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Even when participation actually takes place, its effect on governance may be small. The local development council is dubbed the “mother of local special bodies,” where the thrusts of government could be debated and resolved between government and civil society.45 The provincial development council is at the top of the heap.46 In a nationwide survey, 30 percent of the secretariat heads of these councils say that representatives of civil society organizations make important inputs to the plan, much higher than those who say that representatives of the two central regulatory agencies do so (15 percent and 19 percent). They also welcomed the large representation of civil society organizations, as it increases public awareness about the development plan. In fact, though, the performance of such organizations may be a mixed bag. In one province, these representatives supported the governor’s recommendation to keep the provincial development fund rationally distributed, unlike pork barrel. But in another, their representatives were concerned with ensuring their pork barrel share.47
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