. 4) Prior Year's Actual Accomplishment during the preceding year. Accomplishments (Col. 5) Current Year Targets Estimates/targets for each performance indicator to be accomplished for the current year.
(Col. 6) Remarks Other information relative to the performance standards
* This document shall be signed by the appropriate signatories- the Department Head and the Local Chief Executive * This shall be submitted to the Local Budget Officer upon approval of the Annual Budget. 190
LBE Form No. 3A
DETAILED FINANCIAL AND PHYSICAL PERFORMANCE TARGETS
_________________________ _________________________ Department Head Local Chief Executive
INSTRUCTIONS:
The Detailed Financial and Physical Performance Targets shall be accomplished as follows:
Local Government Unit Name of the province/city/municipality concerned. Department/Office Name of the implementing department/office, e.g. Governor's Office Major Final Output Services provided by the different departments and offices to external clients, such as but not limited to:
Executive Services Agricultural Services Legislative Services Social Services Veterinary Services Engineering Services Planning, Monitoring & Evaluation Services Budget and Management Services Health Services
Services which are not directly consumed by the external clients such as the following shall be subsumed under the executive services
Ex. MFO: Executive Services (Accounting and Internal Services) P/P/A: Preparation and submission of reports PI: 90% Financial report submitted on time
(Col. 1) Programs, projects and activities which are identifiable to the final output, example: MFO: Agricultural Services ; PPA; Swine dispersal program Indicate for each PPA the Performance Indicator/s
(Col. 2) Quarterly Financial Allocation based on the currently approved budget for the department.
(Col. 3) Quarterly Physical Targets for each performance indicator per PPA.
* This should be submitted to the Local Budget Officer as an attachment to LBE Form No. 3 (SFPPT). 191
Chapter 5. Budget Accountability Phase
1.0 Introduction Accounting for the Budget Audit of Accounts
2.0 Legal Basis of Budget Accountability
3.0 Key Players in Budget Accountability
4.0 The Budget Accountability Flow Chart
5.0 Accounting for the Budget Step 1. Monitor Revenue and Expenditure 1.1 Submit Accountability Reports 1.2 Monitor Local Budget Implementation Step 2. Evaluate Performance of Each Department/Office 2.1 Review/Evaluate Performance 2.2 Follow Guidelines/Procedures in Evaluating Department/Office Performance 2.3 Procedures for the Evaluation of LGU Performance
6.0 Local Budget Accountability Forms LBAc Form No. 1 Quarterly Report of Income LBAc Form No. 2 Quarterly Financial Report of Operations LBAc Form No. 3 Quarterly Physical Report of Operations LBAc Form No. 4 Statement of Receipts and Expenditures
7.0 Local Budget Performance Evaluation Forms LBPE Form No. 1 Physical Performance Evaluation Form LBPE Form No. 2 Financial Performance Evaluation Form
8.0 Illustrative Presentation of Performance Evaluation
192 Budget Accountability Phase
1.0 Introduction
Budget accountability is the last phase of the budget process. It is essentially accounting for the performance of the LGU in terms of income/revenue generation and resource utilization for the implementation of its PPAs for the year.
It encompasses the recording and reporting of estimated and actual income and expenditures as well as the monitoring and evaluation of the LGUs performance vis--vis prescribed standards/policies and planned targets. Basically, it is the evaluation of the LGUs performance in the execution of its budget.
In its broadest sense, budget accountability has two inter-related aspects:
1. Accounting for the budget. This is a management control technique used to assist in controlling expenditures and tracking revenues. This is a mechanism provided under the Local Government Code by which the LCE, the Sanggunian and their constituents will be apprised of the status of the implementation of the PPAs funded in the budget. It covers the analysis of financial transactions, recording of budgetary accounts in the registries, recording in the books of accounts the receipts/income and deposits and the disbursements and financial reporting. It encompasses the monitoring and evaluation of the physical and financial performance of the LGU relative to the accomplishment of its PPAs as funded in the budget.
The results of the monitoring and evaluation process will enable the officials concerned to redirect or plan their next moves not only during the remaining period of budget execution but also during the planning/programming and budget preparation phases.
2. Audit of accounts. This pertains to the examination of the legality and propriety of the obligations and expenditures incurred in the process of executing the budget. The results will complete the whole evaluation of the budget performance of the LGU.
193 This Manual shall focus its discussion on the accounting for the budget aspect. It is understood, however, that in the execution of the budget, the officials and employees involved shall strictly observe the law and the rules and regulations of COA, DBM, and other oversight agencies.
2.0 Legal Basis
3.0 Key Players in Budget Accountability
3.1. Local Chief Executive The LCE shall be primarily responsible for the execution of the annual and supplemental budgets and the accountability therefor (Section 320, R.A. No. 7160).
Specifically, the LCE shall:
Ensure that all taxes and other revenues of the LGU are collected, and that local government funds are applied to the payment of expenses and settlement of obligations, in accordance with law or ordinance (Sections 444 [b][3][iii]; 455 [b][3][iii]; 465 [b][3][iii], R.A. No. 7160).
Cause the periodic examination of books, records, and other documents maintained by accountable officials, agents, or employees of the LGU to ensure that income collection and disbursements are properly recorded (Sections 444 [b][1][xi]; 455 [b][1][xi]; 465 [b][1][xi], R.A. No. 7160). Persons Accountable for Local Government Funds. Any officer of the local government unit whose duty permits or requires the possession or custody of local government funds shall be accountable and responsible for the safekeeping thereof in conformity with the provisions of this Title. Other local officers, who, though not accountable by the nature of their duties, may likewise be held accountable and responsible for local government funds through their participation in the use or application thereof. (Section 340, R.A. No. 7160).
Fiscal responsibility shall be shared by all those exercising authority over the financial affairs, transactions, and operations of the local government unit. (Section.305, R.A. No. 7160).
194 Ensure that accountable officials are able to submit periodic reports in such forms as may be required under this Manual and by applicable Rules (Sections 444 [b][1][x]; 455 [b][1][x]; 465 [b][1][x], R.A. No.7160).
Ensure that all executive officials and employees faithfully discharge their duties and functions as provided by law and the Local Government Code (Sections 444 [b][1][x]; 455 [b][1][x]; 465 [b][1][x], R.A. No.7160).
Submit to the Sanggunian, on or before March 31 of each year, an annual report covering the immediately preceding calendar year which shall contain among others the budgetary/financial performance as well as physical accomplishments of the LGU (Section 97, R.A. No.7160 and Article 189 Rule XXIV, IRR of R.A. No. 7160).
3.2 Local Treasurer The Local Treasurer shall:
Collect all local taxes, fees, and charges (Section 170, R.A. No. 7160);
Report regularly to the LCE on the tax collection efforts in the LGU (Section 470 [b], R.A. No. 7160);
Advise the LCE, the Sanggunian, and other local and national government officials regarding the disposition of local government funds, and on such other matters relative to public finance (Section 470 [d][1], R.A. No. 7160);
Take custody and exercise proper management of the funds of the LGU (Section 470 [d][2], R.A. No. 7160);
Take charge of the disbursement of all local government funds and such other funds the custody of which may be entrusted to him by law or other competent authority (Section 470 [d][3], R.A. No. 7160);
Submit periodic reports to the LCE through the LFC in such forms prescribed under this Manual;
195 Exercise such other powers and perform such other duties and functions as may be prescribed by law or ordinance (Section 470 [e], R.A. No. 7160).
3.3 Local Accountant The Local Accountant shall:
Prepare and submit financial statements to the LCE and to the Sanggunian (Section 474 [b][2], R.A. No. 7160);
Apprise the Sanggunian and other local government officials concerned on the financial condition and operations of the LGU (Section 474 [b][3], R.A. No. 7160);
Install and maintain on internal audit system in the LGU concerned;
Record all financial transactions in the appropriate journals and keep all supporting documents attached thereto as follows;
statement of cash advances, liquidation, salaries, allowances, reimbursement and remittances pertaining to the LGU;
statement of journal entry vouchers and liquidation of the same and other adjustments related thereto;
maintain individual ledger for officials and employees of the LGU pertaining to payroll and deductions.
Record and post in the index cards details of purchased furniture, fixture and equipment, including disposal thereof, if any;
Maintain and update all general and subsidiary ledgers;
Prepare and submit periodic reports to the LCE through the LFC in such forms prescribed under this Manual.
3.4 Local Budget Officer The LBO shall:
Certify to the availability of appropriations and allotments to which expenditures and obligations may be properly charged; 196
Prepare and submit periodic reports to the LCE through the LFC and to the DBM in such forms prescribed under this Manual.
3.5 Planning and Development Coordinator - The Planning and Development Coordinator shall:
Monitor and evaluate the implementation of the development programs and projects and activities of the various departments in accordance with the approved development plan (Section 476 [b][4], R.A. No. 7160);
Analyze the income and expenditure patterns, and formulate and recommend fiscal plans and policies for consideration of the LFC (Section 476 [b][6], R.A. No. 7160);
Prepare and submit periodic reports to the LCE through the LFC in such forms prescribed under this Manual.
3.6 Heads of Departments/Offices The Heads of departments/offices shall:
Monitor the implementation of the PPAs of their respective departments/offices to ensure adherence to plans, targets and standards;
Prepare and submit periodic reports to the LFC in such forms as may be prescribed under this Manual.
3.7 Local Finance Committee The LFC shall:
Conduct a semi-annual review and general examination of cost and accomplishments against performance standards in undertaking development projects (Section 316 [h], R.A. No. 7160).
Post the semi-annual and general examination report in conspicuous and accessible places in the LGU and furnish a copy of this report to the LCE and the Sanggunian concerned (Section 316 [h], R.A. No. 7160).
197 4.0 The Budget Accountability Flow Chart
The chart above summarizes the role of the budget accountability phase in the planning/programming and budgeting cycle, as follows:
provides the required feedback for PPA implementation adjustments during budget execution;
provides information to the general public on the performance of the LGU;
provides the necessary inputs to the planning and programming of PPAs for inclusion in the budget during budget preparation.
5.0 Accounting for the Budget
Accounting for the local budget involves two steps: (1) monitoring and (2) performance evaluation.
Step 1. Monitor Income and Expenditure
The budgets of the LGU are accounted for on the first day of the fiscal year. The estimated income and appropriations in amounts approved and reviewed are recorded in the books where they shall be compared with the actual collections and disbursements for the same period. Budget Execution
Budget Accountability
Planning/ Programming Monitoring of Outputs/ Results of PPAs Performance Evaluation (outputs vs. targets) Planning Programming of PPAs Implementation of PPAs
Budget Preparation Resource Allocation to PPAs Constituents Results 198
Expenditures are tracked and monitored vis--vis the outputs and accomplishments.
1.1 Submit Accountability Reports
The Treasurer, the Accountant, the Budget Officer, the Planning and Development Officer, and other department/office heads are required to submit the following accountability reports to the LFC and to the DBM:
LBAc Form No. 1 Quarterly Report of Income LBAc Form No. 2 Quarterly Financial Report of Operations LBAc Form No. 3 Quarterly Physical Report of Operations LBAc Form No. 4 Statement of Receipts and Expenditures
Accountability reports are imperative and useful documents for monitoring purposes. They establish the performance record of the various departments and offices of the LGU.
1.2 Monitor Local Budget Implementation
Monitoring the implementation of the local budget shall involve the following:
1.2.1 Monitoring of Income
The income to be monitored shall be based on the approved and reviewed annual and supplemental or re- enacted budgets.
The Local Accountant shall record the actual income collections based on the Treasurers Report of Daily Collections.
The Local Accountant shall prepare the Quarterly Report of Income. This report keeps track of the income for each month of the quarter and shows the variance between estimated income and actual income collected as of the end of the quarter under report.
199 1.2.2 Monitoring of Appropriations, Allotments and Obligations
The LBO shall keep track of the appropriations released through allotments and subsequently obligated by the various offices and departments for the PPAs funded in the budget, ensuring that funds are used exclusively for the specific purpose/s for which they have been appropriated pursuant to Sections 336 and 305 (a) of R.A. No. 7160.
The LBO and the Local Accountant shall ensure that lawful expenditures and obligations incurred during a fiscal year shall be taken up in the accounts of that year pursuant to Section 350 of R.A. No. 7160.
The LBO shall prepare a certified Quarterly Financial Report of Operations that would reflect obligations incurred vis--vis the released allotments and available appropriations. This will give a picture of the efficiency and effectiveness of the rate of utilization of appropriations by the various departments of the LGU.
The Local Treasurer, LBO and the Local Accountant shall prepare a Statement of Receipts and Expenditures (Summary of Income and Expenditures pursuant to Section 352 of R.A. No. 7160) for the fiscal year.
The Local Treasurer, Local Accountant, LBO and other accountable officials shall post the SRE in at least three (3) publicly accessible and conspicuous places in the LGU within 30 days from end of the fiscal year.
A copy of the SRE furnished to the LBO shall be submitted to the DBM through its Regional Office within the same period.
1.2.3 Monitoring of Physical Outputs and Accomplishments
Each Department/Office Head shall prepare a Quarterly Physical Report of Operations where actual performance per activity is shown against the target output.
200 Step 2. Evaluate Performance of Each Department/Office
The other component of accounting for the budget is the assessment of the performance of the LGU primarily through a review of outputs/accomplishments against performance standards and targets.
Pursuant to Sections 316 and 320 of R.A. No. 7160, the LFC and LCE are tasked to conduct a semi-annual review and general examination of cost and accomplishments against performance standards applied in the implementation of development projects and delivery of basic services.
The LFC is also mandated to:
determine the levels of income for the ensuing fiscal year; recommend to the LCE the levels of expenditures and their proper allocation to each PPA; and assist the Sanggunian in the analysis and review of the annual and supplemental budgets of its component LGUs.
While these other tasks pertain to responsibilities during the budget preparation and authorization phases, they cannot be faithfully performed without a clear knowledge of the status of the LGU budget performance in the current and prior years.
The LFC and LCE, therefore, shall evaluate not only the implementation of development projects but also that of other PPAs as well.
The Committee shall report the results of the evaluation to the LCE, the Sanggunian, oversight agencies, Non-Government Organizations (NGOs), and other observers. The report shall be posted in the website of the LGU, if any, and in publicly accessible and conspicuous places.
The results of performance review and evaluation will guide the LCE and the Sanggunian on the appropriate actions to take with respect to the performance of the offices and departments of the LGU. The evaluation results will also serve as bases for reevaluating current policies and practices. The LGU may either sustain good performance or remedy shortcomings to enable it to be on track in its plans for the year and the years ahead.
The following criteria/tests should guide the LFC and LCE in the review and evaluation of performance:
201 Results-oriented: focuses on outputs and outcomes; Selective: concentrates on most important indicators of performance; Useful: provides information of value to the LGU and decision- makers; Accessible: provides periodic information about results; and Reliable: provides accurate, consistent information over time.
Each department/office shall be a responsibility/cost center. The heads of departments or offices are therefore responsible for the results of all the PPAs performed in their respective departments/offices.
2.1 Review/Evaluate Performance
2.1.1 Evaluation of the physical, financial and income performance.
The performance evaluation shall be based on the following local budget accountability reports:
LBAc Form No. 1 - Quarterly Report of Income LBAc Form No. 2 - Quarterly Financial Report of Operations LBAc Form No. 3 - Quarterly Physical Report of Operations LBAc Form No. 4 - Statement of Receipts and Expenditures
The forms to be accomplished for the performance evaluation to be duly signed by the members of the LFC, shall be as follows:
LBPE Form No. 1 - Physical Performance Evaluation Form LBPE Form No. 2 - Financial Performance Evaluation Form
2.1.2 Consultation with department/office heads and stakeholders
This is done for clarification and validation purposes of the actual performance against targets.
202 2.2 Follow Guidelines/Procedures in Evaluating Department/ Office Performance
2.2.1 A midyear (January 1 to June 30) and annual (January to December each year) performance evaluation of the physical and financial accomplishments by department/office and the entire LGU shall be conducted by the LFC for submission to the LCE on or before August 31 of the current year and February 28 of the next year, respectively.
2.2.2 The evaluation shall be based on performance targets vs. actual physical accomplishments and expenditures vs. released allotments.
2.2.3 The data required for the performance evaluation shall be taken from the quarterly budget accountability reports.
2.2.4 The evaluation shall include the determination of the costs incurred in the production of MFO using actual obligations and outputs.
2.2.5 The following suggested weights may be used in the performance evaluation of departments/offices:
Physical Performance 70% Financial Performance 30% ------------------- Total 100% ===== The department MFOs/PPAs to be measured shall be assigned percentage (%) weights. The total % weights for all MFOs/Activities shall be equal to 100%.
2.2.6 A scoring system will give points to the accomplishment in physical and financial variables. The cause of the variables (negative slippage) in performance will be taken into account.
The scoring system below may be used in rating the department performance. The maximum is 15 points (without weights).
203
Legend: O Outstanding S Satisfactory P Poor VS Very Satisfactory F Fair
2.3 Procedures for the Evaluation of LGU Performance by Department/Office
2.3.1 Compute the Total Points for Physical Accomplishment per department/office.
Assign the relative weight for each MFO/PPA. Compute the physical percentage accomplishment (actual/target) for each MFO/PPA. Assign the corresponding point for the physical accomplishment per MFO/PPA using the scoring system. Get the weighted score (WSp) for each MFO/Activity by multiplying the points score with the corresponding % weight for each MFO/Activity. Get the total weighted score (TWSp) by adding up the individual weighted scores for all MFOs/Activities. Multiply the TWSp by 70% to get the overall physical performance.
2.3.2 Compute the Total Points for Financial Accomplishment.
Assign the relative weight for each MFO/activity. Compute the absorptive capacity (actual obligation incurred/obligational authority) for each MFO/activity. Assign the corresponding points for the absorptive capacity per MFO/activity using the scoring system. Rate of Accomplishments Physical Financial Adj. Rate Points Adj. Rate Points 110 120 % O 5 P 1 100 109.9% VS 4 F 2 90 99.9 % S 3 S 3 80 89.9% F 2 VS 4 Below 80 % P 1 O 5 204 Get the weighted score (WSf) for each MFO/Activity by multiplying the points score with the corresponding % weight for each MFO/Activity. Get the total weighted score (TWSp) by adding up individual weighted scores for all MFOs/Activities. Multiply the TWSp by 30% to get the overall physical performance.
2.3.3 Compute the Overall Performance of the department/office.
Compute the total overall weighted score (TOWS) for the accomplishments (physical and financial). The overall performance of the department/office shall be based on the following adjectival rating:
TOWS or Overall Score Performance Rating 4.0 5.0 Outstanding (O) 3.0 3.9 Very Satisfactory (VS) 2.0 2.9 Satisfactory (S) 1.0 1.9 Fair (F) Below 1.0 Poor (P)
2.3.4 Compute the Overall Performance of the LGU:
Compute the average TOWS for the physical accomplishments of all offices/departments and multiply by 70% to get the overall physical performance. Compute the average TOWS for the financial accomplishments of all offices/departments and multiply by 30% to get the overall financial performance. Sum up all the final scores to get the TOWS. The overall performance of the LGU shall be based on the adjectival rating presented in Computing the Overall performance of the department/office (No. 2.3.3)
An illustrative presentation of a Department/Office Performance Evaluation (Financial/Physical Accomplishment) is shown on page 213.
205 2.3.5 Prepare the Performance Review Report (PRR).
The PRR should include a brief description of a department/office and overall LGU performance.
Here is a sample outline of the report:
Executive Summary
A. Objectives (What is going to be evaluated or reviewed)
B. Background
1. MFOs or PPAs covered by the review from January to June 2. Target/s (physical, income) for the period 3. Allotment corresponding to 50% of the Annual Budget plus other releases 4. Actual cost equivalent to the amount in the SAOB as of June 30 5. Other information affecting agency implementation
C. Summary of Findings
1. Description of the LGU performance discussing the tabulated scores and ratings 2. Explanation of deviations (negative or positive) 3. Measures undertaken for negative deviations
D. Recommendations
1. Measures to be undertaken for negative deviations 2. Measures to improve organization, staffing, systems and procedures, and refocusing of programs and priorities
206 6.0 LOCAL BUDGET ACCOUNTABILITY FORMS
LBAc Form No. 1
QUARTERLY REPORT OF INCOME For the Quarter Ending __________
Account Title/ Description of Income Account Code Estimated Income Previous Quarter Estimated Income This Quarter Total Estimated Income to Date Actual Income for the Quarter Total Actual Income to Date Variance
___________________ __________ ____________________ __________ LOCAL TREASURER Date LOCAL ACCOUNTANT Date
INSTRUCTIONS:
Column (1) shall refer to the appropriate account classification and nature of the actual income generated during the period as appearing in Column (3) to (9) in accordance with the New Government Accounting System (NGAS), i.e., Other Taxes - Community Tax - Share from Internal Revenue Collection - Share from Expanded Value Added Tax - Share from National Wealth
Column (2) shall denote the numerical code per NGAS of the income classification in Column (1).
Column (3) shall indicate the estimated income of previous quarter.
Column (4) shall indicate the estimated income of the current quarter reported.
Column (5) shall refer to the estimated income from January to the end of the quarter reported.
Columns (6) to (8) shall refer to the actual income realized during the three months of the quarter reported, while Column (9) shall indicate the cumulative total of each income category from January 1 to the end of the quarter reported. Said total should tally with the income account per Trial Balance as of even date.
Column (10) shall indicate the difference between the estimated income and actual income to date (Col.9 Col.5). Column (11) shall indicate the percentage increase/(decrease) in the income (Col. 10 / Col. 5) Column (12) shall refer to additional information/reasons for material increase or decrease of actual income realized during the period compared with estimates.
This report shall be submitted directly to the Local Finance Committee thru the Local Budget Officer on or before the 20th day of the month following the quarter reported. 207
LBAc Form No. 2 QUARTERLY FINANCIAL REPORT OF OPERATIONS For the Quarter Ending ______________ MFO/ PPA Implementing Unit Appropriation Allotment Released Balance of Appro- priation Obligations Incurred Unobligated Allotment
Remarks Continuing Current Total Previous Quarters This Quarter Total Previous Quarters This Quarter Total (1) (2) (3) (4) (5) (6) (7) (8) (9) (10) (`11) (12) (13) (14)
Certified Correct:
_______________________ ____________ LOCAL BUDGET OFFICER Date
INSTRUCTIONS:
Column (1) shall refer to the MFO and PPA Code of the activity as listed down in the General Fund Budget.
Column (2) shall refer to the implementing unit (i.e. General Services Department, Accounting Department, etc.).
Column (3) shall refer to the unreleased appropriation of the past year which can still be released during the current year.
Column (4) shall indicate the current years appropriation in the approved budget, whether from the annual budget or from supplemental budgets.
Column (5) shall refer to the total appropriation (Col. 3 + Col. 4).
Column (6) shall refer to the current years allotment released in the previous quarters and prior years unobligated allotment. The prior years unobligated allotment and obligations shall be shown separately for full disclosure.
Column (7) shall refer to the allotment released during the quarter being reported.
Column (8) shall refer to the total allotment released as of end of the quarter being reported (Col. 6 + Col. 7).
Column (9) shall refer to the unreleased appropriation (Col. 5 Col. 8) as of end of the quarter being reported.
Column (10) shall refer to the current year obligations incurred in the previous quarters as recorded in the Registry of Allotment and Obligation (RAO).
Column (11) shall refer to the obligations incurred during the quarter being reported as recorded in the RAO.
Column (12) shall refer to the total obligations incurred as of end of the quarter being reported (Col. 10 + Col. 11).
Column (13) shall refer to the unobligated allotment (Col. 8 Col. 12) which should tally with the balance shown in the Statement of Allotments, Obligations, and Balances as of end of the quarter being reported.
Column (14) shall contain other relevant information for which no appropriate column is provided.
This report shall be submitted directly to the Local Finance Committee on or before the 20th day of the month following the quarter being reported. 208
LBAc Form No. 3
QUARTERLY PHYSICAL REPORT OF OPERATIONS For the Quarter Ending ___________
Department/Office: __________________
MFO/ PPA
Major Final Output
Performance Indicator Target Output Actual Performance Variance
Previous Quarters This Quarter Total Previous Quarters This Quarter Total Output % Remarks (1)
(2) (3) (4) (5) (6) (7) (8) (9) (10) (11) (12)
Prepared by:
_______________________ ___________________________________ ____________ DEPARTMENT HEAD LOCAL PLANNING & DEVELOPMENT OFFICER Date
INSTRUCTIONS:
Column (1) shall refer to the MFO and PPA Code of the activity as listed down in the General Fund Budget.
Column (2) shall refer to the Major Final Output (MFOs) - goods and services that a department is mandated to deliver to external clients through the implementation of the PPA.
Column (3) refers to the performance indicator - predetermined measure of the results of an activity against a standard of performance required to achieve set policy objectives within a given period.
Column (4) refers to the cumulative target output as of the previous quarter.
Column (5) refers to the target output during the quarter being reported.
Column (6) shall refer to the total target output (Col. 4 + Col. 5) as of end of the quarter being reported.
Column (7) refers to the actual performance as of the previous quarter.
Column (8) refers to the actual performance during the quarter being reported.
Column (9) refers to the total actual performance (Col. 7 + Col. 8) as of end of the quarter reported
Column (10) refers to the variance between the target and actual accomplishments (Col. 9 Col. 6)
Column (11) refers to the variance expressed in percentage (Col. 10 / Col. 6)
Column (12) shall cover other relevant information/reasons for increase or decrease in actual performance vis--vis target performance.
This report shall be submitted to the Local Finance Committee thru the Local Budget Officer on or before the 20th day of the month following the quarter reported. Consolidated report shall be prepared by the Local Budget Officer. 209
LBAc Form No. 4
STATEMENT OF RECEIPTS AND EXPENDITURES For the Fiscal Year Ending __________
1. Share from National Internal Revenue Taxes (IRA)
2. Share from GOCCs
3. Other Share from National Tax Collection
a. Share from Ecozone
b. Share from EVAT
c. Share from National Wealth
d. Share from Tobacco Excise Tax
4. Extraordinary Receipts
a. Grants and Donations
b. Other Subsidy Income
5. Inter-local Transfers
a. Subsidy from LGUs
b. Subsidy from Other Funds
6. Capital/Investment Receipts
a. Gain on Sale of Assets
b. Gain on Investments
C. Receipts from Loans and Borrowings
Total Receipts ( I + II )
210 Continuation of LBAc Form No. 4
III. Expenditures
A. General Services
B. Social Services
C. Economic Services
D. Other Services
Total Expenditures
IV. Ending Cash Balance ( I + II ) - III
Certified Correct:
_______________________ _______________________ LOCAL TREASURER LOCAL ACCOUNTANT
INSTRUCTIONS:
Column (1) shall refer to the details of the income/receipts and expenditures. Beginning cash balance shall be net of amounts earmarked for specific purposes {e.g., continuing appropriations, 20% Development Fund, payables, others (restricted funds)}.
Column (2) shall refer to the account code using the New Government Accounting System (NGAS).
Column (3) shall refer to the estimated income/receipts and expenditures for the fiscal year being reported.
Column (4) shall refer to the actual income/receipts and expenditures for the fiscal year reported.
Column (5) shall refer to the variance between the estimated and actual income/receipts and expenditures for the fiscal year reported (Col. 4 Col. 3).
Column (6) refers to the variance, expressed in percentage (Col. 5 / Col. 3).
Column (7) shall cover other relevant information/reasons for increase or decrease in actual vis--vis target receipts and expenditures.
This report shall be submitted to the Department of Budget and Management thru the Local Budget Officer within 30 days from the end of the fiscal year reported, copy furnished the Local Finance Committee. 211 7.0 LOCAL BUDGET PERFORMANCE EVALUATION FORMS
LBPE Form No.1
PHYSICAL PERFORMANCE EVALUATION FORM As of the 1 st Semester Ending _______
Column (1) refers to the MFO of the various P/P/As of the Office/Department. Column (2) refers to the percentage (%) weight of each MFO. Column (3) refers to the target output for the semester being reported. Column (4) refers to the actual output for the semester reported. Column (5) refers to the difference between Col. 4 and Col. 3 (Col. 4 Col.4). Column (6) refers to the accomplishment expressed in percentage (Col. 4 / Col. 3) Column (7) refers to the point score based on the physical accomplishment shown in Column (6) using the scoring system. Column (8) refers to the weighted score (Col. 2 x Col. 7).
This Report shall be submitted to the LCE by the LFC on or before September 30 of each year. 212
LBPE Form No. 2
FINANCIAL PERFORMANCE EVALUATION FORM As of the 1 st Semester Ending _______
Column (1) refers to the MFO of the various P/P/As of the Department/Office. Column (2) refers to the percentage (%) weight of each MFO. Column (3) refers to the allotment released for the Department/Office for the semester being reported. Column (4) refers to the actual obligations incurred as reflected in the Registry of Allotment and Obligation (RAO) for the semester being reported.
Column (5) refers to the difference between Columns 4 and 3 (Col. 3 Col. 4). Column (6) refers to the financial accomplishment expressed in percentage (Col. 4 / Col. 3). Column (7) refers to the point score based on the financial accomplishment shown in Column 6 using the scoring system. Column (8) refers to the weighted score (Col. 2 x Col. 7).
This report shall be submitted to the LCE by the LFC on or before September 30 of each year. 213 8.0 ILLUSTRATIVE PRESENTATION:
Office/Department Performance Evaluation
Financial Accomplishment
LBPE Form No. 2
FINANCIAL PERFORMANCE EVALUATION FORM As of the 1 st Semester Ending June 30, 2008
Department/Office: OFFICE OF THE TREASURER MFO/ Activity % Weight Actual Obligations Incurred Allotment Released Variance % of Accomplis hment Points Weighted Score (1) (2) (3) (4) (5) (6) (7) (8) Treasury Services 100% 8,200,000 9,500,000 1,300,000 86.3% 4 4
Physical Accomplishment
LBPE Form No.1
PHYSICAL PERFORMANCE EVALUATION FORM As of the 1 st Semester Ending June 30, 2008
Department/Office: OFFICE OF THE TREASURER MFO/ Activity % Weight Actual Output Target Variance % of Accomplish ment Point s Weighted Score (1) (2) (3) (4) (5) (6) (7) (8) Treasury Services 100% 21,800,000 25,000,000 -3,200,000 87.2% 2 2
Office of the Treasurer Performance Rating: Summary Financial Accomplishment (30% x 4) 1.200 Physical Accomplishment (70% x 2) 1.400 -------- Total 2.600 ===== Adjectival Performance Rating Satisfactory
214
PART III: ALLOCATIONS TO LOCAL GOVERNMENT UNITS (ALGU)
The 1973 Constitution laid down the principle of local autonomy based on self-reliance. The enactment of the 1987 Constitution marked more resolute efforts towards the attainment of the nations dream of genuine and meaningful local autonomy.
Section 2, Article X of the 1987 Constitution provides, The territorial and political subdivisions shall enjoy local autonomy.
This Constitutional mandate is given flesh by R.A. No. 7160, otherwise known as the 1991 Local Government Code, which provides for the establishment of more responsive and accountable government structure instituted through a system of decentralization.
Effective sharing of political and administrative powers between the national and local governments, on the other hand, is anchored, in part, on the equitable diffusion of national internal revenues among the different levels of government as well as the sharing of proceeds from the development of national wealth and from other special shares with the inhabitants of a particular community by the way of direct benefits.
This Part of the manual delves on the provisions of law as well as on the procedures set forth by different issuances by which Local Government Units (LGUs) may effectively access the different allocations to LGUs.
215
ALLOCATIONS TO LOCAL GOVERNMENT UNITS (ALGU)
1.0 Internal Revenue Allotment 1.1 Introduction 1.2 Distribution of Shares 1.3 Use of the Fund 1.4 Fund Release Procedures
2.0 Special Shares
2.1 Share in the Utilization and Development of National Wealth 2.1.1 Distribution of Shares 2.1.2 Documentary Requirements for the Release of Fund 2.1.3 Use of the Fund 2.1.4 Fund Release Procedures
2.2 Share in the Gross Income Taxes Paid by All Businesses and Enterprises within the Ecozones 2.2.1 Computation of Shares 2.2.2 Distribution of Fund 2.2.3 Fund Release Procedures
2.3 Share in Value Added Tax 2.3.1 Computation of Shares 2.3.2 Fund Release Procedures
2.4 Tobacco Excise Tax 2.4.1 Computation of Shares 2.4.2 Distribution of Shares 2.4.3 Use of the Fund 2.4.4 Fund Release Procedures 216 Legal Basis
The Internal Revenue Allotment (IRA) refers to the shares of LGUs from the national internal revenue taxes (NIRT) equivalent to 40% of the total annual revenue collection of the 3 rd year preceding the current fiscal year (Section 284, R.A. No. 7160, Article 378 [c], IRR of R.A. No. 7160).
National internal revenue taxes include the following:
Income tax Estate tax and donors tax Value-added tax Other percentage taxes Taxes imposed by special laws, such as travel tax.
1.0 Internal Revenue Allotment (IRA)
1.1 Introduction
The allocation of the share of each LGU shall be released directly, without need of any further action, to the provincial, city, municipal or barangay treasurer, as the case may be. The IRA shall not be subject to any lien or holdback that may be imposed by the national government for whatever purpose (Section 286, R.A. No. 7160, Article No. 383 [c], IRR of R.A. No. 7160).
Beginning FY 2007, the IRA is not only automatically released but treated as an automatic appropriation (Section 4, R.A. No. 9358, FY 2006 Supplemental Appropriations). This means that the IRA need not pass through congressional approval before it is released to LGUs. This provision of the law makes the release of IRA shares more predictable and allows LGUs to plan/program the use of their IRA fund more effectively.
1.2 Distribution of Shares
Section 285 of the Local Government Code (LGC) as implemented by Article 382 (a), IRR of R.A. No. 7160, provides the codal formula or the manner of allocation of the IRA share prescribed by Code for the four levels of LGUs as follows: 217
Illustrative examples showing the shares of provinces, cities and municipalities using the codal formula:
The share of each province, city and municipality is computed based on the following factors:
Population - Fifty percent (50%) Land Area - Twenty-five percent (25%) Equal Share - Twenty-five percent (25%)
Figure 15. Computation of IRA based on Indicative Factors
The IRA share based on population is computed using the population data from a census of population conducted by the Provinces Cities
Municipalities 20% 23% 34% 23% Barangays 218 National Statistics Office (NSO) every 10 years as contained in a Presidential Proclamation Order.
The IRA share based on land area is computed using the consolidated masterlist of land area prepared by the Land Management Bureau (LMB) of the Department of Environment and Natural Resources (DENR) every three (3) years.
The allocation of the individual share in the case of barangays, shall be P80,000 for each barangay with a population of not less than 100 inhabitants. The balance to be distributed shall be based on population (60%) and equal sharing (40%).
1.3 Use of the Fund
Pursuant to Section 17 of R.A. No. 7160, the fund shall be used to provide for basic services and facilities, particularly those which have been devolved by the National Government.
Section 287, R.A. No. 7160, and Article 383 (b), IRR of R.A. No. 7160 direct LGUs to set aside no less than 20% of their IRA to fund development projects as identified in the LGUs development plans.
The DBM-DILG Joint Circular No. 1, Series of 2005, prescribes the specific use of the 20% Development Fund for the following development projects:
1.3.1 Social Development
Establishment or rehabilitation of Productivity Enhancement Center for out-of-school youths, women, minors, displaced families, indigenous people, differently-abled persons, and elderly persons
Establishment or rehabilitation of Manpower Development Center
Construction or rehabilitation of health centers, rural health unit or hospital, and purchase of medical equipment
219
Construction or rehabilitation of a local government- owned potable water supply system
Installation of street lighting system
Preservation of cultural/historical sites
Other programs or projects of similar nature
1.3.2 Economic Development
Implementation of a livelihood/entrepreneurship development program or project
Construction/rehabilitation of a communal irrigation of water impounding system and purchase of post- harvest facilities such as farm or hand tractor with trailer, thresher, mechanical drier, and the like
Construction/rehabilitation of farm-to-market roads
Construction/rehabilitation of local roads or bridges
Other programs or projects of similar nature.
1.3.3 Environmental Management
Construction/rehabilitation of sanitary landfill or controlled dumpsite and purchase of a garbage truck or related equipment
Community reforestation or urban greening projects
Flood control programs or projects such as de- clogging of canals or de-silting of rivers
Other environmental management programs or projects that promote air and water quality, as well as productivity of coastal or freshwater habitat, agricultural land, and forest land 220 1.4 Fund Release Procedures
The release of LGU share from the IRA follows these procedures:
Figure 16. Fund Release Procedures of LGU share from the IRA
The BIR, as collecting agency submits to DBM a certification of the LGU share from NIRT equivalent to 40% of the total annual revenue collection of the 3rd year preceding the current fiscal year as reconciled with the BTr. The DBM-CO computes the LGU shares, programs the release of the fund;
The DBM-RO prepares necessary release documents to effect the crediting of the share to the LGU accounts maintained at authorized Government Servicing Banks (GSBs). 221
2.0 Special Shares
2.1 Share in the Utilization and Development of National Wealth
There are four (4) types of national wealth with the responsible collecting agency indicated:
Particulars Collecting Agency Forest Charges Department of Environment and Natural Resources Royalties and Mineral Reservation Mines and Geo-Sciences Bureau Energy Production Resources Department of Energy Mining Taxes Bureau of Internal Revenue
LGUs shall also have a share from proceeds derived by any government agency or government-owned or controlled corporation engaged in the utilization and development of the national wealth based on the following formula whichever will produce a higher share for the LGU: . One percent (1%) of the gross sales or receipts of the preceding calendar year; or
Forty percent (40%) of the mining taxes, royalties, forestry, energy resources production, and such other taxes, fees and charges, including interests and fines the government agency or government-owned or controlled corporation would have paid if it were not otherwise exempt (Section 291, R.A. No. 7160; Article 388, IRR of R.A. No. 7160). Legal Basis
In addition to the internal revenue allotment, LGUs are also entitled to 40% of the gross collection by the national government from the preceding fiscal year out of the proceeds derived from the utilization and development of national wealth within the LGUs respective areas (Section 289 and 290, R.A. No. 7160 and Articles 386 and 387, IRR of R.A. No.7160).
222 45% 20% 35% Barangay Province Component City or Municipality
65% 35% Barangay City
2.1.1 Distribution of Shares Pursuant to Section 292 of R.A. No. 7160 and Article 389, IRR of R.A. No. 7160, the distribution of LGU shares from national wealth shall be as follows:
Where the natural resources are located in the province, the province will have a share of 20%, the component city/municipality, 45%; and the barangay, 35%.
Figure 17. Distribution of Shares from National Wealth (where the natural resources are located in the province)
Where the natural resources are located in, a highly urbanized or independent component city, the city will have a share of 65%, and the barangay, 35%.
Figure 18. Distribution of Shares from National Wealth (where the natural resources are located in a highly urbanized or independent component city) 223
However, where natural resources are located in two (2) or more cities, the allocation of shares shall be computed on the basis of population (70%) and land area (30%).
2.1.2 Documentary Requirements for the Release of Fund
During budget execution, the DBM shall release the share of LGUs upon submission to the Department by the collecting agency of the following:
a. Certification showing the corresponding share of each province, city, municipality, and barangay where the national wealth is being developed and/or utilized; and
b. Certificate of Actual Remittance for the preceding year from the Bureau of the Treasury (BTr).
2.1.3 Use of the Fund
LGU share from proceeds of national wealth shall be used to finance local development and livelihood projects of the recipient LGU.
In the case of proceeds derived from the development and utilization of hydrothermal, geothermal and other sources of energy, 80% of the proceeds shall be applied solely to lower the cost of electricity in the LGU where such source of energy is located. (Section 294, R.A. No. 7160; Article 391, IRR of R.A. No. 7160)
In the case of any government agency or government-owned or controlled corporations engaged in the utilization and development of the national wealth, such share shall be directly remitted by the government agency/government- owned or controlled corporation concerned to the provincial, city, municipal, or barangay treasurer within five (5) days after the end of each quarter. (Section 293, R.A. No. 7160; Article 390 [b], IRR of R.A. No. 7160)
224
2.1.4 Fund Release Procedures
The DBM-DOF-DOE Joint Circular No. 2006-1 prescribes the guidelines and procedures for the release of LGU shares in the proceeds from the utilization and development of national wealth, summarized hereunder:
Forest Charges, Royalties from Mineral Reservation, and Mining Taxes
Figure 19. Fund Release Procedures of LGU Shares in the proceeds from Forest Charges, Royalties from Mineral Reservation, and Mining Taxes
The Bureau of Internal Revenue (BIR), the Department of Environment and Natural Resources (DENR), and the Mines and Geosciences Bureau (MGB) submit to DBM- Central Office a certification of the projected total shares of LGUs based on the immediately preceding years collections as basis for provision of appropriations cover during budget preparation (on or before March 15). DBM-CO programs the release of the fund.
DBM-ROs check source documents and release necessary documents to effect the crediting of the share to the LGU accounts maintained at authorized Government Servicing Banks (GSBs).
The BTr submits to DBM-CO a certification on actual remittances from the immediately preceding years collections as basis by DBM in fund release during budget execution. 225
Energy Resources Production
Figure 20. Fund Release Procedures of LGU Shares in the proceeds from Energy Resources Production
The Department of Energy (DOE) submits to DBM-CO on or before March 15 the certification and all the supporting documents relative to the collections made in the immediately preceding year and the shares of the LGUs concerned as basis for providing appropriations cover.
DBM-CO evaluates/recommends and programs the release of the fund.
DBM-ROs prepare the necessary release documents to effect the crediting of the share to the LGU accounts maintained at authorized GSBs.
LGUs receive their share. Government servicing banks automatically credit amount to respective MDS account maintained by the LGUs
226
2.2 Share in the Gross Income Taxes Paid by All Businesses and Enterprises within the Ecozones
2.2.1 Computation of Shares
The two percent (2%) of the five percent (5%) final tax on gross income earned or 40% of the total tax collection shall be proportionately divided as follows:
1% of the 5% final tax or 20% of the total tax collected, to the LGUs affected by the declaration of the Ecozones; and
1% of the 5% final tax or 20% of the total tax collected, to the Special Development Fund (SDF) of each LGU outside but contiguous to the base/Ecozone areas.
2.2.2 Distribution of Fund
The 1 % share of LGUs concerned and the 1% SDF shall be distributed based on the following factors and data source consistent with the DBM formula for allocating the IRA:
Population 50% Land Area 25% Equal Sharing 25% 100%
Legal Basis
Local government units within Subic, Clark, John Hay, Poro Point Special Economic and Free Port Zones are entitled to a 2% share from gross income earned by all businesses within the Ecozone area (R.A. No. 7227). The implementing guidelines and procedures for the release of LGU share from ecozones are provided under DBM-DILG-DOF Joint Circular No. 99-2.
227
2.2.3 Fund Release Procedures
In accordance with DBM-DILG-DOF Joint Circular No. 99- 2, the following procedures are applied in releasing LGU shares from Ecozone:
Figure 21. Fund Release Procedures of LGU Shares from Ecozone
The DILG submits to BIR, copy furnished the DBM, the list of LGUs entitled to receive share from Ecozone, categorized into: those that are directly affected by the declaration of the Ecozones (1%) and LGUs outside the Ecozones but contiguous to it (1%).
On or before May 15, the BIR submits to DBM as basis for appropriations cover the certified computed total LGU share based on the revenue collections for two (2) years immediately preceding the current year.
The DBM-CO programs the release of the fund.
DBM-ROs validate supporting documents to effect the crediting of the share to the LGU accounts maintained at authorized Government Servicing Banks (GSBs).
228 Legal Basis
Value-Added Tax (VAT) is the internal revenue tax imposed under Section Nos. 106 and 108 of the NIRC of 1997 (formerly Sections 100, 101 and 102 of the NIRC of 1977). In addition to its IRA shares, RA No. 7643 allows Local Government Units (LGUs) to share from VAT revenues equivalent to 50% of the excess in VAT collection from the immediately preceding year, to be distributed as follows:
20% to the city/municipality 80% to the national government
DBM-DOF-DILG Joint Circular No. 1-02 dated February 6, 2002 prescribes the guidelines and procedures on the release of the 20% of the 50% share of LGUs in the incremental collection VAT.
2.3 Share in Value Added Tax
2.3.1 Computation of Shares
LGUs are entitled to a share in VAT only when there is an incremental collection from Value-Added Tax which refers to the excess in the annual increase in actual collection of VAT in the immediately preceding year over the annual increase in the second preceding year, illustrated as follows:
Year VAT Collection Increase 2006 P 64.55 M P 20.972M 2005 43.383M 19.700M 2004 23.886M - 2006 increase in collection P 20.972 M Less: 2005 increase in collection 19.700 M ------------ Excess of increase in collection P 1.272 M 50% share in incremental collection P 0.636 M Distributed as follows:
20% share of LGUs (city/municipality) P 0.127 M 80% share of national government P 0.509 M 0.636 M 229
Formula for the Distribution of LGUs share in the Incremental Collection from VAT
Figure 22. Formula for the Computation of LGUs VAT Shares
If VAT is paid by manufacturers, producers without branch or sales/outlet/s
If VAT is paid by manufacturers, producers with factories, project offices, plantations and plants
100% to the city or municipality where the business is located
30% to the city or municipality where the principal office is located
If VAT is paid by manufacturers, producers, exporters where the plantation is located at a place other than the place where the factory is located
If VAT is paid by the manufacturers, producers, exporters and has two (2) or more factories, plants and plantations
30% to the city/municipality where the principal office is located
70% to the city or municipality where the factory, project offices, plant or plantation is located
30% to the city/municipality where the principal office is located
42% to the city/municipality where the factory is located
28% to the city/municipality where the plantation is located
70% shall be prorated among the localities where the factories, project offices, plants and plantations are located
230
Based on the foregoing formula, the BIR prepares a certification of the computed LGU share from VAT tax payments/collections and submits to DBM.
2.3.2 Fund Release Procedures
Figure 23. Fund Release Procedures of LGU Share from VAT tax payments/collections
The BIR submits to DBM on or before May 15 a certification of the total computed LGU share based on the revenue collections corresponding to 20% of the 50% of the incremental collection from VAT collections.
The DBM-CO programs the release of the fund.
DBM-ROs validate supporting documents to effect the crediting of the share to the LGU accounts maintained at authorized Government Servicing Banks (GSBs).
231 30% Municipalities and Cities within the district as identified by their respective legislators
50% divided according to volume 40% Municipalities
30% Province
50% divided equally 2.4. Tobacco Excise Tax
2.4.1 Computation of Shares
Pursuant to Memorandum Circular No. 61-A issued by the Office of the President, the shares of LGUs from the tobacco excise tax fund shall be computed based on the following:
a. BIR Certification of the 15% excise tax collection on locally manufactured Virginia type cigarettes for the second calendar year preceding the year of distribution to serve as basis for appropriation cover
b. National Tobacco Administration (NTA) Certification of the total volume of tobacco production/acceptances for the immediate past year to serve as basis for the computation of the actual shares of LGUs
2.4.2 Distribution of Shares
OP MC No. 61-A provides for the distribution of the shares of the respective beneficiary LGUs, as follows:
Figure 24. Distribution of Shares of LGUs from the tobacco excise tax Legal Basis
By virtue of R.A. No. 7171 dated January 9, 1992 entitled An Act to Promote the Development of Farmers in the Virginia Tobacco Producing Provinces, tobacco-producing LGUs are entitled to 15% of excise taxes on locally-manufactured Virginia-type cigarettes.
232 2.4.3 Use of the Fund
The shares of LGUs from the Tobacco Excise Tax shall be used for the following projects/purposes:
a. Cooperative projects that will enhance better quality of products, guarantee the market and, as a whole, increase farmers income;
b. Livelihood projects, i.e. alternative farming system to enhance farmers income;
c. Agro-industrial programs that will enable farmers to be involved in the management and subsequent ownership of these projects, i.e., post-harvest facilities and secondary processing like cigarette manufacturing and by-product utilization; and
d. Infrastructure projects such as farm-to-market roads.
2.4.4 Fund Release Procedures
Figure 25. Fund Release Procedures of LGU Shares from Tobacco Excise Tax
The NTA submits certification on the total volume of tobacco production/acceptances for the immediate past year as reference in the computation of individual shares of LGUs. The DBM-CO computes the share of LGUs and programs the release of the fund. DBM ROs prepare necessary release documents to effect the crediting of the share to the LGU accounts maintained at authorized Government Servicing Banks (GSBs).
The BIR submits to DBM on or before April 15 the estimated collection and the shares of the LGUs from tobacco excise tax for purposes of providing appropriations cover. 233 This last part of the Manual is an added feature that provides clarifications and opinions of the DBM on contentious issues on local government budgeting. Unless modified or revised, the answers to the issues shall form part of the policy guidelines of the DBM as an oversight agency pursuant to Section 354 of R.A. No. 7160.
PART IV. FREQUENTLY-ASKED QUESTIONS O ON N L LO OC CA AL L GOVERNMENT BUDGETING
234
Frequently-Asked Questions on Local Government Budgeting
A. Budget Preparation B. Budget Authorization C. Budget Review D. Items of Appropriations Included, by Attribution, in the General Fund Annual Budget E. Intelligence and/or Confidential Expenses F. Special Education Fund G. Calamity Fund H. Allocation to Local Government Units I. Aid to Barangays J. Premium Subsidy for Indigents under the National Health Insurance Program K. Gender and Development (GAD) L. Senior Citizens and the Differently-Abled M Personal Services Limitation N. Creation of Positions O. Local Government Economic Enterprises and Public Utilities
235 A. Budget Preparation,
1. Can the LGU appropriate for Monetization of Leave Credits?
Generally, Monetization of Leave Credits is chargeable against savings. However, under CSC-DBM Joint Circular No. 2, s. 2003, Monetization of Leave Credits, CNA Incentive Bonus, Overtime Pay, and such other benefits that are authorized by law but are chargeable against savings of the LGUs may also be included by direct appropriation either in the annual budget or supplemental budget of the LGU concerned, provided these are within the PS Limitation as stipulated under Section 325 (a) of R.A. No. 7160.
2. Can appropriation for development projects of no less than twenty percent (20%) of the IRA be appropriated in lump-sum amount?
No. The said 20% appropriation should cover itemized projects. Section 287 of R.A. No. 7160 provides that each LGU shall appropriate in its annual budget no less than 20% of its annual IRA for development projects. Article 384 of its IRR provides further that the local development projects to be funded are those embodied or contained in the local development plans.
Article 410 further provides that the LDCs shall submit to the local finance committee a copy of the local development plan and annual investment program prepared and approved during the fiscal year before the calendar for budget preparation in accordance with applicable laws, specifying therein projects proposed for inclusion in the local government budget. x x x. The local finance committee shall use the plan to ensure that projects proposed for local funding are included in the budget.
3. Is an Appropriation Ordinance necessary to authorize utilization of loan proceeds?
Yes. Loans, interests, bond issues, and other contributions for specific purposes are considered as special accounts in the general fund (Section 313, R.A. No. 7160). A special account in the general fund requires an Appropriation Ordinance for its utilization.
236
4. Is an Appropriation Ordinance necessary to authorize the use of the shares in the proceeds from the development and utilization of the national wealth?
Yes. Article 391 of the IRR of R.A. No. 7160 provides that the proceeds from the shares of LGUs in the proceeds from the development and utilization of the national wealth shall be appropriated by their respective Sanggunian to finance local development and livelihood projects.
Article 454 (d) of the same IRR reiterates this mandate and provides further that disbursements from such special accounts under the General Fund shall proceed from itemized appropriations in the budgets of LGU instead of by lump sum.
Such itemized appropriations shall be for specific development projects/activities embodied in the local development plan and/or public investment program formulated and prioritized by the LDC and approved by the Sanggunian concerned.
B. Budget Authorization
1. Are the voting and procedural requirements of the ordinance authorizing the use of savings and augmentation under Section 336 of R.A. No. 7160 the same as those for the ordinance authorizing the use of savings as a fund source for a supplemental budget under Article 417 of R.A. No. 7160, as amended by A.O. No. 47 dated 12 April 1993 (implementing Section 321 of R.A. No. 7160)?
As to voting requirement - The affirmative vote of a majority of all the Sanggunian members is required to pass an Appropriation Ordinance, whether for annual or supplemental budgets, under Article 107 (g) of the IRR of R.A. No. 7160. Relatedly, the use of savings and augmentation within the same expense class falls under the category of Use of Appropriated Funds and Savings under Section 336 of the same law. Hence, if the Appropriation Ordinance requires absolute majority in its passage, it follows that any modification in said appropriation will have to comply with the same requirement.
237 As to procedural requirement A supplemental budget is not required in passing an ordinance authorizing the use of savings and augmentation within the same expense class under Section 336 of R.A. No. 7160 since the law merely requires the authority by ordinance.
Considering the foregoing, while the ordinance under Section 336 and an Appropriation Ordinance have the same voting requirements, each has a different procedural requirement. Further, the ordinance under Section 336 may have a regular format simply stating that the LCE and/or the Presiding Officer of the Sanggunian is authorized to augment any item in the approved annual budget for their respective offices from savings in other items within the same expense class of their respective appropriations, as opposed to the use of savings considered as funds actually available to be covered by a supplemental budget as provided under Article 417 of R.A. No. 7160, as amended by A.O. No. 47 (implementing Section 321 of R.A. No. 7160).
Nevertheless, it is suggested that, for convenience, should the Sanggunian decide to grant the LCE and/or the Presiding Officer of the Sanggunian with the authority to use savings and augment within the same expense class in their respective appropriations, the said authorization may be included as a general provision/section in the ordinance authorizing the annual appropriations.
2. What is the difference between the use of savings as a fund source for a supplemental budget under Article 417 of the IRR of R.A. No. 7160 as amended by A.O. No. 47 (implementing Section 321 of R.A. No. 7160) and the use of savings for augmentation under Section 336 of R.A. No. 7160?
The use of savings under Article 417 of the IRR as amended by A.O. No. 47, implementing Section 321 of R.A. No. 7160, will require the enactment of an ordinance authorizing supplemental appropriations (supplemental budget).
Under A.O. No. 47, an ordinance providing for a supplemental budget may be enacted when supported by funds actually available as certified by the local treasurer. Said A.O. further provides that funds are likewise deemed actually available when there are savings.
238 In this case, the usual process of authorizing a supplemental budget will always apply. The supplemental budget will involve the reversion of the savings and its corresponding re-appropriation to any item of expenditure under any expense class. Accordingly, the Appropriation Ordinance shall be subject to review by the Department of Budget and Management or the Sangguniang Panlalawigan as the case maybe (Section 326 and 327, R.A. No. 7160).
On the other hand, the use of savings for augmentation under Section 336 will require the enactment of an ordinance, without the necessity of a supplemental budget submitted by the LCE. The ordinance will give the omnibus authority to the LCE or the Presiding Officer of the Sanggunian to augment any item in the approved annual budget for their respective offices from savings in other items within the same expense class of their respective appropriations.
3. Does the proposed ordinance covering the grant of authority to the LCE and/or the Presiding Officer of the Sanggunian to use savings and augment within the same expense class in their respective appropriations under Section 336 of R.A. No. 7160 need to emanate from the LCE like that of a supplemental budget?
No. The proposed ordinance granting the authority to use savings under Section 336 of R.A. No. 7160 need not emanate from the LCE unlike that of a supplemental budget.
A supplemental budget reflects changes in the annual budget under the conditions provided in Section 321 of R.A. No. 7160 and Article 417 of its IRR as amended by A.O. No. 47. Accordingly, since the annual budget emanates from the LCE as provided under Section 318 of R.A. No. 7160, the supplemental budget should likewise emanate from the LCE.
On the other hand, the proposed ordinance granting authority to use savings under Section 336 is not a budget and need not emanate from the LCE.
239 4. How may the use of savings and augmentation under Section 336 and the use of the savings as funds actually available for supplemental budget under Article 417 of R.A. No. 7160, as amended by A.O. No. 47 (implementing Section 321 of R.A. No. 7160) be distinguished?
The following matrix summarizes the distinctions between the use of savings under Sections 336 and 321 as aforementioned:
Requirement
Section 336 Section 321
What is the instrument required for authority?
Ordinance
Appropriation Ordinance covering a supplemental budget
Is there a need for a supplemental budget?
No need for a supplemental budget
Supplemental budget needed
What is the purpose of the savings?
For augmentation of existing item/s of expenditure within the same expense class
For re-appropriation may be to a different expense class
Where should the proposal emanate?
From the LCE or the Sanggunian
From the LCE only For provinces or highly- urbanized cities, will the ordinance be subject to review by DBM? No Yes
5. Can the LGU pass an ordinance authorizing use of savings and augmentation under Section 336 of R.A. No. 7160 when operating under a reenacted budget?
No. Use of savings and augmentation under Section 336 of R.A. No. 7160 is possible only when there is an approved annual budget for the current year. A reenacted budget does not qualify as an approved annual budget for the current year.
240 6. Can the Sanggunian increase items of appropriation in the executive budget?
Yes, provided that the aggregate increase does not cause an excess over the total proposed amount in the executive budget pursuant to Article 415 (a) of the IRR of R.A. No. 7160.
7. Can the Sanggunian introduce/include new items in the executive budget?
Yes, but only to provide for statutory and contractual obligations and it does not cause an excess over the total proposed amount in the executive budget pursuant to Article 415 (a) of the IRR of R.A. No. 7160.
As reference to questions 6 and 7 hereof, the doctrine enunciated in the case of Sarmiento, et al. vs. The Treasurer of the Philippines, et al. (GR Nos. 125680 and 126313, September 04, 2001) may be applied where the Supreme Court ruled that under Section 25 (1), Article VI of the 1987 Constitution, Congress is enjoined from increasing the total budget for the operation of the Government as recommended by the President, not the individual items of appropriations. Records of the 1986 Constitutional Commission reveal that the purpose of the provision is to avoid the possibility of a big budget deficit if Congress were given an unbridled hand in passing upon the appropriations recommended by the President as specified in the budget. The constitutional prohibition against such increase is an assurance that the expected income of the government will be sufficient for the operational expenses of its different agencies and projects specified in the appropriations law.
It may be noted that the subject provision of R.A. No. 7160 prohibiting the increase in the proposed amount in the executive budget is similar to the provision in Executive Order No. 292 (the Administrative Code of 1987), particularly Section 24, Chapter 4 on Budget Authorization, Book VI, in the case of national government budgeting, to wit:
SEC. 24. Prohibition Against the Increase of Appropriation. The Congress shall in no case increase the appropriation of any project or program of any department, bureau, agency or office of the Government 241 over the amount submitted by the President in his budget proposal. In case of any reduction in the proposed appropriation for a project or program, a corresponding reduction shall be made in the total appropriation of the department, office or agency concerned and in the total of the General Appropriations Bill.
8. Can the Sanggunian pass an Appropriation Ordinance covering a supplemental budget for the current fiscal year after December 31?
No. The Sanggunian cannot pass an Appropriation Ordinance covering a supplemental budget for the current fiscal year after December 31.
Supplemental budgets cover changes in the annual budget, thus, they should be authorized within the fiscal year covered by the annual budget. Article 455 of the IRR of R.A. No. 7160 provides that the official fiscal year of LGUs shall be the period beginning with the first (1 st ) day of January and ending with the thirty-first (31 st ) day of December of the same year.
Further, the reversion of funds under Section 322 of R.A. No. 7160 is at the end of the fiscal year (except in cases of continuing appropriations when the capital outlay projects are not yet completed).
9. Section 320 of R.A. No. 7160 provides that The ordinance enacting the annual budget shall take effect at the beginning of the ensuing calendar year. An ordinance enacting a supplemental budget, however, shall take effect upon its approval or on the date fixed therein. What about the requirement of publication under Section 59 of R.A. No. 7160 and Article 113 of its IRR?
Posting and/or publication, as the case may be, of an ordinance is required under Section 59 of R.A. No. 7160. The mandatory word shall was used by the law without any qualification or exemption, as follows:
(a) Unless otherwise stated in the ordinance or resolution approving the local development plan and 242 public investment program, the same shall take effect after ten (10) days from the date a copy thereof is posted in a bulletin board at the entrance of the provincial capitol or city, municipal, or barangay hall, as the case may be, and in at least two (2) other conspicuous places in the local government unit concerned.
(d) In the case of highly urbanized and independent component cities, the main features of the ordinance or resolution duly enacted or adopted shall, in addition to being posted, be published once in a local newspaper of general circulation within the city, provided, that in the absence thereof, the ordinance or resolution shall be published in any newspaper of general circulation.
10. What is the effect if the Appropriation Ordinance is not posted or published? Is posting/publication a requirement for the effectivity of the Appropriation Ordinance?
If the Appropriation Ordinance is not posted and/or published, as the case may be, its validity may be questioned. However, laws, ordinances and other issuances enjoy the presumption of regularity and validity until invalidated by the court.
11. In the exercise of the veto power, the reenacted figure results in a situation where the expenditure is greater than the estimated income. What figure or procedure should the LGU adopt?
By analogy, the rule under Section 323 of R.A. No. 7160 may be applied. The reenacted figure should not exceed the estimated income since the basic rule is that the aggregate amount appropriated shall not exceed the estimates of income (Section 324 [a], R.A. No. 7160).
243 12. One of the functions of the Secretary to the Sanggunian is to keep the seal of the LGU and affix the same with his signature to all ordinances, resolutions, and other official acts of the Sanggunian. What is the effect on the ordinance if the Secretary to the Sanggunian does not sign the ordinance?
The law provides that the Secretary to the Sanggunian shall affix his signature to all ordinances and present the same to the Presiding Officer for his signature (Section 469 [c (2)], R.A. No. 7160; Article 122 [a (3) (ii)], IRR of R.A. No. 7160).
The requirement is mandatory. Accordingly, the Secretary to the Sanggunian cannot refuse to sign the Appropriation Ordinance. Otherwise, he/she may be liable under applicable laws.
Nevertheless, in case the Secretary to the Sanggunian refuses to sign, such refusal will not affect the validity of the Appropriation Ordinance duly passed by the Sanggunian. Otherwise, that would be tantamount to giving the Secretary to the Sanggunian the veto power or the control in deciding whether the Appropriation Ordinance will be valid or not, and if it will be submitted for the consideration of the LCE.
13. One of the functions of the Secretary to the Sanggunian is to keep the seal of the LGU and affix the same with his signature to all ordinances, resolutions, and other official acts of the Sanggunian and present the same to the Presiding Officer for his signature. What if the Presiding Officer does not sign the ordinance? What is the effect on the ordinance?
There is no specific provision directly mandating the regular Presiding Officer of the Sanggunian to sign the ordinance, etc. Nevertheless, the following provisions of R.A. No. 7160 are clear:
The Secretary to the Sanggunian shall affix his signature to all ordinances and present the same to the Presiding Officer for his signature (Section 469 [c (2)], R.A. No. 7160; Article 122 [a (3) (ii)], IRR of R.A. No. 7160).
The Secretary to the Sanggunian shall forward to the LCE for approval, copies of ordinances enacted by the Sanggunian and duly certified by the Presiding Officer (Section 469 [c (3)], R.A. No. 7160; Article 122 [a (3) (iii)], IRR of R.A. No. 7160). 244
Further, Section 49 provides that the temporary Presiding Officer shall certify within 10 days from the passage of the ordinance.
Consequently, if the Presiding Officer refuses to sign, the Secretary to the Sanggunian may certify to the fact of the Presiding Officers refusal to sign.
Such refusal, however, will not affect the validity of the Appropriation Ordinance duly passed by the Sanggunian since the Presiding Officer has no veto power.
14. Can the Sanggunian withdraw the proposed Appropriation Ordinance which was already submitted to the LCE for approval?
There appears to be no legal provision in such a case. However, it may be assumed that the withdrawal of the proposed Appropriation Ordinance may not be allowed since the legislation process at such point has already been completed. Thus, the executive consideration of the proposed Appropriation Ordinance should take its course.
15. What amount may the LGUs appropriate in their annual/supplemental budgets (ABs/SBs) covering proceeds from loans? May the total amount of the loan as approved (but actually to be released in tranches) considered as funds actually available or only those amounts that are released to and actually received by the LGU?
The total amount of the approved loan even if it would be received in tranches may be the subject of appropriations under the AB or SB.
Section 316 (b) of R.A. No. 7160 provides that the LFC shall recommend the appropriate tax and other revenue measures or borrowing which may be appropriate to support the budget.
Further, SB may be enacted when it is supported by new revenue sources pursuant to Section 321 of R.A. No. 7160. It may be gleaned from Article 417 of the IRR of the same law as amended by A.O. No. 47 that approved loans may be considered as a new revenue source when it has not been included in the estimate of income which served 245 as basis for the AB or not taken into account during the preparation and enactment of the AB.
In the case of SBs, what amount will be certified as actually available by the local treasurer and when is the fund considered actually available?
For SB supported by funds actually available as certified by the local treasurer, the amounts to be certified are only those actually collected at any given point during the fiscal year, which is over and above the estimated income collection for that point in the year. Further, funds are likewise deemed actually available when there are savings as defined under Article 417 of the IRR of R.A. No. 7160, as amended by A.O. NO. 47.
Some LGUs contend that if the amount to be appropriated will be based on the loan proceeds released to and actually received by the LGU, then the LGU will have to conduct a separate procurement for every loan proceeds received, in view of the provisions of R.A. No. 9184 (The Government Procurement Reform Act). They claim that this may not be practical especially when the loan covers only one project in that it may result to one project having several contractors.
A separate procurement for every loan proceeds released and actually received is unnecessary. Under Section 5 of R.A. No. 9184, the Approved Budget for the Contract is the budget for the contract approved by the Sanggunian. In addition, to ensure that obligations to be incurred will not exceed appropriations and to guarantee that they will be backed up by cash, procurements should be made only after allotments have been released for the purpose.
16. Whose signatures are required in the Appropriation Ordinance? Will the Appropriation Ordinance need the signature of all the members of the Sanggunian or only those who have voted in favor of its passage?
The minimum signatures required in an Appropriation Ordinance are those of the Secretary to the Sanggunian, the Presiding Officer, and the LCE.
246 The Appropriation Ordinance may not need the signature of everyone in the Sanggunian, as long as the ordinance was duly enacted.
The Internal Rules of Procedure of the Sanggunian may, however, provide additional requirements for signatures in the Appropriation Ordinance.
17. What are the disadvantages of a reenacted budget in case of failure of the Sanggunian to enact the annual appropriations?
Only the annual appropriations for salaries and wages of existing positions, statutory and contractual obligations, and essential operating expenses authorized in the annual and supplemental budgets for the preceding year shall be deemed reenacted and disbursement of funds shall be in accordance therewith (Section 323, R.A. No. 7160; Article 415, IRR of R.A. No. 7160).
Accordingly, a reenacted budget will have implied disadvantages, such as, but not limited to, the following:
No creation of positions No new programs, projects and activities No utilization of the increase in IRA allocation for the year since the same is not covered by an Appropriation Ordinance Non-implementation of non-recurring activities no matter how vital they may be No supplemental appropriations
18. Is the appropriation for development projects of no less than twenty percent (20%) of the IRA included in the reenacted items?
No. Only the annual appropriations for salaries and wages of existing positions, statutory and contractual obligations, and essential operating expenses authorized in the annual and supplemental budgets for the preceding year shall be deemed reenacted and disbursement of funds shall be in accordance therewith (Section 323, R.A. No. 7160; Article 415, IRR of R.A. No. 7160).
Accordingly, there can be no implementation of new projects under a reenacted budget. 247
C. Budget Review
1. Should an ordinance authorizing supplemental appropriations (supplemental budget) submitted after the fiscal year be reviewed?
Yes, provided the ordinance authorizing the supplemental appropriations was enacted within the fiscal year covered by the annual budget, inasmuch as supplemental budgets cover changes in the annual budget as authorized under Section 321 of R.A. No. 7160, as implemented by Article 417 of its IRR as amended by A.O. No. 47 dated 12 April 1993.
2. May the provision for lump-sum before its legal basis is issued, like salary adjustments, be allowed in budget review?
If a legal basis exists during the review of the Appropriation Ordinance, the provision for the lump-sum may be allowed. Nevertheless, a condition that subsequent provisions should be made only when there is an existing legal basis at the time of enactment of the Appropriation Ordinance shall be imposed in the review action. Otherwise, in the absence of a legal basis at the time of the budget review, the lump-sum will be disallowed.
3. Can the LCE or Sanggunian withdraw an Appropriation Ordinance already submitted to a reviewing body?
No. The enactment of the Appropriation Ordinance has already been completed at the LGU level. Hence, the review process must take its course.
4. Under what budget will an LGU operate after the local Sanggunian overrode the veto of the Annual Budget (AB) by the LCE Reenacted Budget or the AB the veto of which was overrode by the Sanggunian?
From January 1 until the effectivity of the ordinance authorizing the AB (as overridden), the ordinance authorizing the appropriations of 248 the preceding year (AB and SB) shall be deemed reenacted (Section 323, R.A. No. 7160).
Nevertheless, it is understood that in the implementation of the reenacted budget, only the annual appropriations for salaries and wages of existing positions, statutory and contractual obligations, and essential operating expenses authorized in the annual and supplemental budgets for the preceding year shall be deemed reenacted and disbursement of funds shall be in accordance therewith (Section 323, R.A. No. 7160).
An AB cannot be covered by two Appropriation Ordinances (AOs). Passing the AB in several parts is not allowed due to the settled rule on comprehensive budgeting mandated under R.A. No. 7160.
The AB required to be enacted is a financial plan embodying the expenditures for one fiscal year (Section 306 [a], R.A. No. 7160).
The local government budget consists of estimates of income and total appropriations covering the current operating expenditures (COE) and capital outlays (CO) (Section 314 [a], R.A. No. 7160).
The AB shall be enacted through an ordinance (Section 319, R.A. No. 7160).
All budgetary proposals shall be included in the budget preparation process (Section 321, R.A. No. 7160). That is why, after the submission of the executive budget, no ordinance providing for a supplemental budget shall be enacted except when supported by funds actually available as certified by the local treasurer; by new revenue sources; or for budgetary realignment in times of public calamity (Article 417, IRR of R.A. No. 7160).
Within the contemplation of R.A. No. 7160, the two AOs cannot be considered as a single fiscal plan that embodies expenditures or total appropriations for the COE and CO for one fiscal year. They cannot be regarded as one or an ordinance by which an AB shall be enacted.
(DBM Review Letter dated 30 June 2008 Re Annual Budget of the Province of Iloilo)
249 5. What will be the review findings if new items are included by the Sanggunian over those provided in the proposed executive budget?
The Appropriation Ordinance shall be declared inoperative in part.
Under Article 415 of the IRR of R.A. No. 7160, the Sanggunian may not increase the proposed amount in the executive budget nor include new items except to provide for statutory and contractual obligations but in no case shall it exceed the total appropriations in the executive budget.
(DBM Review Letter dated 20 October 2008 Re Annual Budget of the Mandaue City)
6. May the LCE be required to secure prior authority from the Sanggunian before disbursing appropriated amounts?
No. The LCE may not be required to secure prior authority from the Sanggunian before disbursing appropriated amounts. Section 320 of R.A. No. 7160 vested in the LCE the responsibility for the execution of and accountability for the Annual Budget. Further, Section 346 of the same law mandated that disbursements shall be made in accordance with the annual Appropriation Ordinance without the prior approval of the Sanggunian.
(DBM Review Letter dated 20 October 2008 Re Annual Budget of the Mandaue City)
7. May an LGU whose Annual Budget (AB) was declared inoperative in its entirety pass a Supplemental Budget?
An LGU whose AB was declared inoperative in its entirety is considered as having no AB, and is, therefore, operating on a reenacted budget.
Under Section 323 of R.A. No. 7160 and Article 415 (a) of its IRR, no ordinance authorizing supplemental appropriations shall be passed in place of annual appropriations.
250 Relatedly, if the LGU wants to provide supplemental appropriations, it should first enact a new AB that is in conformity with the review findings and recommendations of the reviewing authority
D. Items of Appropriations Included, by Attribution, in the General Fund Annual Budget
1. What are the items of appropriations that shall be included, by attribution, in the General Fund Annual Budget?
The following items of appropriations shall be included, by attribution, in the General Fund Annual Budget:
a. Gender and Development (GAD) Plan with its programs, projects and activities (PPAs) that specify womens needs and GAD concerns pursuant to R.A. No. 7192 (Women in Development and Nation-Building Act), the Department of Budget and Management (DBM), National Economic and Development Authority (NEDA), and National Commission on the Role of Filipino Women (NCRFW) Joint Circular (JC) No. 2004-1 issued in 2004 (superseding DBM-NEDA-NCRFW JC No. 2001-1 dated August 15, 2001), and Department of the Interior and Local Government (DILG)-DBM-NCRFW JC No. 2001-01 dated December 19, 2001;
b. Plans, PPAs and services that will address the needs of senior citizens and differently-abled persons pursuant to the applicable provisions in the annual General Appropriations Act (GAA) and R.A. No. 7432 (An Act to Maximize the Contribution of Senior Citizens to Nation Building, Grant Benefits and Special Privileges and for Other Purposes), R.A. No. 7876 (An Act Establishing a Senior Citizens Center in All Cities and Municipalities of the Philippines, and Appropriating Funds Therefor), and R.A. No. 7277 (Magna Carta for Disabled Persons) as amended by R.A. No. 9442;
c. Facilities that will enhance the mobility, safety and welfare of differently-abled persons pursuant to R.A. No. 7277 and Batas Pambansa Blg. 344;
251 d. Community-based Human Immunodeficiency Virus/Acquired Immune Deficiency Syndrome (HIV/AIDS) prevention and care services pursuant to R.A. No. 8504 (Philippine AIDS Prevention and Control Act of 1998);
e. Implementation of basic social services responsive to the Millennium Development Goals (MDGs), such as:
Poverty reduction projects; Nutrition services; Basic education services; Maternal and child health services; Health services to combat HIV/AIDS, malaria and other major diseases; and Safe drinking water.
f. Implementation of the programs of the Local Councils for the Protection of Children (LCPC) pursuant to R.A. No. 9344 (Juvenile Justice and Welfare Act of 2006). One percent (1%) of the IRA of barangays, municipalities and cities shall be allocated for the strengthening and implementation of the programs of the LCPC: Provided, that the disbursement of the fund shall be made by the LGU concerned.
E. Confidential/Intelligence Expenses
1. What are Confidential/Intelligence Expenses?
Confidential Expenses refer to expenses related to surveillance activities in civilian department/agencies that are intended to support the mandate/operations of the agency/LGU.
Intelligence Expenses refer to expenses related to intelligence information gathering activities of uniformed personnel and intelligence practitioners that have direct impact on national/local security.
252 2. What are the legal bases for the allocation and use of funds for confidential/intelligence expenses?
The general welfare clause under Section 16 of R.A. No. 7160 states, among others, that, LGUs shall maintain peace and order, and preserve the comfort and convenience of their inhabitants.
Accordingly, the DILG in its capacity and general supervisory authority over LGUs as delegated by the President pursuant to Administrative Order (A.O.) No. 267 series of 1992 issued Memorandum Circular (MC) No. 99-65 dated April 23, 1999 providing policies and guidelines relative to the utilization of funds for intelligence or confidential purposes. These guidelines were further supplemented by DILG MC No. 99-100 dated June 15, 1999.
The Commission on Audit (COA) has strengthened the use of public funds for intelligence and/or confidential purposes when it issued COA Circular No. 92-385 dated October 1, 1992 and COA Circular No. 2003-003 dated July 30, 2003 relative to the audit and liquidation guidelines and documentary requirements for Intelligence and/or Confidential Funds.
3. What are the guidelines in the allocation and use of public funds for confidential/intelligence expenses?
The guidelines in the allocation and use of public funds for intelligence and/or confidential purposes are prescribed under DILG MC No. 99-65 as supplemented by DILG MC No. 99-100. The following provisions thereof may be emphasized:
a. An allocation for peace and order concerns may be provided in the annual budget of an LGU. Provided, that peace and order is a priority investment area.
b. The total annual amount appropriated for intelligence or confidential undertakings shall not exceed thirty percent (30%) of the total annual amount allocated for peace and order efforts or three percent (3%) of the total annual appropriations, whichever is lower.
253 For example:
A. Total Allocation for Peace and Order P10M Multiply by 30% 30% Allocation for Intelligence/Confidential Fund P 3M ====
B. Total Appropriations (Annual Budget) P200M Multiply by 3% 3% Allocation for Intelligence/Confidential Fund P 6M ====
In this case, the computation yielding the lower amount (i.e., letter A) shall be used as basis in the allocation for intelligence/confidential purposes.
The funds appropriated for Intelligence and/or Confidential activities shall be used purposely for the conduct of intelligence and/or confidential operations and shall be limited to the following:
Purchase of information; Payment of rewards; Rental and other incidental expenses relative to the maintenance of safehouses; and Purchase of supplies and ammunitions, provision of medical and food aid, as well as payment of incentives or traveling expenses relative to the conduct of intelligence or confidential operations.
F. Special Education Fund
1. What are the legal bases for the Special Education Fund (SEF)?
One of the special funds that shall be maintained in every provincial, city or municipal treasury is the Special Education Fund (SEF). Section 309 (a) of R.A. No. 7160 provides that the SEF shall consist of the respective shares of provinces, cities, municipalities and barangays in the proceeds of the additional tax on real property to be appropriated for purposes prescribed in Section 272 of this Code.
Section 272 also provides that proceeds from the additional one percent (1%) tax on real property accruing to the SEF shall be automatically 254 released to the Local School Boards. In the case of provinces, the proceeds shall be divided equally between the provincial and municipal School Boards; provided that the proceeds shall be allocated for the following as determined and approved by the Local School Board:
Operation and maintenance of public schools; Construction and repair of school buildings; Facilities and equipment; Educational research; Purchase of books and periodicals; and Sports development.
2. What are the policy guidelines on the use of the SEF?
The implementing guidelines on the utilization of the SEF are clarified in the Joint Circulars issued by the DECS (now, Department of Education [DepEd]), the DBM and the DILG:
Prioritization of Expenses Charged against the SEF
1. Operation and maintenance of public schools, including organization of extension, non-formal, remedial and summer classes, as well as payment of existing allowances of teachers granted by LGUs chargeable against the SEF as of 31 December 1997, provided that any additional allowances that may be granted to teachers by LGUs shall be charged to the general fund of LGUs, subject to existing budgeting rules and regulations;
2. Construction and repair of school buildings, facilities and equipment, including the acquisition, titling and improvement of school sites;
3. Educational research;
4. Acquisition/procurement of books, instructional materials, periodicals and equipment, including IT resources; and
DECS DBM DILG Joint Circular (JC) No. 01 s. 1998 April 14, 1998
Prescribing the Rules and Regulations on the Utilization of the Special Education Funds (SEF) by the Local School Boards for the Operation and Maintenance of Elementary and Secondary Public Schools 255
5. Expenses for school sports activities of the national, regional, division, district, municipal and barangay levels, including DepEd-related activities including co-curricular activities.
6. Establishment of new classes as extensions of existing public elementary or secondary schools as approved by the DepEd Secretary, recommended by the DepEd Regional Director and certified by the Schools Division Superintendent as to the necessity and urgency of establishing extension classes in the province, city and municipality, provided that no extension classes shall be established unless the number of pupils shall at least be 15. 7. Payment of compensation of those teaching personnel who will be hired temporarily in instances where there are no teaching positions available in DepEd.
8. Payment of salaries and authorized allowances of teachers hired to handle new classes as extensions of existing public elementary or secondary schools established pursuant to Section 2.1 of DECS- DBM-DILG JC No. 01-A.
3. Is an Appropriation Ordinance necessary to authorize the utilization of the SEF?
No. Pursuant to Article 448 of the IRR of R.A. No. 7160, Special Funds, which include the SEF, shall be deemed automatically appropriated for purposes indicated therefor.
The allocation of the SEF shall be determined and approved by the Local School Board (Section 272, R.A. No. 7160).
DECS DBM DILG JC No. 01-B June 25, 2001
Further Clarifying Certain Provisions of DECS, DBM and DILG JC Nos. 01, s. 1998 and 01-A, s. 2000 April 14, 1998 and March 14, 2000, respectively DECS DBM DILG JC No. 01-A March 14, 2000
Supplemental Provisions to DECS, DBM and DILG JC No. 1, s. 1998 dated 14 April 1998 256
4. What is the Budget Process for the SEF?
a. Budget Preparation
Step 1. The budget preparation phase of the SEF starts only after the official issuance by the LFC of the Estimated Proceeds of the Special Levy on Real Property, constituting the SEF, and the criteria set by the DepEd on the annual budgeting needs for the operation and maintenance of public schools.
Step 2. In accordance with the criteria set by the DepEd, the Local School Board determines the annual supplemental budgetary needs for the operation and maintenance of public schools within the province, city or municipality, as the case may be, and the supplementary local cost of meeting such needs, which shall be reflected in the form of an Annual School Board Budget corresponding to its share of the proceeds of the special levy on real property constituting the SEF (Section 99 [a], R.A. No. 7160).
SEF Budget Preparation Form No. 1 is shown on page 258.
Step 3. The division superintendent, city superintendent, or district supervisor, as the case may be, shall prepare the budget of the School Board concerned. Such budget shall be supported by PPAs of the School Board for the ensuing fiscal year (Section 100 [b], R.A. No. 7160).
b. Budget Authorization
Step 4. The SEF budget prepared by the division superintendent, city superintendent or district supervisor, as the case may be, shall be submitted to the School Board, chaired/co-chaired by the LCE and the division superintendents of schools, for approval. The affirmative vote of the majority of all the members of the Local School Board shall be necessary to approve the budget (Section 100 [b], R.A. No. 7160).
257 c. Budget Execution
Step 5. The SEF funds shall be released exclusively for the specific purpose for which they have been allocated in the approved School Board Budget.
Step 6. Disbursements shall be made in accordance with the authority to disburse issued by the Chairman/Co-Chairman of the Local School Board to the provincial, city, municipal treasurer (Section 99 [b], R.A. No. 7160), subject to existing accounting and auditing rules.
d. Budget Accountability
Step 7. A quarterly report of the SEF utilization shall be prepared and submitted by the Local School Board to the DepEd Regional Offices (ROs), copy furnished the DBM ROs and the DILG ROs. The quarterly reports shall be submitted one (1) week after the end of each quarter. For this purpose, the Report of SEF Utilization shown in SEF Budget Accountability Form No. 1 hereof shall be used (Item 3.0 of Joint Circular No. 01-A of DECS, DBM and DILG dated March 14, 2000).
258 SEF Budget Preparation Form No. 1
I IN NC CO OM ME E A AN ND D E EX XP PE EN ND DI IT TU UR RE E E ES ST TI IM MA AT TE ES S F FO OR R F FY Y _ __ __ __ _ P Pr ro ov vi in nc ci ia al l/ /C Ci it ty y/ /M Mu un ni ic ci ip pa al l S Sc ch ho oo ol l B Bo oa ar rd d o of f _ __ __ __ __ __ __ __ __ __ __ _ Province/City/Municipality (In P000) Estimated Income for Budget Year Additional One Percent (1%) Tax on Real Property .. . . . . . . . . . . . . . . . . . . . . . . . . . . Add: Previous Years Unexpended Balances (including Continuing Appropriation) . .. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . TOTAL Less: Continuing Appropriation Net Amount Available for Appropriation
Proposed Expenditures for Budget Year xxx xxx
xxx xxx xxx xxx
Rank Program/Project/Activity* Personal Services Maintenance and Other Operating Expenses Capital Outlays Total
Total Expenditures for BY ______ xxx xxx xxx xxx Balance/Deficit xxx Prepared by:
* Please refer to the prioritization on the use of the SEF (DECS-DBM-DILG JC Nos. 01, 01-A and 01-B)
259 SEF Budget Authorization Form No. 01
Provincial/City/Municipality of ___________ Local School Board of ____________ Province/City/Municipality
___________ Regular Session
Begun and held in _______________, _______________, on _______ day of _______, _______.
Local School Board Resolution No. ________
A RESOLUTION APPROVING THE BUDGET FOR PRIORITY EDUCATION PROJECTS IN THE PROVINCE/CITY/MUNICIPAL SCHOOL BOARD
Be it resolved by the Local School Board of __________________ in Council assembled:
Section 1. Source of Funds. The following income as indicated herein are hereby declared as sources of funds, particularly the additional one percent (1%) Tax on Real Property which are realistic and probable to be collected and remitted to the Local Treasury, necessary to finance the implementation of priority education projects of the Province/City/Municipality of _______________ from January one to December thirty-one, two thousand ______, except otherwise specifically provided herein:
Estimated Income for Budget Year
Additional One Percent (1%) Tax on Real Property P__________ Add: Previous Years Unexpended Balances (including Continuing Appropriation) __________ Gross Income P__________ Less: Continuing Appropriation __________ Net Amount Available for Appropriation P =========
Section 2. Allocation of Funds. The following sums are hereby allocated out of the additional one percent (1%) Tax on Real Property and any unexpended balances thereof in the Local Treasury of the Province/City/Municipality for the implementation of priority education projects in the province/city/municipality from January one to December thirty- one, two thousand ____:
260 Expenditure Program for Budget Year
Rank Program/Project/Activity* Personal Services Maintenance and Other Operating Expenses Capital Outlays Total
Total
* Please refer to the prioritization on the use of the SEF (DECS-DBM-DILG JC Nos. 01, 01-A and 01-B)
Expected Output
Rank P/P/A Expected Output Schedule of Delivery
Section 3. Effectivity. This Resolution shall take effect immediately upon its approval.
R.A. No. 8185 defines Calamity as a state of extreme distress or misfortune, produced by some adverse circumstance or event or any great misfortune or cause or loss or misery caused by natural forces.
2. What is the legal basis of the Calamity Fund?
The Calamity Fund is one of the budgetary requirements prescribed under Section 324 (d) of R.A. No. 7160. Said Section was subsequently amended by R.A. No. 8185.
Section 1 of R.A. No. 8185 provides:
"SECTION 1. Section 324 (d) of Republic Act No. 7160 is hereby amended to read, as follows:
(d) Five percent (5%) of the estimated revenue from regular sources shall be set aside as annual lump sum appropriations for relief, rehabilitation, reconstruction and other works or services in connection with calamities which may occur during the budget year. Provided, however, That such fund shall be used only in the area, or a portion thereof, of the local government unit or other areas affected by a disaster or a calamity, as determined and declared by the local sanggunian concerned.
The local development council shall monitor the use and disbursement of the local calamity fund."
3. What are the guidelines on the use of the Calamity Fund?
Pursuant to Section 324 (d) of R.A. No. 7160 (as amended by R.A. No. 8185), the Calamity Fund may be used for the following activities:
a. For relief, rehabilitation, reconstruction and other works or services in connection with calamities which may occur during the budget year. Provided, however, that such Fund shall be used only in the area, or a portion thereof, of the LGU or other areas affected by a disaster or 263 calamity, as determined and declared by the local Sanggunian concerned;
b. In case of fire or conflagration, the Calamity Fund shall be used only for relief operations.
DBM-DILG Joint Memorandum Circular (JMC) No. 2003-1 (Use of Local Calamity Fund Appropriation for Man-Made Disaster Relief and Mitigation) dated March 20, 2003 was issued to expand the utilization of the 5% Calamity Fund.
The Fund may now also be validly used for relief, rehabilitation, reconstruction and other works or services in connection with man-made disasters resulting from unlawful acts of insurgents, terrorists and other criminals, as well as for disaster preparedness and other pre-disaster activities.
Such relief, rehabilitation, reconstruction and other works or services including pre-disaster activities in connection with such man-made disasters may, at the discretion of the LGU concerned, include the following:
a. Medical assistance, death and funeral benefits to the victims, their dependents and immediate families, including victims who are Overseas Filipino Workers (OFWs);
b. Financial assistance and other services for medical, rescue and relief workers who have been tasked to attend to the victims; and
c. Preparation of relocation sites/facilities, disaster preparedness training and other pre-disaster activities.
An undated DBM-DILG JMC was issued to provide clarificatory guidelines on the use of the 5% Calamity Fund, the pertinent provisions of which read, as follows:
"1.0 Pursuant to the provisions of RA 8185, otherwise known as An Act Amending Section 324 (d) of RA 7160, otherwise known as the Local Government Code of 1991, (sic) its Implementing Rules and Regulations, and Executive Order No. 201 dated 26 April 2003, it is hereby clarified that the 5% local calamity fund of every local government unit (LGU) shall be utilized only for the relief, reconstruction, 264 rehabilitation and other works and services, in connection with a calamity which occurred during the budget year. Under the aforesaid Act, calamity has been defined as a state of extreme distress or great misfortune caused by adverse event or natural force, causing widespread loss or extensive damage to livestocks, lives, crops and properties. Accordingly, any adverse event, such as but not limited to, acts of terrorism and spread of Severe Acute Respiratory Syndrome (SARS) or other endemics, that could fall within the ambit of the definition of calamity defined by law, can be a legal basis for LGUs concerned to declare their own state of calamity.
2.0 The calamity fund may also be utilized for undertaking disaster preparedness activities and measures, provided that the sanggunian concerned shall declare an imminent danger of calamity. In extreme cases and under extra-ordinary circumstances, such as but not limited to, acts of terrorism and outbreak of dangerous and highly communicable diseases such as SARS, the calamity fund may also be utilized for disaster preparedness without need of a sanggunian declaration of calamity provided that there is a Presidential proclamation of the existence of an adverse event that would warrant the declaration of the entire country to be under the state of national calamity, which needs to be prevented and suppressed.
It must be emphasized, however, that all unexpended balances of the Calamity Fund shall be reverted to the unappropriated surplus for re- appropriation during the succeeding budget year. This is provided under Item b.4 of the IRR of R.A. No. 8185, as follows:
b.4 Any unexpended balance of the Calamity Fund at the end of the Current Year shall revert to the Unappropriated Surplus for re-appropriation during the succeeding budget year.
Provided, that the appropriation for capital outlays shall remain valid until fully spent or reverted.
Provided, further, that in cases as may be determined by the Sanggunian concerned, the unexpended balance of the maintenance and other operating expenses portion of the aforesaid fund in support for the relief, rehabilitation, 265 reconstruction and other works and services undertaken during the year in connection with the occurrence of the calamities, the effective implementation of which may extend beyond the calendar year subject to accounting and auditing rules and regulations being observed for the purpose."
4. Can motor vehicles (including ambulances) be purchased from the Calamity Fund?
No. The purchase of motor vehicles, including ambulances, is not among the purposes for which the Calamity Fund may be used.
5. Can drugs and medicines be purchased out of the Calamity Fund?
Yes. Drugs and medicines may be purchased out of the Calamity Fund, provided, that the same is necessary for the conduct of relief operations in connection with a calamity which occurred during the budget year, in accordance with the other requirements under Section 324 (d) of R.A. No. 7160, as amended by R.A. No. 8185.
6. Can the purchase of drugs and medicines be included as part of pre-disaster activities for which the Calamity Fund may be used?
Yes. Purchase of drugs and medicines may be included as part of pre- disaster activities for which the Calamity Fund may be used.
A DBM-DILG JMC re Clarificatory Guidelines on the Use of the 5% Calamity Fund, provides, among others, as follows:
2.0 The calamity fund may also be utilized for undertaking disaster preparedness activities and measures, provided that the sanggunian concerned shall declare an imminent danger of calamity. In extreme cases and under extra-ordinary circumstances, such as but not limited to, acts of terrorism and outbreak of dangerous and highly communicable diseases such as SARS, the calamity fund may also be utilized for disaster preparedness without need of a sanggunian declaration of calamity provided that there is a Presidential proclamation of the existence of an adverse event that would warrant the declaration of the entire 266 country to be under the state of national calamity, which needs to be prevented and suppressed. (emphasis supplied)
7. Can the provision for Calamity Fund exceed 5% of the estimated revenue from regular sources?
No. Section 324 (d) of R.A. No. 7160 prescribes that 5% of the estimated revenue from regular sources shall be set aside as an annual lump sum appropriation for unforeseen expenditures arising from the occurrence of calamities. Accordingly, LGUs should provide the exact 5% requirement.
On the other hand, any additional requirement may be provided through the enactment of a supplemental budget. Section 321 of R.A. No. 7160, as implemented by Article 417of its IRR as amended by A.O. No. 47, provides that in times of public calamity, a supplemental budget may be enacted by way of budgetary realignment to set aside appropriations for the purchase of supplies and materials or the payment of services, which are exceptionally urgent or absolutely indispensable to prevent imminent danger to, or loss of, life or property, in the jurisdiction of the LGU or in other areas declared in a state of calamity by the President.
H. Allocation to Local Government Units
1. Are barangays created by local government units after the effectivity of R.A. No. 7160 entitled to IRA shares?
No. The financial requirements of barangays created by local government units after the effectivity of R.A. No. 7160 shall be the responsibility of the local government unit concerned (Section 285, R.A. No. 7160).
4. For purposes of determining the IRA allocation of LGUs based on land area, can the DBM adjust the IRA of the LGU concerned based on the individual certification issued by the Land Management Bureau (LMB) to LGUs?
Under R.A. No. 7160, all issues affecting land area falls under the function of the LMB-Department of Natural Resources (DENR). For 267 purposes of IRA computation based on land area, any change in the land area shall be made every 3 rd year after 1999 per the consolidated masterlist of land area to be submitted by the LMB-DENR to DBM on or before December 15.
In the ARMM, the request of the LMB-ARMM for land area adjustment of LGU shall be endorsed by the DENR-ARMM and approved by the Regional ARMM Governor for final endorsement/submission to the Secretary of the DENR.
I. Aid to Barangays
1. What is the legal basis for the provision of Aid to Barangays?
Section 324 (c) of R.A. No. 7160 provides that, In the case of provinces, cities, and municipalities, aid to component barangays shall be provided in amounts of not less than One thousand pesos (P1,000.00) per barangay;
J. Premium Subsidy for Indigents under the National Health Insurance Program
1. What is the legal basis for providing Premium Subsidy for Indigents under the National Health Insurance Program?
The legal basis for providing Premium Subsidy for Indigents under the National Health Insurance Program is R.A. No. 7875 dated July 25, 1994 entitled, An Act Instituting a National Health Insurance Program for All Filipinos and Establishing the Philippine Health Insurance Corporation for the Purpose.
Premium Sharing Scheme Between the National Government (NG) and LGUs Particulars NG LGU 1 st to 3 rd class LGUs (1 st 6 th year and onwards) 50% 50% 4 th to 6 th class LGUs 1 st and 2 nd years of program implementation 90% 10% 3 rd year of program implementation 80% 20% 4 th year of program implementation 70% 30% 268 5 th year of program implementation 60% 40% 6 th year and onwards 50% 50%
2. What is the purpose of the Fund?
The amount appropriated in the GAA represents financial assistance to LGUs as National Government (NG) counterpart for the premium contributions of indigents enrolled in the National Health Insurance Program in accordance with the premium sharing scheme between the NG and the LGUs.
K. Gender and Development (GAD)
1. What is GAD?
GAD is an approach to development that focuses on how social, economic, political and cultural forces determine how differently women and men participate in, benefit from, and control resources and activities for development. It recognizes the different roles, responsibilities, expectations, interests, needs, and contributions of men and women in society and integrates these gender concerns in the development planning process. GAD recognizes women as agents of development and not merely as passive recipients of development assistance.
2. What are the legal bases for GAD, and GAD Planning and Budgeting?
R.A. No. 7192 and Executive Order (E.O.) No. 273 mandate agencies, including LGUs, to institutionalize GAD in government by incorporating the GAD concerns in their planning, programming and budgeting process.
The allocation of funds for the implementation of a GAD Plan is a statutory requirement that must be complied with by provinces, cities, municipalities and barangays.
The Philippine Plan for Gender-Responsive Development (PPGD), 1995- 2025, which was adopted through E.O. No. 273, specifies the services 269 that must be implemented for women in relation to those stipulated in R.A. No. 7160.
DBM-NEDA-NCRFW JC No. 2004-1 (superseding DBM-NEDA- NCRFW JC No. 2001-01) provides the guidelines for the preparation of annual GAD Plan and Budget and Accomplishment Report to implement the Section on programs/projects related to GAD as provided in the annual GAA.
For a more comprehensive discussion on GAD, refer to the Primer on Gender Mainstreaming and Institutionalization in the Budgeting Process, August 2002, issued jointly by the DBM and NCRFW through the support of the Canadian International Development Agency.
3. What is a GAD Plan?
A GAD Plan is a tool for gender mainstreaming. A GAD Plan is a systematically designed set of PPAs carried out by agencies for a given period of time to address gender issues and concerns of their respective sectors and constituents, specifying the targets to be achieved and identifying the performance indicators that will measure their accomplishments.
The GAD Plan is viewed as an integral part of the overall LGU plan. The formulation of a GAD Plan shall follow the regular planning and budget calendar/schedule of LGUs and shall be anchored on the existing Comprehensive Land Use Plan, Provincial Development and Physical Framework Plan/Comprehensive Development Plan, Local Development Investment Program and Annual Investment Program (AIP) preparation.
4. What is a GAD Budget?
A GAD Budget is the total amount provided in the General Fund Budget of the LGU to finance the PPAs in the GAD Plan.
The earmarking of at least 5% of the total annual appropriation for GAD-related activities is an indicative figure that should be attributed in the existing PPAs of LGUs budgets.
270 Accordingly, the GAD budget must not be interpreted as an additional and separate fund that will be provided by the national or local government.
5. How is the GAD Budget prepared?
The GAD Budget is prepared based on the estimated costs of functions and PPAs translated from the demands/commitments identified in the GAD Plan. The GAD Focal Point Chairperson, in close coordination with the LGUs Budget Officer, shall be responsible for the preparation of the GAD Budget. The review of the GAD budget proposal is done following the regular evaluation process applicable to the regular budget proposal, of which the GAD Budget is a component.
In the determination of expenditure ceilings in terms of sectoral service and nature of expenditure as basis for budget preparation, the LFC shall ensure that the GAD Plan, approved by the LDC and the Sanggunian, are considered as among the primary source documents used.
The costs of functions and PPAs to implement the GAD Plan may include any or all of the following items:
Personal Services; Maintenance and Other Operating Expenses; and Capital Outlays.
The GAD PPAs may be classified into:
b. Organization-focused, where efforts are geared to respond to gender issues that affect the welfare and performance of women and men employees of the LGU; and
c. Client-focused, where efforts address gender issues that affect the LGUs clients and/or constituents.
6. When is the GAD Budget implemented?
Inasmuch as the GAD Budget is attributed in the existing PPAs of LGUs budgets, the implementation of such PPAs would mean the implementation of the GAD Budget.
271
7. How are the GAD Plan and Budget reported and monitored?
As required under DILG-DBM-NCRFW JC No. 2001-01, LGUs shall submit to the DILG Provincial/City and Municipal Offices their GAD accomplishment reports not later than the end of January of the ensuing year.
The subsequent reporting and monitoring activities to be undertaken by the DILG are specified in the said JC.
L. Senior Citizens and the Differently-Abled
1. What are the legal bases for providing a budget for senior citizens and the differently-abled?
In support of the Philippine Plan of Action for Older Persons, 2005-2009, the cost of implementing plans, programs and projects intended to address the concerns of senior citizens and the differently-abled shall be at least one percent (1%) of the agencys total annual appropriations. This is anchored on the provisions of various laws and administrative issuances:
a. E.O. No. 266, Approving and Adopting the Philippine Plan of Action for Older Persons (PPAOP), 1999-2004, created an Inter- Agency Committee chaired by the DSWD to ensure, coordinate, monitor and evaluate the implementation of the PPAOP;
b. R.A. No. 7432, An Act to Maximize the Contribution of Senior Citizens to Nation Building, Grant Benefits and Special Privileges and for Other Purposes, motivating and encouraging senior citizens to contribute to nation building and to mobilize their families and community, among others;
c. R.A. No. 7876, An Act Establishing a Senior Citizens Center in All Cities and Municipalities of the Philippines, and Appropriating Funds Therefor, wherein senior citizens centers are intended to be used as venues for the delivery of integrated and comprehensive social services to senior citizens and other members of the community;
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d. R.A. No. 7277, the Magna Carta for Disabled Persons, declaring the rights and privileges of persons with disabilities to equal opportunities in employment, education, health, auxiliary social services, telecommunications, accessibility and political and civil exercises; and
e. Proclamation No. 240, Declaring the Period from the Year 2003 to the Year 2012 as the Philippine Decade of Persons with Disabilities and citing the 1% of the agency appropriations as fund source, as required under the applicable provision of the annual GAA.
f. DBM-Department of Social Welfare and Development (DSWD) JC No. 2003-01 dated April 28, 2003, which states:
3.0 Coverage
The provisions of this Joint Circular shall cover all national government agencies, executive departments, bureaus, offices, agencies, commissions, state universities and colleges.
Consistent with the provisions stated in section 29, government financial institutions, government-owned and controlled corporations and local government units, shall issue separate guidelines to their respective Boards or Sangguniang Bayan.
M. Personal Services Limitation
1. What is Personal Services?
Personal Services (PS) refer to appropriations for the payment of salaries, wages and other compensation of permanent, temporary, contractual, and casual employees of the LGU (Section 306 [k], R.A. No. 7160).
For purposes of computing the 45%/55% PS Limitation, the "other compensation" as referred to therein and as determined pursuant to A.O. No. 42 dated March 3, 1993 issued by the President consists of the following:
273 a. Statutory and Contractual Obligations Employees Compensation Insurance Premiums (ECIP); Health Insurance Contributions (HIC); Pag-IBIG Contributions (Pag-IBIG); Life and Retirement Insurance Contributions (LRIC); and Retirement Gratuity and Terminal Leave (RG/TL) Benefits.
b. Authorized Allowances/Benefits Additional Compensation (ADCOM); Personnel Economic Relief Allowance (PERA); Uniform/Clothing Allowance (U/CA); Productivity Incentive Benefits (PIB); Commutable and Representation and Transportation Allowances (RATA); Year-end Benefits (YEB); Step Increments for Length of Service; Magna Carta Benefits of PHWs; Per diem of LGU officials/employees; Specialists' Fees and Allowances (when there is employer- employee relationship); and All other legally authorized allowances/benefits of officials and employees of LGUs.
c. Lump-sum Appropriations Lump-sum for Salary Adjustments; Lump-sum for Creation of New Positions; Lump-sum for Casual/Contractual Positions; and Lump-sum for Adoption of Higher Salary Schedule.
2. What is the legal basis for Personal Services (PS) Limitation?
The limitation of appropriations for PS for LGUs is provided under Section 325 (a) for provinces, cities and municipalities, and Section 331 (b) for barangays, of R.A. No. 7160, which, respectively, provides:
SEC. 325. General Limitations. The use of the provincial, city, and municipal funds shall be subject to the following limitations:
(a) The total appropriations, whether annual or supplemental, for personal services of a local government unit for one (1) fiscal year shall not 274 exceed forty-five percent (45%) in the case of first to third class provinces, cities, and municipalities, and fifty-five percent (55%) in the case of fourth class or lower, of the total annual income from regular sources realized in the next preceding fiscal year. The appropriations for salaries, wages, representation and transportation allowances of officials and employees of the public utilities and economic enterprises owned, operated, and maintained by the local government unit concerned shall not be included in the annual budget or in the computation of the maximum amount for personal services. The appropriations for the personal services of such economic enterprises shall be charged to their respective budget;
SEC. 331. Preparation of the Barangay Budget.
x x x
(b) The total appropriations for personal services of a barangay for one (1) fiscal year shall not exceed fifty- five (55%) of the total annual income actually realized from local sources during the next preceding fiscal year.
3. What are the guidelines on PS Limitation?
Local Budget Circular (LBC) No. 75 dated July 12, 2002 was issued to provide the guidelines on the preparation and review of the PS component of the annual and supplemental budgets of LGUs, in relation to the waiver on the PS Limitation under Sections 325 (a) and 331 (b) of R.A. No. 7160.
a. The PS Limitation/Cap is the amount equivalent to 45% of the total income from regular sources earned in the next preceding fiscal year for 1 st to 3 rd class provinces/cities/municipalities, or 55% for lower class LGUs, including barangays.
b. In formulating the budget of LGUs, the total allowable PS level must first be computed. For example:
275 LGU A (4 th Class Municipality) Budget Year 2008
Total Income from Regular Sources realized in FY 2006 P50,000,000 Multiply by PS Limitation/Cap Rate 55%_ Allowable PS Level P27,500,000 ===========
c. The second step is to determine the total PS cost that provides for the following priorities:
Salaries of existing regular personnel (including devolved and mandatory positions)
Statutory and contractual obligations (ECIP, HIC, Pag-IBIG, RLIP [now, LRIC], RG and TL Benefits)
Authorized allowances/benefits (including Magna Carta Benefits of Public Health Workers [PHWs])
Waived items
d. If the total PS cost as prioritized exceeds the PS Limitation/Cap (e.g., total PS cost for LGU A above is P30,000,000 vs. computed PS Cap of P27,500,000), the LGU can no longer provide for additional PS items until such time that the PS Cap is observed. However, if the PS Cap is not exceeded after providing for the priorities (e.g., total PS cost for LGU A above is P26,000,000 vs. computed PS Cap of P27,500,000), the LGU may still be allowed to provide additional PS items to the extent of the difference between the computed PS cost and the PS Cap.
4. What are the PS items that are waived?
The PS Limitation/Cap shall be waived on the following PS items and activities mandated by law:
a. Absorption of national government personnel transferred on account of devolution; b. Absorption of the cost of devolved hospital services transferred from the province, in the case of newly-created cities; 276 c. Creation of mandatory positions specified under R.A. No. 7160; d. Continued implementation of the Compensation Standardization Law authorized under R.A. No. 6758, as amended, R.A. No. 7160, and as provided under existing standards, guidelines, rules and regulations; e. Cash gifts for barangay officials; f. Payment of the Magna Carta benefits of PHWs; g. Payment of the RG/TL benefits; and h. Payment of the monetization of leave credits of employees.
N. Creation of Positions
1. What is the general rule on creation of positions in LGUs?
Section 76 of R.A. No. 7160 empowers LGUs to design and implement their own organizational structure and staffing pattern that will effectively address their respective developmental plans, programs, objectives and priorities. The creation of positions shall be consistent with the rules and regulations established under Civil Service Commission (CSC) Memorandum Circular No. 19, series of 1992.
Further, per existing policy, creation of non-mandatory positions and offices in LGUs may be allowed subject to the following conditions:
That they are priority needs as identified by the LCE, the Sanggunian and/or LDCs concerned consistent with Section 17 of R.A. No. 7160; All mandatory positions stipulated under R.A. No. 7160 have been created and provided; The SSL has been fully implemented; The devolution has been fully effected; The general limitations on PS expenditures are not exceeded; and The classification of the positions is consistent with the standards and implementing rules and regulations of R.A. No. 6758.
277 2. Can the LGU create new positions without corresponding appropriations?
R.A. No. 7160 provides that the Sanggunian shall determine the positions and the salaries, wages, allowances and other emoluments and benefits of officials and employees paid wholly or mainly from local funds and provide for expenditures necessary for the proper conduct of programs, projects, services and activities of the local government (Section 447 [a][1][viii]; Section 458 [a][1][viii]; and Section 468 [a][1][viii], R.A. No. 7160).
Accordingly, any position created in the LGU shall be adequately provided with funding requirements for basic salary, including the associated compensation attached to the position such as allowances, RATA if entitled thereto, year-end benefits, etc., for it to be considered a properly created position. Otherwise, a position is not deemed properly created if such had not been fully provided corresponding appropriations for basic salary and other compensation.
3. Are unfunded positions considered vacant and deemed to be abolished?
A vacant position is an authorized position in the official plantilla which is unfilled. Although vacant, the same is covered by adequate appropriation for salaries and associated compensation costs.
On the other hand, unfunded positions, that is, those not covered by funds for salaries and associated compensation costs, should be deleted in the plantilla since there are no appropriations to back up their legal existence.
O. Local Government Economic Enterprises and Public Utilities
1. What are the legal bases for the establishment and development of Local Economic Enterprises and Public Utilities?
The bases for the establishment and development of local economic enterprises and public utilities are contained in Section 22 (d), Section 313 and Section 325 (a) of R.A. No. 7160, quoted as follows:
278 SEC. 22. Corporate Powers. x x x
a) Local government units shall enjoy full autonomy in the exercise of their proprietary functions and in the management of their economic enterprises, subject to the limitations provided in this Code and other applicable laws.
SEC. 313. Special Accounts to be Maintained in the General Fund. Local government units shall maintain special accounts in the general fund for the following:
(a) Public utilities and other economic enterprises;
x x x
Profits or income derived from the operation of public utilities and other economic enterprises, after deduction for the cost of improvement, repair and other related expenses of the public utility or economic enterprise concerned, shall first be applied for the return of the advances or loans made therefor. Any excess shall form part of the general fund of the local government unit concerned.
SEC. 325. General Limitations. - x x x
(a) The appropriations for salaries, wages, representation and transportation allowances of officials and employees of public utilities and economic enterprises owned, operated, and maintained by the local government unit concerned shall not be included in the annual budget or in the computation of the maximum amount for personal services. The appropriations for the personal services of such economic enterprises shall be charged to their respective budgets;
2. How may Local Economic Enterprises and Public Utilities be differentiated?
Economic Enterprises are income-generating establishments created for the purpose of improving production and delivery of basic goods 279 or services for a specific market or client group which may include, but are not limited to:
a. Public markets or shopping malls; b. Slaughterhouses; c. Cemeteries; d. Sports, cultural and recreation centers; e. Parking lots; f. Ice plants; g. Hospitals; and h. Special and tertiary schools.
Public Utilities are revenue-raising undertakings created for the purpose of providing a basic need or service to the general public which otherwise cannot be provided adequately by the private sector which may include, but are not limited to:
a. Water and sewerage services; b. Garbage collection and disposal; c. Telephone system; d. Electric and power services; and e. Public transport and terminal station services.
3. What are the general guidelines for the establishment of Local Economic Enterprises and Public Utilities?
An economic enterprise or public utility may be established after the conduct of a feasibility study showing proof of its economic and social viability in the long term.
A business development plan for the economic enterprise should be prepared (long-term, medium-term and annual plan) stating its mission or purpose, clients or beneficiaries, strategies, activities and projects, organizational structure, financial plan or budget and expected returns.
The rationale and criteria for the establishment and operation of local economic enterprises and public utilities are:
a. It satisfies both the economic and social objectives of the local government unit (LGU) concerned. b. It fills in service gaps not adequately provided by the private sector. 280 c. It shall operate with a lean and mean staffing complement to satisfy its income objective. d. It shall operate like a corporate body with a separate strategic plan and budget.
Economic enterprises and public utilities shall be adopted and approved by the Local Development Council (LDC) after subjecting the proposal to public hearings and deliberations by concerned sectors and stakeholders.
The local Sanggunian shall authorize the creation of an economic enterprise or public utility through the enactment of an ordinance citing the justifications thereto as to its viability or capacity to exist on its own funds.
The budget for economic enterprise and public utility shall be presented separately under the General Fund Annual Budget of the local government, subject to the usual accounting and budgeting processes.
The initial operating requirements of economic enterprises and public utilities may be treated as advances or loans to be specifically appropriated by the local government concerned in its Annual Budget. After two years of operation, or as reflected in its business development plan, the funding requirements of economic enterprises and public utilities shall be sourced from its operating income or user fees.
The determination of the rates to be charged as user fees shall use the criteria of affordability, economic viability, and social responsibility.
A balance between economic and social gains shall be the guiding principle in the final establishment of economic enterprises and public utilities. To attain this, proper consultation with stakeholders and beneficiaries of the project shall be conducted through formal public hearings until a final consensus or agreement is reached.
No user fees shall be charged unless a majority of the stakeholders have agreed on the rates to be charged. An ordinance relative to user fees shall be enacted by the local Sanggunian and elevated to a higher Sanggunian level for final approval.
281 The capital outlay requirements (buildings, equipments, land, etc.) of economic enterprises and public utilities shall be treated as an investment or part of the development project of the LGU, which may be charged against the 20% of the IRA for development projects. If viable and bankable, the economic enterprise/public utility capital outlay requirements may be financed through any of the credit financing conduits.
Local economic enterprises and public utilities may be staffed initially with any of the following:
Casual or contractual personnel hired for the economic enterprise/public utility
Regular staff of the LGU on detail
Only when the economic enterprise/public utility has become viable may regular positions be created for the purpose. These regular positions shall be funded solely from the income of the economic enterprise/public utility which is separate from the General Fund Annual Budget of the LGU. The Personal Services (PS) requirements of economic enterprises and public utilities shall not be included in the computation of the maximum amount for PS of the LGU for purposes of determining the PS Limitation provided under Section 325 (a) of R.A. No. 7160.
Nevertheless, PS requirements of regular staff of the LGU on detail with the economic enterprise/public utility shall be included in the computation of the PS Limitation of the LGU concerned.
LGUs shall maintain special accounts in the General Fund for the economic enterprises and public utilities that it operates, as provided in Section 313 of R.A. No. 7160. Profits or income derived from the operation of economic enterprises and public utilities shall first be applied for the following:
Cost of improvement, repair, and other related expenses of the public utility or economic enterprise concerned; and
Return of the advances or loans made for the public utility or economic enterprise.
282 Any excess shall form part of the General Fund of the LGU concerned.
4. Should the budget for a Local Economic Enterprise/Public Utility be submitted for authorization by the Sanggunian?
Yes. The budget for a local economic enterprise/public utility should be authorized by the Sanggunian through an Appropriation Ordinance pursuant to Section 325 of R.A. No. 7160.
283 REFERENCES
1. Barcillano, Malu C., Ph.D. The Technology of Participation (ToP) and Its Application.
2. Celestino, Alice. Public-Private Sector Partnership for Urban Infrastructure: The Build-Operate-Transfer Program of Mandaluyong City, Sourcebook 1: Perspectives and Approaches in Local Government Resource Management, 2007.
3. DBM-COA Joint Circular No. 93-2 dated 8 June 1993, Local Government Budget Manual.
4. DBM-NEDA-DILG-DOF Joint Memorandum Circular (JMC) No. 1, Series of 2007 dated 8 March 2007.
7. New Government Accounting System (NGAS). Revised Philippine Government Chart of Accounts. Commission on Audit (COA) Circular No. 2008-001.
8. Segovia, Perla A. with Alvina, Nino B. Local Resource Management and Fiscal Sustainability: The Case of Naga City; Sourcebook 4: Selected Cases on Strengthening Local Government Resource Management, 2007.
9. Spencer, Laura. Winning Through Participation. Institute of Cultural Affairs.
10. Sustainable Human Development. Management Development Governance Division, Bureau of Policy Development, UNDP (April 1998).
11. Technology of Participation: Basic Group Facilitation Method Course Manual for Trainers. Governance and Local Democracy Project, United States Agency for International Development, Manila, 1999.
12. The 1991 Local Government Code or Republic Act (R.A.) no. 7160 and its Implementing Rules and Regulations.