Teodorico Haresco

The Presidents Bridge Program (1994 Present)
- The Presidents Bridge Program (PBP) is a bold bureaucratic effort to dramatically change the nature of infrastructure development in the country through the use of Overseas Development Assistance. It had touched the lives of approximately more than a third of the countrys total population.
  
  Its performance by far serves as an example of an enabling bureaucracy based on efficiency, transparency and effectivity in addressing a specific sector of infrastructure that is crucial to development and progress of the countrys basic communities.
  
  This, however, was not achieved overnight. It was gained through experiences in the actual implementation of the program founded on the policy of active governance. Its continued stand on public ethic of moral responsibility with due accountability has shielded it from the politics of entitlement and of social abandonment.
  
  The PBP is unique in the following: 1. the program focuses on a specific infrastructure sector, bridges, that is crucial to developing micro-economic activities and linkages between the urban and rural communities;
  
  2. it was conceptualized, developed, and managed through inter-agency cooperation ensuring that all aspect of bureaucratic processes are properly and immediately addressed; and,
  
  3. it has adopted a policy of transparency with efficiency, taking into account the need to attain its goal without disregard to the institutional processes.
  
  The Presidents Bridge Program (PBP), thus is a parallel intervention to fast track the provision of critical infrastructure development support aimed to address the countrys ballooning bridge requirement of about 15,000 or about 200,000 lineal meters of local and national bridges as reflected in the Philippine Medium-Term-Development Plan.
  
  Annually, the Philippines have to deal with 22 to 27 typhoons or natural calamities destroying or weakening some 10,000 lineal meters of existing bridges. Even if foreign donor countries can supply an average of 20,000 lineal meters of bridges, there is still some 170,000 lineal meters of bridging required to be urgently constructed based on the 1994 NEDA approved master plan of bridges.
PBP Objective
- The PBP aims to link the remotest and poorest communities with the nations road network and highly urbanized centers creating an opportunity of spreading the fruits of economic progress to the greatest number of the populace.
  
  Since 1986, the Government of the Republic of the Philippines has placed a high premium on poverty alleviation, and development of the agricultural sector especially in the rural areas of the country. The development of these rural areas and their integration with more developed local economies (which offer essential health care and educational facilities, among others) requires the urgent improvement and development of the countrys road infrastructure. Vital physical and economic infrastructure must be provided and established complementing the countrys development framework, which supports agricultural, livelihood and trade activities in the area that will spur economic growth and uplift the living conditions of the populace.
  
  Rural development of agriculture, industry and tourism sectors contributing to an annual GDP growth of 4.2 5.2% and GNP of 5.5% and a population growth demanding greater services, commodities and consumer goods has seen traffic volumes exceed the design capacity of many outdated structures some of which dates back to post war and fail to meet the minimum seismic and load carrying capacities required by todays standards. Many of the existing bridges are impassable, collapsed, or damaged and needs to be replaced.
Birth of the PBP
- The inception of the PBP started during the visit of then President Ramos to the United Kingdom in 1993 when amongst the document signed was a Consessional Financing Arrangements (CFA) between then DFA Secretary Siazon and UK Finance Minister Baroness Chalker.
  
  In February 1994, then Executive Secretary Guingona was visited by British officials from ODA (that became DFID) and was informed about the availability of concessional loan for a quick bridging program under the CFA. To complement speed, the ATP Team advised that the program be handled by a task force under the Office of the President. PFVR approved the availment of the concessional financing offer of the UK Government for the construction of vital bridges and the creation of an inter-agency task force under the Office of the President. Then PFVR issued M.O. 234 S.94 as an efficient and effective parallel intervention mechanism to address the critical bridging requirement of the country based on the UK Government financing offer.
PBP Legal Background & Environment
- Under MO 234, the Task Force was established with the Executive Secretary as Chairman with ex-officio members composed of the Secretaries of the Departments of Finance, Foreign Affairs, Socio-Economic Planning, Public Works and Highways and Interior and Local Government. The Task Force was supported by a Secretariat that served as its Technical Working Group headed by a duly designated representative of the Chairman with the representatives of the Task Force members and two technical consultants designated by the Executive Secretary. The Task Force was a British Government pre-condition for the availment of concessional financing to fast track the bridge program.
  
  During the Estrada Administration, the Task Force was converted under MO 116 series 2000 into an Oversight Committee on the Presidents Bridge Program (OCPBP). It was headed by the Executive Secretary and composed of Department Secretaries of DBM, DILG, DPWH, DPWH-ARMM, DOF and NEDA. It provides the policy direction for the Program and supported by a Secretariat.
  
  To further streamline the PBP, President Macapagal Arroyo abolished the Oversight Committee and placed the sole responsibility of oversight with the Executive Secretary under MO26-A series 2001. This responsibility was later transferred to the Secretary of DPWH under MO 53 series 2002 that stays up to the present.

Chairmen of the PBP (1994-Present)

1. Exec. Sec. Guingona	6. DPWH Sec. Datumanong
2. Exec. Sec Torres	7. DPWH Sec. Fernando
3. Exec. Sec. Zamora	8. DPWH Sec. Soriquez
4. Exec. Sec. De Villa	9. DPWH Sec. Ebdane
5. Exec. Sec. Romulo

Project Development
- Projects under the PBP emanate from the development agenda of the President. The specific agencies conceptualise and develop their respective bridge projects and incorporate them in their agency programs including the necessary budgetary requirements. These projects are then submitted to Congress for approval and inclusion in the annual government program and budget.
  
  During the Estrada administration,the government expanded the ODA use to other country and their suppliers to address the countrys requirement for bridging. The Austrian government with Wagner Biro developed the Bridge Replacement Project under DILG in 1999, and another project with DPWH in 2001. The UK government likewise provided the entry of Balfour Cleveland with a project at DPWH in 2002.
Project Approval
- All projects under the PBP passed through the National Economic and Development Authority Investment Coordinating Committee (NEDA-ICC) where the feasibilities of projects are assessed. The NEDA-ICC is composed of 12 major line departments of the Government with three levels of review and approval: Technical Committee; Cabinet Committee; and the NEDA Board chaired by the President.
  
  The Congress and Senate of the Philippines independently prepares the annual national budget of government based on prioritized agency programs in line with the 10-Year Philippine Investment Development Plan and allocates the resource requirements of all projects from domestic and international sources. The Department of Budget and Management issues the certificate for all project funding.
  
  Upon NEDA Board approval, the DOF negotiates the projects financing which is approved by the Monetary Board. The Monetary Board composed of the Philippine Central Bank, National Treasury and Department of Finance, undertakes top-level review to assess the projects financial implications. Thereafter, another review of contract conformity happens at the Department of Justice prior to any contract signing. After the Philippine Government processes, the assisting foreign country reviews and declares the project effectivity.
  
  An important consideration of the NEDA-ICC in its approval of the PBP projects is the representation made by the DPWH that it has taken due diligence in comparing options in establishing the technical advantages and cost effectiveness of the bridge technology from the various bridge suppliers.
PBP Bridge Selection Process
- The Presidential Task Force and the United Kingdom ODA appraisal mission drew up the bridge selection criteria that are directed towards pro-poor and pro-people social infrastructures that would enable spreading of the fruits of economic progress to the greatest number of Filipinos, especially those living in poor and remote rural communities.
  
  A number of bridge types were considered against the proposed criteria. Among the various types and designs, the modular steel unit was selected as appropriate for the project because it is very quick to assemble, cost effective and is less likely to suffer from poor quality workmanship because all the components are pre-fabricated to a high standard.
  
  1. LGU identifies bridge requirements of the locality.
  2. LGU submits bridge requirements through a resolution to the Governor.
  3. The Governor endorses resolution to the Regional Development Councils.
  4. RDC reviews and endorses bridge requirements to the PBP implementing agency.
  5. Each bridge is subjected to the selection criteria established by the UK ATP and the PBP.
  6. Bridges that passed the criteria are included in the agency Bridge Master Plan.
  7. All bridges under a specific project are prioritized based on development thrust.
  8. The prioritized bridges are included in the project proposal for NEDA ICC approval.
  9. Identified bridge requirements are re-endorsed by the PBP Chairman to the President for approval.
  10. Upon declaration of project effectivity by the UK Government, bridges are installed by the implementing agency.
Project Implementation
- All policy directives emanate from the President. The Chairman of the Presidents Bridge Program implements the Presidential directives.
  
  At the Program level, a Technical Working Group (TWG) composed of representatives from member agencies of the Task Force/Oversight Committee facilitates project coordination and undertakes the overseeing functions of the Task Force/Committee. Under MO 64, this function was assumed by DPWH-PBP Special Project Management Office.
  
  A Special Project Management Office(s) undertake(s) specific project implementation at the project level. An Executive Director designated by the secretary of the mother agency heads the SPMO. The SPMOs are distinct from the regular organization of the department. It is religiously monitored by the TWG technical staff for implementation accountabilities. Under each SPMOs are project managers for specific construction area.
  
  The LGUs are responsible for constructing the road leading to the Bridge. M&J supplies the bridging materials and technical assistance while the implementing agency undertakes the installation and construction of approaches through competitive bidding done by the concerned LGUs, as required under government prescribed rules and regulations. Oftentimes, the tertiary or barangay road appears to the urban onlooker as merely a trail.
Financing and Disbursement
- While the Office of the President was the signatory to the supply contract and the DoF to the loan contract, it is emphasized that the OP is not the implementing agency and does not handle any project budget. Under MO 64, the contract signatory was transferred to the implementing agencies.
  
  The foreign financing flow is triggered when the bridge supplier delivers the materials or provided services to the implementing agency and submits a bill. The implementing agency, through its inspectorate team and assisted by the COA special Team inspects the materials delivered and submits a report.. Based on the report, the implementing agency issues a certificate of acceptance to the supplier. The supplier submits a request for payment together with the certificate to the financing Bank. The Bank forwards the request and certificate to ECGD for the loan portion (and Crown Agents for the grant). It then approves the request and informs the Bank and the supplier. The supplier then withdraws the amount from the Bank. The Bank then forwards the loan accounts to the ECGD (and the grant accounts to the Crown Agents) and the Philippine Bureau of Treasury. Treasury then issues the corresponding payment for the loan component based on the schedule of payment reflected in the loan document signed by DoF.
  
  For the Local component, the DBM is the primary agency tasks to oversee and facilitate the timely releases of local counterpart project funds. The funds are directly released to the implementing agencies, thus no funds were received or handled by the Task Force/Oversight Committee and the Technical Working Group.
PBP Project Monitoring
- The National Economic and Development Authority is the agency tasked to lead the performance monitoring of the PBP projects through its Program Monitoring Staff. The NEDA-Project Monitoring Staff assesses not only the performance but also the socio-economic contribution of the projects under the PBP.
  
  The Department of Finance monitors and reports to the Monetary Board the utilization of the foreign and local component of the project. DPWH provides regular accomplishment reports to the President and the NEDA.
Project Audit/Transparency
- To ensure the transparency and secure the programs integrity, the Chairman of the PBP requested the COA, an independent constitutional body tasked to review and audit government procurement, to assist the PBP in its project implementation. A team of COA engineers was detailed to assist in the project in its implementation. The involvement of the COA people was made through a special arrangement with the COA Commissioner and ensured that a clear system of program transparency and accountability is firmly in place.
  
  A Special Inspectorate Team (SIT) composed of TWG representatives and supported by personnel from COA Central Office Technical Staff, OP COA, DILG COA and DPWH-ARMM COA was established. The team undertakes the inspection/recommendation on the goods and services provided by the supplier under specific projects. Acceptance of goods and services are based on the report submitted by the SIT. With the transfer of the PBP to DPWH, the Departments resident COA personnel undertake the functions of the SIT.
  
  The Presidents Bridge Program Projects:
  # FVR Bridge Project Under this set-up, the Fast, Versatile and Reliable (FVR) Bridge Project was implemented in October 1996 and resulted in the completion of 218 single lane and double lane bridges. Implementation was undertaken by DILG and DPWH in less than three years. The archipelagos rural infrastructure was improved by opening farm to market roads access nationwide.
  
  # SALAM Bridge Project also known as the bridges of Peace, the SALAM Bridge Project was started by the DILG through the Autonomous Region for Muslim Mindanao (ARMM). It programmed the construction of 163 double lane bridges in the four (4) war torn provinces of the ARMM. It started in November 1999 under President Estrada and was able to complete a total of 89 bridges the time of the loans expiration in December 2001. It positively assisted the peace process in this region by employing ex-MNLF combatants after undergoing the proper training.
  
  The Regional Planning Development Board of the Autonomous Region of Muslim Mindanao (ARMM) resolved on the 26th of May 1998 through Resolution No. 09 Series of 1998 that recognizing the success of the FVR Presidents Bridge Program resolved to request the President for a similar project in the ARMM utilizing former MNLF militants to retrain as construction units. The project involves the construction of 7,476.401 Linear meter of permanent national and local bridges in the ARMM/SZOPAD region. Train approximately 500 MNLF members (Engineers and other ranks) in bridge erection, design and maintenance of permanent steel bridging components. Creates at least three construction cooperatives, comprising four MNLF platoons each. This program expands the focus intervention in the NEDA Development Plan Framework initiated last October 1997.
  
  # Barangay Bridge Project Subsequent projects of the Presidents Bridge Program include the TULAY NG PANGULO SA BARANGAY or the BRIDGES OF FAITH, which started in 2001 with 402 permanent double lane bridges (15,282 linear meters) nationwide, and the supply of 833 linear meters of single lane bridging for the use of the LGUs during calamities and emergencies. Priority areas are those in Luzon, Visayas and some areas in Mindanao. The Loan for this project was approved in September 2000.
  
  Social considerations and economic development potential of the project areas took precedence as against a more detailed study to hasten the construction and reconstruction of critical bridges along barangay roads.
  
  # SZOPAD Bridge Project called Bridges of Hope started in November 2003 after loan approval in December 2001. The project involves the construction of 526 permanent double lane compact bridges (16,132 lineal meters) in ten SZOPAD provinces and eight cities as well as the supply of 2,060 lineal meters of single lane bridging for the use of the said provinces and cities during calamities and emergencies. The project also includes the provision of necessary equipment bridging material and superstructures, and the actual construction of sub-structures and installation of the bridging components in the designated sites with programs for 526 bridges in the SZOPAD region in Mindanao.
  
  It is President Gloria Macapagal-Arroyos continuation of the legacy of building bridges at record speeds through the Presidents Bridge Program. A direct result of the demand by the provinces and cities neighboring the ARMM communities wanting bridges built quickly and effectively.
  
  This Bridge Project is an added step towards sustainable development through bridge building, in line with the Mindanao National Initiative, a flagship program of President Gloria Macapagal-Arroyo, to fast track the development of Southern Philippines.
  
  The benefits accruing from the project include:
  1. Improvement in the existing barangay infrastructure;
  2. Improvement in the provision of services and opportunities to local barangays and remote communities;
  3. Integrating the rural community into the national infrastructure development program.
  4. Improvement of farm to market roads; and
  5. Improvement of local communities, from merely subsistence base to thriving market economies
  
  The TULAY NG PANGULO SA SZOPAD-Mindanao started operations in May of 2002. In 2005, just over two years, there were already 389 completed bridges. Thats an average of completing the a bridge construction every 2.23 days. The project covers the whole of the Island of Mindanao, Palawan and Basilan.
  
  This SZOPAD Project has generated savings used to fund further projects of the Presidents Bridge Program, one of which is the Countryside Bridge Project, which began in 2004. The total target for Countryside project is 200 bridges. The Malolos flyover in Bulacan which was completed in 60 days was also among the projects generated from this SZOPAD savings.
The Presidents Bridge Program as an Enabling Institution
- TSafeguarding the PBPs noble undertakings against selfish and private interests in the guise of good governance, is paramount to the institution\'s integrity. The dynamic presence of the COA in the PBP was made necessary for program transparency. It is simply impossible to manipulate three levels of approval committees each composed of heads and officers of the 12 major line departments, spanning resource allocation by an independent Congress, concurrence by the Monetary Board and finally, the Department of Justice.
  
  The program has expediently achieved such numerous goals and milestones that would have taken decades under regular agencies. The goal to modernize the progressive tradition in the bureaucracy by advancing a set of innovative ideas through focused efforts have help it transcend changes in administration. This continuity helps it solidify public ethics with moral accountability.
  
  The Programs experiences in trying to accelerate economic growth and expand opportunity through available Overseas Development Assistance resources, its entering into the turf of an agency attempting to introduce a new system to hasten development, and its prudence in capitalizing on the strength of government personnel within the bureaucratic system have brought to fore its capability to make a difference in the governments effort to realize the hopes of the people.
  
  In real terms, the Presidents Bridge Program has erected 1227 bridges in a span of 10 years. It has rationalized the bridges\' inventory of the country. It has lowered the cost of erecting bridges in the country. It has enabled local government units to erect and maintain their steel bridges. It is the first to implement an infrastructure project without cost overruns and to accomplish and infrastructure projects ahead of schedule. It is developing a system of quick response to calamities. And most importantly, it has made the Filipino people realized through its erected bridges that government is working for their benefit.