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DBM-DILG-DSWD-NAPC Joint Memorandum Circular No. 6
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draft as of December 5, 2014
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7FOR
: Heads of Departments (DA, DEPED, DOE, DENR,
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DOH, DILG, DOLE, DSWD, DOT, DTI, NCIP and
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TESDA) and the Administrator of NEA, All
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City/Municipal Mayors and Members of the
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Sanggunian Panlungsod/Bayan, and All Others
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Concerned
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14SUBJECT
: POLICY GUIDELINES AND PROCEDURES IN THE
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IMPLEMENTATION OF THE BOTTOM-UP BUDGETING
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PROGRAM FOR FY2015
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STATEMENT OF POLICY
In pursuit of attaining the Philippine Development Plans goal of
inclusive growth and poverty reduction, and promoting good
governance at the local level, the Human Development and Poverty
Reduction Cluster (HDPRC), through the Bottom-up Budgeting (BuB)
Oversight Agencies, shall implement the Bottom-up Budgeting(BuB)
program. This program seeks to increase citizens' access to local
service delivery through a demand-driven budget planning process
and to strengthen government accountability in local public service
provision.
The BuB oversight and participating agencies are tasked to ensure
the implementation of priority poverty reduction projects as identified
at the city/municipal level through a participatory planning and
budgeting process.

PURPOSE
This circular provides the guidelines for the implementation and
monitoring of BuB projects authorized under the General
Appropriations Act for FY2015.

DEFINITION OF TERMS
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3.1. Bottom-up Budgeting - is an approach to the preparation of

agency budget proposals, taking into consideration the
development needs of cities/municipalities as identified in their
respective local poverty reduction action plans that shall be
formulated with the strong participation of basic sector
organizations and other civil society organizations.
3.2. Good Financial Housekeeping - is conferred to local
government units that obtain a unqualified or qualified COA
Opinion and comply with the Full Disclosure Policy. It is a
component of the Seal of Good Local Governance
3.3. BuB Executive Committee - composed of the heads of the BuB
oversight agencies (DBM, DILG, DSWD, NAPC, NAPC Office of the
Vice-Chair for Basic Sectors, and NEDA). It is responsible for
setting BuB policies and overseeing program implementation.
3.4. BuB Projects projects identified through the BuB process
3.5. BuB Technical Working Group - composed of representatives
of the BuB oversight agencies. It shall provide the BuB Executive
Committee with technical support in formulating BuB policies and
overseeing the implementation of the program.
3.6. Local Development Fund - equal to 20% of the Internal
Revenue Allotment to be used for local development projects as
prescribed by DILG-DBM JMC 2011-1.
3.7. Local Poverty Reduction Action Plan (LPRAP) the LGU plan
which contains programs and projects collectively drawn through
a participatory process by the LGU with CSOs and other
stakeholders, and which will directly address the needs of the
poor constituencies and the marginalized sectors in the city or
municipality.
3.8. Local Poverty Reduction Action Team (LPRAT) the group to
spearhead the formulation and monitoring of the LPRAP.
Under the Regular BuB program, the LPRAT shall be composed of
the following members:
Chairperson:
Local Chief Executive (LCE)
Co-Chairperson: A CSO representative
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Members:
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Representatives from Government, to wit:
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Sangguniang Panlungsod/Bayan Member who is the
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Chairperson of the Committee on Appropriation;
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All local government department heads such as the
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Planning Officer, Budget Officer, Fishery and
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Agriculture Officer, Social Welfare and Development
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Officer, Health Officer, and Public Employment
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Service Office (PESO) Manager;
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Representatives of NGAs such as the DSWD
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municipal links/NCDDP area coordinators, the DILG
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City/Municipal Local Government Operations Officer,
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the Schools District Supervisor, Agrarian Reform
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Officer, DTI field officer, City/Municipal Environment
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and Natural Resource Management Officer (CENRO)
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and all other NGA representatives; and
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Representatives from CSOs (must be residents of the
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city or municipality), that can come from the following
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groups/organizations:
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Pantawid Pamilya Parent-Leaders recognized by
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DSWD;
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Leaders from DOH organized Community Health
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Teams;
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Leaders of the Parent-Teacher Associations;
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Leader of CSOs accredited by LGUs;
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Leaders of CSOs accredited or recognized by any
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NGA;
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Leaders of a womens group;
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Leaders of a basic sector organization;
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Leaders of a basic sector organization recognized by
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NAPC;
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Leaders
of
other
community
or
grassroots
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organizations;
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In cities/municipalities where Indigenous Peoples
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comprise over twenty-percent (20%) of the
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population, one of the elected representatives must
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come from the IP sector
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A representative from a local business group or
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Elected officials, their immediate relatives (spouse,
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child), and LGU employees are ineligible to be elected as
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representatives.
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Municipalities that have graduated from or are currently
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implementing the NCDDP shall undergo the Enhanced BuB
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process, wherein the LPRAT shall perform its functions as the
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technical working group of the Enhanced Local Development
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Council (LDC). It shall be composed of the following members:
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10 representatives from government (may come
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from government members or observers of the
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Enhanced LDC)
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5 Barangay Development Council Vice-Chairpersons
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selected through the NCDDP
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5 CSO representatives in the Enhanced LDC who are
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elected during the CSO assembly
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Elected officials, their immediate relatives (spouse,
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parent, sibling,
child), and LGU employees are
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ineligible to be elected as CSO
representatives.
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The LPRAT under the Regular or Enhanced BuB Process shall
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always be composed of an equal number of government
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(including the LCE) and non-government representatives. All CSO
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representatives should be residents of the city/municipality. The
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LPRAT should also be composed of at least 40% women.
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3.9. Enhanced Local Development Council refers to the Local
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Development Council (LDC) with an expanded membership to
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include the regular members of the LDC with the addition of all
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the Vice-Chairs of the Barangay Development Councils who are
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to be elected from among the NCDDP community volunteers.
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Chairperson:
Local Chief Executive (LCE)
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Vice-Chairperson: A CSO representative
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Members:
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Representatives from Government, to wit:
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All punong barangays in the city or municipality
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Chairperson of the Committee on Appropriation of the
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Sangguniang Panlungsod/Bayan
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District Representative or his/her representative
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Representatives from Civil Society Organizations and
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Communities, to wit:
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All Vice-chairs of the barangay development councils
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(elected through the NCDDP)
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At least five CSO representatives elected by CSOs
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during the CSO assembly
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A representative from a local business group or
183association
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Elected officials, their immediate relatives (spouse,
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child), and LGU employees are ineligible to be elected as
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representatives.
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The Enhanced LDC shall be composed of at least 40% women.
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All local government department heads such as the Planning
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Officer, Budget Officer, Agriculture Officer, Social Welfare and
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Development Officer, Health Officer and Peso Manager and
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representatives of national government agencies (NGAs) such as
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the DSWD municipal links, NCDDP Area Coordinator, the DILG
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City/Municipal Local Government Operations Officer, the school
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district supervisor and Agrarian Reform Officer shall be invited to
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sit as observers and resource persons in the Enhanced LDC.
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3.10. National Community Driven Development Program
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(NCDDP)- refers to the DSWD managed poverty reduction
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program that seeks to empower poor communities to have better
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access to quality basic services and to participate in more
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inclusive local planning, budgeting, and implementation at the
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barangay level.
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3.11. National Poverty Reduction Action Team (NPRAT) 208
composed of senior officials of the BuB oversight and
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participating agencies and chaired by DILG. It that shall discuss
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and address policy and implementation issues and provide
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guidance to the RPRATs throughout the BuB process.
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3.12. NPRAT Technical Working Group (NPRAT TWG) 214
composed of designated BuB focal persons (technical staff) from
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the BuB oversight and participating agencies.
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3.13. Operating Units - refers to the agency units receiving Notice

of Cash Allocation (NCA) directly from DBM, mandated to
carrying out specified substantive functions or directly
implementing programs of a Department or an Agency, such as
line bureaus, field units, Schools Division Offices and schools in
the case of the Department of Education (DepEd).
3.14. Participating Agencies refers to the NGAs (DA- including
BFAR, DepEd, DOE, DENR, DOH, DILG, DOLE, DSWD, DTI, DOT,
NCIP and TESDA) and GOCCs (NEA and NIA) through which BuB
projects will be funded and implemented.
3.15. Public Financial Management Assessment - refers to the
diagnostic review of a local government units existing structure,
policies, systems and procedures for generating and
managing its financial resources. It is conducted to determine
the extent to which the LGU is able to establish and
operationalize an open and orderly Public Financial Management
(PFM) system in the LGU using as criteria the critical dimensions
of an open and orderly PFM system provided under the PFM
Assessment Tool for Local Government Units (PFMAT for LGUs)
developed by the Department of Budget and Management
(DBM).
3.16. Public Financial Management Improvement Plan - refers
to the set of programs/projects/activities (PPAs) that will be
undertaken by the LGU to address the areas in Public Financial
Management (PFM) that need to be further improved and/or
sustained based on the assessment by the LGU of the different
critical dimensions of an open and orderly PFM system provided
under the PFM Assessment Tool for LGUs.
3.17. Regional Poverty Reduction Action Teams (RPRATs) the
group that shall provide support and guidance to LGUs
throughout the BuB process and
make decisions on
implementation issues raised at the regional level, composed of
the following:

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Chairperson :
Vice-Chairpersons :

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Members :

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DILG Regional Director

DBM Regional Director
NAPC Secretariat Representative

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Regional Directors of BFAR, DA, DENR, DOH, DEPED, DOLE,

DSWD, DTI, DOT, NEDA, NIA, NCIP, and TESDA
Representatives from DOE and NEA
All Provincial Planning and Development Officers (PPDOs) in
the Region
The provincial CSO permanent representative elected in the
process facilitated by NAPC and an alternate representative
selected by the permanent representative per province. This
does not refer to the elected members of the basic sector
councils of NAPC at the national level.

Members of the RPRAT shall designate a permanent alternate to

represent them in the body during times that they are
unavailable to attend its meetings.
3.18. RPRAT Technical Working Group - composed of members
of the RPRAT or their designated BuB focal persons. It shall
closely monitor the implementation of BuB projects and
coordinate the conduct of related BuB activities.
3.19. Seal of Good Local Governance (SGLG) is the scaled up
version of the Seal of Good Housekeeping. It is a recognition
given to local governments for their good performance in the
areas of a) transparency and accountability in the use of public
funds; b) preparation for disasters; c) sensitivity to the needs of
the vulnerable and marginalized sectors; d) attraction of
investments and generation of employment; e) maintaining
security; and f) safeguarding the environment

GUIDELINES
Fund Release
4.1. Fund Release for BuB FY2015 projects under NGAs and GOCCs
4.1.1. Funding for projects located in cities and municipalities that
have complied with the set governance conditions in
section 4.1.2 will be released through the General
Appropriations
Act (GAA) to operating units of
implementing agencies on the first day of the fiscal year,
except for projects under DOE, NEA, and NIA
4.1.2. The governance conditions set for the fund release of BuB
FY2015 projects are the following:
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compliance with the Good Financial Housekeeping

component of the Seal of Good Local Governance
FY2014 Assessment and
submission of the PFM Improvement Plan or initiation of
its implementation, whichever is applicable as
determined by the DBM Regional Office

4.2. Fund release for BuB FY2015

Government Support Fund (LGSF)

projects

under

the

Local

4.2.1. Funding for the following projects have been lodged under
the LGSF:
Access Roads
Integrated Community Food Production projects DBM
regional offices shall not release funding for projects in
cities and municipalities that have not complied with the
governance conditions set in 4.1.2.
4.2.2. These funds will be released by DBM Regional Offices
directly to LGUs subject to conditions set in 4.2.3 and 4.2.4
for the implementation of the BuB projects identified in the
FY2015 General Appropriations Act.
4.2.3. DBM Regional Office shall release funds intended for the
implementation of infrastructure projects directly to LGUs,
subject to the submission by the local government units of
the following documents to the DBM Regional Office within
the first quarter of FY2015:
Program of work signed by the city/municipal engineer
DPWH Certification (only for projects costing more than
P10 million and will be implemented by administration)
DBM Regional Offices shall only review the completeness of
the LGU submission and will rely on the certification from
the LGU engineer on the technical soundness and
appropriate cost of the project.
4.2.4. DBM Regional Offices shall release funding for Integrated
Community Food Production projects subject to the
endorsement of NAPC. NAPC has already communicated to
the concerned LGUs requirements for the implementation
of these projects.

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4.3. Fund release for FY2015 BuB Projects in LGUs that have not
complied with the governance conditions
4.3.1. LGUs will be given until the March 2015 to comply with the
governance conditions. LGUs should coordinate with the
concerned DILG or DBM regional office for this. Failure to
comply by this time will result in the non-implementation of
BuB projects in the LGU. (Possible exception: KALAHI-CIDSS
projects of DSWD, awaiting DSWD decision)
4.3.2. However, LGUs that did not comply with the Good Financial
Housekeeping due to an adverse COA finding will no longer
be able to comply with this requirement given the timeline
of the next COA audit report. DBM and DILG shall provide
additional technical assistance for these LGUs so that they
may resolve their COA audit findings and be able to
participate in the BuB program in the next fiscal year.
4.3.3. DBM shall release funding for projects in LGUs that
subsequently
comply
with
the
Good
Financial
Housekeeping and submit/begin implementation of their
PFM Improvement plan in April 2015.
4.3.4. The list of LGUs that have not yet complied with the
governance conditions is attached as Annex A of this JMC.
4.4. Project Implementation
Coordination between NGAs and LGUs
4.4.1. The Participating Agencies shall coordinate with and inform
the LGUs about the requirements for the implementation of
BuB projects under their respective agencies not later than
January 2014.
4.4.2. RPRATs shall facilitate the coordination between LGUs and
their members to help speed up the implementation of BuB
projects.
Realignment of Funds
4.4.3. If a project cannot be implemented because of a justifiable
cause (e.g. no land, calamity changed landscape, not
technically feasible), funding for identified BuB projects can
be realigned to another project in the same municipality
subject to conditions set under General Provision Sec. 69 of
the FY2015 General Appropriations Act, as stipulated below.
4.4.4. The respective heads of agencies are authorized to realign
any object of expenditure within the same allotment class
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(PS, MOOE or CO) and within the same program, activity or

project (P/A/P) in their respective agency allocations
The realignment of objects of expenditures within CO of
agency allotments is allowed; PROVIDED That the
realignment is within the same P/A/P and may only be
undertaken until the second quarter of the year.
4.4.5. Any realignment within the same P/A/P that will entail the
reallocation of funds from one allotment class to another
without augmentation of the amount appropriated for the
said P/A/P shall be subject to approval by the DBM.
4.4.6. In addition, no realignment shall be undertaken by a
participating agency or DBM without a letter requesting for
such signed by the concerned mayor and the three CSO
signatories of the LPRAP.
Mode of Implementation
4.4.7. In view of technical requirements and program design, the
following projects shall only be implemented by the
concerned participating agencies in collaboration with the
LGUs:

Household electrification projects under DOE;

Sitio electrification projects under NEA;

Projects under DepED, DOH and TESDA, unless
otherwise determined by these agencies
4.4.8. BuB projects, except those mentioned in item 4.4.4 hereof,
may be implemented by LGUs provided they meet the
following eligibility standards, subject to the government
procurement law, and budgeting, accounting and auditing
rules and regulations:
Technical capabilities (i.e. to implement the project) as
determined by the participating agency concerned;
No unliquidated funds to participating agency beyond
the reglamentary period based on existing COA rules
and regulations; and
Sanggunian authorization to the LCE to enter into a MOA
with the participating agencies in accordance with
Sec.22 (c) of the Local Government Code.
4.4.9. If a city or municipal local government is ineligible to
implement a BuB Project, the project may be implemented
through the provincial government under the following
conditions:
The provincial government has the technical capability
as determined by the participating agency concerned;
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The provincial government complied with the

requirements of the Good Financial Housekeeping for
the FY2014 Assessment;
The provincial government has no unliquidated funds to
participating agency beyond the reglamentary period
based on existing COA rules and regulations; and
The city or municipal local government agrees to have
the project implemented by the provincial government,
as attested to by a letter signed by the mayor and the 3
CSO signatories; and
Sangguniang Panlalawigan authorization to the LCE to
enter into a MOA with the participating agency in
accordance with Sec. 22 (c) of the Local Government
Code.

4.4.10. If a BuB project, except those mentioned in Section

4.3.4, cannot be implemented by the city/municipal
government or the provincial government or by
communities, it will be implemented by the concerned
participating agency.
4.4.11. Agencies and/or LGUs may enter into partnership with
NGOs or POs for the implementation of BuB Projects,
subject to the guidelines provided under the Commission
on Audit Circular No. 2007-001, R.A. 9184 and its IRR and
to GPPB Resolution No. 012-2007.
4.4.12. Communities at the barangay level may also manage
and implement BuB Projects provided that they have had
prior experience in implementing projects through a
Community
Driven
Development
(CDD)
approach.
Specifically, these communities must have:
Capacity to conduct a participatory situation analysis,
identify priority projects through participatory barangay
assemblies, and prepare project proposals; and/or
Prior
experience
in
undertaking
community-led
procurement, in managing public funds using a
community finance management system led by
community volunteers duly recognized by the barangay
LGU through barangay assembly resolution, and in
community monitoring of project implementation using
participatory processes of information disclosure.
Community implementation of BuB projects will be allowed
in LGUs that have unliquidated funds to participating
agencies
Communities with no prior experience in implementing
projects through a CDD approach may still be eligible to
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implement BuB projects provided that technical assistance

is provided by DSWD and the city/municipal LGU.
4.4.13. In case of conflict between agency specific guidelines
and the provisions on project implementation under this
Circular, the provisions under this Circular shall prevail.
4.5. Provision of LGU counterpart funding
4.5.1. Municipalities must provide a cash counterpart for the BuB
program equal to a percentage of their FY2014 Local
Development Fund (LDF). This must be sourced from LGU
funds, but not necessarily from the LDF.
4.5.2. The percentage shall be based on the proportion of the BuB
and NCDDP funding to 20% of the LGU Internal Revenue
Allotment, or the LDF, as follows:
Ratio of approved BuB
budget to the FY2014 LDF
Up to 100% of the LDF
Over 100% up to 150% of
the LDF
Over 150% of the LDF

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Required Cash Counterpart

for Municipalities
10% of the LDF amount
15% of the LDF amount
20% of the LDF amount

4.5.3. Cities are required to provide a cash counterpart of 40% of

the total amount of their approved BuB projects.
4.5.4. Counterpart funds required need not be allocated on a per
project basis. Identified counterpart funds may be used to
fund projects that are 100% funded by the local
government unit, as long as the project has been identified
through the LPRAT or Enhanced LDC participatory planning
process.
4.5.5. The required LGU counterpart is indicated in Annex A of
JMC 5. However, this figure may have changed based on
the final approved projects in the FY2015 General
Appropriations Act. DBM regional offices may recompute
the counterpart requirement for each LGU and inform the
RPRAT and all concerned LGUs of any changes.
4.5.6. Given changes in the list of BuB projects approved in the
2015 BuB, LPRATs may re-plan the use of their required LGU
counterpart to adjust to changes in the final list of projects
to be implemented funded by national government.
4.5.7. LGUs shall submit to the RPRAT a list of the counterpart
funding they are providing to BuB on or before 30
December 2014, using the template provided in Annex B.
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4.5.8. The RPRAT shall validate the provision for counterpart

funds and the implementation of projects funded by this.
Guidance shall be provided by the PMO.
4.6. Project Monitoring
4.6.1. LPRATs shall meet quarterly to discuss the progress of BuB
projects.
LGUs may utilize their funds to support the
transportation and travel of CSO representatives to the
LPRAT meetings, monitoring activities and other related
activities.
LGUs
may
check
the
OpenBuB
portal
(www.openbub.gov.ph) to check the latest quarterly
report on project implementation as reported by
national government agencies.
MLGOOs are directed to submit quarterly reports on the
conduct of the LRPAT meetings using a template to be
provided by the DILG Central Office.
Reporting by LGUs
4.6.2. LGUs shall submit quarterly reports on the progress of their
LGSF projects to DILG and DBM (for infrastructure projects)
and to NAPC (for Integrated Community Food Production
projects) using templates to be provided by these agencies.
4.6.3. LGUs shall also submit progress reports and other
documents as may be required for projects funded by
participating agencies but implemented by the local
government.
Reporting by NGA Regional
4.6.4. Agency Regional Offices (AROs) shall submit quarterly
progress reports through the online reporting system
established by DBM on or before the following dates:
February 7 - for the 4th quarter report and consolidated
annual report of the previous year
April 21 - 1st quarter report
July 21 - 2nd quarter report
October 21 - 3rd quarter report
4.6.5. Agency Central Offices (ACOs) shall validate the ARO
quarterly progress reports through the online reporting
system within three weeks of the ARO online submission.

13

40
587
588
589
590
591
592
593
594
595
596
597
598
599
600
601
602
603
604
605
606
607
608
609
610
611
612
613
614
615
616
617
618
619
620
621
622
623
624
625
626
627
628
629
630
631
632
633
634
635

4.6.6. The progress status reports submitted by the agencies will

be publicly viewable on the OpenBuB Portal six weeks after
the end of every quarter.

41

14

42

Monitoring
4.6.7. The RPRAT shall meet every quarter to review the
submission of LGU reports and the status of project
implementation.
The RPRAT Chair shall ensure that all NAPC Provincial
Focal Persons are invited to the RPRAT meetings. Their
transportation expenses shall be reimbursed. Funding
shall be sourced from the RPRAT mobilization fund.
The RPRAT shall conduct field validation of a sample of
projects. LGUs that do not submit reports shall be
prioritized for validation.
Additional guidelines on the field validation of projects
will be provided by the PMO.
4.6.8. A citizen-led monitoring of the implementation of BuB
projects shall be undertaken by NAPC through local CSO
partners. The results of this monitoring effort shall be
reported to the BuB oversight agencies.
NAPC shall also coordinate and seek to harmonize other
citizen led monitoring efforts of BuB projects.
4.6.9. The RPRAT may blacklist any LGU from participating in next
year's BuB Program and file the necessary administration
and/or criminal cases with the appropriate agency for the
following reasons:
non-completion
or
grossly
unsatisfactory
implementation of projects for which funds have been
released to the LGU
violation of the R.A. 9184 or the Procurement Act
Use of the 3% M&E fund
4.6.10. Funding support for the monitoring and evaluation of
BuB projects has been provided to participating agencies in
the 2015 General Appropriations Act. These funds can be
used for:
Engagement of personnel (consultants, contract-ofservice or job orders) to assist in the provision of
technical assistance to local governments and in the
implementation, monitoring and evaluation of the BuB
projects
Conduct of activities in support of the implementation,
monitoring and evaluation of BuB projects, such as
coordination meetings/workshops, capacity building,

43
636
637
638
639
640
641
642
643
644
645
646
647
648
649
650
651
652
653
654
655
656
6575.
658
659
660
661
6626.
663
664
665
666
6677.
668
669
670

4.7.

technical assistance, field validation, and other related

activities
Engagement of 3rd party external monitors to monitor
the implementation of the BuB Projects.

Grievance Redress Mechanism (GRM)

4.7.1. Grievances, issues and concerns emanating from the LGUs,

local CSOs, regional offices of participating agencies and
other local officials must first be raised with the RPRAT. The
RPRAT may constitute a GRM Committee composed of an
equal number of government and CSO representatives to
handle such concerns.
4.7.2. Grievances, issues and concerns that are not resolved at
the RPRAT level shall be forwarded to NAPC through a
formal complaint that may be sent through regular or
electronic mail. NAPC can be reached through:
Telephone: (02) 3825560
Email Address: BuB.helpdesk@yahoo.com.ph
EFFECTIVITY
This circular shall take effect immediately.
REPEALING CLAUSE. All provisions of existing issuances that are
inconsistent with this Circular are hereby repealed/amended
accordingly.
EFFECTIVITY. This circular shall take effect immediately.
For compliance.

671
672
CORAZON JULIANO-SOLIMAN
673ROCAMORA
674
Secretary, DSWD
675Convenor, NAPC
676

JOSE

ELISEO

M.
Lead

677
678
679
680DILG

44
45

FLORENCIO B. ABAD
Secretary, DBM

MAR ROXAS
Secretary,

15