Administration of Rural Development Projects

Module 4

Enhancing Human Resource Capabilities for Rural Development

Objectives:

After reading the module, you should be able to:

1. explain human resource development as a strategy for rural improvement; 2. define terms in human resource development; 3. understand the benefits of training; 4. discuss training as a system; 5. analyze the local government capability building program, and state educational institutions extension program for human resource development; 6. give recommendations on how to effectively enhance human resource capabilities for rural development

When one speaks of rural development, one cannot avoid looking at it as the primary concern of local government units particularly those in the rural areas. Development, as Siedentopf (1987) notes is defined “by the needs of the (rural) population, the process of political, social, and economic development making use of natural and human resources as well as the local institution, to improve the quality of life in the (rural) areas. It is a field of politics where central and local autonomy relate to each other in a rational and well balanced symbiosis. (Tapales, et al, 1998)

One of the strategies to attain rural development is through decentralization. Decentralization allows the lower levels to decide on issues that concern them directly. As such, decentralization democratizes the political system while ensuring that governmental actions are responsive to the needs of the people. Since decentralization hastens the decision making process, facilitates the administration of government programs and expedite delivery of public goods and services, decentralization then accelerates development.

However, the implementation of decentralization in the form of devolution and local autonomy also brought some concerns like leadership skills, resources and capabilities and local level institutions. Are the local leaders capable to plan and manage development? Are the people ready to participate in the development (social, political and economic) processes considering their abilities, skills and educational preparation. These are but some of the issues commonly raised and a well-planned human resource development program may prove very helpful.

Enhancing Human Resource Capabilities for Rural Development 73 Administration of Rural Development Projects

Human Resource Development as a Strategy of Rural Improvement

An important element in realizing the rural development direction, any economic activity or an effective management of all projects/activities is human resource development. It covers the enhancement of the individual’s production, entrepreneurship and leadership skills. Oftentimes, training and human resource development are interchangeably used. But human resource development is a broader term. It is about the development of people in organizations used in this context, development refers to the advancement of knowledge, skills and competencies and improved behavior of people within the organization for both their personal and professional use (Eggland, 1992).

Human resource development covers three (3) programs, namely: training/education, career planning and counseling (Martires, 1988). Human resource development also refers to the various kinds of learning experiences, which contribute to individual and organizational effectiveness (Andres, 1983). It therefore involves application of various learning activities and one of these activities is training. In this sense training is viewed as a human resource development intervention. It is one of the alternative approaches towards human resource development.

HRD in Local Government

Article 164 (b) of the Implementing Rules and Regulation of the Local Government Code of 1991 provides that:

“The local chief executive shall be responsible for human resource management and development in his LGU and shall take all personnel actions in accordance with the constitutional provisions on civil service, pertinent laws, rules and regulations, including such policies, guidelines and standards as CSC may prescribe…

Among the major human resource concerns that local governments, particularly those in the rural areas must address is “the lack of adequate career development plans and capability building programs including management development” (Tapales, Padilla, Joaquin, 1998). A highly effective mechanism involves the conduct of continuing management development and capability building programs for local officials and employees. Different government agencies have responded by designing appropriate courses or programs responsive to the needs of the local officials, employees and residents. The League of provinces, cities and municipalities or even the barangays (villages) are not remiss in their functions as far as capability building of local officials is concerned.

Managers are “the individuals who stimulate or inhibit change within any system” (Wright and Rudolf, 1994:41). Management development is essential for workforce planning, leadership and over-all management. Like employees, local leaders should also be flexible and adaptable to changes happening in the environment. Apart from the capability building program of the rank and file, local officials should also undergo 74 Human Resource Development for Rural Improvement Administration of Rural Development Projects management development programs to effectively discharge their management functions. In keeping with the view that human resources are the primary organizational resource, there are a range of programs that could help managers acquire and keep good people.

Human resource development in the local government units does not only concern the management and technical capabilities of the local bureaucracy. It also involves the teaching of basic knowledge and honing the skills of the rural populace in order for them to become productive citizens. Aside from the basic knowledge and skills, human resource development as a means of people empowerment can help the people from being marginalized to become active partners in the mainstream of development process. It has been said that development is a basic right. People must enjoy the fruits of development not just as mere beneficiaries but rather as co-implementer of development projects. And they can only do that if they are capable and have the necessary knowledge, skills and attitudes.

Education and Training as Instruments of HRD

A. Education (Basic, Non Formal, Informal and Indigenous Education)

Education is principle driven and tends to be only broadly applicable to students. It teaches general skills and knowledge for the sake of a field or discipline, rather than a particular job. Although specific examples may be introduced in education, they are used only to illustrate general points. Education tends to be professionally oriented or related to an industry in general. It often uses a longer time frame and consume more instructional hours than training. Also education is often meant to be useful for many years in a wider variety of settings than training. (Van Wart, Cayer, Cook, 1993)

In the Philippines, Section 3 of the Education Act provides that it is the policy of the State to establish and maintain a complete, adequate and integrated system of education, relevant to the goals of national development. Toward this end, the government shall ensure, within the context of a free and democratic system, maximum contribution to the educational system to the attainment of the following national development goals:

1. To achieve and maintain an accelerating rate of economic development and social progress; 2. To assure the maximum participation of all the people in the attainment and enjoyment of the benefits of such growth; and 3. To achieve and maintain national unity and consciousness and preserve, develop and promote desirable cultural, moral and spiritual values in a changing world.

The state shall promote the right of every individual to relevant quality education, regardless of sex, age, creed, socio-economic status, physical and mental conditions, racial or ethnic origin, political or other affiliation. The state shall therefore promote and

Enhancing Human Resource Capabilities for Rural Development 75 Administration of Rural Development Projects maintain equality of access to education as well as the enjoyment of the benefits of education by all its citizens.

The 1987 Philippine Constitution gives all citizens the right to quality education and mandates the state to take appropriate steps to make quality education accessible to all.

Section 4 of the Education Act stipulates the following educational system aims:

1) Provide for a broad general education that will assist each individual in the peculiar ecology of his own society to: a. attain his potential as a human being b. enhance the range and quality of individual and group participation in the basic functions of society and c. acquire the essential educational foundation of his development into a productive and versatile citizen.

2) To train the nation’s manpower in the middle level skills required for national development

3) Develop the profession that will provide leadership for the nation in the advancement of knowledge for improving the quality of human life; and 4) Respond effectively to changing needs and conditions of the nation through a system of educational planning and evaluation.

Philosophy of Education for All

The education of the Filipino is anchored on the philosophy of humanism and egalitarianism. The former regards man as both the mean and the end of development. The latter ensures that neither poverty nor difference in political creed and culture shall pose obstacle to the fulfillment of the basic need.

The whole spectrum of the learning process shall ensure the provision of good quality and relevant education. Such quality education shall be instrumental to integrity and sustained growth and development. The ultimate aim of education is to develop the learner’s attitude which he can effectively use to alleviate poverty and improve the quality of his life, his family and the larger society.

Education shall be pursued along the concept of a holistic learning system where education is equated with lifelong learning with the world as a classroom. Hence, there shall evolve an educational system that spans the formal-nonformal-informal interactions. (National Plan of Action, 1990-1999, Education for All)

LGU Initiatives in Education 76 Human Resource Development for Rural Improvement Administration of Rural Development Projects a. Establishment of Elementary and Secondary Schools

The Local Chief Executives are vigorously pushing for the establishment of more elementary and secondary schools in their respective areas of responsibility since existing schools can no longer accommodate burgeoning numbers of pupils(students) in public schools much less the Department of Education can no longer cope with the demands in the local level. They persistently lobby to their respective congressmen to support the undertaking.

Aside from providing the infrastructure component,the local government units also provide budget for the hiring of teachers. b. Scholarship Programs

As a means of democratizing educational services, local government units implement scholarship programs. These are granted to poor but deserving students. Children of village officials and youth leaders are also granted the same privilege in terms of scholarship programs.

The local government units also took the initiative of collaborating with NGOs, congressmen or senators, the academe or private individuals who are interested in providing scholarship programs to sustain their thrust of providing quality education to their citizenry. c. Local School Boards

Under the Local Government Code of 1991, all cities, municipal and provincial governments are mandated to create Local School Board. Through local school boards, the local government units are able to supplement the services rendered by the national government in the delivery of education services to the target clientele.

LGU initiatives served as immediate remedial measures incase of shortages of teachers, both in the elementary and secondary levels, by hiring teachers and paying them using local funds. Hiring of clerical staff for the District Offices of the Department of Education is also being shouldered by the local government units. Construction of school buildings, procurement of desks/chairs, books, instructional materials, repair and maintenance of school facilities are most often shouldered by the local government units using their own resources. d. Educational Tours

Local government units are now conducting trips outside their community. “Sisterhood” among cities and municipalities is being adopted as a strategy towards

rural development, where least developed LGUS are being adopted as sister city/municipality by developed local government units. Best practices in local governance of more dynamic local governments are being observed for adoption with a little innovation to suit their local conditions.

As a result of the devolution of agricultural extension services, farmer’s field schools are also established in the LGUs. Farmers, women-groups and other organized groups are also supported by the local government units to have their own educational trips outside their locality to observe and learn from projects or activities of their interests in other places.

Non-Formal Education

Non-formal Education (NFE) refers to any structured educational activity which takes place outside the established formal education system. It is designed to complement, supplement and extend as well as provide an alternative learning strategy that will cater to the needs and interests of adult learners as well as out-of-school youth (Delmas, 1997).

In developing countries, NFE is regarded as one of the means for democratizing education, widening people’s access to basic educational services that may include universal primary education and literacy.

In the Philippines it is a constitutional mandate that “The basic right to education of every Filipino is guaranteed by the fundamental law of the land. The Philippine Constitution succinctly and substantively defines the broad goals of Philippine education, its structure and delivery systems as well as special population groups that should receive it. Non-formal, informal and indigenous learning systems are clearly stated as alternative ways of providing basic education.

The NFE vision and mission are statements of pertinent educational provisions of the Constitution with programs/projects for implementation. Section 2, Art XIV of the Constitution therefore states that our Educational system shall:

1. Establish, maintain and support a complete, adequate and integrated systems of education relevant to the needs of the people and society;

2. Establish and maintain a system of free public education in the elementary and high school levels. Without limiting the natural right of parents to rear their children, elementary education is compulsory for all children of school age;

3. Encourage non-formal and indigenous learning systems as well as self-learning, independent and out-of school youth study programs particularly those that respond to community needs; and

78 Human Resource Development for Rural Improvement Administration of Rural Development Projects

4. Provide adult citizens, the disabled and out-of-school youth with training in civics, vocational efficiency and other skills.

Compared to other modes of education, the Non Formal Education has the following inherent advantages (Delmas, 1997 and BSU-OU, 1997):

1. NFE objectives tend to directly respond to the immediate and current needs of the people, rather than preparing them for some future gains.

2. Admission requirements are more flexible, and they cater to a broad spectrum of target clientele.

3. NFE is by and large short cycle, discrete and recurrent and may be pursued on a part-time time basis. It takes only a relatively short period of time to complete a non-formal education course/program, after which people can be employed or opt for self-employment.

4. The content of NFE is generally task-related and closely linked to the learner’s environment.

5. Andragogy (the art and science of helping adult learn) is the main method used, whereby the trainer or teacher serves as facilitator in the learning process 6. It is learner, rather than teacher-centered, where the focus of learning are the needs, interests, problems and aspirations of the adult learners.

7. Control is vested in the participants and the community and not in the external body.

Non-formal education aims to empower the Filipino with desirable knowledge, skills and attitudes/values that will enable him to think critically and creatively and act innovatively and humanely in improving the quality of life of his family, community and country. (BSU-OU-Delmas, 1997).

Basic to people empowerment are knowledge, skills, attitudes/values. On knowledge, Paul R. Jacob (1997), has this to say, “Your potential may still be untapped, locked behind the fear of failure which intimidates many and prevents them from aiming higher. The chains can be broken by education, serious reading and by never letting the sun set on the day without adding to your knowledge of yourself and the world around you.”

The development of livelihood skills is premised on the values of self-reliance and self-sufficiency. Man has the potential for such and if these are tapped, he needs not be hungry or be dependent on others. Livelihood skills development offers a practical application of education and literacy.

There is also an urgent need for people to acquire development-oriented attitudes that will strengthen their efforts towards self-reliance, productivity and sustainability. Non-formal education workers must therefore be equipped with missionary zeal, commitment, and the sense of accountability to pursue the above goals.

B. Training

Training Defined

Training is a very popular concept. In her Module on Introduction to Training, Flores (1999) cited various definitions from different authors of the concept of training. Some of which are as follows:

“Training is a program of human resource development by which employees undergo instruction to upgrade their knowledge and skills and to improve their attitudes in order to make them qualified for specific jobs.”

“ Training is the systematic acquisition of skills, rules concepts, or attitudes that result in improved performance in another environment.” “ Training is the planned provision of intentional, short-term learning activities, using a broad range of methodology and including participation of learners, to enable them to acquire specific skills, knowledge, or attitudes for direct or immediate use.”

“Training is the organization of resources for learning and an organizational activity that provides participants or learners the opportunity to direct themselves and their environment towards the realization of their potentials”.

There are many more definitions of training but if we examine these definitions, four key words are common- learning skills and knowledge, performance, people and jobs. According to Franco (1982), these four concepts are the major concerns of training.

1. Learning

When we say learning, we generally refer to a change of some kind in the learner. Such changes are often classified as: psychomotor, cognitive, affective or connotive. Psychomotor refers to physical and manipulative skills such as those required to operate a machine; cognitive, refers to the ability to recall learned materials and the development of the thinking skills; affective refers to the attitudes, values and interests; and connotive is the work component or labor input or practicum, the ability to get things done or operacy.

2. Performance

Performance refers to how well the people carry out the tasks that make up their jobs, regardless of what that job is. Here, we talk of standards, then we may turn to training to change job performance if this is established as the best alternative.

3. People

More often if we speak of training, the people involved are usually adults or professionals seeking to change their job performance through learning without necessarily going back to formal schooling. This does not mean however that training is only for adults. There are also training programs for children. The focus on adults is because of the fact that children are expected (or by design) in schools rather than attending training courses.

4. Jobs

The job are what people do. They are made up of several specific tasks, complexity, difficulty and relationship to these tasks vary from job to job. It is also important to note that there is usually a range of acceptable differences in the way individuals do the same job. Work standards differ depending on the requirements of an organization.

Training, Education, Communication and Development

Training is not synonymous to education, communication or development. Training is a form of education and communication; it is a very important field of application for the principles taken from education, communication and development.

Development deals with projected needs on both a long term and short term basis. Education has long term orientation dealing with future application of current learning. Training deals with current needs and immediate application and short term orientation is normal.

Therefore to train is to inform by instruction, discipline or drill; to educate is to provide schooling to develop mentally or morally by instruction; and to work out the possibilities of, and to promote the growth of, and to cause to unfold gradually (Franco, 1982). In this sense, training is a development process.

Role of Training

Training can solve only certain problems. It is definitely not a solution to all organizational problems. Training can be resorted to if the solution of the problem requires individuals to add to their backgrounds specific, identifiable items of

additional knowledge, skills or understanding. The terminal objective is to achieve goals through optimum use of manpower.

When there is difference between the actual and the needed/desired/standard, productivity suffers. Training can reduce or eliminate this gap. It does so by changing the behavior of individuals, by giving them additional specific items of knowledge, skills, or attitude needed to perform up to that standard.

Benefits of Training

Training is an expensive undertaking. Because of this, many organizations consider sending people to training as a burden and many managers are often skeptical about the benefits of training.

Training is appropriate and beneficial when there is need for a skill that does not exist in the current workforce; if the number of skilled workers is less than the required; when performance is below standard, when there is a change in the technology, methods or required behaviors, rendering the current skills obsolete (Flores, 1999).

If properly undertaken, training has a lot of benefits that can have substantial impact. The following are the benefits of training (Tessin, ____ as cited by Flores (1990)):

For the individual:

● Helps in making better decisions and effective problem solving; ● Aids in encouraging and achieving self-development and self confidence ● Helps a person to handle stress, frustration, conflict and at the same time increases job satisfaction and recognition; ● It moves a person towards personal goals while improving inter-action skills; ● Develops a sense of the future, a desire for life-long learning; ● Improves communication skills and leadership attitudes; ● Prepares a person to attempt new tasks and seek new risks.

In a nutshell, training provides the individual with skills, knowledge, values, attitudes, experiences and judgments that help him internalize his vision of himself and his capacity to perform given tasks and jobs with efficiency and effectiveness .

For the Organization

● Leads to improve delivery of services to clientele or beneficiaries ● Improves profitability which in turn lead to improve morale, better image and better relations with the institution’s public both internal and external ● Helps employees to identify with organization’s goals and policies

● Fosters trust and openness, and improves knowledge and skills at all levels where needed ● Aids in organizational development and future planning ● Aids in developing organization loyalty, better attitudes, leadership skills, group and teamwork motivation ● Increases productivity and quality of work, cutting down costs and increasing benefits ● It spawns a better climate for work, flexibility for change and coping with internal conflicts and with external competition.

For External Groups and the Environment

● Improves communication all around ● Boosts public understanding, sympathy and supportive action when the organization is in trouble and make the organization a better place to live in.

Limitations of Training

As earlier mentioned, training is not the answer to all problems and it does not work well all the time. There are situations in which training is not an appropriate action. Ernest Franco enumerates the following as situations where training is not appropriate:

● An environment which cannot use the skills the trainee acquired in training. A case where theory and practice don’t match. ● An environment which will not permit performance of the behaviors acquired in training (such as organizations or business owners who condone or tolerate relatives.) ● A change in behavior which cannot be measured or nobody bothers to. ● Employees are not motivated to meet performance standards, though they are capable of doing so. ● Other means such as policy change or provision of identified needs other than training will be more effective in improving performance. ● Resources acquired to complete training are non-existent or insufficient.

Approaches and Types of Training

Ernesto Franco identified four main approaches of training:

1. Formal Training – the classroom type of training; methods used are usually lectures, case studies, simulations, films, field visit and other formal methods.

2. On-the-Job Training – methods used include coaching, manager shadowing, guided delegation, job rotation, mentoring and secondment.

3. Action Learning or Experiential Learning – methods include a mix of formal training with techniques that are participatory in nature.

4. Organization Development – also referred to as the non-formal training, involves informal peer learning; methods include support groups, professional associations and study circles.

As to the types of training, the World Bank gives the following categories:

1. Pre-Entry Training – training given to new entrants prior to first job assignment.

2. In-service Training – training provided after entry into the service at different stages. 3. Project Related Training – training offered to different categories of personnel in a development project, both technical and managerial training.

4. Self-development – training on a part time or full time basis at the initiative of the personnel.

The Training as A System

Training is a system. Its components are training needs, training objectives, the lessons/contents and activities contained in the training design; the trainers/facilitators and resource persons; the learners or participants; training strategies, methodologies, techniques, and facilitating skills; learning aids; training implementation; training evaluation; training facilities like equipment, vehicles, the venue, the lodging place; the supplies and materials to be given out; and other administrative preparations. As a system, it implies that the absence of one component affects the whole. Some of the components mentioned maybe done away with but there are basic components that need to be present to make the training system work.

The basic components include: the learning objectives, the contents of the training, the learners, the trainers, the methodologies with learning aids or materials. All training courses should have an objective or objectives; lessons or contents that would respond to the objectives; methodologies to transfer the learning required and learning aids to facilitate the transfer; learners to benefit from the activity and trainers to do the transferring of learning and to manage the activity.

There are some amenities that may not be provided or may not available but the training can still go on. A vehicle for example, may not be available but this will not jeopardize the implementation of the training. Supplies and materials may not be sufficient but the training can still proceed as proposed.

Training for Rural Gainful Economic Activities

Training for rural gainful economic activities refers to those skills training activities that move away from the center-based pre-packaged trainings, which is essentially aimed at wage employment, towards more appropriate skills training for self- employment in the rural areas. (TRUGA Manual, 1993) Records would show that in the early 1990s several training programs were conducted either by the academe, Manpower Training Centers and other NGO initiated programs, but the impact in terms of employment and incomes is rather modest.

Livelihood skills training programs must effectively spur countryside development and result into additional employment and income opportunities for the rural population and especially the poorest sector of our society.

Rural Employment

In the Philippines, as elsewhere, rural non-agricultural activities have significantly increased in importance during the last decade. This is the result of persistent problems in agriculture: low productivity and incomes, underemployment (especially during the slack season). This is further aggravated by the unfavorable tenancy arrangements and rapidly growing landlessness, thereby resulting to low absorptive capacity for new entrants of the labor market. As a result, more and more people engage in non-agricultural activities.

With modern economic activities scant in rural areas (only a few government jobs and some small or medium enterprises), most non-farm employment belongs to the “rural informal sector”. These comprised of private, small-scale “informal” firms, characterized by traditional or at best-semi modern production technologies and forms of organization and management.

This informal sector is far from homogenous. It includes income generating or livelihood activities, which are very simple, pre-entrepreneurial ventures with no clearly defined organization or management, yielding only the barest means of survival (e.g. petty trading, traditional handicrafts, poultry raising), as well as self-employment and micro enterprises. These operate in or near the home of the proprietor, use local raw materials and traditional technologies, serve local markets and are mainly found in market centers and rural towns.

In the larger rural towns and regional centers one also finds small enterprises, which are located in workshops, make to a certain extent use of non-traditional/modern technologies and are less bound by local materials and markets.

Rural Skills Training

Rural informal employment is often an intricate combination and succession of seasonal and casual jobs, both in agriculture and non-farm activities. This poses special conditions for the task of employment promotion, in general and skills training, in particular. The informal, constantly changing nature of rural employment makes identification of standard skills requirements more difficult, and training delivery needs to be flexible so as to adapt to local variations. Surely, rural vocational trainings should not be a sort of watered-down version of conventional center-based training for modified urban trades.

The organization of rural vocational training should be ‘mobile’, such that it is the accessible especially to the rural poor. The training activities should be within or near the communities where they live.

Also, rural skills training must be multi-sectoral and developmental. It will have to entail attempts to increase productivity and product quality. This means that the transfer of new (appropriate) technologies and products is of utmost importance; otherwise it runs the risks of transferring skills for outdated products or a saturated market. Many traditional crafts cannot be as competitive as the mass-produced fashionable goods. In other words, without such a technological infusion, informal sector productivity would be stagnant, its market share and incomes would decline.

Furthermore, the training must also be adapted to special target groups (e.g. out- of-school youth).

Finally, technical training must be complemented by efforts to install entrepreneurial and management skills, which are essential for entry into self- employment and the establishment or expansion of informal micro-enterprises.

Most of the efforts for the provision of rural training, have had a tendency to be ‘top-down’ or planned without substantial consultation with the beneficiaries. However, experience have shown that involvement of trainees markedly increases their interest to complete the training, strengthens the support the training activity receives from the community and in the end significantly enhances the training impact.

Livelihood training programs must be able to identify opportunities for sustainable employment before a training course is organized and implemented. In other words, the methodology aims to link skills training directly to employment and income- generation. Trainings must not be pre-packaged. Instead, an extensive training needs assessment must be conducted at the community level, to ensure that training is directly linked to formal employment or income-generating activities in the community which have been identified to hold potential for employment creation.

Furthermore, trainings, should be conducted in local venues, flexible in its schedules and appropriate in its content and instruction methods. Aiming foremost at self-employment, major emphasis is placed upon post-training support (e.g.

86 Human Resource Development for Rural Improvement Administration of Rural Development Projects entrepreneurial development, link-up with organizations providing credit, marketing and other assistance). Stakeholders in Rural Development and the Need for Human Resource Development

Stakeholders in rural development may include but not limited to the following: (UN-Habitat, 2001)

i. those whose interests are affected by the issue or those whose activities strongly affect the issue;

ii. those who possess information, resources and expertise needed for strategy formulation and implementation; and

iii. those who control relevant information.

Based on the above definitions of stakeholders, the following can be classified as the stakeholders of RD:

Local Government Units. The Local Government Code of 1991, transformed the local communities into self managing local institutions. The Code succinctly states as a matter of policy that the LGUs shall enjoy genuine and meaningful local autonomy to enable them to attain their fullest development as self-reliant communities. They are the frontline institutions in rural development and have the responsibility for its successful implementation. They are responsible in the efficient delivery of basic social and economic services in the rural areas. They must work closely with different institutions and agencies involved in rural development.

In the Philippines, the Constitution provides that the various levels of local governments in the country are the provinces, cities, municipalities and the villages. The Local Government Code defines the roles of each level of local governments mostly as coordinative in terms of delivery of various services at the local level. The Code elaborates on the role of various levels:

Barangay. As the basic political unit, the barangay (village) serves as the primary planning unit of government programs, projects and activities and as forum in which the collective views of the people in the community may be crystallized and considered. (Section 81)

Municipalities. The municipality consisting a group of barangays (villages), serves the over-all purpose of government for the coordination and the delivery of basic, regular and direct services within its jurisdiction (Section 162).

Cities. As a political unit covering more urbanized and developed communities, the city is akin to the municipalities and serves as coordination and delivery of all basic, regular and direct services within its jurisdiction (Section 162).

Provinces. As a political unit comprised of a group of municipalities and component cities, the province shall serve as an effective mechanism in the development process and assume basically area-wide functions, roles and activities (Section 195).

In the performance of the mandated functions, human resource development becomes a critical requirement both in the internal environment and the communities. Officials and employees of the local government units must have the capacity to perform the tasks and the community residents as well, in order for them to become effective partners of the government in community building.

Academe. (State Colleges and Universities) Extension services is one of the major functions of a state university. All programs and projects in extension conducted by the SUCs aim to promote economic, social, cultural, political and environmental development of the people which shall ultimately result to people empowerment, better local governance, sustainable development, poverty alleviation and food sufficiency. (PS Coloma)

The academe is helping people in rural communities in all aspects of their lives. It involves continuous process of introducing innovations through the process of teaching, learning, communicating and disseminating information and technology.

As described by (Rivera, 2001) in his working paper entitled: Extension as a Force for Individual and Social Transformation, “extension is issue-oriented, change and development-focused and transformation-directed. As a transformative force, extension does not aim merely at empowering people and communities. It is a force that builds the foundation of power with people and communities”.

It has been seen that the extension agent’s tasks is an educational one. Farmers and their families need to learn new skills, knowledge and practices in order to improve their farming and other productive activities. As they do so, they develop new attitudes toward farming and new practices, and to extension itself; this in turn influences their future behavior. Extension agents, however, must also be prepared to learn from farmers about the way they farm, and keep themselves up to date with relevant developments in agricultural knowledge. In this educational work of extension, the agent should be aware of a number of principles of learning.

Non-Government Organizations (NGOs) and People’s Organization (POs). The Local Government Code of 1991 recognizes the involvement of NGOs and POs in local governance as vital in ensuring that local autonomy works to their best interest especially in rural development. In the broadest sense, an NGO is any private sector group, while the people organization as defined by the Constitution, are bonafide associations of citizens with demonstrated capacity to promote the public interest and with identifiable leadership, membership and structure (Sec 15, Art XIII of the Constitution)

Being active partners of the government in rural development work, NGOs are also engage in providing trainings geared toward the development of the human resources in the countryside. With the use of their own resources they directly conduct these trainings or they provide assistance by sharing cost with other entities involved.

The Rural People (Farmers, Women, Youth, etc). These are the internal factors within the defined area. Farmers, women, youth and (village) officials are perfectly capable to support or sustain rural development programs in their respective area of responsibility, as long as they are also assisted in terms of capability building and other lifelong skills which they can use in the day to day management of their programs or projects. Dedicated rural development specialists and workers who are willing to work hand in hand with the rural people is also a requirement.

Action And Inter-Actions Of LGU-NGO-Academe: A Collaboration In Human Resource Development

The Emergence of Civil Society

After the EDSA’S dramatic people power event, wide-ranging and free discussions dominate the scene. NGOs and others openly participate and challenge openly government actions which they perceive as inimical to equity and sustainable development. Organized rural and urban poor groups too, demand more of their government and increasingly insist on having a say in the decisions that affect their lives. The academics write about changes in society, their implication and future trends. Yet, it is the NGOs workings at the grassroots levels in partnership with people’s organizations (POs) that have taken the lead roles in defining, formulating and articulating new visions for Philippine society.

Featuring a “pluralistic, democratic, participatory, gender-and-environment conscious sustainable society”(Racelis, 1998), the civil society paradigm has encouraged all kinds of groups emerging to forge the kind of society that brings maximum benefits to all. In working with the government, NGOs had a number of activities in the community that promotes human resource development through training, community organizing and organization development:

● On-site training of community organizers with action- reflection as the featured mode with the resident poor. ● Conflict confrontation and issue- based organizing ● Empowering people to make demands of political and economic elites ● Actively participate in the debates and open discussions of issues such as passage of laws aimed at enhancing participatory processes and addressing the needs of the poor ● Active participation in Social and Community Forestry Program as partners of the government ● Linking and networking with other POs and NGOs, pursuing the intricacies of producer/consumer cooperatives, negotiating with banks to formulate viable loan

schemes, working out slum upgrading systems, lobbying the Congressmen to stop legislation inimical to the community’s interest and delineating ancestral domain through modern mapping techniques.

As part of their human resource development thrusts, non-government organizations embarked on two very important activities which are the following:

1. Community Organizing (CO)

In its strictest definition, community organizing refers to organizing which takes place in a geographically defined living area such as an urban poor or slum or a rural village. However, its principle have also been widely used for organizing sectoral groups not necessarily living in a distinct location – for example, workers in a factory, students in a school, even professionals in the same line of work. The term community organizing has often been expanded to include these types of groups, since such groups also forms a community in the sense of shared activities, interests, grievances and relationships.

CO emerged from, and is a systematization of experiences in labor and other forms of organizing. At the same time, it continually evolves and is constantly enriched in the process of practice. While CO shares many commonalities with other forms of organizing, it is distinctive, not because it is defined by the limited boundaries of communities, but because it is characterized by a packaged of features.

Community Organizing is a process and method of mobilizing people towards the full utilization of the resources and talents of their community to achieve a better life. CO is a process to help alleviate the abject condition of the community and is a method to solve community problems.

As a process, CO emphasizes the participation of the people in decision- making. This is based on the belief that any activity of the people should arise from them. It also stresses the capability of the people to give meaning and direction to their life (self-determination).

As a method to solve community problems, CO has four steps:

1. An analysis of the situation and the environment; 2. Identification of the problem to be addressed by the community 3. Defining their plans to respond to the identified problems; implementing the plans; and 4. Assessment/evaluation of the implementation process

The importance or value of this approach is not merely and primarily the resolution of community problems, rather it is the weight given to the most effective process is much more important than the ‘wins’, success or gains – which in themselves form part and parcel of the valued process. 90 Human Resource Development for Rural Improvement Administration of Rural Development Projects

2. Organization Development (OD)

Organization development is defined as the process used to enhance the effectiveness of an organization and the well being of its members through planned intervention (Alderfer, 1977; Beckhard, 1969; Beer and Walton, 1990; French & Bell, 1990; Friedlander and Brown, 1974 as cited by Henderson 1996). This definition makes three (3) key points. First, OD “enhances the effectiveness of the organization” (Henderson, 1996). Effectiveness in this context, is defined as achieving organizational goals and objectiveness. Second, OD “enhances the well being of organization members” (Henderson, 1996). The term “well being refers to the perceived over-all satisfaction each organization member feels toward job and work environment” (Henderson, 1996).

Third, OD is used “to enhance the effectiveness of organization and individual well being through planned intervention” Henderson, 1996). Planned intervention refers to “sets of structured activities in which selected organizational units (target groups or individuals) engage in a task or sequence of tasks where the tasks goals are related directly or indirectly to organizational improvement” (French & Bell, 1990, p. 102 as cited by Henderson, 1996). Thus planned intervention, or intervention strategy, are the “primary means through which organizational improvement and changes take place” (Henderson, 1996).

After a core group has been formed, other members of the community maybe enjoined to form a community organization. A community organization may facilitate wider participation and collective action on community problems. The core group members assist the community organizer in motivating people on the need to get organized. In the Training Manual on Community Organizing Program Management published by the Philippine Business For Social Progress (PBSP), an NGO actively involved in community development, the following are among the techniques used to recruit members to join an organization:

a. Ground Work

The term “ground work” means one has to go around and motivate people on a one-to-one basis to do something on community issues. This is also called agitation. Some aspects of motivation or agitation that can be used are self- interest, morality, rights, honor, shame or anger. Some examples are: ● It is economically good for you to get public faucets. You can buy rice with your savings. ● You pay taxes. You deserve faucets. ● The government does it for the rich. Why not for you? ● The women are getting worn out getting water. You men should do something if you’re really men

As they go around, the organizers would also talk about general meeting to which more people can come for further discussion and action. They should discuss the pro’s and con’ s of this action with the people. Likewise, they should get people willing to do something and be prepared to come to a meeting at such time and place to agree upon a certain course of action.

b. The Meeting

At a community meeting, the people collectively ratify what they have already decided individually. The meeting gives a sense of collective power and confidence, people discover that they are not alone. They learn from one another’s motivation and conviction as responsible and contributing to the community members. The creation of working committees and assignment of persons to particular tasks may also be done during this time.

c. Organizational Structure

The formal setting up of the community organization may be done through a general assembly where the constitution and organizational plans are ratified and approved. The principles observed in setting up the organization are as follows:

1. maximum participation of membership 2. maximum control by the people 3. simplicity of structure ● general assembly ● council of leaders ● executive committee ● working committee 4. collective/shared leadership

Once people recognized the legitimacy of issues and the organizing efforts, the organizing process can include more members to expand in other areas using the same process and principles discussed earlier. All the time, the organizer and the leaders should be alert to the concerns of the people since expansion also brings about new information and problems.

Eventually, the organizing process could result to viable people’s organization. The Philippine Business for Social Progress (an NGO) identified some characteristics of people’s organization as follows:

1. It is an organization of smaller organizations, not individuals. 2. It has an internal structure to help people participate and deliberate, and provide for a system of checks and balances. 3. It is multi-issue at any given time. 92 Human Resource Development for Rural Improvement Administration of Rural Development Projects

4. It is in constant action. Action is the lifeblood of an organization. 5. It is serious. It is to win. It chooses tactics which are effective. 6. It is visible and controversial. It projects an image of power. 7. New leaders are constantly emerging. The people, with their leaders, think and operate in terms of increasing their power so as to promote the people’s interest. 8. Partisan political alliances are made very critically. 9. It raises funds from among the people and is accountable to the people. 10. It creates impact beyond its immediate concerns.

d. Leadership Training and Development

The organizing process must not revolve around the community organizer but from among the indigenous leaders of the community who will eventually take over the role of the community organizer.

Community organizing promotes collective or shared leadership. This is best characterized by the slogan:

“All of the people, all the time Some of the people, all the time”

Leadership training must be anchored on the following principles and concepts: 1. Leadership as service – as opposed to a leader being an authority figure, leadership is directed towards the welfare of others.

2. Corporate/Collective leadership – as opposed to a one-person form of leadership. It means sharing of leadership with others. Members helps in making decisions and pursuing goals. Information is also shared with all.

3. Delegation of Authority – in implementing decisions, work and responsibility are divided among different leaders and members.

4. Eliciting participation – leaders encourages/motivates people to join in discussion and work towards a common goal.

5. Problem solving -= means investigating all aspects of a situation or a problem. Considers all suggestions and integrates them into a viable theory and bring back this theory to the people so it could be put into action.

Leadership training and development maybe done formally or informally. Informal leadership training refers to the less structured, experimental types of activities which are usually done alongwith core group development. Among such activities are:

1. Groundwork. During groundwork, community organizers get to know better core group members or potential leaders. During home visits and one-on-one discussions, the organizer should get to know the potential leader’s family background, his personality characteristics as influenced by his socio-economic status and related experiences. The community organizer should likewise assess a leader’s political orientation and potentials for leadership. This discussion should test a leader’s ideas which he may bring to a meeting. His constructive and progressive ideas are encouraged, while the negative ones are probed and processed. For some of a leader’s weaknesses, attitudinal orientation maybe gradually worked out but using such techniques as counseling, criticism, self-criticism and action- reflection during group sessions and after mobilization.

2. Continuous exposure to and active participation in mobilization activities – gives leaders a feel and insight to the actual conduct of organizational activities. Their carrying out of tasks assignments in preparation for and during the actual mobilization hones their skills.

3. Action-reflection and criticism-self-criticism. (CSC) after mobilizations and other major organizational activities help make the leaders aware of their progress in terms of knowledge, attitudes and skills. Strengths and weaknesses are likewise checked.

Formal leadership training refers to structured activities which are organized to respond to the training needs of the leaders. This may take the form of seminars and workshops and structured study sessions. These activities complement the inputs of the activities of the informal training but it is more focused on objectives and content and serve to synthesize and further enrich the learning from the leader’s day to day activities.

A formal leadership training seminar usually contains modules on self- awareness, group/team building, communication, problem solving/community organizing processes, the share leadership concept and basic leadership functions and skills. Depending on the leaders’ level of training needs, these basic topics maybe elaborated and enriched.

Structured study/education sessions maybe organized on special topics such as on social problems and their relationship to macro realities as they affect the local communities. These complement the leadership knowledge and skills. Study sessions on issues have a conscienticizing thrust in building the leaders’ and community’s awareness of the broader dimensions of issues confronting them.

Local Government Capability Building

Building learning into the local government function also requires the creation of new relationship with government institutions like state colleges and universities non-

94 Human Resource Development for Rural Improvement Administration of Rural Development Projects government organizations, that would allow them to participate in a multilateral transaction geared towards learning with, and from one another.

Brillantes (1994) sees leadership not as monopoly of elected officials who have around them all the essential requisites for assuming leadership, but as an ability that NGOs have learned through working intimately with the masses. Thus, LGU Chief Executives can harness the leadership role of NGOs by making them participate directly in local structure and processes of governance and in the delivery of services.

The Local Government Code has devolved to the LCEs the authority to design a local government career system, create or consolidate positions vital to area management, provide reasonable financial compensation, schemes and incentives to attract learnable (not necessary highly qualified) personnel into the service, and provide opportunities for developing the potentials of local government members. In the latter case, it may include the people they interact with in planning and implementing development plans (i.e. private sector partners, NGOs, members of marginalized sectors) so as to facilitate learning in the community as a whole.

Local Chief Executives are required to facilitate the creation of a climate conducive to learning and the empowerment of employees. As Peddlers, et al (1989) put it, “learning and working are the same”.

The local government units which serve as the focal point in the delivery of services particularly those involving human resource development, can prepare a grand design with the assistance of the academe and other sectors to see to it that their plan of action is comprehensive and holistic thereby assuring that all concerned sectors especially those that are marginalized can have greater access to quality education and training.

As a means of developing its organization and human resources, local government units have to give importance also to Organization Development. Tapales, Padilla and Joaquin, (1998), mentioned the three dimensions of the Local Government Code which call for organizational development in local governments, namely:

1. The transfer of responsibility from national to local government to deliver basic services in health, agriculture, social welfare and environment and their corresponding financial and human resource requirements;

2. The enhanced authority of local government units (LGU) to undertake income- generating and development functions other than those traditionally engaged in; and

3. The institution of several mechanisms to ensure democratic accountability and people’s participation.

The LGU draw their authority for organizational development from the Code mainly through the following provisions:

There shall be established in every local government unit an accountable, efficient, and dynamic organizational structure and operating mechanism that will meet the priority needs and services requirements of its communities. [Section 3(b)];

Local government units shall have the power and authority to establish an organization that shall be responsible for the efficient and effective implementation of their development plans, program objectives and priorities (Section 18); and

Every local government unit shall design and implement its own organizational structure and staffing pattern taking into consideration its service requirements and financial capability, subject to minimum standards and guidelines prescribed by the Civil Service Commission (Section 76).

SUC Extension Program as a Means of Human Resource Development

In her paper entitled The Extension Program Implementor as a Leader in the New Millenium, Chauhan (2001), defines Extension as a discipline that utilizes knowledge that passes through a prism of sociology, economics, anthropology, psychology, management and other disciplines for transfer of appropriate technologies, values, attitudes, knowledge, and skills that will ultimately improve the social practices or lives of its clienteles, partners or cooperators. It can be gleaned from the definition that the extension program implementor (EPI) has a very critical role in effecting change both in the personal and societal levels. As a requirement, EPI must have the leadership qualities to deal with challenges that go with the extension function.

Drucker (1997) defines leadership as a responsibility. As a leader in his/her own right, extension program implementor must have the capacity to create and realize a vision. The realization of said vision through concrete forms is his or her responsibility which can definitely make a difference in the lives of the people in the community. In realizing a vision, the extensionist as a leader must be committed to action. He or she must possess the right skills in planning, organizing, controlling and directing projects, activities and all the resources within his or her control to achieve the desired end. Adding to these qualities is the ability of the extension program implementer to behave with integrity. Effective leaders must be truthful with one’s self as well as with others in terms of what is genuinely valued and considered important. Extensionists must be able to walk the talk (Bardwick, 1997).

These leadership qualities must be present among extension workers from the academe because they are looked up to as leaders by the community they work on. In the task of capacitating the LGUs (personnel and the community) by making its most important resource- human resources, active partners in the development process, the extension worker from the academic community must have the credibility to perform their tasks.

Extension Program Models of SUCs

State Colleges and Universities in the Philippines have varied extension program models which all have the same goals that of improving the quality of life of the clientele in their respective service areas.

Central Luzon State University’s BIDANI Program

The Central Luzon State University had established a network throughout the country with state colleges and universities in implementing the BIDANI or Barangay Integrated Development Approach for Nutrition Improvement of the Rural Poor as their flagship program in the delivery of extension services.

As a program, BIDANI is community-based, multidisciplinary, holistic, development-oriented and bottom-up. The following are the features of the program:

Mission:

To promote social development through a process of participative planning and appraisal of activities facilitated by SUCs extension programs implemented by the barangay people in partnership with the government and non-government agencies.

Goals:

● Nutrition improvement ● Poverty Alleviation ● Good governance ● Food security

Outcome Objectives

● Household level food security ● Municipal and barangay effectiveness ● Socio-economic opportunities ● Participating services ● Self-help and self determination

Operation objectives (Local level)

● Organizational functionality ● Skills training ● Participation in problem definition and solution ● Support for socio-economic activities ● Support for nutritionally at risk and poor ● Livelihood projects

Operation Objectives (Programme and academe level)

● Establish models ● Strengthen capacities of the academe ● Training and extension packages ● Training in establishing models/pilot ● Institutionalize models ● Liaise with funding and other agencies ● Institutional cooperation ● Education and training/institutional development ● Infrastructure development livelihood and employment ● Justice, peace and order ● Youth, sports and cultural development ● Women and family welfare

Program Components

Main Components

● Nutrition-in-development strategy ● Rehabilitation and malnutrition prevention strategy ● People-based information system ● Food production and processing ● Micro credit

Support Component

● Information, education and communication (IEC) ● Monitoring and Evaluation

Summary of Main Features

● People-based development ● Process focused ● Total integrated and development strategy ● With social conscience ● Analysis to identify priority problems and potential village resources ● Participatory planning from the bottom ● Self help and self reliance ● Practical and indigenous communication and extension approaches ● Multi level and multi agency participation ● Development of political will ● Effective training of development workers and other indigenous leaders 98 Human Resource Development for Rural Improvement Administration of Rural Development Projects

● Built in monitoring and evaluation system ● Increased accessibility of the poor to the government and other services ● The new local government code

Constraints

● Sustainability ● Effective institutionalization at all levels ● Peace and order problem ● Inadequate funding and logistics ● Changes in political and SUC leaderships ● Inadequate coordination, supervision and technical backstopping ● Lack of or inaccurate village data base ● Increased workload of village workers and municipal staff ● Lack of appropriate communications between the municipality and the village in planning and management of development programs

The Nueva Ecija University of Science and Technology’s Barangay Empowerment for Development and Poverty Alleviation Program (BEDPAP)

The Nueva Ecija University of Science and Technology (NEUST) has developed its core extension program which is a means of the university in reaching out to the communities. It is dubbed as the Barangay Empowerment for Development and Poverty Alleviation Program in Nueva Ecija or BEDPAP NE. The program has been adopted by the Provincial Government as a provincewide legitimate program through a Resolution by the Provincial Council. The university has established partnership with 17 municipalities in the province through a Memorandum of Agreement. The program has the following features:

To empower village officials, leaders and residents to develop their respective villages based on self-reliance not on dole outs.

Program Partners

Major: Municipal/City LGUs and selected cluster of barangays (villages)

Others: NGAs, NGOs, NEPG, the private sector

Organizational Structure

1. Provincial level: Provincial BEDPAP NE Council 2. Municipal/City Level: Municipal/City BEDPAP NE Council 3. Barangay Level: Barangay Development Council

Major Strategies

1. Capability building of barangay officials, leaders and sectoral representatives on ● Barangay development planning ● Barangay development plan implementation, monitoring and evaluation in the areas of development ● Participation and involvement in program and project planning ● Barangay leadership, management/administration

2. Linkaging and networking 3. Resource mobilization 4. Participative local governance 5. Development planning, implementation, monitoring and evaluation

Areas of Development

● Infrastructure Development ● Economic Development ● Social Development ● Development Administration

Expected Outputs

● Holistic and focused barangay development ● Developed/strengthened barangay (village) based organizations/institutions ● Values education and spiritual reformation ● Human resource development ● Improved delivery of government services ● Enhanced management of barangay (village) development

NEUST Commitment

● Human resource deployment in the four areas of development ● Municipal and barangay (village) coordinators to man the secretariat of the councils and to act as development catalysts ● Direct assistance to municipal/city LGU in developing vocational-technical manpower to its present or future manpower training center ● Technical assistance and consultancy services to partner LGUs in planning and implementing the barangay development plans

Municipal/LGUs Commitment

● Organize and maintain the municipal/city BEDPAP Council ● Provide initial support to preliminary activities for barangay development planning, implementation, monitoring and evaluation 100 Human Resource Development for Rural Improvement Administration of Rural Development Projects

● Provide support to the vital projects included in the barangay development plans.

Barangay (Village) Commitment

● Participate and get involved ● Mobilize its human and material resources ● Ascertain the participating sectors

Functions of the BEDPAP Council

● Serves as policy making body of the council ● Adopts action plans, program, projects for implementation ● Reviews/evaluates periodic monitoring reports ● Decides on annual work program ● Selection of barangays (villages) to be covered ● Allocate funds for the action plan ● Perform other functions necessary to realize the objectives of the program

Issues and Problems in Human Resource Development

1. Lack or absence of a study on issues or problems affecting human resource development.

2. Human resource development is not given top priority in fund allocation in most institutions.

3. Lack or absence of technical capability of local government units in the preparation of a Comprehensive Human Resource Development Plan

Summary

The role of human resource development in effecting rural development cannot be ignored. Managerial capabilities needed by local chief executives are no more critical than in managing people, probably the best and only resources that can be found in the LGUs. After equipping themselves with the knowledge and skills appropriate to their need, the Local Chief Executives with the help of the Human Resource Management Officer and other technical staff must be able to come up with policies, develop programs on human resource development both within the organization and its clientele.

The local government units need not do these alone. They can tap the services of national agencies based in the locality, the academe and the non government organizations who have the capability both technically and financially, in providing services geared towards human resource development.

Assessment Questions

1. Discuss your concept on human resource development.

2. How will human resource development result to people empowerment and poverty alleviation?

3. Discuss LGU initiatives on human resource development.

4. How will LGU-NGO-Academe collaborations effect human resource

5. Explain/define the following terms:

a. Community Organizing b. Organization Development c. Ground Work

6. Discuss the Extension function of a university. How will it help in human resource development in the countryside?

References

Delmas, Agapito P. and Benguet State University-Open University. 1997. Module 1 & 2 on Foundation of Non Formal Education in the Philippines. La Trinidad, Benguet.

Delmas, Agapito P and BSU-Open University. 1998. Module 3&4 on Foundation on Non Formal Education in the Philippines. La Trinidad, Benguet.

Flores, Arlene L. and Benguet State University-Open University. 1999. Introduction to Training Management. La Trinidad, Benguet.

Franco, Ernesto A. 1990. Training A Guide for Trainers and Teachers. Manila.

Franco, Ernesto A. 1990. A Training Guide for Trainers and Teachers. Manila.

Henderson, Andrew and University of Manitoba. 1996. Training and Development. Canada.

Oakley, P. and C. Garforth. 1985. Guide to Extension Training. FAO. Rome.

NMYC-ILO, TRUGA. 1993. Philippines Manual, Vol 1. Manila.

Nolledo, Jose N. 1995. Education Act of the Philippines Annotated. Manila.

Racelis, Mary. 1995. Conquering Politico-Administrative Frontier, An Essay in Honor of Dr. Raul P. De Guzman. UP Press.

Social Development Management Institute-PBSP. 1996. Training Manual on Community Organizing Program Management, Manila.

Tapales Proserpina D.; Jocelyn C. Cuaresma; Wilhelmina L. Cabo. 1998. Local Government in the Philippines: A Book of Readings, Vol 1 & 2. Quezon City.

UN-Habitat. 2001. Manual on Tool to Support Participatory Urban Decision Making, Toolkit Series.

Van Wart, Cayer Montgomery, Joseph N., Steve Cook. 1993. Handbook of Training and Development for the Public Sector. San Francisco, USA.

Weaver, James H, Micahel T. Rock, Kenneth Kusterer. 1997. Achieving Broad Based Sustainable Development. Connecticut, USA.

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