1. Sustainable urban Development and climate change indicators
Thank you.
Ramon Paul M. Falcon
Social Development Staff
National Economic and Development Authority

2. Outline
Philippine Development Plan (PDP) and Ambisyon Natin 2040
National Spatial Strategy (NSS)
National Framework Strategy on Climate Change
National Urban Development and Housing Framework (NUDHF)
Philippine Sustainable Development Goals
Low Emission Strategies in the PDP
SDGs – PDP Results Matrix Indicators

3. Vision for the Philippines by 2040
AmBisyonNatin2040
Vision for the Philippines by 2040
A prosperous middle-class society where no one is poor. People enjoy long and healthy lives and are smart and innovative. The country is a high-trust society where families thrive in vibrant, culturally diverse, and resilient communities.
In other words, we envision the Philippines to be a “prosperous middle-class society where no one is poor. People enjoy long and healthy lives and are smart and innovative. The country is a high-trust society where families thrive in vibrant, culturally diverse, and resilient communities”.
NEDA

4. PDP Framework
Given this vision and the 0 to 10 Socioeconomic Agenda, I will walk you through the strategic framework of the Philippine Development Plan (PDP)

5. Matatag, maginhawa at panatag na buhay
To Lay down the Foundation for inclusive growth, A high-trust society, and a globally competitive knowledge economy
“MALASAKIT”
Enhancing the
social fabric
“PAGBABAGO”
Inequality-Reducing transformation
“PATULOY NA PAG-UNLAD”
Increasing growth potential
Expand
economic
opportunities
Increase access
to economic opportunities
Reduce vulnerability of individuals
Accelerate
human capital
development
Ensure people-centered, clean, and efficient governance
Pursue swift and fair administration of justice
Promote Philippine culture and values
Maximize demographic
dividend
Promote
technology
adoption
Stimulate
innovation
The objective of the plan is that by the end of 2022, more Filipinos will be closer to achieving their AmBisyon for a “matatag, maginhawa at panatag na buhay.” The PDP will therefore aim to lay down a solid foundation for more inclusive growth, a high-trust and resilient society, and a globally competitive knowledge economy. The strategies fall under the three major pillars of “Malasakit,” “Pagbabago,” and “Patuloy na Pag-unlad”.
<CLICK> Enhancing the social fabric (Malasakit). The aim is to regain the peoples’ trust in public institutions and cultivate trust in fellow Filipinos. Public offices will be people-centered, efficient and clean (Chapter 5), while administration of justice will be swift and fair (Chapter 6). Filipinos will be more aware of, and will learn to value, the country's diverse cultures and shared heritage (Chapter 7).
<CLICK> Inequality-reducing transformation (Pagbabago). For each economic sector, this means more opportunities for growth of output and income; lagging sub-sectors and economic groups like small farmers and fisherfolk, and MSMEs, will benefit (Chapters 8 and 9) . Individuals and people groups will have more options to develop their full potential (Chapter 10) and vulnerability of individuals will be reduced (Chapter 11). Communities will be more resilient in line with the new urban agenda of integrated neighborhoods and sustainable communities. (Chapter 12).
<CLICK> Increasing potential growth. Potential growth can be further enhanced by reaching for and harvesting the demographic dividend (Chapter 13). Also, the foundations for a knowledge economy is needed, given that a vibrant knowledge economy will propel the country on a higher growth path, since it produces higher value output and is more resilient to geoclimatic shocks (Chapter 14).
<CLICK> Enabling and supportive economic environment. More inclusive growth will be achieved with an enabling and supportive economic environment. Macroeconomic stability will be maintained; fiscal prudence will be observed; strategic trade policy will be implemented (Chapter 15). Policies, laws and regulations will be reviewed and measures will be undertaken to enhance market competition (Chapter 16).
<CLICK> Foundations for sustainable development. All these will be underpinned by ensuring national security against internal and external threats (Chapter 17). At the same time, territorial integrity and sovereignty will be upheld and protected (Chapter 18). The next six years will be characterized as the “golden age of infrastructure” in the Philippines (Chapter 19). An important partner of development is the environment and natural resources (ENR) sector, and maintaining its integrity is crucial in the Plan as we need to think long-term (Chapter 20).
Migration and development. This PDP gives deliberate attention to the special circumstances of Overseas Filipinos and their families, in pursuit of the national policy to empower Overseas Filipinos towards inclusive and sustainable development.
For more details of the PDP , an electronic copy is available at the NEDA website for download.
IMPLEMENT Strategic trade and fiscal policy, MAINTAIN macroeconomic stability, PROMOTE competition
Ensure peace and security
Accelerate strategic infrastructure development
Ensure safety and build resilience
Ensure ecological integrity, clean and healthy environment

6. THE PHILIPPINES BY 2022
The Philippines will be an upper middle income country. The GDP growth is expected to strengthen further to 7-8%. Per capita income will increase from USD 3,550 in 2015 to at least USD 5,000 in 2022.
Overall poverty rate will decline from 21.6% to 14.0% in 2022 – equivalent to lifting about 6 million Filipinos out of poverty.
By the end of 2022, we expect that more Filipinos will be closer to achieving their AmBisyon to have a “matatag, maginhawa at panatag na buhay.”
With the right policies and development priorities guided by the Duterte Administration’s 0 to10-point Socioeconomic Agenda, the Philippines will be an upper middle income country by Within the medium-term, the GDP growth is targeted to strengthen further to 7-8 percent, in real terms, expanding the economy by about 50 percent from its base condition in With this, per capita income is expected increase from USD 3,550 in 2015 to at least USD 5,000 in 2022.
It is not enough for the macro economy to grow but growth should be more inclusive in terms of lower poverty incidence, particularly in the rural areas.
If our GDP growth targets are met, and if these benefit the poor, that is, at least there is distribution-neutral growth, and if population growth is kept to 1.6 percent per year, with inflation at 3 percent and poverty line inflation at 4 percent yearly, then, we can bring the overall poverty rate from 21.6 percent to 14 percent in 2022.
Moreover, the unemployment rate is targeted to decline from the current 5.5 percent to 3-5 percent in 2022.
The unemployment rate will decline from the current 5.5% to 3-5%. 6

7. National Spatial Strategy (NSS)
Sets the direction of future growth recognizing population, geography and the role of cities as engines of economic growth, with infrastructure providing efficient connectivity between and among urban and rural communities
Pursuant to the realization of inclusive development, the Plan espouses a National Spatial Strategy that sets the direction of future growth. We recognize population, geography and the role of cities as engines of economic growth. We will design infrastructure that will provide efficient connectivity and create networks of sustainable urban and rural communities, consistent with our long-term vision.

8. PDP 2017-2022 Chapter 12: Building Safe and Secure Communities
With that background, we now proceed to what the blueprint for safe and secure communities for the next six years. As explained in the PDP, “The quality of shelter and the kind of communities where people live can be both a source of vulnerability and a means to enhance development opportunities and improve human development outcomes.”

9. Strategies
Develop integrated neighborhoods and sustainable communities particularly for low-income households
Intensify implementation of alternatives and innovative solutions to address housing needs
Strengthen decentralization of housing and urban development interventions
Adopt viable land acquisition approaches and fast-track the inventory of lands for socialized housing
In Chapter 12 of the PDP, we have eight (8) key strategies:
Develop integrated neighborhoods and sustainable communities particularly for low-income households
Intensify implementation of alternatives and innovative solutions to address housing needs
Strengthen decentralization of housing and urban development interventions
Adopt viable land acquisition approaches and fast-track the inventory of lands for socialized housing

10. Strategies
Mainstream program convergence budgeting in housing and resettlement, and innovative housing finance modalities
Strengthen partnerships with stakeholders
Adopt a community-driven development approach
Strengthen housing as a platform to reduce poverty and improve social outcomes
Moreover, we strategize the following:
5. Mainstream program convergence budgeting in housing and resettlement, and innovative housing finance modalities. Along these lines, we shall promote a budget planning process that includes social preparation, shelter provision, utilities and infrastructure
6. Strengthen partnerships with stakeholders (e.g., national government, local government, private sector, civil society and communities).
7. Adopt a community-driven development approach in shelter provision towards safe and secure communities. And,
8. Strengthen housing as a platform to reduce poverty and improve social outcomes. Here, we shall link housing programs with other social development programs (health, education, nutrition, social protection) to maximize the multiplier effect of housing provision as a means to reduce poverty, generate jobs and employment, and spur downstream economic activities.

11. Better, Greener, Smarter Cities in an Inclusive Philippines
In 2016, the Habitat III Philippine National Report presents a New Urban Agenda. The theme of the agenda is Better, Greener, Smarter Cities in an Inclusive Philippines— reflective of the aspirations of millions of Filipinos for the future of their cities.
Better Cities are globally competitive, economically vibrant, and livable.
Greener Cities are environmentally sustainable, climate resilient, and safe.
Smarter Cities are connected, physically, spatially and digitally.
An Inclusive Philippines is equitable, participatory, and provides universal access to quality basic services.
It safeguards children, women, the elderly people, and persons with disability.

12. National Framework Strategy on Climate Change 2010-2022

13. NATIONAL URBAN DEVELOPMENT AND HOUSING FRAMEWORK 2017–2022
The NUDHF adopts the country vision on urban development, as articulated in the Philippine New Urban Agenda: Better, Greener, Smarter Urban Systems in a More Inclusive Philippines.
Key Framework Principles: 1. Urbanization as catalyst for inclusive growth
2. Climate change resilience as a base for spatial structuring and sectoral development
3. Spatially and thematically integrated settlements within coherent and efficient urban systems and forms across scales
4. Urban areas as accessible platforms for social and economic opportunity, cultural expression, and innovation
5. People’s participation and empowerment as foundations of urban governance, facilitating sustainable resource use, planning, management, and finance
6. Sustainable urban environment

14. Intended Nationally Determined Contributions (INDCs)
Philippines submission of the to Intended Nationally Determined Contributions (INDCs) to the United Nations Framework Convention on Climate Change (UNFCCC) conveying the country’s intention to reduce GHG (CO2e) emissions by 70% by 2030 relative to its projected business-as-usual (BAU) GHG emissions
The reduction of CO2e will come from energy, transport, waste, forestry and industry sectors
Conditioned to the provision of means of implementation (i.e. finance, capacity building and technology)
The Philippines contribution to the global greenhouse gas (GHG) emissions remains negligible compared to those emanating from developed countries which already have historical obligations and developing countries like China and India. Nevertheless, it is the collective contribution from low emitting countries, like the Philippines, that would in fact enhance the support for higher ambition of GHG reduction.
The country’s share is only around 0.31% of the world total emission in 2010 which grows annually on the average of 3.25% for the past 20 years ( ).
Source: European Commission JRC/PBL, EDGAR as cited in the briefer on GHG Emissions At A Glance prepared by the Senate Economic Planning Office (SEPO) 
The country’s INDC
Commits the country to reduce green house gas emissions in the context of national priorities, circumstances and capabilities
Calls for shift towards a low carbon development pathway
Calls for the implementation of mitigation options as a function of adaptation
Calls for the provision of means of implementation (i.e., finance, capacity building and technology) to implement the INDC

15. Sectoral Emissions
This slide provides a glimpse of the emission trends, which serves as guide in the emission reduction committed to the INDC.
As you can see in the figure, energy is the sector with the highest emission, followed by agriculture. Transport ranks 3rd. The forestry sector remains to be the sink that sequester carbon emissions.
Source: USAID B-LEADERS Philippines Mitigation Cost-Benefit Analysis (November 2015)

16. Global Greenhouse Gas (GHG) Emission Challenges in the INDC sectors
Forestry
Transport
Energy/Industry
Waste
7.1 million ha unproductive, denuded, and degraded forests that requires rehabilitation
continued illegal logging/agro-forest and mangrove harvesting
forest conversion for other uses
growing number of road vehicles, thus increased fuel consumption
traffic congestion leading to higher carbon emissions from cars
poor road/infra quality resulting to affecting transport network efficiency
Increasing consumption of fossil fuel for electricity production, industry/processing activities
Low compliance of LGUs with the EWSMA
Only 31.28% of barangays are covered by SWM facilities
Only 31% of barangays are covered by MRFs
Existing illegal disposal sites
Given the emissions and the need to achieve the committed emission reduction, among the challenges that needs to be address in the agriculture, energy, transport, industry, forestry and waste sectors are as follows:
For the forestry major challenge is the 7.1 million ha unproductive, denuded, and degraded forests that requires rehabilitation
For the energy and industry sectors, the following are still needed to be addressed:
increasing consumption of fossil fuel for electricity production, cement manufacturing and industrial processes. For coal alone, the 2016 consumption was recorded at 24,794 million metric tons (MT) for power generation (19,386MMT), cement manufacturing (3,892MMT) and industrial processes (1,515MMT) (Source: DOE)
On the other hand, the transport sector still faces the following gaps:
Growing number of road vehicles, thus increased fuel consumption. The total number of motor vehicles has significantly increased from 2.1 million in 2013 to about 2.5 million in 2015 (Source: SER, 2015)
Traffic congestion leading to higher carbon emissions from cars (particularly in cities and metropolitans)
Lastly, the gaps of the waste sector are:
Low compliance of LGUs with the Ecological Solid Waste Management Act
a % of barangays are covered by SWM facilities
b % of barangays are covered by MRFs
Existing illegal disposal sites

17. Low Emission Strategies in the PDP 2017-2022

18. Overall Strategic Framework20
While we are still in the process of finalizing our first Nationally Determined Contribution (NDC), strategies to achieve the mitigation commitments are already very much espoused in both the National Climate Change Action Plan (NCCAP) and the Philippine Development Plan (PDP).
In this regard, we believe that the implementation of the NDC can be an opportunity to contribute in the achievement of the country’s Long Term Vision or Ambisyon Natin 2040.
In fact, 6 chapters of the PDP promotes low carbon strategies.

19. Low Carbon Strategies: Agriculture
Enhance capacity of small farmers and fisherfolk to adopt better and new technologies
Strengthen the extension system for the promotion of good farming and fishery practices
Chapter 8: Expand economic opportunities in agriculture, fisheries and
forestry
Provide incentives for green manufacturing to improve the adoption of energy efficient technologies
Fully implement the Green Jobs Act to promote green growth, blue economy and innovation
Increase access of MSMEs and cooperatives to innovative, appropriate and cost-effective technologies
Set up a National Quality Infrastructure system as a legislative agenda to harmonize standardization, metrology, testing analysis, quality management, certification, and accreditation
Chapter 9: Expand economic opportunities in Industry and Services
Recognizing the impacts of the climate changes and disasters on the productivity and performance of the agriculture, fisheries and forestry sectors, the following measures to improve its resilience from disasters and climate change have been identified under Chapter 8. These strategies include construction of climate-resilient facilities, provision of capacity building to farmers and fisherfolk, and development and adoption of climate resilient varieties, practices. and technologies.
Chapter 9 takes into consideration low carbon growth and the need to promote climate resilience to increase competitiveness and productivity in industry and services sector. This can be achieved through the provision of incentives and increasing access and adoption of low carbon technologies.

20. Low Carbon Strategies: Science and Technology
Develop capabilities and maximize the use of core and emerging technologies that include both climate change adaptation and mitigation
Establish and promote innovation hubs on climate change
Chapter 14: Leverage science, technology and innovation
Chapter 14 seeks to enhance capacity for knowledge and technology generation, acquisition and adoption for low carbon development through the following strategies:
engaging in more collaborative R&D activities and invest in infrastructure buildup to develop its capabilities and maximize the use of core and emerging technologies such as in energy, agriculture, industry sectors and climate change mitigation.
Establishing and promoting innovation hubs and other similar mechanisms. The hub will provide a platform for sharing technologies, lessons and best practices including mitigation.

21. Low Carbon Strategies: Transport
Chapter 19: Infrastructure Development
Transport
Maximize the use of DPWH Design Guidelines, Criteria
and Standards 2015, which incorporates resilient design
Strictly implement the Green Building Code
Implement road-based transport initiatives, such as environmentally
sustainable urban transport systems
Energy
Expedite the implementation of remaining policy mechanisms under the Renewable Energy (RE) Act of 2008
Harmonize the transmission development plan with RE targets
Encourage RE development in missionary areas
Strictly monitor compliance to the Guidelines for Maintaining the Share of Renewable Energy in the Country, and DC , Promulgating the Framework for the Implementation of Must Dispatch and Priority Dispatch of Renewable Energy Resources in the WESM
Continue the implementation of the energy efficiency and conservation (EEC) program
The Chapter highlights the need to ensure the use of existing building guidelines and promotion of resource use efficiency and environmentally friendly designs and technologies in the transport sector.
Also, under energy sector, the strategies focus on strengthening the implementation of the Renewable Energy Act and the energy efficiency and conservation (EEC) program.

22. Low Carbon Strategies: ENR
Sustain the rehabilitation of degraded forestlands including reforestation efforts
Identify technological and research priorities and capacity needs for low carbon development
Promote environmentally-sustainable transport
Promote climate-smart structures and designs
Develop database to measure emission reduction per sector
Promote sustainable consumption and production
Chapter 20: Ecological Integrity Ensured and Socio-economic Conditions of Resource-based Communities Improved Through Sustainable Integrated Area Development
Finally, under Chapter 20, several strategies have been identified to support the mitigation and adaptation targets in the NDC. Strategies focusing on mitigation include the rehabilitation and reforestation, and promotion of low carbon practices, technology and designs.

23. Sustainable Development Goals (SDGs)

24. The Philippine Development Plan and the 2030 Agenda
Hand in hand, the Philippine Development Plan, the Ambisyon 2040 vision, and the Global 2030 Agenda also known as the Sustainable Development Goals (SDGs), will be pursued.
Now here are the areas wherein the 17 SDGs can be located in the PDP. As we can see, the desired outcomes of the global development agenda and the PDP coincide.
All of the strategies under the PDP will contribute to the reduction of poverty (SDG 1) and hunger (SDG2) among Filipinos. The Plan’s strong emphasis on enhancing the social fabric and reducing inequality responds to SDG 10 as the goal “calls for reducing inequalities in income as well as those based on age, sex, disability, race, ethnicity, origin, religion or economic or other status within a country. ” SDG 8, which is on ensuring good jobs and economic growth, is addressed by the PDP chapter on expanding economic opportunities and increasing access to economic opportunities.
SDG 17 talks about strengthening the means of implementation and revitalizing partnerships for sustainable development, particularly through mobilization of resources (domestic and international), enhancing development and access to technology, capacity building, trade, and other systemic issues (policy coherence, multistakeholder partnerships, and data, monitoring and accountability). Many of these concerns are addressed by the PDP’s section on “Enabling and supportive economic environment” which looks at addressing macroeconomic stability; ensuring fiscal prudence; implementing strategic trade policy (Chapter 15); and reviewing policies, laws and regulations and undertaking measures to enhance market competition (Chapter 16). Other components of this SDG are found in other sections of the PDP. For instance the we also have a section on advancing technology adoption and stimulating innovation.
SDGs 3 (on health), 4 (education), and 5 (gender equality) are addressed by our chapters on human capital development and social protection (reducing vulnerabilities). We also have a section on peace and security which covers SDG 16 (peace and justice), as well as a section on infrastructure development which relates well with SDGs 9 (innovation and infrastructure), 6 (clean water and sanitation) and SDG 11 (Ensuring that our cities and human settlements are inclusive, safe, resilient and sustainable).
SDGs 13 (Climate Action), 14(Life Below Water) and 15 (Life on Land) are given focus on the ecological integrity strategy of the overall PDP framework, together with SDG 12 (Responsible Consumption) and 7 (Renewable Energy).

25. Philippine Sustainable Development Goals
Given the strategies discussed earlier, the following are the SDG indicators adopted in the PDP-RM.

26. Initial List of Philippine SDG Indicators
17 Goals
97 Targets
155 Indicators
PSA Board Resolution No. 9 Series of 2017 “Approving and Adopting the Initial List of Sustainable Development Goals for Monitoring in the Philippines”

27. SDG 11 Sustainable Cities and Communities
Target 11.1: By 2030, ensure access for all to adequate, safe and affordable housing and basic services and upgrade slums
Proportion of urban population who are informal settlers
Target 11.5: By 2030, significantly reduce the number of deaths and the number of people affected and substantially decrease the direct economic losses relative to global GDP caused by disasters, including water related disasters with a focus on protecting the poor and people in vulnerable situations
Number of deaths, missing persons and directly affected persons attributed to disasters per 100,000 population

28. SDG 11 Sustainable Cities and Communities
Target 11.6: By 2030, reduce the adverse per capita environmental impact of cities, including by paying special attention to air quality and municipal and other waste management
Percentage of highly urbanized and other major urban centers within ambient air quality guidelines value increased

29. SDG 13 Climate Action
Target 13.1: Strengthen resilience and adaptive capacity to climate-related hazards and natural disasters in all countries
Number of deaths, missing persons and directly affected persons attributed to disasters per 100,000 population
Number of countries that adopt and implement national disaster strategies in line with the Sendai Framework for Disaster Risk Reduction
Proportion of local governments that adopt and implement local disaster risk reduction strategies in line with national disaster risk reduction strategies

30. SDG 13 Climate Action
Target 13.2: Integrate climate change measures into national policies, strategies and planning
Number of countries that have communicated the establishment or operationalization of an integrated policy/strategy/plan which increases their ability to adapt to the adverse impacts of climate change, and foster climate resilience and low greenhouse gas emissions development in a manner that does not threaten food production (including a national adaptation plan, nationally determined contribution, national communication, biennial update report or other)

31. Sustainable Development Goals (SDGs) and Philippine Development Plan – Results Matrix (PDP-RM) Indicators
Given the strategies discussed earlier, the following are the SDG indicators adopted in the PDP-RM.

32. SDG Indicators and PDP-RM Indicators
Sustainable Development Goal (SDG)
Targets
Philippine Development Plan – Results Matrix (PDP-RM) Indicators
Goal 7. Ensure access to affordable, reliable, sustainable and modern energy for all
7.2 By 2030, increase substantially the share of renewable energy in the global energy mix
Chapter 19: Accelerating Infrastructure Development
Renewable Energy Capacity Increased, MW
7.3 By 2030, double the global rate of improvement in energy efficiency
Energy intensity (primary energy) reduced, in tons of oil equivalent per million peso (TOE/PhP million)
Goal 9. Build resilient infrastructure, promote inclusive and sustainable industrialization and foster innovation
9.1 Develop quality, reliable, sustainable and resilient infrastructure, including regional and trans-border infrastructure, to support economic development and human well-being, with a focus on affordable and equitable access for all
Passenger and freight volumes, by mode of transport

33. SDG Indicators and PDP-RM Indicators
Sustainable Development Goal (SDG)
Targets
Philippine Development Plan – Results Matrix (PDP-RM) Indicators
Goal 9. Build resilient infrastructure, promote inclusive and sustainable industrialization and foster innovation
9.1 Develop quality, reliable, sustainable and resilient infrastructure, including regional and trans-border infrastructure, to support economic development and human well-being, with a focus on affordable and equitable access for all
Chapter 10: Accelerating Human Capital Development
Government expenditure for higher education research, development, and innovation as a percentage of GDP increased (%)
9.5 Enhance scientific research, upgrade the technological capabilities of industrial sectors in all countries, in particular developing countries, including, by 2030, encouraging innovation and substantially increasing the number of research and development workers per 1 million people and public and private research and development spending
Chapter 14: Vigorously Advancing Science, Technology, and Innovation
Research and development expenditure as a proportion of GDP

34. SDG Indicators and PDP-RM Indicators
Sustainable Development Goal (SDG)
Targets
Philippine Development Plan – Results Matrix (PDP-RM) Indicators
Goal 11. Make cities and human settlements inclusive, safe, resilient and sustainable
11.1.1: Proportion of urban population who are informal settlers
Chapter 12: Build Safe and Secure Communities
Proportion of urban population living in informal settlements decreased
11.6: By 2030, reduce the adverse per capita environmental impact of cities, including by paying special attention to air quality and municipal and other waste management
Chapter 20: Ensuring Ecological Integrity, Clean and Healthy Environment
Percentage of highly urbanized and other major urban centers within ambient air quality guidelines value increased

35. SDG Indicators and PDP-RM Indicators
Sustainable Development Goal (SDG)
Targets
Philippine Development Plan – Results Matrix (PDP-RM) Indicators
Goal 15. Protect, restore and promote sustainable use of terrestrial ecosystems, sustainably manage forests, combat desertification, and halt and reverse land degradation and halt biodiversity loss
15.1: By 2020, ensure the conservation, restoration and sustainable use of terrestrial and inland freshwater ecosystems and their services, in particular forests, wetlands, mountains and drylands, in line with obligations under international agreements
Chapter 20: Ensuring Ecological Integrity, Clean and Healthy Environment
Forest area as a proportion of total land area

36. Sustainable urban Development and climate change indicators
Thank you.
Ramon Paul M. Falcon
Social Development Staff
National Economic and Development Authority