Professional Documents
Culture Documents
ACKNOWLEDGEMENT
HLURB would like to acknowledge the assistance of the following in the preparation of this
Guidebook for their active participation in the various consultations conducted nationwide:
iii
ACRONYMS
ACRONYM
ADSDP
AFMA
AIP
ARC
ATO
BAI
BAS
BFAR
BDP
CARP
CDP
CENRO
CLUP
CPDO
CZC
DAR
DBM
DILG
DENR
DPWH
FAO
FMB
FSDZ
GAM
GIS
GPS
HLURB
HUCs
ICCs
IEC
IPAS
IPRA
IPs
IRA
Km 2
LC
LCE
LDC
LDIP
LGU
LMB
LSA
LTO
MAO
MEO
v
DEFINITION
-
ACRONYM
DEFINITION
MGB
MMA
MPDO
MRF
MTPDP
MTPIP
MZO
NAMRIA
NEDA
NGAs
NGOs
NIPAS
NPAAAD
NPFP
NSO
NWRB
PAG-ASA
PAMB
PARO
PAWB
PCA
PENRO
PHIVOLCS
PLUC
PO
POPDEV
PPA
PPFP
PUD
RDIP
RDP
RLUC
RPFP
SAFDZ
SB
SMART
SP
SWOT
TOP
TWG
UNEP
vi
vii
INTRODUCTION
Land Use Planning Concepts
The first step in understanding Comprehensive Land Use Planning is knowing the basic concepts
associated with CLUP such as land, land use planning and land use plan:
Land
Land is viewed as a shared natural resource, much like air and water found therein, to
be conserved and cared for with due regard for its effect on society as a whole and for
the conditions in which it will be passed on to future generations.
Land is also viewed as property a private commodity which can be owned, used,
bought or sold for personal comfort and profit.
Both concepts are within the context of the Philippine constitution which protects a
persons right to own and use his/her property as well as permits government to impose
reasonable limitations on its use to protect public health, promote safety and general
welfare of the people.
Land Use Planning
Land use planning refers to the rational and judicious approach of allocating available
land resources to different land using activities, (e.g. agricultural, residential, industrial)
and for different functions consistent with the overall development vision/goal of a
particular locality.
It entails the detailed process of determining the location and area of land required for
the implementation of social and economic development, policies, plans, programs
and projects.
It is based on consideration of physical planning standards, development vision, goals
and objective, analysis of actual and potential physical conditions of land and
development constraints and opportunities.
Land use planning is done to meet the following objectives:
To promote the efficient utilization, acquisition and disposition of land and ensure
the highest and best use of land;
To direct, harmonize and influence discussions and activities of the private and
public sectors relative to the use and management of land;
To reconcile land use conflicts and proposals between and among individuals, private
and government entities relative to the present and future need for land;
To promote desirable patterns of land uses to prevent wasteful development and
minimize the cost of public infrastructure and utilities and other social services;
To conserve areas of ecological, aesthetic, historical and cultural significance.
Introduction
Introduction
The local plans shall have the following relationships to the other plans existing in the
country:
1. Provincial plans shall promote the goals and objectives provided for in the national
and regional plan and shall provide the guidelines for the preparation of city and
municipal plans.
2. The city and municipal Comprehensive Land Use Plans shall be consistent with
and supportive of the goals and objectives in the provincial plan and shall provide
the guidelines for the development of plans for parts of the city or municipality such
as the barangay.
3. The barangay plan and other area specific plans, such as heritage area plan,
ancestral domain plan etc., shall be consistent with the vision, planning goals
and objectives set forth in the city or municipal plan of which it forms part and
shall furthermore, provide the guide to plans of smaller scale such as neighborhood
or community.
All local plans shall be consistent with the existing national agency plans, i.e. Tourism Master
Plan, Forestry Master Plan, Medium Term Agricultural Development Plan, etc.
Further, all local plans shall conform with set national planning goals, policies, as well as planning
guidelines and standards promulgated by HLURB as much as practicable.
Introduction
PHYSICAL
FRAMEWORK AND
COMPREHENSIVE
LAND USE PLANS
NATIONAL (N)
(1)
NPFP
SOCIO-ECONOMIC
DEVELOPMENT
PLANS (DPs)
INVESTMENT
PROGRAMS (IPs)
(3)
MTPDP
(3)
MTPIP
National
Agency Plans
and Programs
REGIONAL (R/RD)
(1)
RPFP
RDP
RDIP
Regional
Agency Plans
and Programs
PROVINCIAL (P/PD)
CITY (C/CD)
(1)
PPFP
PCLUP
(2)
(4)
PCDP/CCDP
PDIP/CDIP
Provincial
Plans and
Programs
LOCAL (L/LD)
MUNICIPAL (M)
(2)
C/M CLUP
C/M CDP
LDIP
City/Municipal
Plans and
Programs
NOTES:
(1) PFP = (N/R/P) Physical Framework Plan
(2) CLUP = (P/C/M) Comprehensive Land Use Plan
(3) MTP = Medium Term Philippine (DPand IP)
(4) CDP = (P/C/M) Comprehensive Development Plan
Introduction
Legal Mandates
Comprehensive Land Use Planning is a constitutionally supported undertaking. The State
declares its land use policies and principles in terms of relation to national economy and
patrimony as well as its police power for the promotion of public health, public safety, public
interest, public order, and general welfare.
1987 Constitution
Article XIII, Section 1 :
The Congress shall give highest priority to the enactment of measures that protect and
enhance the right of all the people to human dignity, reduce social, economic, and political
inequalities, and remove cultural inequities by equitably diffusing wealth and political power
for the common good. To this end, the State shall regulate the acquisition, ownership,
use and disposition of property and its increments. (Underscoring supplied.)
The reason why the State should regulate the right to use property, among other rights, is
explained in another provision of the Constitution, to quote:
The use of property bears a social function and all economic agents shall contribute to
the common good. Individuals and private groups, including corporations, cooperatives,
and similar collective organizations, shall have the right to own, establish and operate
economic enterprises, subject to the duty of the State to promote distributive justice and
to intervene when the common good so demands. (Art. XII, Section 6)
Republic Act 7160
The Local Government Code of 1991 or Republic Act 7160 provides the mandate of LGUs on
local planning, legislation, implementation, including budgeting, and monitoring.
Section 16.
Every LGU shall exercise the powers expressly granted, those necessarily implied
therefrom, as well as powers necessary, appropriate or incidental for its efficient and
effective governance, and those which are essential for the promotion of the general
welfare. Within their respective territorial jurisdictions, local government units shall ensure
and support, among other things, the preservation and enrichment of culture, promote
health and safety, enhance the right of the people to a balanced ecology, encourage and
support the development of appropriate and self-reliant scientific and technological
capabilities, improve public morals, enhance economic prosperity and social justice,
promote full employment among their residents, maintain peace and order and preserve
the comfort and convenience of their inhabitants.
Section 20(c)
The local government units shall, in conformity with existing law, continue to prepare
their respective Comprehensive Land Use Plans enacted through zoning ordinances
which shall be the primary and dominant bases for the future use of the land resources
Introduction
(a) ...the powers of the HLURB to review and approve the Comprehensive Land Use
Plans of component cities and municipalities are hereby devolved to the province.
(e) Pursuant to LOI 729, S. of 1987, EO 648, S. of 1981 and RA 7279, the Comprehensive
Land Use Plans of provinces, highly-urbanized cities and independent component cities
shall be reviewed and ratified by the HLURB to ensure compliance with national standards
and guidelines.
(f) Pursuant to EO 392 S. of 1990, the Comprehensive Land Use Plans of cities and
municipalities of Metropolitan Manila shall be reviewed by HLURB to ensure compliance
with national standards and guidelines.
Republic Act 7279
The Urban and Development Housing Act (UDHA) or RA 7279 gives a clear-cut definition of a
Land Use Plan which the LGUs are mandated to adopt.
Section 3(k) of RA 7279 defines Land Use Plan as the rationale approach of allocating
available land resources as equitably as possible among competing user groups and for
different functions consistent with the development plan of the area and the program
under this Act. The extent of comprehensiveness and the focus of land use planning
process as well as the preparation of the CLUP document are defined within the bounds
of land resources by this provision of UDHA which must be consistent with the
development plan of the area.
The Housing and Land Use Regulatory Board (HLURB) is mandated by the following issuances
to formulate land use planning guidelines and standards:
Executive Order No. 648
Section 5, Article II
(a) To promulgate zoning and other land use control standards and guidelines which
shall govern land use plans and zoning ordinances of local governments
The Local Government Code of 1991
Section 468, 2, Article III, Chapter 3, Book III
(vii) Review the Comprehensive Land Use Plans and zoning ordinances of component
cities and municipalities and adopt a Comprehensive Provincial Land Use plan,
subject to existing laws
THE GUIDING PRINCIPLES:
This Guide advocates the principles of the Philippine Agenda 21 (PA21), which is the national
agenda for sustainable development. It outlines the integrating strategies for the countrys overall
sustainable development and identifies the intervention areas (Action Agenda) from the national
to the regional level, along with the corresponding implementing platforms and plans.
PA 21 envisions a better quality of life for all through the development of a just, moral, creative,
spiritual, economically-vibrant, caring, diverse yet cohesive society characterized by appropriate
7
Introduction
productivity, participatory and democratic process and living in harmony within the limits of the
carrying capacity of nature and the integrity of creation.
Sustainable development as defined in the PA 21 (1996) is harmonious integration of a sound
and viable economy, responsible governance, social cohesion and ecological integrity, to ensure
that development is a life-sustaining process.
PA 21 has five goal elements, as follows:
Poverty Reduction: Poverty is a central concern of sustainable development.
Consistent with this, PA 21 has a poverty reduction agenda that includes measures to
create an enabling economic environment for sustained and broad-based growth;
improve employment, productivity and income; and attain food security.
Social Equity: Social equity should mean allocation of resources on the bases of
efficiency and equity to achieve balanced development. Efficiency and equity mean the
channeling of resources to developing areas where greater economic benefits
accumulate and where there is greater need, distribution being dependent on the
practicality and urgency of needs.
Empowerment and Good Governance: Empowerment is a precondition of informal
choices. Good governance is a necessary precondition to empowerment, as
empowerment is to good governance. These two are a defining element of each other.
Peace and Solidarity: The cycle of poverty and conflict goes on as the costs of war
escalate in terms of various kinds of destruction while withholding funds for basic
services, resulting in more poverty and underdevelopment.
Ecological Integrity: In general, the path towards enhancing the integrity of the countrys
ecological domain will have to involve heightened and sustained implementation of
environmental laws, as well as the continued pursuit of resource conservation, and
environmental restoration/enhancement programs.
This Guide also promotes the following principles consistent with the planning and management
of resources provided for in the National Framework for Physical Planning (NFPP):
Food security - Utilizing the countrys land and water resources in a manner that provides
sufficient and affordable food products to all Filipinos of the present and future generations
through local production and/or importation.
Environmental stability and ecological integrity- Achieving environmental stability through
the observance of appropriate standards and ensuring ecological integrity through effective
natural resource management and balancing the demand of land using activities vis--vis
preservation of ecosystems. Ensuring the proper selection of a site to minimize the damage
both to the environment and human health. (Appropriate location principle)
Regional Urban Development- Encouraging the sustainable growth of cities and large towns
while complementing the growth of rural areas by adopting alternative development approaches.
Spatial Integration- Linking consumption and production areas to achieve physical and
economic integration through appropriate infrastructure systems.
Introduction
Equitable access to physical and natural resources- Ensuring equitable access to resources
through a just distribution of the countrys resources and by providing equal opportunities to all
Filipinos in the use and acquisition of land and other resources.
Private-public sector Partnership- Encouraging shared responsibility between the government
and the private sector in the development and management of the countrys
physical resources.
People Empowerment- Establishing pragmatic appropriate flexible and dynamic structures
or mechanisms that involve the participation of key stakeholders.
Recognition of the rights of indigenous people - Ensuring the Indigenous Peoples (IPs)
right to develop, control, and use lands within their ancestral domains.
Market orientation - Adopting the interplay of market forces within the framework of ecological
and intergenerational factors as a basic parameter in the allocation and use
of physical resources.
4 Major Land Use Policy Areas Comprehensiveness may be viewed as covering all the
four major land use components of the Land Use Policy Guidelines which form the National
Framework for Physical Planning, namely: 1) settlements development; 2) production land
use; 3) protection land use; and 4) infrastructure development.
Settlements
Production
Protection
Infrastructure
Local Governance - This Guide advocates that all three actors in governance, namely:
government (state), civil society, and the private sector are actively involved in the
Comprehensive Land Use Planning process. Good local governance allows for collaborative
partnerships among the local government, business, and civil society. Good governance is
characterized as sustainable, participatory, transparent, accountable, legitimate and acceptable
to the people, and promoting equity and equality.
Co-management Principle - Section 3 (i) of the Local Government Code provides that local
government units shall share with the national government the responsibility in the management
and maintenance of ecological balance within their territorial jurisdiction. Local governments
and the national government are therefore mandated by RA 7160 to act as co-managers of the
national territory and patrimony.
Gender-responsive Population and Development (POPDEV) Framework - The
integration of gender and explicit consideration of development (socio-economic, physical,
cultural, etc.) and population inter-relationships in the entire planning process plan formulation,
plan implementation, and monitoring and evaluation. The utilization of the POPDEV planning
9
Introduction
10
development agenda with the approved CLUP and to use the CLUP as basis for budget
preparation and fund sourcing initiatives.
The review shall be without prejudice to a yearly review of the various programs and projects
identified in the plan, to ensure attainment of the development vision/goals/objectives.
Volume 2
Volume 3
Introduction
12
13
Introduction
The CLUP
Towards the Improvement
of Quality of Life
Step 1
Step 2
Step 3
Step 4
Step 5
Step 6
Getting
Organized
Identifying
Stakeholders
Setting
the Vision
Analyzing
the Situation
Setting the
Goals and
Objectives
Establishing
Development
Thrusts and
Spatial
Strategies
Step 10
Step 9
Step 8
Step 7
Drafting
the Zoning
Ordinance
(ZO)
Preparing
the Land Use
Plan
Step 12
Monitoring,
Reviewing
and
Evaluating
the CLUP
and ZO
15
Step 11
Implementing Reviewing,
Conducting
the CLUP
Adopting and
Public
and ZO
Approving
Hearing
the CLUP
on the Draft
CLUP and ZO
and ZO
GETTING ORGANIZED
CLUP
STEP
GETTING ORGANIZED is an important first step to take before doing the actual plan
preparation activities. Anticipating and preparing for the resources that will be needed
for the planning activities will lead to the smooth implementation and accomplishment
of the planning outputs on time.
PURPOSE
To ensure that the needed resources for the planning activities are readily available.
To obtain the commitment, support, and participation of the local executives, Sangguniang
Bayan (SB)/Panglunsod (SP) members, Local Development Council (LDC), city/
municipal department heads and their staff, and the whole community to the
planning activities.
To establish the guiding framework and focus of the planning activities.
EXPECTED OUTPUTS
Proposal for CLUP preparation/updating (including work program and budget)
SB/SP resolution approving the proposal for the preparation of CLUP
Executive Order designating members of the planning team, Technical Working
Group (TWG), etc.
Defined roles/responsibilities of planning team, TWGs
Information and Education Campaign (IEC) Materials for Community awareness
and participation
STEPS
The Office of the City/ Municipal Planning and Development Coordinator (C/MPDC) will undertake
the following activities:
Note: The CPDO/MPDO is the office primarily concerned with the formulation of integrated
economic, social, physical, and other development plans and policies as per Sec. 476(b)(1)
and (5) of RA 7160 or the Local Government Code of 1991.
16
17
The Technical Working Groups (TWG)s will assist the Planning Core
Group in the following:
Conduct of sectoral / intersectoral analysis, validation and reports
Conduct of surveys, consultations/meetings, workshops
Integration/finalization of studies, research findings, and consultation/
survey outputs.
Suggested Composition of the TWGs:
Heads of local government departments,
Representatives of community groups/organizations (include gender
sensitive and sustainable development advocates), concerned national
government agencies,
Ancestral Domain Consultative Body representatives in an indigenous
peoples (IP) community, or where applicable,
President of the city/municipal chapter of the Liga ng mga Barangay and/or
Barangay Chairpersons of growth centers/priority development areas (as
needed),
Chairpersons of the concerned committees of the local sanggunian,
i.e. Committee on Land Use and Zoning, etc.),
Sectoral Committee Representatives
18
Decision to
prepare/update
CLUP
1
Discuss need to
prepare/update
CLUP
Stratategies
to undertake
planning
2
Asses available
resources
3
Prepare work
program, budget
work teams
CLUP Proposal
for approval
EO designating
members of
PTs/TWGs
5
Organize
Planning Team
6
Brief planning
Team
SB/SP
Resolution
approving
proposal
4
Present proposal
to local officials
Defined roles
and responsibilities
7
Disseminate
information to
general public
19
Community
awareness
20
M1
M7
M8
M2 M3 M4 M5 M6
Assumption: CLUP formulation will be done by the LGU Planning Team. Planning activities may be undertaken in 6 months to 1 year if LGU hires consultant.
1. Getting Organized
Getting endorsement/approval of SB/SP
Preparation of work program
Organization and briefing of planning team
2. Identifying stakeholders
Listing of stakeholders
Action planning
Information dissemination
3. Setting the Vision
Conduct of visioning workshops
Adoption of the vision and informing public of the adopted vision
4. Situation Analysis
Sectoral Studies and Physical/Land Use Studies
a. Base Map Preparation
b. Data Gathering and Land Use Surveys
c . Mapping of Results (Organizing results into maps, graphs, tables,
etc.)
d. Consultations/Validation Workshop
e. Needs/Issues analysis and projections
f. Cross-sectoral analysis and integration
5. Setting of Goals and Objectives
Goals and objectives formulation workshops
6. Establishing the Development Thrust and Spatial Strategies
7. Preparing the Land Use Plan
8. Drafting of Zoning Ordinance and other Development Controls
9. Conduct of Public Hearing
Conduct of public hearings/consultations
Refinement of draft CLUP and ZO
10. CLUP Review/Adoption and Approval
Endorsement for review to appropriate body
Conduct of review by appropriate body
Return of CLUP to LGU for refinement
Refinement of CLUP
SB/SP Adoption of Refined CLUP
Endorsement to SP/HLURB for Ratification/Approval
Ratification of SP/HLURB
ACTIVITY
Annex 1-1
WORKPROGRAM FOR CLUP AND ZO FORMULATION/REVISION
IDENTIFYING
STAKEHOLDERS
CLUP
STEP
PURPOSE
To identify the key stakeholders and to assess their knowledge, interests and concerns
related to the CLUP formulation, and how they might affect or be affected by the plan
To understand the relations between stakeholders and the real or potential conflicts
of interest and expectations between and among stakeholders
To develop an action plan for involving the stakeholders in the planning process
To interact more effectively with key stakeholders to get their support for the plan
preparation, plan implementation and monitoring
To avoid potential misunderstandings about and/or opposition to the plan.
21
EXPECTED OUTPUTS
List of identified stakeholders, their interests and related information
Action plan/strategies for stakeholders participation
Stakeholder support and commitment to the planning activities
STEPS
The following steps shall be undertaken by the Planning Team:
1. Conduct workshop/s to identify stakeholders to be involved in the planning
activities.
Participants to the workshop will include the Planning Team, the Local Development Council
(LDC) members and other committees that have been organized for the planning exercise.
It is best to have an independent facilitator to handle the workshops.
The basic steps followed in the workshop are described below.
1.1
1.2
1.3
Ask the members of each group to identify, list, and classify individuals and groups
who may have a stake in the CLUP.
The most effective way of doing this is to list as many stakeholders on a sheet of
paper. It may help to list them in rough order of importance. (There may be
changes in order of importance after the analysis)
Specific stakeholders can be identified from the following sectors:
22
23
1.4
Ask the workgroups to choose from the list of stakeholders those individuals,
groups, organizations and institutions who may be affected directly or indirectly,
positively or negatively, and write these choices on metacards for ease of sorting
and arranging.
1.5
Fill up a matrix that creates categories for stakeholders that will be directly
and indirectly affected in a positive or negative way by the plan. (As shown in
Table 2-1)
24
Interests
+ / - Effects
A. Directly Affected
B. Indirectly Affected
1.6
Prepare an action plan for approaching and involving each person or group.
Note:
A decision has to be made regarding involvement of the stakeholders, and the extent of
such involvement.
Refer to Annex 2-1 for the guide in conducting consultations in the preparation of CLUPs.
The community should be involved at the earliest planning stage to encourage ownership
of the plan. Though general community participation is not always possible, extensive
involvement may be facilitated through representation, focus group discussions, interviews,
surveys, and other innovative forms of indirect participation.
The action plan shall also include conflict resolution mechanisms to effectively solve
any animosities or conflicts that may arise among the groups or individuals in public
consultations. Problem solving processes and constructive handling of differing viewpoints
should be part of skills training for consultation managers and facilitators.
Knowing the participants beforehand could lead to a better consultation processes.
1.7
The IEC plan shall include detailed information on the plan preparation and
processes involved, conduct of consultation activities, and timelines for the
whole planning process so that stakeholder participation is maximized.
2. Implement the IEC Plan to ensure the early involvement of stakeholders in the
planning process.
FURTHER READING
HLURB, (2000), Planning Strategically, Chapter 4., Diliman, Quezon City
25
1
Conduct workshops to
identify stakeholders
affected by the CLUP
Objectives informed
List of interest groups/individuals
Action Plan/strategies for approaching
and involving stakeholders
2
Inform and solicit support and
commitment of stakeholders
Stakeholder support
and commitment
26
Annex 2-1
GUIDE IN CONDUCTING CONSULTATIONS IN THE PREPARATION OF CLUPS
WHAT
(Stage)
WHEN
(Step)
Getting started
Key decision
makers
Planning team/
committees/TWGs
Identifying stakeholders
Planning
Gathering information/
ideas to formulate/
validate and establish:
- the vision
- the existing
conditions
- the objectives
WHO
to consult
HOW
to consult
3
4
5
Analyzing data to
generate and evaluate
options
Developing a draft
CLUP
7,8,9
& 10
Implementation
11
Concerned
individuals/groups
Monitoring and
Evaluation
12
Note: For every step of the planning process, some forms of consultation will be required
such as those involving the planning team, TWG, steering committees, and/or selected
stakeholder groups/individuals. The purpose of these consultations range from preparing
drafts, organizing reports/activities, sector analysis, review and finalization of
documents, etc.
27
SETTING
THE VISION
CLUP
STEP
Setting the Vision is a participative process whereby the municipality or city defines the
future that it wants. The vision lays out what the citizens of the community would like
their municipality/city to look like in terms of its physical, environmental, social and
economic development.
The visioning exercise binds the municipality/city together as a community which
recognizes their shared values and purposes, and helps them articulate a shared vision
of their locality. It creates a sense of ownership among the stakeholders to the extent
that they want to achieve their vision as the plan gets implemented over the years. The
vision serves as the driving force that moves the entire city/municipality towards the
achievement of a common development direction and provides the overall guidance
and focus in the succeeding stages of the planning process.
The VISION needs to be formulated in a participatory manner, and arrived at in a
consensus. The formulation of the VISION may be done through the conduct of a
visioning workshop participated in by the stakeholders.
In setting the VISION, the following essential elements may be considered:
Qualities of the people as individuals
Qualities of the people as a society
Nature of the local economy
State of the natural environment
Capacity of local leadership
The basic ingredients of a vision statement are:
Positive, present tense language
Qualities that provide the reader with a feeling for the municipalitys/
citys uniqueness
Depiction of the highest standards of excellence and achievement
A focus on people and quality of life
A stated time period
PURPOSE
28
EXPECTED OUTPUTS
An overall vision statement for the municipality/city
Developed better communication among stakeholders
A basis for formulation of goals, objectives, programs and policies
STEPS
There are various methods of setting the vision for the city/municipality. These can be done
through surveys, interviews, workshop, etc. The following workshop method may
be used:
1.2
1.3
Announce and publicize the schedule of the visioning workshop/s and send out
invitations well in advance for maximum participation. Avoid scheduling meetings
that will conflict with holidays or other important community events.
1.4
29
2.1
2.2
2.3
Define and discuss the elements of a vision, specifically its relation to the planning
process.
2.4
Group the participants into smaller workshop groups (ideally 6-8 persons per group).
Use metacards during the workshop to encourage participation and to facilitate the
generation and processing of data.
Step 3. Setting the Vision
2.5
The result of this activity will provide an approximate description of the current
situation as a form of leveling-off for the participants/communitys perception
of their city/municipality.
2.6
Generate ideas on the future/ desired state of the city/municipality by posing the
question: What do you want your city/municipality to become 10-20 years from
now? Use descriptors or adjectives to write ideas on metacards (one idea/descriptor
per metacards)
2.7
2.8
ELEMENTS
Natural Environment
Local Economy
People as Society
People as Individuals
Local Leadership
Built Environment
DESCRIPTORS
(sample)
Scenic, ecologically balanced, etc.
Self-reliant, diversified, etc.
Empowered, vigilant, etc.
Disciplined, honest, law-abiding, etc.
Transparent, responsible, firm, etc.
Orderly, clean, vibrant, etc.
2.9
Formulate at least two Vision Statements using the agreed descriptors generated
in the previous step
2.10
Evaluate, select, and reach consensus on the Vision Statement that best captures
what the stakeholders want for their city/municipality
30
3. After the visioning workshop disseminate the selected Vision Statement to the
Sangguniang Panglunsod/Bayan and the general public for feedback.
4. Validate and refine the Vision Statement considering the feedback.
5. Present the refined Vision Statement to the LDC for endorsement to the Sangguniang
Panglunsod/Bayan for subsequent adoption.
6. Conduct extensive information campaign on the adopted Vision Statement.
The above visioning exercise was used in formulating the vision of Cagayan de
Oro City, the result of which was adopted by the city. The said vision statement
is quoted as follows:
A peaceful, orderly, livable city with a modern trading center
where there are equal opportunities for our disciplined
citizens to develop and prosper in a clean and healthy
environment.
LGUs may revisit/revalidate their existing vision statement guided by the vision-reality
gap analysis technique. This technique is best undertaken through a multi-stakeholder
workshop after the situation analysis stage (Step 4) of the CLUP process.
The workshop process will have the following steps:
1. Discuss the objectives and mechanics of the visioning workshop.
2. Present a brief situationer/current profile of the community.
31
3. Define and discuss the elements of a vision, specifically its relation to the
planning process.
4. Group the participants into smaller groups (ideally 6-8 persons per group).
5. Complete the vision-reality gap matrix (refer to sample matrix on succeeding
page) considering the result of the situation analysis.
6. Fill in the matrix with the elements of the vision statement.
7. Fill in the matrix with descriptors (desired quality) of the vision.
8. Identify and agree on the success indicators for each descriptor.
9. Compare success indicators with current state of development (existing
situation).
10. Rate each indicator according to its position in relation to achieving the vision.
=
=
=
=
=
=
11. Identify vision-reality gap (result of deducting the rating from the highest possible
score).
12. Identify the planning concerns for action derived from descriptors with low achievement
rating. These planning concerns will be essential when identifying initial policy options.
13. Refine the vision statement as may be necessary based on the vision-reality gap
analysis.
14. Present the refined vision statement to the LDC for endorsement to the SP/SB for
subsequent adoption.
15. Disseminate the adopted vision to the general public.
Step 3. Setting the Vision
32
IF THERE IS NO REVISION,
Descriptor
Success
Indicator
Rating
Policy Options
God-loving
Peace-loving
Honest
Reliable
Caring
Law abiding
Child friendly
3
2
3
1
2
2
Healthy
Long life
expectancy
Low morbidity rate
Drug-free
2
1
Success
Indicator
Rating
Empowered
Public consultation
made and integral part
of the decision- making
process
POs/NGOs
participate in
planning,
implementation,
monitoring and
evaluation of LGU
programs and projects
Disaster prepared
citizenry
Vigilant
33
Policy Options
Descriptor
Success
Indicator
Rating
Policy Options
Quality at allowable
water level set by
Phil. National
Drinking Water
Standard
Attractive
Density of greens
within the urban core
Balanced
Built-up area
integrated with citys
open space network
Descriptor
Diversified
Success
Indicator
Increased no. of
financial institutions
Increased no. of
service
establishments
Rating
4
Policy Options
Promote upgrading of quality
education
Encourage special health services
to locate in Dagupan
Update and enact city ordinance to
accommodatethe informal sector
Environment
Friendly
Maximum 10% of
surface water for
aquaculture
34
Progressive
(not only LGU
administration
but
also
governance)
Success
Indicator
Rating
Enforcement of local
laws (e.g. zoning
ordinance
Low apprehended
violators, filed cases/
imposed penalties,
sanctioned violators
NGO/PO registered
increase, NGO/PO
active participation
2
2
Policy Options
Strict imposition of penalties
Pasay City
A scenic premiere city thriving with business and economic opportunities, guided by dynamic
and efficient local leadership, and home to self-reliant, healthy, and morally upright people.
2.
Makati City
A sustainable, highly developed, environmentally balanced and progressive urban center
whose residents have a sense of well-being and are morally upright, educated, disciplined,
self-reliant, and community oriented.
3.
4.
Tuguegarao City
An improved quality of life that endures the optimum, balanced and sustainable development of
the municipality as an administrative, institutional, cultural and balance center for the Cagayan
Valley Region.
5.
35
Annex 3-1
THE BASIC METHODS OF TECHNOLOGY OF PARTICIPATION (TOP)
The basic methods of TOP as provided below have been successfully tested and applied in
the planning process.
1. Discussion method
This is a method of facilitating group conversations and discussions which allows a group
to deepen its insights and creativity on a common topic or experience. It allows the members
of the group to share the many and diverse perspectives in a non-confrontational manner.
And it also reveals the bounds of consensus the group is willing to draw.
2. Workshop method
This method is a way of facilitating a groups thinking about a particular topic into focused
decisions and action. It is an effective way of building group consensus and moving it to
joint resolve and action.
3. Action Planning Method
This method, which combines both the discussion and workshop methods, is an effective
structure for moving a group from a good idea to a concrete plan of action within specific
time periods and with specifically outlined assignments and responsibilities.
These methods may be applied to an infinite number of situations and purposes. Creatively
combined and even adapted, these methods can serve as powerful tools for both satisfying
and empowering group experiences.
TECHNOLOGIES OF PARTICIPATION
Discussion
Method
Workshop
Method
Action
Planning
Method
Reference: Materials given during the Refresher Course on Basic Group Facilitation and
Conflict Resolution, Philippine Urban Forum, 6 June 2003, Innotech, Quezon City
37
ANALYZING
THE SITUATION
CLUP
STEP
Step 4 of the planning process, the Situation Analysis, basically answers the question:
Where are we now? It is both analytical and diagnostic, geared towards identifying
issues, potentials and future development needs and spatial requirements of the city/
municipality. Assessment involves technical and participatory methods.
Technical assessment is based on factual data derived from surveys, official publications
and records of the city/municipality, concerned national agencies and other entities.
Assessment involves the use of indicators such as proportions, rates, frequency, quality/
condition ( e.g. severity, critical, etc.), standards and other parameters that are vital in
characterizing the situations.
Participatory assessment is based on the outcome/results of barangay/community
consultations, focus group discussions, meetings with key informants, multi-sectoral
meetings, etc. This activity facilitates the generation of the communitys felt needs,
desires, and perceived issues and opportunities. Suggestions to address issues and
concerns can also be derived from this exercise.
Planning tools such as SWOT, Problem Tree Analysis, Sieve Mapping Technique,
Geographic Information Systems (GIS ), etc. are helpful tools in situation analysis. The
HLURB A Guide to Data Management in the CLUP Preparation provides the applications,
layouts and examples of CLUP formulation using GIS as a tool.
PURPOSE
To identify/gather/update baseline data in order to assess the existing socioeconomic and physical and environmental characteristics of the LGU;
To identify the needs, issues and concerns to be addressed by the CLUP and the
opportunities/potentials that can be tapped to achieve the community vision;
To identify Indigenous Knowledge Systems and Practices (IKSP)
38
EXPECTED OUTPUTS
Socio-economic, demographic, physical and environmental profile/data base of
the city/municipality
Consolidated, prioritized major and significant development needs, issues,
strengths and potentials of the LGU which have spatial components and are
necessary in the achievement of the vision.
Existing land use map, thematic maps, and analytical maps of the entire area
covered by the city/municipality, including the marine and coastal areas and
freshwater wetlands such as rivers and lakes.
STEPS
The steps outlined below is focused on the assessment of the existing land uses in the city/
municipality. The procedures for the social, economic and infrastructure sectors are discussed
in Volume 2, Manual on Demography and Sectoral Studies In Comprehensive Land Use
Planning. All these studies may be done simultaneously.
1. Conduct sectoral studies of the planning area in parallel with the conduct of
natural/physical/environmental, and land use assessment (step 2, below).
This step involves updating of the existing demographic and socio-economic data and their
subsequent analysis to come up with information that will characterize the current and
past situations in the city/municipality.
39
2.1
2.2
Prepare base map ( both presentation and report size maps ) of the whole planning
area. Refer to Mapping Guidelines, Vol. VII of the HLURB Guidelines for the
Formulation/Revision of Comprehensive Land Use Plan, 1996 or the HLURB: A
Guide to Data Management in the CLUP Preparation.
2.3
Conduct actual land use survey. Determine the existing land uses within the entire
boundaries of the city/municipality including uses of its freshwater and marine water
boundaries.
40
Table 4-1. List of Maps and Data Requirements and the Corresponding Sources
Data Requirements
Sources
NAMRIA/Topo Map
LGU/PPFP/RPFP (other national, local
area plans)
DENR-FMB & LMB, LGU
DENR
41
DENR
Data Requirements
C. Land Use (Refer to Annex 4-3 on Land Use Categories)
including the following Special Interest Areas:
-
Ancestral Domain
Sources
Primary Survey
National Commission on Indigenous
People (NCIP)
NHI/DOT/PTA/NCCA, LGU
NHI, NCCA
LGU
LGU/DENR-MGB/Provincial Office
LGU
LGU
D. Environmental Condition
1. Location/distribution/condition of:
- fish sanctuaries
- coral reefs
- mangroves
- seagrass beds
2. Classification of rivers/bodies of water within the
municipality
3. Quality of rivers, marine waters, etc. (polluted or not;
degree of pollution)
4. Probable sources of pollution, if any
5. Geological/environmental hazard areas
- fault zones
- volcanoes
- tsunami prone areas
- areas susceptible to landslides, erosion,
subsidence, sinkholes, etc.
- areas prone to noise, air pollution
- probable causes of hazards or risk
2.4
42
This activity may be done through barangay consultations and/or focus group
discussion(s) with key stakeholders usually with the elderly in the community,
who have good knowledge or have experienced natural calamities, disasters,
or other environmental degradation that affected/is affecting the community.
Guide questions shall be structured to cover the following:
Type/s of environmental degradation, calamity or disastrous events such
as flashfloods, erosion, earthquakes, etc.
Extent of damage to lives, properties, and impact to the community
Frequency of occurrences
Perceived causes
Suggestions on how the community and the government can help mitigate
such occurrences.
Note: Some of these information may already be generated/gathered during the conduct
of sectoral studies
3.2
Prepare the existing land use map including water uses based on the information
from the base map and the gathered land use data. The map shall
include the following:
-
delineation of the various land uses (See color codes in Annex 4-3)
coastal and marine areas; boundaries of municipal waters
existing major wetlands, inland waters
Note: Use maps which has the same size and scale as the base map.
43
3.3
Quantify and determine the extent of distribution of each land use category
and present in a tabular form and in any possible visuals or illustrations. A
tabular presentation (see Table 4 - 2) is recommended to summarize the
results of this step.
3.4.
3.4.2
3.4.3
3.4.4
3.4.5
Table 4-2. Existing Land Uses Area, Distribution, and Percent to Total
LAND USE CATEGORIES
AREA
( in hectares )
PERCENT TO
TOTAL
100%
44
4.2
4.3
4.4
4.5
Environmental Condition
Existing situation of coastal and marine areas - discuss manifested
environmental stresses like beach erosion, marine pollution, damaged
aquatic life, siltation or sedimentation
Freshwater bodies like lakes and rivers (quality and extent of water pollution,
if any)
45
Trace historical land use from as far back as existing records (documents,
maps, pictures, etc.) and verified information are available;
Presentation shall be in chronological order, from the earliest time to the
present;
Identify the major land use activities and their location
Establish the historical land use trends by describing significant changes
noted from one point to another.
6. Prepare map to reflect areas that need to be conserved and preserved, and
areas with physical constraints as follows:
Natural risks and hazards areas (volcanic, seismic, flood-prone, erosion-prone,
tsunami-prone, etc.)
Protected areas such as National Integrated Protected Areas System (NIPAS),
NON-NIPAS, Network of Protected Agricultural and Agri-Industrial Areas for
Development (NPAAADs)
Wetlands/coastal, marine, lakes, rivers, marshes, man-made, etc.
Historical and cultural areas (if any), Man and biosphere Areas (MAB) and other
globally designated areas
Fish sanctuaries
Watersheds and forest areas
Existing land use
46
TLA
PCA
UA
SLU
=
=
Sample Computations:
Given Parameters (Figures are hypothetical)
Total Land Area
Preservation and Conservation Areas (PCA)
Urban Use Areas (UA)
Special Land Uses (SLU)
9. Estimate the total land area required or needed for urban development and
other special planning areas. This may be the total land requirements
determined in the sectoral studies or derived through various methods as
follows:
Use of various national agency standards
Land for future expansion of urban and other uses is projected on the basis of the
given standard area/space requirement per sector multiplied by the population
growth index.
47
This simple formula is not applicable to all types of land use activities. Space
requirements for some uses such as government or civic centers, art centers,
museums, and open space systems (greenbelts, land reserves) are best
determined by special studies and on a case to case basis. Also, initial
computations using space standards are usually adjusted to include allowances
for flexibility (say 20% addition to the computed area requirement) and to conform
to availability of appropriate locations and desired density/intensity.
The LGU may however, opt to agree on parameters for determining space
requirements unique to their local situation and consistent with the adopted vision.
Current urban density this approach assumes that future land allocation for
urban use shall be based on existing urban density regardless of the growth in
urban population.
The future land requirement is derived by multiplying the current urban density
by the projected population. The derived sum will be redistributed according to
the existing share of each land use category to the total urban land requirement.
Other methods or standards as may be agreed upon by the planning team.
The estimated land requirements shall be properly justified in terms of the method
used, and the vision and functional role of the city/municipality.
The land requirements may also increase or decrease, as needed, during the
final stages of the plan formulation.
48
The procedural steps for the conduct of SWOT and Cross-Sectoral analysis
techniques are presented in Annexes 4-6 and 4-7, respectively.
49
STEPS
OUTPUTS
Demographic/SocioEconomic/InfrastructureUtilities Profile
Conduct
sectoral studies
Sectoral
needs/issues/problems
Projected/future
sectoral land requirements
Conduct
assessment of
natural/physical/
environmental
features
3
Conduct cross-sectoral
analysis and integration of
sectors and land uses
51
Physical Environmental
Profile
Existing Land Uses:
Categories and Areas
Existing Land Use Map
Thematic and Analysis Maps
Development Constraint/
Non-buildable areas
Total future land requirements
Potential development areas
Annex 4-1
STEPS IN LAND USE SURVEY
Foot survey
Step 1. Determine pace factor.
Pace factor is applied to calculate frontage distance for each structure in the block/zone being
surveyed.
A block is a portion of land usually bounded by streets. It can accommodate a number of
structures used for different purposes.
The pace factor is computed as follows:
Step 2. Note down the exact use of land areas and structures on them. The information
should be recorded on the survey sheet and plotted on the working map.
Windshield Survey
Step 1. Set odometer reading to zero. A working map and topographic map/aerial photo must
be on hand to record land uses and to note changes, if any.
Step 2. Use a compass to ensure correct orientation on the working map. A pair of binoculars
would also be useful in conducting the ocular survey.
Step 3. Note changes in land uses leading for instance, in area expansion.
With the use of reference points like rivers, roads and other land marks, boundaries
of specific uses maybe approximated on the topographic map/material photograph.
The odometer must be read to determine the approximate distance where the changes
occur along the highway. Boundaries may also be counterchecked with recent aerial
photographs.
Step 4. Transfer the survey findings on the base map. Use appropriate color in the delineation
of the land use categories (Refer to Table4-1 for standard color code per land use
category)
Global Positioning System (GPS) Survey
Step 1. Familiarize yourself with the GPS receiver being used.
Read and follow the manufacturers instruction on the use and operation of the
Step 4. Analyzing the Situation
52
GPS receiver. Make sure that all settings are correct and appropriate and that satellite
and weather conditions for GPS reading are satisfied before conducting the survey.
Step 2. Proceed to the points of observation and get the GPS reading, record these readings
(usually the latitude and longitude) and a description of the points being occupied.
Step 3. Transfer readings on a base map by either manual plotting or by uploading the data
from the GPS to a computer. Software is available which can get and process data
from GPS receivers.
GPS survey can also be used to verify data on a GIS system. Method of data gathering is the
same as the steps above and once the information is uploaded in a computer, most GIS
applications can read GPS data and can be processed using these applications. Furthermore,
some GPS receivers can be uploaded with the points to be verified and others can store digital
maps so validation of boundaries can be done in the field.
53
Annex 4-2
SAMPLE MAPS
54
55
Annex 4-3
LAND USE CATEGORIES AND COLOR CODING
Mining/quarrying
Grassland/pasture
Agro-industrial
Tourism
Other uses /categories
COLOR CODING
Cemeteries
Dumpsites/Sanitary Landfills
Buffer zones/greenbelts
Idle/vacant lands
Reclamations
Water uses
Nipa swamps
Mangrove forest
Tourism (recreation/resorts)
Settlement on stilts
Aquaculture and mariculture (e.g. fish
cages/fishpens, seaweed culture)
Others, specify (e.g. river sand/gravel
quarrying, coral reef, seagrass beds)
56
Annex 4-4
DEFINITION OF TERMS FOR COASTAL AND MARINE AREAS
1. Brackishwater Fishponds (earthponds) - man-made enclosures of varying size,
dependent on tidal fluctuations of water management, located in estuaries (deltas, mudflats
and mangrove swamps) and intended for the culture of fishes/aquatic species.
2. Brackishwater Swamps - land areas where most of the time the brackishwater level is at/
above the land surface.
3. Coastline - lines that form the boundary between the land and water, especially of sea or
ocean.
4. Coral reefs - simply defined, these are reefs made chiefly of fragments of corals, coral
sands, algae and other organic deposits, and the solid limestone resulting from their
consolidation. Technically, they are marine shelves or platforms formed by the consolidation
of the skeleton of hermatypic corals through cementation by coralline algae and lithification
processes.
5. Dunes - an accumulation of sand in ridges or mounds landward of the beach formed by
natural processes and usually parallel to the shoreline.
6. Estuary - a water body where sea water of oceanic origin is diluted by freshwater from
land drainage areas. Areas influenced by this include deltas, tidal marshes, and river mouth,
among others.
7. Foreshore area - as defined, it is a strip of land alternately covered and uncovered by the
tidal movements. Its interior limits are that portion of land reached by the water during the
highest equinoctial tide. The outer limit is that portion of land reached by the water during
the lowest ordinary tide.
8. Freshwater bodies - these are water bodies in basins, rivers, lakes, lagoons, channels
and aquifers not influenced by sea water.
9. Freshwater swamps - these are land areas where the freshwater table is at or above the
land surface during most of the year to promote the formation of hydric soil and to support
growth of hydrophytes such as grasses and sedges which are also influenced by sea
water.
10. Mangroves or mangrove forests - the communities of trees and associated shrubs that
are restricted to tidal flats in coastal waters, extending inland along rivers where the water
is tidal, saline or brackish.
11. Marine waters - these cover beds, banks, shell fields, zones, areas and regions of Philippine
waters totaling some 1,666,300 sq. km.
12. Mineralized areas - areas containing deposits of metallic and non-metallic minerals.
13. Municipal waters - include not only streams, lakes and tidal waters Included within the
municipality, not being the subject of private ownership, and not comprised within national
parks, public forests, timber lands, forest reserves, but also marine waters included between
two lines drawn perpendicularly to the general coastline from points where the boundary
57
lines of the municipality or city touch the sea at low tide and a third line parallel with the
general coastline and fifteen (15) kilometers from it. Where two (2) municipalities are so
situated on the opposite shores that there is less than 15 kilometers of marine waters
between them, the third line shall be equally distant from the opposite shores of the respective
municipalities. (Section 131<r>, Republic Act No. 7160)
14. Seagrass beds - vegetation dominated by flowering grasses which grow best in sandymuddy portions of the intertidal zone. They are highly productive habitats which serve as
the transition zone between coral reefs and mangroves.
15. Tidal flats - these are lands mostly devoid of trees and shrubs that are alternatively exposed
and inundated by tides. These may be mud flats or sand flats (see foreshore areas).
16. Woodlands - these occur behind the beach and dune on the older beach areas. In the
coastal zone, these consist essentially of a tangle of low stunted trees or shrubs. Examples
are botong, pandan, and the taller agoho and coconut palms.
Source: DENR
58
Stuart F. Chapin, Jr., Urban Land Use Planning, University of Illinois Press, 1965, p. 307.
59
b. Standard project flood potential flood areas based on coincidental of the most critical
conditions noted in meteorological and flood data from a wide surrounding area; this
approximates highest flood of record for the regional area;
c. maximum probable flood maximum flood of reasonable regional expectancy taking
into account present knowledge; this flood is the most extensive of the three.
Ideally, local planners should seek to provide for protection from the maximum probable
flood. This would, however, entail staggering costs in terms of flood control works and the
withdrawal of more land from development. It may instead be more realistic to plan for the
eventuality of a standard project flood. In practice, local planners may, in the absence of
funds, initially establish floodway lines for the first two flood levels and phase proposed
flood control works in stages.
In addition to establishing flood levels, basic hydrological studies usually include
investigations of flood profiles (maps and cross-section diagrams of flood levels), period of
inundation, rate of rise, velocity of flood waters, frequency of flooding, obstructions that
affect crest levels, and land use encroachments on the flood plain.
Land use planning application
Identified flooding areas, or those areas covered by floodway lines drawn on a map, are
designated as limited use areas which can be earmarked only for open space uses or for
the least intensive uses (e.g. parks, etc.); areas in flood plains which are already developed
can be earmarked for remedial action, such as relocation or flood control works.
3.
60
many forms of simple blight may, however, call for the more drastic measures of clearance
and redevelopment.
The presence of complex forms of blight call for redevelopment measures. Indicators of
this type of blight include such characteristics as mixture of incompatible land uses (such
as the presence of pollutive industries right in the middle of residential areas), obsolete or
impractical layout of lots, blocks, and streets, unsafe and unhealthful conditions existing or
possible when marginal land is in use, particularly lands subject to floods, marshiness or
tidal flow.
Survey techniques
Information on structural conditions, particularly of residential structures, may be available
from secondary sources like the NSO census on housing. More often than not, however,
data on structural and environmental quality have to be gathered first-hand. When such is
the case, survey techniques have to be devised. The types of parameters and structural
and environmental quality standards which will apply in categorizing urban renewal areas
will depend on a host of factors such as local environmental policies, public sentiment, and
availability of funds to carry out renewal programs.
In any case, the schedule to be used in the survey should include both dwelling units appraisal
factors. Dwelling appraisals may include maintenance and state of repair, safety and
sanitation factors, adequacy of lighting, degree of room crowding, etc. Environmental quality
may be appraised on the basis of land crowing, inimical land uses on the block, inadequacy
of schools, recreation areas, and other community facilities in the area, and the extent of
hazards and nuisance in the area from traffic, railroads and industry.
For land use planning purposes, a low-ratio sampling survey (i.e. using relatively only a
small portion of the blocks or districts as sample) of urban areas would be sufficient. Based
on the items in the survey schedule, urban areas can be categorized into: 1) Areas in good
or acceptable condition; 2) Rehabilitation areas; or 3) Clearance and development areas.
Land use planning application
Data on urban renewal areas, presented both in map and statistical forms, will show the
rehabilitation and redevelopment areas to be considered in the preparation of more detailed
urban renewal plans.
4. Land values study
The land values goes into an investigation of the structure of land values, upward or
downward graduations and trends of change in these values. Actual market values are
arrived at only by extensive and costly studies which may not be practicable in most
situations. Land values of urban lots or rural lots, which are usually available at the municipal/
city Assessors Office. Assessed value figures may be refined based on comparison with
known selling prices and the approximate percentage deviation of assessed value from
market values.
Land use planning application
With the use of map showing approximate land values in the planning area, proposed
locations for projects can be evaluated for feasibility in terms of land costs, especially
61
urban textures
green areas
circulation facilities
paved open spaces
individually significant architectural masses
Record significant paths and vantage points from which the city/municipality can
usually be perceived.
1.
2.
3.
4.
5.
62
63
Annex 4-6
SWOT ANALYSIS TECHNIQUE
SWOT Analysis is a method that enables a planner to generate feasible alternative strategies
for the LGU through an assessment of the present conditions, characteristics, and current
state and utilization of the LGUs natural/physical, human and fiscal resources.
Serves as basis for evaluating where the LGUs strength lies. Thus, serves
as guide in determining which aspects to pursue and what weaknesses
and threats to overcome to take advantage of opportunities.
Internal strengths can be used to take advantage of external opportunities
or to overcome external threats.
The planners can formulate and pursue defensive-type strategies aimed at
overcoming weaknesses and avoiding external threats.
The planners can formulate and pursue strategies that will improve on the
LGUs internal weaknesses by taking advantage of external opportunities.
The SWOT Matrix is an important strategy-formulation matching tool that results in the
development of four types of strategies: Strengths-Opportunities (SO) strategies,
Weaknesses-Opportunities (WO) Strategies, Strengths-Threats (ST) strategies and
Weaknesses-Threats (WT) strategies.
HOW IS SWOT ANALYSIS DONE?
SWOT Analysis is done through a workshop with the participation of the local
officials and the various representatives of the different sectors of the LGU and
key stakeholders
Step 1. Divide the participants into groups/sectors. Assign a presenter for each group/
sector.
Step 2. Using the SWOT Matrix (refer to example below), each group/sector can now
proceed to the succeeding steps.
SWOT MATRIX
Always leave this blank
STRENGTHS (O)
WEAKNESSES (W)
OPPORTUNITIES (O)
SO STRATEGIES
WO STRATEGIES
THREATS (T)
ST STRATEGIES
WT STRATEGIES
64
Step 3. List the key internal strengths in the upper middle cell.
Strengths refer to the present or inherent features, attributes or characteristics of the
LGU that enhance or aid in its development or progress. Strengths should be identified
to be able to enhance them. (e.g. vast tract of agricultural roads and power supply,
strong political will among local officials)
Step 4. List the key internal weaknesses in the upper right cell.
Weaknesses refer to the present human, fiscal or physical attributes that tend to or
inhibit the development or progress of the LGU. Weakness should be analyzed to be
able to overcome them. (e.g. inadequate irrigation facilities poor maintenance of
existing facilities)
Step 5. List the key external opportunities in the middle left cell.
Opportunities refer to the external economic, social, political, technological and
competitive trends, conditions, events or circumstances that could significantly benefit
the LGU to further improve its existing situation, (e.g. Location of foreign assisted
projects, within the BIMP-EAGA)
Step 6. List the key external threats in the lower left cell.
Threats consist of external economic, social, political, technological and competitive
trends and events that are potentially harmful to the LGUs present and future
development or progress, (e.g. presence of EPZA in the adjacent city/municipality)
Step 7. Match internal strengths with external opportunities and record the resultant SO
Strategies in the middle right cell. SO strategies are based on using key internal
strengths to take advantage of external opportunities.
Step 8. Match internal weaknesses with external opportunities and record the resultant WO
strategies in the middle right cell. WO strategies are based on overcoming of weaknesses by taking advantage of opportunities.
Step 9. Match internal strengths with external threats and record the resultant ST strategies
in the lower center cell. ST Strategies are based on using strengths to avoid threats.
Step 10. Match internal weaknesses with external threats and record the resultant WT Strategies
in the lower right cell. WT strategies are on minimizing weaknesses to avoid threats.
65
Step 11. Let each group/sector present their respective output: SWOT Analysis Matrix
(Refer to sample SWOT analysis matrix below)
SWOT MATRIX
Always leave this blank
STRENGTHS (O)
Vast tract of agricultural land.
Adequate roads, bridges and
power supply.
WEAKNESSES (W)
Inadequate irrigation facilities.
Poor maintenance of existing
utilities.
OPPORTUNITIES (O)
SO STRATEGIES
WO STRATEGIES
THREATS (T)
ST STRATEGIES
WT STRATEGIES
Traffic congestion.
Step 12. Generate comments from other groups, select common entries from the groups
outputs and agree to come up with a final matrix using the group work as inputs.
66
Annex 4-7
INTER/CROSS SECTORAL ANALYSIS TECHNIQUE
Inter/cross sectoral consultations and planning workshops provide for an opportunity for the
stakeholders to discuss issues/concerns and opportunities that directly or indirectly affect
their respective sectors as well as in identifying possible solutions and policy options.
1
Sectoral
Committee
Meetings
2
Inter-Sectoral
consultations
3
Divide the
participants into
groups/sectors
The participants may be grouped into the (a) Social Sector, (b)
Economic Sector, (c) Environment Sector, (d) Institutional
67
Explanations
Implications
Policy Options
Absence of a
system to monitor
encroachment on
public properties
Loss of breeding
grounds for fish
Relocate
squatters
Unavailability of
affordable
housing units
Loss of natural
defense to
coastal soil
erosion
Provide affordable
housing units to
squatters who
will be relocated
Decrease in fish
production
Establish a
system to
periodically
monitor
encroachment on
mangrove areas
Note: Repeat the exercise with other sectoral pairs as listed above.
68
CLUP
STEP
The next step after the SA (data gathering and analysis) is the formulation of goals and
objectives that will help the municipality / city achieve its vision. It is important that the
goals and objectives reflect the common good or consensus of the broader community
so that implementation of the plan effectively engages all sectors, and ownership is
shared community-wide. A good way to achieve this is to conduct participatory goalsetting processes in public settings.
The analysis will likely have revealed weaknesses or gaps in the municipalitys/citys
resources or capacities. Planning goals and objectives to address these gaps is a
good place to start. Based on the analysis and alignment to the overall vision, the plan
should establish a set of goals that build on strengths to take advantage of opportunities.
The plan should also ensure that existing strengths and resources are preserved and
enhanced. Objectives are selected to be timely and indicative of progress toward goals.
The goals and objectives provide the benchmark by which the land use plan is formulated,
assessed and evaluated.
The working draft of goals and objectives may initially be prepared by the Planning
Team in consultation with key stakeholders. This will later be presented to the various
stakeholder group workshops for further comments/revisions, validation and
acceptance.
PURPOSE
To formulate achievable goals and objectives that are responsive to the issues,
needs, and potentials of the municipality/city.
EXPECTED OUTPUTS
Shared goals and objectives
STEPS
1. Review the vision statement and the major problems, issues, and opportunities
identified in the situation analysis.
The result of the situation analysis may be presented as input for validation, and
these results will become the bases for the formulation of goals and objectives
during the workshop/consultation.
69
2. Formulate the general goals that the LGU wish to attain within the planning period.
70
STEPS
OUTPUTS
1
Review vision statement
and results of situation
analysis
Analysis of vision, major
problems/issues, and
potentials
2
Formulate the general goals
based on analysis of vision
and existing situation
General goals
(multi-sectoral)
3
Formulate objectives to
translate the general goals
SMART Objectives
4
Check appropriateness and
consistency of goals and
objectives
71
Annex 5-1:
EXAMPLES OF VISION, GOALS AND OBJECTIVES
City Vision
A
peaceful,
orderly, livable city
with a modern
trading
center
where there are
equal opportunities
for our disciplined
citizens to develop
and prosper in a
clean and healthy
environment.
Goals
An
accessible, well
developed City that
provides high quality
services and
facilities.
A peaceful City that
support cultural and
social diversity and
encourages
strong
community development
A responsive governance
that
encourages
community participation,
transparency
and
accountability; and offers
its residents and investors
a range of economic,
employment and financial
opportunities.
Objectives
Achieve a well-balanced socioeconomic growth
Foster human welfare development
through a more equitable
distribution of livelihood and other
socio-economic opportunities
Enhance hinterland development
and productivity
Regenerate
local resources,
achieve ecological balance and a
healthful environment;
Enhance
partnership
and
collaboration
among
nongovernment organizations, the city
government, Local Government
Units within the influence area of
Metro Cagayan de Oro, nongovernment associations and other
development sectors s p e c i a l l y
along service delivery.
Note:
The above examples were the product of multi-sectoral and consultative processes
conducted in Cagayan de Oro City in the crafting of their city vision, goals, and objectives.
72
ESTABLISHING
THE DEVELOPMENT THRUST
AND SPATIAL STRATEGIES
CLUP
STEP
Establishing the Development Thrust and Spatial Strategies are key steps in the
Comprehensive Land Use Planning process. These twin activities are critical in
determining the future development of the municipality/city. It explores the various land
use alternatives or scenarios and it involves the creative and visual part of the land use
element. Up to this point in the process a number of descriptive and graphic studies
have been prepared: a land use inventory and existing land use map; a land use analysis;
and the goals and objectives. This step in the CLUP preparation involves the
understanding of what is appropriate, feasible and possible development options for
the city/municipality through an exploration of different land use alternatives or scenarios.
The municipality/city will choose one or a combination of preferred alternatives to serve
as basis in preparing its future land use map.
The purpose of this step is to establish a preferred land use alternative. In that sense,
it is focused only on the land use element. All other sectors such as social, economic
and infrastructure development shall provide the necessary input into the land use
element. The scenarios that are developed are connected or linked with the
municipalitys/citys vision, goals and objectives. In that sense, the scenarios are themebased and can be illustrated through visuals such as maps. Development alternatives
should be able to address the municipality/city character, natural resources preservation
and can test public reaction to competing goals and objectives, before these are finalized.
To reiterate, land use brings together other elements (sectors) of the plan. This opportunity
for integration is an important step in the overall process of drafting the CLUP.
In building scenarios, the idea is to come up with at least 3 different alternatives from
which to compare and select the one that would best attain the vision, goals and
objectives. The discussion of the chosen strategy may not include the documentation
of the lengthy process of evaluation and selection of preferred scenario or alternatives.
Public participation is encouraged at this stage. This could be done through simple
participatory techniques such as use of tracing papers, crayons or markers to indicate
their desired development. More complex techniques such as visualization or
Geographic Information System (GIS) may be used if available.
The agreed and accepted development thrust and spatial strategy will serve as the
basis and guide for the LGU to outline or prepare the detailed development policies,
programs, projects and action plans.
73
PURPOSE
To generate development options based on the inherent potentials and opportunities
of the municipality/city
To come up with criteria or guiding framework to evaluate development options and
spatial strategies
To select appropriate or suitable development thrust or spatial strategies
EXPECTED OUTPUTS
Preferred development thrust and spatial strategy/ies.
Structure Plan
STEPS
1. Conduct workshop to generate ideas/options on the appropriate development
thrust which can be pursued by the city/municipality within the planning period.
During the workshop:
1.1
1.2
Refer to Annex 6-1 for the description of the above development thrusts.
1.3
1.4
74
1.6
The use of common or known terms that will best describe the development
thrust is encouraged particularly when adapting a combined development thrust.
Example:
Agri-Industrialization
Ecotourism
Agri-Ecotourism
Industrialization
Intensified Agricultural Development
Refer to Annex 6-1 for other sample development thrusts
75
The following are sample development strategies corresponding to some development thrusts.
Example:
Development Thrust
Development Strategies/Options
A. Agricultural Development
Crop Diversification
Industrial Plantation
Agri-Processing
B. Industrialization
Implication
Positive Intervention
4. Reflect the spatial strategy for the preferred development thrust on a working
base map.
4.1
76
Note:
4.2
Evaluate the existing transport network within the designated probable development
and functional areas to determine the needed and required linkages, to include other
linkages with other LGUs, provinces, regions.
4.3
4.4
Describe or characterize the emerging form of the spatial strategy as a result of the
above steps. The spatial strategy shall cover the entire city/municipality including
the growth pattern of urban development. The growth pattern may be in the following
form:
Trend extension
Linear urban
Multi-nodal
Concentric urban
Combined forms
Refer to Annexes 6-4 for the Basic Urban Forms Conceptual Framework.
5. Prepare the Structure Plan using the results of the above steps. This will
provide the overall framework for the subsequent preparation of the City/
Municipal Land Use Plan.
The Structure Plan shall be in map form depicting the envisioned development concept or
the visual outline or shape of the overall physical and development framework of the city/
municipality. Step 7 of the CLUP planning process provides the detailed activities on how
to prepare the details or particulars of the Land Use Plan.
The Structure Map shall contain the following:
General location of development areas for agriculture, tourism, industry, and agroforestry.
General location of areas for conservation/ protection such as forest areas, critical
watersheds, protected areas, protected agricultural lands, historical/cultural sites, etc.
General location of proposed major infrastructure projects
Direction of urban expansion
Proposed circulation system that reflects the linkage among the identified development
areas within the municipality/city, linkage of the municipality/city with the adjacent
municipalities/cities, province and region.
Growth areas/nodes for production purposes or with specific development role.
77
STEPS
79
Annex 6-1
DESCRIPTION OF POSSIBLE DEVELOPMENT THRUSTS/OPTIONS
OF A CITY/MUNICIPALITY
I)
Agricultural Development
The city or municipality may opt to adopt Agriculture Development or Agriculture
intensification if the local economic structure, physical characteristics, opportunities,
and the result or outcomes of analysis using SWOT or other analytical studies of the
local situation is oriented towards agriculture.
Given this development option, the city/municipality may put the option into operation
by protecting the prime agricultural lands or areas covered by the Network of
Protected Agricultural and Agri-Industrial Development Areas (NPAAADs), providing
the required support physical infrastructure and services such as irrigation facilities,
farm to market roads, credit/lending facilities, technology, and increasing access
to markets/product end users.
The LGU as a matter of policy may encourage export of locally produced agriculture
products after ensuring and addressing the local food requirement/s of its population.
II) Industrialization
If the city/municipality will opt to adopt Industrialization (or other forms of industrial
activities) as result of the sectoral studies or SWOT analysis, the LGU should ensure
that the support services, facilities and utilities required such as power, water, roads,
telecommunication and efficient solid waste disposal, are available, well-planned and
provided for in case some of which are not present or available.
On the implementation side, to protect the community and the environment, the local
government is encouraged to provide or put in place mitigating measures to control
pollution and to address the impacts of industrial operations.
The local government may take advantage of the processing activities in the city or
municipality to complement and further augment or increase the output/s of other
productive sectors like agriculture and commerce and trade.
III) Tourism
Tourism is generally the development option chosen by cities and municipalities with
natural attractions such as beautiful coastlines and beaches and with potential for
water-based sports and recreation such as scuba diving, beach volleyball, island
hopping, fishing, etc.
Depending on the type of tourism that the LGU will adopt (i.e. Eco-Tourism, AgriTourism, Cultural/Religious Tourism, etc.), the required infrastructures to support,
improve and strengthen the tourism thrust of the city/municipality will be identified,
well-planned and provided.
In detailing the thrust/option, the LGU may need to adopt measures to protect and
conserve its coastal or upland areas to ensure that tourism will not cause the
Step 6. Establishing the Development Thrust and Spatial Strategies
80
81
82
Annex 6-2
TOOLS AND TECHNIQUES FOR EVALUATION/SELECTION
OF ALTERNATIVE STRATEGIES
SOCIAL COST-BENEFIT ANALYSIS (SCBA)
Social-Cost Benefit analysis (SCBA) is a comprehensive approach for appraising the social
worth of the options/alternatives or programs/projects which entail commitment of resources.
SCBA is more commonly applied within single sectors, such as the health and transportation
sectors, although inter-sectoral comparisons may also be applied. It is a useful aid in selecting
the development strategy for carrying out a project as well as in choosing among a number of
investment programs/projects competing among a limited amount of funds.
This analysis is mainly concerned with the strategys effects on the welfare of the community
rather than on any smaller group within it. The benefits and costs of the alternative development
strategies are identified and measured based on the references of individuals, who are affected.
Benefit is measured by the quantity of alternative goods and services which would give the
same amount of satisfaction to the beneficiaries while cost is measured by the goods and
services which would provide sufficient compensation to the losers, or which restore them to
their initial level of well-being.
The results would show the appropriate Alternative Spatial Strategy according to the
stakeholders. This would guide the local planners and decision-makers in discerning the most
acceptable spatial strategy to be employed in order to achieve the LGUs goals and objectives.
A TWG or Stakeholders Workshop may be organized to evaluate alternative spatial strategies.
The participants may evaluate the generated development alternatives using the Social CostBenefit analysis (SCBA) as indicated in Matrix 1.
Steps in Conducting Social Cost-Benefit Analysis (SCBA)
1. Prior to rating the alternative development strategies, discuss the strategies as these relate
to the situation (problems, issues and needs) of the LGU to make sure that the meaning is
clear to the participants of the Stakeholders Workshop on this planning stage.
2. List the alternative development strategies in column to the left. It is assumed that all these
adequately solve the problem.
3. Using the scales in Matrix 2, rate each problem/issue in the alternative development
strategies and compute the total. Refer to Worksheet 1 to apply this evaluation method.
4. Develop a team score for each strategy by sharing your individual ratings for each category
and then computing a total. It would be useful to post the ratings on a flipchart and then
discuss the reasons for each (Refer to Worksheet 2).
Encircle the highest-rated strategy and proceed to the preparation of the detailed strategy and
action plan.
Another way of evaluating a proposed strategy is by rating according to the benefits, costs,
ease of implementation, time and secondary impacts.
83
Matrix 1
EVALUATION OF ALTERNATIVE DEVELOPMENT OPTIONS
Alternative 1
Heavy Industrial
Development
Alternative 2
Light to Medium
Industrial
Development
Alternative 3
Micro, Small and
Medium Scale
Enterprise
Low
Moderate
Moderate
High
High
Low
c) Preservation of protected
croplands and fishponds
Low
Moderate
Low
Low
Moderate
High
Low
Moderate
High
Low
Low
High
High
High
Low
Low
Low
High
Low
Low
High
Low
Moderate
High
Low
Moderate
High
Low
Low
High
CHARACTERISTICS
84
Matrix 2
RATING SCALES IN EVALUATING ALTERNATIVE DEVELOPMENT
STRATEGIES/OPTIONS
BENEFITS
COSTS
EASE OF
IMPLEMENTATION
TIME
SECONDARY
IMPACTS
The expected
benefits will be
minimal = 1
It will be very
difficult to
implement = 1
It will be more
than 5 yrs. Before
the benefits are
seen = 1
It also results in
some negative
impacts = 1
The expected
benefits will be
good = 2
It will be difficult to
implement = 2
It will be 1-5
years before
benefits are seen
=2
It also results in
some negative
impacts = 2
The expected
benefits will be very
good = 3
It will be 1 to 3
years before
benefits are seen
=3
It also results in
some positive
impacts = 3
The expected
benefits will be
outstanding = 4
There will be no
added cost = 4
Benefits will be
seen in fewer than
365 days = 4
Alternative 1
Heavy Industrial
Development
Alternative 2
Light to Medium
Industrial
Development
Alternative 3
Micro, Small and
Medium Scale
Enterprise
85
Worksheet 2
SOLUTION WORKSHEET
ALTERNATIVE
DEVELOPMENT
STRATEGIES
BENEFITS
COSTS
EASE OF
IMPLEMENTATION
TIME
SECONDARY
IMPACTS
Alternative 1
Heavy Industrial
Development
Alternative 2
Light-Medium
Industrial
Development
Alternative 3
Micro, Small and
Medium-Scale
Enterprise
Development
GOAL-ACHIEVEMENT ANALYSIS
Goal-Achievement Analysis is conducted to determine the extent to which alternative
development proposals will achieve a pre-determined set of goals or objectives. The approach
has the following characteristics:
Goals or objectives are formulated at the outset of the planning process. However,
these may later be modified in the light of new developments or experience gained
during the various stages of planning process.
The objectives are multi-dimensional (i.e., these include environmental, political,
economic, social, and aesthetic aspects).
All goals-achievement methods aim to compare development options/alternatives or
program/projects which represent alternative ways of achieving goals.
The objectives are ranked in the order of importance by assigning each a weight taking
into consideration the priorities of the planning area.
Simple ranking of plans with respect to the objectives, e.g., creditors policy evaluation matrix
in which effectiveness of the alternatives in achieving the stated policy objectives is qualitatively
expressed using the following terms:
A significant positive effect
A partial or marginal effect
A significant negative effect
No significant relationship
86
STAKEHOLDERS
1. Farmers
2. Fisherfolks
3. Environmentalists
4. Business & Industrialists
5. Youth
6. Women
7. Elderly/Physically Challenged
8. Civic groups
9. Elective officials
10. Appointive officials
11. Health Workers
12. Media
In the workshop:
1.1
List evaluation criteria. The general welfare goals as provided for in Section 16 of
the Local Government code of 1991 (RA 7160), vision of the LGU and/or the predetermined set of goals may be used as evaluation criteria. As reflected in Matrix 3,
prioritization of programs and projects use the vision elements/descriptors as the
evaluation criteria.
1.2
Multiply the rating by the corresponding weight of the goal and enter the product
score in the appropriate cell.
1.4
Sum up the scores algebraically up for each Option/Alternative, then add all sectoral
group scores as presented below (GAM matrix).
The options/alternatives are finally rearranged according to their total scores. The Option/
Alternative with the highest total score is ranked as number one, the next number two,
and so on, as shown in the matrix of Summary of the GAM Scores.
Goal Achievement Matrix (GAM)
VISION/GOALS
ELEMENTS
DESCRIPTOR
People as Individuals
1
HEAVY
INDUSTRIAL
DEVELOPMENT
2
LIGHTMEDIUM
INDUSTRIAL
DEVELOPMENT
3
MICRO, SMALL AND
MEDIUM SCALE
ENTERPRISE
(.15)
(.10)
.10
God-loving
Healthy
Well-informed
People as Society
15
(.30)
.15
.30
10
(.30)
(.10)
.20
10
(.30)
.20
.20
10
(.30)
(.20)
.20
50
(1.50)
(1.00)
1.50
100
(2.85)
(.95)
2.5
Empowered
Vigilant
Self-reliant
Local Economy
Competitive
Diversified
Environmentfriendly
Natural Environment
Clean
Safe
Attractive
Restored
Built Environment
Balanced
Planned
Safe
Attractive
Local Governance
Firm
Decent
Progressive
TOTAL
88
Matrix 4
SUMMARY OF THE GOALS AND ACHIEVEMENT MATRIX (GAM) SCORES
SOCIETAL SECTOR
Group 1
Group 2
Group 3
Farmers
Fisherfolks
Environmentalists/
Planners
Group 4 Businessmen/
Industrialists
Group 5
Youth
Group 6 Women
Group 7 Elderly /Physically
Challenged
Group 8 Civic Groups
Group 9 Elective Officials
Group 10 Barangay
Captains
Group 11 Appointive
Officials
Group 12 Health workers
Group 13 Others
TOTAL
RANK
89
Option 1
HEAVY
INDUSTRIAL
DEVELOPMENT
Option 2
LIGHT-MEDIUM
INDUSTRIAL
DEVELOPMENT
Option 3
MICRO, SMALL AND
MEDIUM SCALE
ENTERPRISE
-1.15
-0.97
1.25
-0.55
3.00
1.41
-1.54
-1.45
2.20
-0.25
-0.81
-0.16
0.15
0.02
0.45
1.76
2.59
1.36
-1.64
-1.55
-0.54
0.85
-0.59
-0.52
2.55
1.56
1.77
-2.85
0.95
2.50
-1.32
0.92
-3.00
-14.86
3
1.42
0.60
-0.15
2.43
2
2.70
2.62
2.95
28.97
1
Developability Analysis
Pick the land use to be analyzed
90
c.2
Multiply each attribute rank by the attribute weight (e.g., the two classes
of slope, 1 and 2, are multiplied by the weight of the slope attribute 1).
c.3
Define the rules for the model to combine weighted attributes into a single
suitability scale (e.g., addition, multiplication and other algorithm).
c.4
c.5
c.6
Generate a statistical report showing for each suitability class, the site
identification, number of hectares/square meters and other relevant
data.
1.2
91
1.3
1.4.
2. Perceptual Analysis
This relies on peoples perceptions which are important determinants of travel behavior,
locational choice, social relationships, and political actions. Surveys are employed in order
to maintain a systematic perceptual information. The four aspects of perception are:
2.1.
Legibility - refers to the clarity of its spatial organizations and ease with which
people can read its structure.
2.2.
2.3.
Symbolism - refers to the meanings that people attach to various parts of the urban
area.
2.4.
92
For residential neighborhoods (including areas for dwelling and related uses)
Additional housing requirements consistent with affordability levels
Areas for public low-income housing
For institutional areas
Based on prescribed standards for each sector
Based on special studies
93
Suitability Analysis
The first thing to be done is to formulate criteria for suitable development areas
(see matrix, Table 6-1). The appropriate base data can now be gathered and
interpreted for the specific study. The base data can be in the form of aerial photos,
topographic map and other thematic maps where aspect maps can be derived. An
aspect map is a map dealing with only one factor. They are usually derived from
the original thematic maps which are professional interpretations of based data into
customized categories. They describe specific properties that can be used for
further comparison with other aspects.
METHODS
1.1.1
The binary method can be easily applied by sieve mapping. From each aspect map,
overlays are made with the unsuitable areas painted a dark color. Then all map
layers are put together (overlaid) on a light table where only the suitable areas
(areas that have no negative aspect) will light up. (see Figure 6-1)
Suitability levels could also be handled on a light table but in an incremental approach.
First, we compare the first aspect and delineate on an overlay the areas that qualify
for the aspect. Those areas will get a value of 1. Then we put the overlay over the
second map and delineate the areas that qualify for the second aspect. When they
coincide with areas that have already got 1, this will be upgraded to 2. If these
are new areas, they will get a value of 1. When all the factors are considered the
highest values indicated the areas that qualify on all aspects (e.g. areas with value
5 if 5 aspects are considered). These are the same areas that we found with
binary sieve mapping. When the value is 4 it will mean that the site is not falling in
the suitability range for one aspect. If we like to know which aspect that is, we have
to compare with the original maps.
In the identification of the physical conditions that determine the suitability of the land for
urban use or future development areas, the following sample questions may serve as
guide to the planner.
94
Questions:
1. Where are the areas that are too steep to build upon or prone to landslides?
2. Where are the areas prone to flooding?
3. Where are the areas where ground conditions are not good for construction?
4. Where are the forest areas?
5. Where are the rights of ways for major roads not yet fully built and for high tension
electricity lines?
6. Where are the built up areas?
7. Where are the good quality agricultural lands?
8. Where are the areas that cannot be served by easy extension of existing systems?
9. Considering the said factors, what are the constraints and opportunities for using lands
in and around the town for urban use?
Before answering the last question, carry out a Sieve Map Analysis of the town and its
surroundings using the answers to the other questions.
2. Basic procedure of Determining Future Development Areas Using Sieve Mapping
Technique
Step 1
Step 2
Prepare criteria for suitability for each thematic map. Make a classification
according to suitability for urban areas (e.g. 0 - 3% slope - highly suitable, etc.
See Table 6-1)
Step 3
Step 4
For each aspect map, delineate the areas which are highly suitable and not
suitable depending on your criteria. Color the unsuitable areas with a dark color
or patterns of hatching and leave the suitable areas blank.
Step 5
Overlay (put on top) the different aspect maps and tape them together on the
light table. Those areas that light up are those areas which have satisfied all
criteria and which is deemed suitable for development.
By carrying out sieve analysis, you can locate the areas where there are physical constraints
on the use of lands for urban purposes. By placing at a time the overlays on the base map,
the sum of the areas marked upon by the overlays can be built up on a single
95
The basic urban form conceptual frameworks only serve to guide the LGUs in
formulating the schematic diagrams that will best characterize the preferred
growth of development. As such, the resulting urban form must not be a precise
replication of these forms. Likewise, the preferred urban form shall be identified
in terminologies that are reflective of the local situation.
100
CLUP
STEP
PREPARING THE
LAND USE PLAN
(DETAILING OF PREFERRED
DEVELOPMENT STRATEGY)
Although the CLUP has a leaning towards physical planning, it can be staunchly stated
that the CLUP is also a manifestation of local social and economic values and that this
will basically guide the physical development of the cities and municipalities.
At this stage in the planning process, the Land Use Plan will translate the development
thrust and spatial strategy that describes how, why, when, and where to build, rebuild,
and preserve.
In allocating and detailing of land uses, the Land Use Plan needs to integrate the
mandatory elements such as the vision, transportation, community facilities, economic
development, critical and sensitive areas and natural hazards. Likewise, conflicts in
location of land uses are reconciled and adjustments in the whole matrix of relationships
are made.
The Land Use Plan shall specify the features of the development thrust and preferred
spatial strategy, guided by the details and policies governing the following:
Growth centers and corridors
Residential developments and basic facilities/services
Ecological system and cultural heritage protection/conservation
Economic development and local governance
Infrastructure support systems
Development intent for the entirety of the local government unit
Use of city/municipal waters
PURPOSE
To translate the development framework as reflected in the Structure Plan into spatial
dimension, and indicating the manner in which land shall be put to its highest and
best use.
EXPECTED OUTPUTS
A City/Municipal Land Use Plan with the following elements:
Proposed Land and Water Uses
Land and Water Use Policies essential in physical development
Proposed Circulation Network
Major Development Programs/Projects
101
STEPS
The steps put into detail the development areas as reflected in the Structure Plan, which in
turn is the interpretation of the preferred Spatial Strategy/ies.
1. Review the quantified land requirements derived from the conduct of sectoral
studies, current and projected population, vision and development thrust.
2. Match the lands available for development (supply) and the quantified land
requirements (demand) to determine adequacy of supply. The figure below illustrates
the details of this activity.
Residential
Commercial
Vision , Sectoral
Needs and wants
Estimated Land
Requirement
Industrial
NIPAS
Land Supply
Land Demand
Institutional
NonNIPAS
Infrastructure
Open Space
YES
NO
Cultural
Heritage
Matched?
ECAs
Cemeteries
Adjusment/
Revision?
Other Uses
2.1. If the supply is adequate for the quantified needs and requirements, determine if
modifications or adjustments are necessary
102
2.2
If the supply is inadequate (less than the demand), identify strategic interventions to
ensure the provision or availability of land to address space or land requirements and
to ensure the realization of the citys/municipalitys development thrust.
2.3
If the demand is lower than the supply, the planner/s may decide on the appropriate
use(s) of the remaining land supply to ensure the achievement of the development
thrust.
103
3.1
Translate the land use requirements of the structure plan into major use categories;
3.2
Make a schematic diagram of the location and area of the identified land use categories
on the base map;
Location standards will normally vary from one use to another and from one
planning area to another. Local planners should be aware that standards are
not absolute but are more in the nature of guides or criteria to be followed under
normal circumstances.
3.3
Overlay the land use schemes to the existing land use map, land suitability map,
development constraint/preservation/conservation maps, infrastructure development
map, and other significant factors to come up with a tentative land use plan;
3.4
Finalize the land use plan by making adjustments and / or revisions where necessary.
These adjustments and/or revisions are made in any of the following areas:
3.4.1
104
Where locating uses in certain areas becomes the greater imperative, the
transportation plan should be adjusted or revised accordingly.
Areas with heavy densities (in some cases, heavy daytime densities such
as CBDs, industrial areas, and school zones) should be served by
adequate transportation routes and facilities such as parking areas,
service centers, etc.
3.4.2
3.4.3
The final land use plan that would emerge from the foregoing adjustments
and revisions should as much as possible, be the most balanced and
harmonious land use design in terms of area, location, and layout.
4. Tabulate and quantify the proposed land uses following Table 7-1 below. It shall
also include the proposed uses of water bodies within the jurisdiction of the city/
municipality.
105
PROPOSED
INCREASE/
(DECREASE)
Residential
Commercial
Infrastructure/utilities
Institutional
Parks/playgrounds and other
recreational spaces
Industrial
Agriculture
Forest and other forest use categories
Mining/quarrying
Grassland/Pasture
Agro-industrial
Tourism
Other uses/categories
Cemeteries
Sanitary waste management
facilities, e.g. sanitary landfill, STPs
Buffer zones/Greenbelts
Water uses
Nipa swamps
Mangrove forests
Tourism (recreation/resorts)
Settlements on stilts
Infrastructure (e.g. Ports and
Harbors, Fish Landing, Oil
Pipelines)
Reclamation Areas and Landfills
Aquaculture and marine culture (e.g.
fish cages/fish pens, seaweed
culture, etc.)
Fish sanctuary
Mudflats
Others, specify (e.g. river sand/
gravel quarrying, coral reef,
seagrass beds)
*
106
The planning of forests, agricultural, wetlands, heritage areas, and other detailed
land use categories are also subject to specific area planning guidelines as
may be mandated by concerned national agencies. These plans may include:
Forest Land Use Plan, Coastal Resources Management Plan, Tourism Master
Plan, Protected Area Management Plan, Ancestral Domain Sustainable
Development and Protection Plan, Solid Waste Management Plan, Agriculture
Development Plan, etc.
The DENR-IEMSD Sustainable Planning Guidelines may be utilized in preparing
the Forest, Agriculture, and Coastal Land Use Plans. For local government
units with ancestral lands and indigenous peoples, the NCIP Administrative Order
No. 1, Series of 2004: Guidelines on the Formulation of the Ancestral Domain
Sustainable Development and Protection (ADSDPP) as presented in Annex 71, should be observed.
In cases where there are already existing detailed plans as mentioned above,
prior to the preparation of the CLUP, such plan/s will have to be integrated and
reflected in the CLUP. However, this is without prejudice to the review of such
plans for purposes of harmonization and consistency with the city or municipal
vision.
5. Plot/delineate on the base map the proposed land and water uses to come up with
the City/Municipal Land Use Plan map. Use the standard color codes in delineating
the proposed land uses as presented in CLUP Process Step 4-Annex 4-3. (Refer
also to to Vol. 3, A Guide to Data Management for CLUP Preparation, to facilitate
mapping activities.).
The Land Use Plan Map will reflect the resultant land use proposals for the
entire city/municipality, including coastal and marine areas. For purposes of
having a more detailed presentation, the urban core and other urbanizing areas
may be enlarged to a bigger scale to show the detailed land uses within. The
components of urban use areas must be clearly specified and explicitly presented
to avoid subjectivity of interpretation.
6. Formulate the land use policies that will govern the specific land and water uses in
the entire city/municipality.
At this stage, identify Indigenous Knowledge Systems and Practices (IKSP) that can
be adopted to ensure sustainable use of special areas, i.e. Ancestral Domains.
107
Does each policy address the cause(s) of the priority problems identified in the
situation analysis?
Are the policies consistent with the stated vision, goals and objectives and with
each other?
Are the policies consistent with national, regional and provincial development
policies and plans?
What actions will these policies require? Is there a need for executive and legislative
action?
Consolidating the identified policies for the functional development areas according
to sectors for the subsequent identification of responsibility centers.
108
8. Identify programs and projects that will support the implementation of the Land
Use Plan.
8.1 Determine the relevant programs and projects that arise from the formulation of the
structure plan, the detailed land use plans including the identified policies, such as:
Additional linkages in terms of circulation system
Socialized housing
Parks and playgrounds and greening projects
Waste management systems such as sanitary landfills
Renewal or redevelopment programs
Cultural and heritage preservation programs
Upgrading of sanitation and drainage system
Irrigation projects
Reforestation projects
Others
8.2 Review the list of programs and projects resulting from the sectoral studies
8.3 Consolidate the programs and projects cited above into a general listing. This will
provide the basis for prioritizing projects/programs for implementation by the city/
municipality.
109
8.4
8.5
Prepare the implementation and monitoring plans/tools to implement the CLUP (Refer
to CLUP process - Steps 8 to 10 for the detailed procedures).
OUTPUTS
110
Annex 7-1
GUIDELINES ON THE FORMULATION OF ANCESTRAL DOMAIN SUSTAINABLE
DEVELOPMENT AND PROTECTION PLAN (ADSDPP) PURSUANT TO NATIONAL
COMMISSION ON INDIGENOUS PEOPLE (NCIP) ADMINISTRATIVE ORDER NO. 1,
SERIES OF 2004
Section 8. Basic Steps in the ADSDPP Formulation. The formulation of the ADSDPP shall
primarily be guided by the principle of self-determination, participatory planning and cultural
integrity with the main objective of ensuring the sustainable development and protection of
ancestral domain resources and enforcement of the rights of ICCs/IPs to their ancestral domain
as well as their rights as a people and as citizens. The responsibility of formulating the ADSDPP
rests with the community and they may avail of the services and expertise of other agencies
and support groups. Upon request of ICCs/IPs, the NCIP shall facilitate the formulation of the
ADSDPP and the planning process shall proceed as follows:
a. Pre-Planning Consultations. In preparation for the ADSDPP formulation, a series of
consultations shall be conducted by the NCIP field office with the following objectives:
1. Fully inform and educate all IC/IP community members of their rights and
responsibilities pursuant to existing policies and regulations.
2. Get the commitment of concerned IC/IP community members to formulate their
ADSDPP.
3. Identify members of the working group to formulate the ADSDPP.
b. Organization of the Working Group/Planning Team. A Working Group or Planning
Team shall be organized which shall comprise the traditional leaders and recognized
representatives from all ICC/IP sectors such as the women, youth, children, farmer/
fisher folks of the tribe that owns the ancestral domain. To facilitate the planning process,
sub-working groups may be organized by ancestral domain unit and/or ICC/IP sector
to assist the core Working Group.
c. Preparation of Work and Financial Plan (WFP). Prior to the formulation of the
ADSDPP, the core Working Group (WG) shall prepare a work and financial plan indicating
the planning activities, specific outputs, schedules, responsible persons/groups per
activity and the budgetary requirements including probable resources or sources of
funds. This shall be done in consultation with the Council of Elders and other members
of the community. Thereafter, the same shall be endorsed to the NCIP, through the
provincial and regional offices, for approval and possible funding assistance.
d. Data Gathering and Assessment. Data gathering or baseline survey and assessment
is the preliminary step in the planning process to produce the ancestral domain profile
and situationer. The Working Group(s) shall conduct a participatory baseline survey
focusing on the existing population, natural resources, development projects, land use,
sources of livelihood, income and employment, education and other concerns. The
survey shall include the documentation of the ICC/IP culture or IKSPs and historical
accounts or inventory of documents relative to the sustainable development and
protection of the ancestral domain. Likewise, it includes the appraisal of the quality and
quantity of existing natural resources In the ancestral domain. The baseline survey
shall target both secondary and/or primary data with the aid of survey instruments and
procedures.
111
The Working Group shall assess the data/information, identify and prioritize problems/
issues and concerns, determine needs and gaps, and try to understand the underlying
causes and how particular problems affect particular sectors of the community. The
output shall be presented to the community for validation of its accuracy and reliability
before proceeding to the succeeding steps of the ADSDPP formulation process
hereunder.
e. IP/AD Development Framework Formulation. Immediately after the validation of
the assessed data, the community shall collectively formulate the framework for their
development as a people and the sustainable development and protection of their
ancestral domain. This shall reflect their collective vision, mission, general objectives
or long term goals, priority concerns and development strategies that will set the direction
of the program/project identification and prioritization in the ADSDPP. The process shall
involve the evaluation of alternative development options without compromise of the
ICCs/IPs duties and responsibilities to their ancestral domains. The framework shall
be written in the language understood by all IC/IP community members, and translated
in English.
f.
112
j.
Submission of ADSDPP to NCIP. Upon validation and approval, the community through
its Council of Elders/Leaders shall submit the ADSDPP to the NCIP through the Provincial
Office (PO). The ADSDPP shall be incorporated into the Medium Term or Five Year
Master Plan for ICCs/IPs, which shall be the basis of programs/projects to be identified
in the annual and medium term budgetary proposals of the NCIP as well as other
agencies concerned with the welfare of ICCs/IPs.
Section 9. Incorporation of the ADSDPP into the Local Government Plans. After
approval of their ADSDPP, the ICCs/IPs shall submit the same to the municipal and provincial
government units having territorial and political jurisdiction over them for incorporation in their
development and investment plans. The LGUs are also encouraged to provide financial and
technical assistance in the implementation of the ICCs/IPs development plans.
113
DRAFTING THE
ZONING ORDINANCE
CLUP
STEP
Zoning is the division of a community into zones or districts (e.g. commercial, residential,
industrial, institutional, etc.) according to the present potential uses of land to maximize,
regulate and direct their use and development according with the CLUP. It takes the
form of a locally enacted ordinance which embodies among others regulations on the
allowed uses in each zone or district and deviations from the requirements prescribed
in the ordinance.
Drafting of the Zoning Ordinance (ZO) is basically translating the Comprehensive Land
Use Plan (CLUP) into a legal document/tool. In general, Zoning has the same features
or land use classifications as the CLUP, except that it provides for more detailed
information on zone boundaries and use regulations/controls, among others.
Zoning consists of two major elements, the Zoning Ordinance and the Zoning Map.
The Zoning Ordinance is a legally binding set of rules and regulations affirming
the usage of land in a city/municipality. This document contains a set of allowed
uses and regulations that applies to each designated zone.
The Zoning Map is a duly authenticated map defining divisions of different planned
land uses and regulations of land into zones in a city/municipality. It is a graphical
translation of the regulations to efficiently carry-out the presumptions of the
Zoning Ordinance. For purposes of accountability, the zoning map shall be
provided with transparent overlay(s) depicting critical information that the users/
public should know, e.g., fault lines, subsidence areas, protected areas, etc.
A Zoning Ordinance should take the form of a statute, with a title and an enacting clause.
A Zoning Ordinance (ZO) shall have the following components/features:
Title of the Ordinance
Authority and Purpose
Definition of Terms
Zone Classifications
Zone Regulations
General District Regulation
Innovative Techniques
Miscellaneous Provisions
Mitigating Devices
Administration and Enforcement
Step 8. Drafting the Zoning Ordinance
114
PURPOSE
To define/delineate in the map the zone boundaries
To identify activities which shall be allowed/permitted within each zone
To develop other development controls to ensure an objective implementation of the
CLUP
EXPECTED OUTPUTS
Draft Zoning Ordinance
Zoning Map with transparent overlay(s) depicting critical information which the
stakeholders/users should know or be aware of, e.g., faultlines, flood-prone areas
and risk/hazard prone areas
STEPS
I.
In all these steps, the Model Zoning Ordinance (MZO) published by HLURB
shall serve as reference for the suggested details of the ordinance.
The enumerated purposes are the broad objectives of a typical local Zoning
Ordinance and may be adopted by any local government. Some local legislative
bodies may however, find these purposes stated too broadly and may wish to
translate them into more specific terms appropriate to the specific goals and
objectives of the CLUP. They may also include other purposes, which are more
expressive of the specific development needs, goals and directions of their respective
locality.
116
The following is a general list of zone classifications which may apply to a locality.
ZONING
CLASSIFICATION
DESCRIPTION
Residential
Socialized Housing
Commercial
Industrial
Institutional
Agricultural
Agro-industrial
Forest
Water
Bodies of water within cities and municipalities which include rivers, streams,
lakes and seas
Tourism
Sites within cities and municipalities endowed with natural or man-made physical
attributes and resources conducive to recreation and other activities.
117
Local governments may also adopt the following detailed zone classification, depending on
the prevailing conditions in the locality such as population density, income and level of
development.
The output of this step will be a Zoning Map, boundary description of each zone in the
map and the accompanying text.
3. Identify and agree on zone regulations for each zone district. This includes
the list of allowable uses/activities, such as, easements/setback, building
height, bulk, open space, area, population density and other conditions.
Zone regulations of cities and municipalities will differ in many ways
depending on the type/level of development and the localitys stated vision,
goals and objectives.
118
Examples:
a. For Residential Zones:
To make zoning more implementable and suitable in a given type of locality, two
approaches may apply in the designation of residential zone or district:
a.1 Designate a generalized residential zone without reference to density level i.e.
residential zone (R).
a.2 Designate residential zone in relation to different density levels: low density residential
zone (R-1), medium density residential zone (R-2), and high-density residential
zone (R-3) and Socialized Housing Zone (SH Z).
a.3 For highly urbanized cities and urban/urbanizing municipalities additional residential
zone with specific use regulations may be divided such as follows: Residential
Zone (R-4) for Townhouses, Residential Zone (R-5) for residential condominium.
The local planner/zoning administrator shall recommend or adopt only one approach in
relation to the policies and objectives of the locality as expressed in their respective
Comprehensive Land Use Plan.
Refer to MZO for different residential zone models.
b.
The local planner/Zoning Administrator/Zoning Officer shall recommend or adopt only one
approach in relation to the policies and objectives of the locality as indicated in their respective
Comprehensive Land Use Plan.
Refer to MZO for commercial zone models
c.
119
4.1
Innovative techniques and designs shall apply to LGUs with projects that introduce
flexibility and creativity in design.
4.2
5.
Identify/define provisions to administer and enforce ZO. This will comprise Article
X, of the draft ZO and shall include among others, the following:
5.1
Permitting systems for various land development regulations and economic activities;
5.2
5.3
Creation of Local Zoning Board of Adjustments and Appeals (LZBAA) composed of:
a.
b.
c.
d.
e.
120
5.4
The Local Zoning Review Committee shall have the following powers and
functions:
1. Review the Zoning Ordinance for the following purposes:
a. Determine amendments or revisions necessary in the Zoning Ordinance
because of changes that might have been introduced in the Comprehensive
Land Use Plan.
b. Determine changes to be introduced in the Comprehensive Land Use Plan
in the light of permits given, and exceptions and variances granted.
c. Identify provisions of the ordinance difficult to enforce or are unworkable.
2. Recommend to the Sangguniang Panlungsod/Bayan necessary legislative
amendments and to the local planning and development staff the needed
changes in the plan as a result of the review conducted.
3. Provide information to the HLURB that would be useful in the exercise of its
functions..
121
5.5
5.6
5.7
5.8
5.9
6. List and define terms to be used in the ZO, this will comprise Article III. Sample
terms suggested to be included are listed in the MZO.
Some of the terms used in the Zoning Ordinance are technical and carry specific
meanings which should not be subject to varying interpretation by the reader/s.
Also, there are definitions of terms which may be applicable only to the local
government concerned. Hence, the need for a section on definition of terms.
Only those terms, which are actually employed or used in the Ordinance, should
be included.
The City/Municipality has the option to place this Article at the end of the Ordinance
as an appendix or to have it as the third article, just like the Model. The advantage
of placing it as an appendix is that it follows a more logical sequence because,
usually, readers refer to this section only when they meet the terms in the course
of reading the Ordinance.
II. Present the draft zoning ordinance and accompanying zoning maps to LDC and SB/
SP for validation purposes prior to the conduct of public hearing.
FURTHER READING
HLURB Model Zoning Ordinance (Vol. X), 1995
122
Define Title
and Purpose
of ZO
Art. I & II. Authority
and Purpose
Designate/
classify
specific zones
Identify
zone use
and
regulations
Determine innovative
techniques,
miscellaneous
provisions and
mitigating device
Art. VII, VIII & IX.
Innovative Techniques,
Miscellaneous Provisions
and Mitigating Devices
Identify/define
provisions to
administer and
enforce ZO
Art. X.
Administration
and Enforcement
List/define
terms
Art. III. Definition
of Terms
123
CLUP
STEP
Step 9 provides a systematic approach to consensus building on the final draft of CLUP/
ZO prior to its submission for approval/ratification. This involves a 3-stage process:
public display and information dissemination, conduct of public hearing/consultation,
and the refinement of the CLUP/ZO as a result of the public hearing/consultation.
PURPOSE
To inform the general public and ensure an objective and participatory review of the
draft CLUP/ZO
To encourage ownership of the plan and gain support for plan implementation
EXPECTED OUTPUTS
Final draft of CLUP/ZO for approval/ratification
STEPS
1. Prepare the required documents for the three-stage process of consensus building
on the draft CLUP/Zoning Ordinance. The 3-stage process are as follows:
Public exhibition
Public hearing
Committee hearing
124
The above information details for the poster/flyers shall be as agreed upon and
provided for by the Hearing Board constituted for public hearing purposes.
3. Prepare an information dissemination plan for the draft CLUP/ZO and designate
the implementing department or office.
Strategies for information dissemination may include publication in local newspapers, radio
broadcast, and distribution of posters/flyers in schools, offices and public assemblies,
depending on the level of development or complexity of the municipality/city concerned.
These will also depend on the budget and funds available for the purpose.
4. Constitute the Public Hearing Board.
125
126
5.1.3 Disseminate information on the CLUP through any of the following ways:
publication in local newspapers, radio broadcast, and distribution of posters/
flyers in schools, offices and public assemblies.
5.2
Public hearing on the draft CLUP can be undertaken in several stages depending
on the budget and complexity/level of development of an LGU. This is
undertaken prior to endorsing the plan to the SP/SB for deliberation and
enactment.
For Component Cities and Municipalities (CCMs), at least one public hearing
is recommended
For Highly Urbanized Cities (HUCs) and independent component cities
(ICCs), at least two (2) public hearings.
In addition to the said minimum number of public hearings, SP/SB committee
hearings may be conducted with the participation of the committee stakeholders.
127
ii. Presentation of the highlights of the draft CLUP and ZO and supporting sectoral
studies.
iii. Open forum to solicit reactions/comments on the plan. Workshops/small group
discussions may be opted to ensure maximum participation.
iv. Presentation of next steps to be undertaken or subsequent activities of Hearing
Board to include the tentative date when the finalized CLUP is expected to be
ready.
5.3.
128
The committee hearings can be done after the Public Hearing, while
awaiting for the comments and while refining the draft CLUP/ZO.
The public should be given at least fifteen (15) days after the public hearing
to submit position papers.
7. Refine the draft CLUP and ZO as a result of above steps (5.1 to 5.3 ). A series of
meetings/workshops may be conducted, as necessary.
8. Brief the LDC and submit to Sangguniang Panglunsod/Bayan (SP/SB) the refined
draft CLUP and ZO for their First and Second Readings prior to the subsequent
mandatory review by the concerned offices/agencies in the provincial, regional, or
national levels.
After passing the 1st and 2nd readings of the SP/SB, the CLUP/ZO will then be
submitted to the Sangguniang Panlalawigan (SP) through the PLUC or to the
HLURB through the Regional Land Use Committee (RLUC) as appropriate.
The CLUP and ZO shall be finally adopted by the SP/SB after the
comprehensive review and favorable endorsement by the appropriate body.
Please refer to CLUP Step 10 for the complete guide on CLUP/ZO Review,
Adoption and Approval.
129
130
Annex 9-1
EXECUTIVE SUMMARY
CITY/MUNICIPALITY
PlanningPeriod
to
I. Vision
II. Brief Situationer
Demography
Social Services
Economiy
Physical Infrastructure
Natural Environment (forest, water bodies, solid/liquid wastes, etc.)
Land Use Development Trend
Local Administration
III. Development Constraints and Opportunities including a list of prioritized
Issues and Concerns
IV. Major Development Goals and Objectives
V. Preferred Development Thrust(s) and Spatial Strategy (Structure/Concept
Plan)
VI. Proposed Land Uses and Zoning Plan
VII.Proposed Major Programs and Projects
131
Annex 9-2
132
133
REVIEWING, ADOPTING
AND APPROVING
THE CLUP AND ZO
CLUP
STEP
10
This step provides the guide to conducting the mandatory comprehensive review and
ratification of the CLUP/ZO by the Sangguniang Panlalawigan (SP), Regional Land
Use Committee (RLUC), or the HLURB.
PURPOSE
To review the plan in terms of its consistency with national, regional and other relevant
plans
To provide the CLUP/ZO the legal mandate for implementation
EXPECTED OUTPUTS
Adopted/ atified CLUP/ZO
STEPS
1. The LGU, through the SB/SP (Sangguniang Panlungsod), endorse and transmit
the final draft of CLUP/ZO, together with the supporting documents for review
and subsequent approval to the SP (Sangguniang Panlalawigan)/HLURB.
134
135
The CLUPs/ZOs of the cities and municipalities in Metro Manila shall be reviewed
by Metro Manila Development Authority (MMDA).
2.1
Refer to Figures 1-3 for the systematic activities in conducting the CLUP
review.
2.2.
2.3.
The reviewing body returns the CLUP and ZO to the LGU for revision together
with the review comments and recommendations or for adoption and enactment
if no revisions were recommended.
3. The LGU revises the plan consistent with the recommendations of the reviewing
body, if any.
At this stage, close coordination between the LGU and the reviewing body is
recommended to facilitate the review and plan adoption process.
136
6. LGU publishes the approved/ratified CLUP and Zoning Ordinance consistent with
Section 59 of the Local Government Code (RA 7160).
137
Annex 10-1
PLAN REVIEW, ADOPTION AND APPROVAL PROCESS FOR
COMPREHENSIVE LAND USE PLANS
OF COMPONENT CITIES AND MUNICIPALITIES (CCMS)
RESPONSIBLE PARTY
ACTIVITIES
SangguniangPanlalawigan (SP)
3. Receives plan
completeness.
documents
and
checks
3.1
NOTE: * Refer to Annex 9-1 of CLUP Step 9 for Sample Executive Summary.
141
RESPONSIBLE PARTY
ACTIVITIES
SangguniangPanlalawigan (SP)
142
RESPONSIBLE PARTY
ACTIVITIES
Sangguniang Panlalawigan Resolution approving
the plan:
- HLURB-RFO (1 set)
- LGU (remaining copies)
2.
Provincial
Agriculturist
(PA)
3. NonGovernment
Organization
(NGO)
3.a
4. Housing and
Land Use
Regulatory
Board
(HLURB)
4.a Checks whether LGU clearly identified its functional role and
whether the proposed land use plan and development strategies
are consistent with its vision.
4.b Evaluates if the plan is in harmony with the land use plans of
adjacent cities and municipalities.
4.c If the province has no provincial plan, evaluates the city/
municipal plan in accordance with the development policies of
the Province.
4.d Evaluates if the land requirements for basic services and
facilities are identified, quantified and properly delineated.
4.e Evaluates if the location of different land uses are suitable,
143
Checks whether the plan increases the access of the underprivileged and other basic sectors to socio-economic
opportunities.
3.b Evaluates how development strategies, programs and projects
will affect the basic sectors.
3.c Evaluates the CLUP vis--vis laws and regulations affecting
human rights, gender, and other sectoral concerns.
5. Department of
Environment
and Natural
Resources
(DENR)
6. Department of
Agrarian
Reform
(DAR)
6.a
7. Department of
Trade and
Industry
(DTI)
144
plans/programs.
8. Department of
Public Works
and Highways
(DPWH)
8.a
8.b
8.c
8.d
8.e
9. Department of
Tourism
(DOT)
9.a
9.b
9.c
10. Department of
Interior and
Local
Government
(DILG)
145
Annex 10-2
PLAN REVIEW, ADOPTION AND APPROVAL PROCESS FOR
COMPREHENSIVE LAND USE PLANS OF HIGHLY-URBANIZED CITIES (HUCS)
AND INDEPENDENT COMPONENT CITIES (ICCS)
RESPONSIBLE PARTY
ACTIVITIES
RLUC
RLUC Chairman
NOTE: * Refer to Annex 9-1 of CLUP Step 9 for Sample Executive Summary.
146
RESPONSIBLE PARTY
ACTIVITIES
b. If there is no quorum, defers review until
quorum is met. A quorum is met when
majority [50%+1] of the members are
present.
RLUC
RLUC
147
RESPONSIBLE PARTY
ACTIVITIES
a.
b.
2. Housing and
Land Use
Regulatory
Board
(HLURB)
148
LDIP.
2.h Checks whether the land use plan is translated into the requisite
Zoning Ordinance with clear zone boundaries.
2.i Evaluates the CLUP vis--vis approved agency related policies/
plans/programs.
3. Department of
Trade and
Industry
(DTI)
4. Department of
Tourism (DOT)
5. Department
Transportation and
Communication
(DOTC)
6. Department
of Interior
and Local
Government
(DILG)
149
8. Department of
Environment
and Natural
Resources
(DENR)
9. Department of
Agrarian
Reform
(DAR)
9.a
10. Department of
Public Works
and Highways
(DPWH)
150
12. NonGovernment
Organization
(NGO)
12.a. Checks whether the plan increases the access of the underprivileged and other basic sectors to socio-economic
opportunities.
12.b. Evaluates how development strategies, programs and projects
will affect the different sectors.
12.c. Evaluates the CLUP vis--vis laws & regulations affecting
human rights, gender and other sectoral concerns.
151
Annex 10-3
PLAN REVIEW, ADOPTION AND APPROVAL PROCESS
FOR METRO MANILA CITIES AND MUNICIPALITIES (MMCMS)
RESPONSIBLE PARTY
Local Government Unit (LGU)
ACTIVITIES
Important: Step 1 below shall only take place after the
following activities had already been undertaken:
Plan formulation (in consultation with HLURB,
MMDA and PRRC, among others)
Passed SB/SP 1st and 2nd readings.
Required Public hearing conducted.
NOTE: * Refer to Annex 9-1 of CLUP Step 9 for Sample Executive Summary.
152
RESPONSIBLE PARTY
ACTIVITIES
153
RESPONSIBLE PARTY
ACTIVITIES
18. Complies with publication requirement under Sec.
59 of the Local Government Code (RA 7160).
NOTE: In view of the ninety-day reglamentary period, the MMDA shall indorse to the
HLURB Board, through the FOSG, plans for approval within sixty (60) from the date of
submission of plan documents.
ACTIVITIES
1. Checks if local plan conforms with the Metro
Manila Physical Development Framework Plan
(1996 - 2016) or other approved national or
regional plans.
a. Evaluates if the plan adequately defines the
role of the city/municipality in relation to metro
manila development framework or
specialization of the locality vis--vis other
cities/municipalities in MMA.
b. Evaluates if the plan adequately defines the
localitys interrelationship with the adjoining
cities/municipalities.
c. Determines if the proposed development
strategy is responsive to the needs of the
residents and its defined development role and
others availing of localitys services/facilities.
d. Evaluates the infrastructure and utilities
solid waste disposal, traffic situation, drainage
and sewerage, flooding; social services and
economic structure.
e. For MMA LGUs along Pasig River, check if
the following policies covering the adoption of
a uniform easement provision along the Pasig
river system including its major and minor
tributaries, as provided in MMDA Resolution
no.3, are complied with/integrated in the
CLUP/ZO:
Establishment of a continuous 10-meter
Environmental Preservation Area (EPA),
154
RESPONSIBLE PARTY
ACTIVITIES
determined from the existing bank of the
river, along both banks of the 27-km stretch
of Pasig River, from Manila Bay to Laguna
Lake, including the major tributaries of
Marikina River and San Juan River and
developing the same into linear parks,
roads, walkways, or greenbelts, conducive
to transport, recreation and tourism.
Establishment of a 3-meter easement
along secondary tributaries, creeks and
esteros of the Pasig River.
Construction of permanent structures are
not allowed within the 10-meter EPA for
pocket parks, linear parks, plazas,
viewpoints, pedestrian promenades, bike
lanes, play lots, open air sports facilities
(basketball courts, tennis courts),
reflexology areas, urban agriculture, plant
nurseries and wastewater gardens.
Construction of the following structures are
allowed but shall be subject to PRRC
guidelines: ferry stations; sewage
treatment plants; emergency call boxes or
stations; security stations or coast guard
stations; public toilets, pergolas, gazebos,
trellises; tourist information facilities, shops
and snack bars, ambulant carts,
newsstands; benches; drinking fountains;
public art; plant boxes; parking; existing
roads and underground power/cable
lines.
The following activities/uses are strictly not
allowed along the easement: residential
uses; service facilities; storage uses;
pollutive activities; solid waste transfer
stations; and land fills.
Immediate adjacent developments are to
face the Pasig River and provide a
maximum view of the river through
provision of a maximum height of 1.80
meters. Materials are to be made of
wooden lattice, grill, or interlink wire
materials. CHB walls are allowed subject
to a maximum height of 0.60 m, in
combination to the above materials.
Maintenance of architectural and visual
qualities of existing historic buildings and
streetscapes through preservation and
adaptive re-use of historically and culturally
155
RESPONSIBLE PARTY
ACTIVITIES
f.
156
RESPONSIBLE PARTY
ACTIVITIES
g. Reviews the following sectors:
g.1
Economic
g.1.1
g.1.2
g.1.3
g.1.4
g.1.5
g.1.6
g.1.7
g.1.8
157
RESPONSIBLE PARTY
ACTIVITIES
defined role and adequate to support the
various land uses in the localities.
g.2.2
g.2.3
g.2.4
g.2.5
g.2.6
g. 3
Social
g.3.1
g.3.2
g.3.3
g.3.4
158
RESPONSIBLE PARTY
ACTIVITIES
RA 7279.
g.3.5
g.4
Environment/Ecology
g.4.1
g.4.2
g.4.3
g.4.4
g.4.5
g.4.6
g.4.7
g.5
Land Use
RESPONSIBLE PARTY
ACTIVITIES
design in terms of distribution and location
of the different functional areas.
g.5.2
g.5.3
g.5.4
g.5.5
g.6
g.6.3
g.6.4
g.7
Local Administration
g.7.1
160
RESPONSIBLE PARTY
ACTIVITIES
as identified in the socio-economic, land use and
infrastructure sectors and whether these are
prioritized.
g.7.2
161
g.7.3
g.7.4
IMPLEMENTING THE
CLUP AND ZONING
ORDINANCE
CLUP
STEP
11
PURPOSE
To establish detailed operational plans for the implementation of the CLUP and ZO
To establish institutional mechanisms responsive to the vision, goals and objectives of
the CLUP
To establish partnerships and cooperation arrangement with stakeholders
EXPECTED OUTPUTS
Approved Institutional Structure and Systems and Procedures
Investment Programs
Information, Education and Communication Plan (IEC)/Advocacy
STEPS
I.
162
1.1
ISSUES AND
CONCERNS
RECOMMENDED
ACTION
C/MPDO
Concern: LC prerequisite to
issuance of Building Permit
Conference/Conduct of
coordinative meetings
Consideration of CLUP/ZO in
land assessment/valuation
-do-
Housing Board
-do-
-do-
-do-
-do-
Weak on monitoring
In most cases, LGUs will require changes in its organizational structure to improve
development performance and eventually attain the vision, goals and objective of
CLUP. Some offices may need to be strengthened by way of additional staff and/or
163
capacity building programs, while others may need to be scaled down or abolished
and new offices/units deemed necessary in implementing the CLUP may have to be
established.
LGUs may likewise need to institutionalize AD HOC committees to handle critical
functions and to promote community/multi-sectoral participation in governance. Such
AD HOC committees are suggested to be of a multi-sectoral composition to ensure
a sustained partnership in enforcing the CLUP and ZO.
Some recently approved CLUPs/ZOs have resulted to the creation of special bodies/
committees where the stakeholders are aptly represented. To cite some:
Area Development Council composed of multi-sectoral representatives created to
ensure an effective partnership in implementing the policies, programs and projects
in the designated Area Development Zones (ADZs) provided for in the CLUP and ZO.
(Pasay City CLUP)
Local Housing Boards composed of local government unit officials, private sectors
and informal settlers association created to manage the housing program in the LGU.
These are based on the Housing Sector Plan as well as the land use plan on residential
areas as reflected in the CLUP/ZO of the LGU. (e.g. Office of Population and Urban
Affairs, Ormoc City).
Citizen Participation Committee a multi-sectoral committee established to ensure
the active participation of community in governance. (Naga City)
1.2
1.3
164
b.1.
b.2.
b.3.
b.4.
b.5.
b.6.
b.7.
c. Assess applications for land use development permits and management schemes
based on the following considerations:
c.1. Conformity with the approved comprehensive Zoning Ordinance in terms of
site zoning classification, use regulations, area regulations, documentary
requirements and others.
c.2. Determine whether proposed development project is a permitted use,
allowable use or a possible variance within the zone applied for.
c.3. Use of Decision Guidelines for Land Development Projects/Development
Assessment Guidelines in assessing project. See Annex 11-1 for the Decision
Guidelines for Land Development Projects.
1.4
Consolidate the results of the above steps and reach consensus on the
changes in organizational structure and additional mechanisms needed to
implement the CLUP/ZO
Consider the following for submission/deliberation by SP/SB
a. Revised organizational structure to include special bodies/committees to be
constituted as a result of the above steps.
165
The creation of the special bodies through an Executive Order shall likewise define
the following:
functions of the committee/body
membership requirements and qualification standards
time frame of the committee (the same special bodies are created for short
term/urgent programs hence may be short-lived)
operating procedures/linkages with other departments/offices
The revised organizational structure shall identify the following:
staff requirements and qualification standards
training/capacity building program
new office/unit to be created/strengthened
budget requirements
b. Draft proposed amendments to existing ordinances found to be inconsistent with
the CLUP/ZO
c. Draft of proposed new legislation/ordinance to respond to identified gaps in
implementing CLUP/ZO
d. Draft proposed amendments, (if any), to existing operational guidelines
e. Systems and procedures for various permits/clearances.
II. Assess and Prioritize the General Listing of Programs and Projects Generated in
Step 7: Preparing the Land Use Plan
1.
Check for the desirability, redundancy, practicality and efficiency of the consolidated
general list of programs and projects. These programs and projects shall be included
in any investment planning exercise of the City/Municipality.
This activity is a first level assessment, which will result to the short-listing of programs
and projects.
The above assessment criteria are defined as follows:
1. Redundant projects - those that duplicate or overlap existing, new or proposed projects.
For example: building a barangay road in the same alignment as a secondary road; on
setting up an agricultural state college or a hospital in every municipality.
2. Impractical or unrealistic projects - those that do not conform to technical standards or
feasibility indicators. For example: a hydroelectric power plant project in a barangay
without potential water resources; or a nuclear power plant on an earthquake fault or
known active volcano.
3. Undesirable projects - those that pose negative side effects to the population or area or
offend the values and cultural beliefs of the people. For example: a golf course project in
a remote and depressed municipality; the promotion of highly pollutive industries in a
pristine river system; or garbage disposal near a watershed.
4. Inefficient projects - projects that are costly to run at the local level because they cannot
take advantage of economies of scale. For example: a nuclear power plant. This type of
project is operated more efficiently by the national or regional government. Other projects
that may be considered inefficient are those whose modes of implementation are inefficient.
For example: a health and nutrition program implemented house-to-house may be less
efficient than one given at an accessible health center; or the training of all farmers
on a particular technology compared to using a demo farm to promote a technology.
166
2. Conduct the second (2nd) level assessment of the short listed programs and projects
to determine conflicts, compatibility and complementarities.
Assessment criteria are defined as follows:
1. Conflicting projects - those with expected benefits that tend to nullify the benefits of
other projects or when the implementation of which obstructs the implementation of another.
For example: an incineration project to solve the garbage disposal problem in an area
conflicts with an environmental project that seeks to minimize air pollution to protect
peoples health.
2. Complementary projects - are those activities, components or objectives that mutually
support each other. For example: Gintong Ani, provision of post-harvest facilities, farmto-market toad, agricultural credit facilities and an irrigation project.
3. Compatible projects - those that are neutral, that is, they neither complement nor conflict
with each other or those that can be implemented without affecting the benefits or costs
of the other projects. For example: construction of classrooms has no effect on the
construction of health centers (although they may compete for scarce resources).
The following matrix of assessment maybe used following the instructions below:
CONFLICT-COMPATABILITY-COMPLEMENTARITY MATRIX
Project 1
Project 1
Project 2
Project 3
Project 4
Project 5
Others
Project 2
Project 3
Project 4
Project 5
Others
O
O
N
O
X
N
X
O
X
N
N
O
X
N
X
O
N
N
X
X
X
N
O
N
N
X
O
N
OUTPUTS
1
Strengthen existing
institutional structures and
mechanisms
2
Assess and prioritize the
general listing of programs
and projects
Short-list of prioritized
programs and projects
including project proposal
and fund sourcing
3
Prepare IEC plan to promote
transparency and
accountability in
implementing the CLUP/ZO
Strategies to disseminate/
inform about the CLUP/ZO to
the stakeholders and general
public
4
Review/revise budgetary
support/requirement to
implement the CLUP/ZO
170
Annex 11-1
DECISION GUIDELINES FOR LAND DEVELOPMENT PROJECTS
The following provides a useful checklist of guidelines to assess an application for land use
development projects. In general this is termed as Development Assessment Guidelines.
Not all criteria can apply at all times and they will vary from zone to zone and from use-type to
use-type.
Zoning/Enforcement officers will need to exercise their own judgment as to which
criteria is relevant for a particular application.
Assessment/decision guidelines for development applications:
Compliance with all relevant national laws and policies;
Compliance with all relevant ordinances and resolutions of the citys SP;
Compliance with the relevant policies of the zoning ordinance;
The primary purpose of the zone;
That the proposal is not prohibited under the zone;
Complies with any special requirements for such a use within the zoning ordinance;
That the proposal does not inhibit the orderly planning of the area generally;
That the proposal enhances the amenity of the area (but at the very least, does not
detrimentally affect the amenity of the area);
The proximity of the development to any public land and the likely impacts;
Factors likely to contribute to land degradation, salinity, or reduction of water quality;
Whether the proposal will generate undesirable off-site impacts from uncontrolled or
untreated storm water flows;
The extent and nature of vegetation on the site and the likelihood of its destruction;
Whether on-site vegetation can be protected, planted, or allowed to regenerate;
The degree of flood erosion or fire hazard associated with the location of the land or the
proposed use or development, or any proposed management measures to minimize such
hazards;
The effect that existing uses on nearby or adjacent land may have on the proposed use;
The availability and provision of utility services such as:
-
For industrial uses or developments; the effect that the proposal may have on nearby existing
or proposed residential areas, or other uses that are sensitive to industrial off-site effects;
The effect on the free movement of pedestrians, cyclist, supply vehicles, waste removal,
emergency services, and public transport;
The location of garbage storage or waste collection area or facilities, and areas for sorting.
Storing and removal of recyclables (critical in shopping areas);
Defining who is responsible for on-going and regular maintenance of buildings, landscaping,
and paved areas;
Any natural or cultural values on or near the land such as heritage classified sites, objects,
or buildings;
The capability of the land to accommodate the proposed use or development, addressing
site quality attributes including such things as: soil type, soil fertility, soil structure, soil
permeability, soil stability, aspect, contour, slope, and drainage pattern;
For agricultural applications; how the use or development relates to agricultural land use,
agricultural diversification, and natural resource management;
The maintenance of farm production and the impact on the agricultural economy;
The suitability of the site for the proposal and the compatibility with adjoining and nearby
farming activities;
The need to prepare an integrated land management plan;
The requirements of any existing or proposed rural industry (especially value-added or
downstream industries);
The impact in agricultural areas of any existing or proposed agricultural infrastructure;
The need to prepare an Environmental Effects Statement (EES), or an Environmental
Impact Statement (EIS) for any proposal;
Any likely environmental impacts on the natural physical features and resources of the
area, in particular any impact caused on the soil or water quality or by the emissions of
noise, dust or odors;
Any likely impacts upon flora, fauna, and landscape features of the area, particularly
endangered native vegetation or fauna;
The need for particular requirements for the repair or restoration of the environment;
The need or otherwise for any dwelling(s) in association with the proposed use or
development;
The need for and impact(s) of any roads, access ways, paths, on the agricultural
environment, and the justification for their need in support of the proposal;
The need for, and visual impact (or otherwise) of any proposed advertising signage, either
free-standing or attached to the proposed development;
In floodplains, the compatibility of the proposal having regard to known flood risks;
Any local flood plain plans or flood risk reports;
Any comments or requirements from the relevant flood plain management authorities.
Compliance with distance/buffer requirements for project developments adjoining risk such
as fault zones, sink holes, water bodies, etc.
172
12
13
14
15
173
11
10
4
5
29
30
31
32
33
34
35
36
37
38
39
175
28
27
Annex 11-2
FRAMEWORK FOR SPECIFYING CAUSAL LINKS BETWEEN
PROJECT ACTIVITIES AND SOCIOECONOMIC AND DEMOGRAPHIC OUTCOME
Project
Output
(e.g., rural
electrification
Project
Effects
(e.g., use of
electricity)
Income
Production
Employment
Wage rate
Others
Pool of
project
Inputs of other
projects
177
Impact on
Socioeconomic
Factors
Outputs of
Other Projects
Effects of
Other Projects
(e.g., irrigation,
credit, roads,
family planning,
health services)
(e.g., use of
irrigation, use
of loaned funds
for business
expansion)
Impact on
Proximate
Determinants
of
Demographic
Processes
Impact on
Demographic
Processes
Fertility
Mortality
Migration
- Use of health
care services
- Use of contraception
- Use of safe
water supply
- Nutrient and
dietary intake
Annex 11-4
SAMPLE FORMAT PROJECT BRIEF
City/Municipality of
PROJECT BRIEF
Project Title
Duration
Funding Agency
Implementing Agency
Project Activities
Expected Output
Budgetary Requirements
180
Annex 11-4
COMPONENTS OF FEASIBILITY STUDY
A good feasibility study covers the various phases of project implementation, organization and
management, marketing, technical specifications and financial aspects, which comprise the
components of a feasibility study.
Market Study - determines the future demand or need for the projects effects or outcomes
or its potential to satisfy or meet a demand-supply gap. For example, if there is a scarcity
or gap between the number of pupils and the actual number of classrooms, then there is a
market for additional classrooms or an additional school building.
Technical Study - ascertains whether the technical specifications of a project are practical
and can be followed. For example, construction of a public market should consider
accessibility and safety to market users. The public market that is remote from the
consumers or is located in a perennially flooded area of the locality is not considered
technically feasible. Otherwise, the said market project may be made technically sound,
by adding other project components (e.g., providing for a road to give consumers better
access to the market, or improving the flood control and drainage system in the proposed
market location). These innovations, of course, entail additional project costs.
Financial Study - establishes if the financial requirements are adequate. It also determines
whether the money put into the project will enable the project to become commercially
viable or at least self-liquidating while, at the same time, servicing its debt obligations.
Commercial viability means that the project is able to operate at a return that can finance
its day-to-day operations (salaries and wages of personnel, rent, utilities and maintenance
costs, etc.) and at the same time service whatever debts or loan obligations it has incurred.
Economic or Social Desirability Analysis - determines the projects social and economic
costs and benefits (net benefit-cost ratio) to the community or society. This component
assesses the projects benefit to the community such as additional income or revenue to
the locality, generation of employment, human resource development and other indicators
of a communitys overall well being. For example, building a P10 million 50-kilometer farmto-market roads connecting agricultural municipalities with a shipping port may be feasible
and desirable if food production and farm income in the area will increase.
Operation and Management Study - analyzes the overall capability of the projects
implementers and the entity assigned to run and manage the project. This includes analysis
of the projects organizational structure and staffing pattern and the cost of operating and
maintaining such structure and personnel.
FURTHER READING
-
181
Gender-responsive Population and Development Planning Guide, Step and Preparation and Projection of Concept
Guide to Population and Development Planning
Setting the Plan Mechanism
MONITORING, REVIEWING
AND EVALUATING
THE CLUP AND ZO
CLUP
STEP
12
With the CLUP and its implementation program established, assessment procedures
of its effectiveness must be instituted. Monitoring, review and evaluation are performed
to assess how fully and how effectively a plan is being carried out. On the whole, the
process is meant to assess the overall impact of the plan to the quality of life of the
population. Basically, monitoring and evaluation of land use changes and specific
program/project implementation is carried out.
PURPOSE
To establish/assess the effectiveness of the CLUP as determined by the quality of life
indicators set forth in the vision.
To evaluate conformity of land development projects issued permits and clearances
with the approved ZO.
To assess impacts of land development project issued permits and clearance on the
local economy, environment and on social services.
To ensure completion of program or project being implemented through a systematic
and progressive assessment based on timetables, cost and benefits to target groups
or outcome.
EXPECTED OUTPUTS
Monitoring system and procedures, and set of indicators for quality of life assessment.
Monitoring system and procedures for land use changes.
Project Monitoring Schemes (PMS)
STEPS
1. Organize/create monitoring review and evaluation (MRE) teams, which are
coordinative in nature and consisting of LGU organic personnel and other
stakeholders, i.e., multi-sectoral teams; barangay level monitoring teams.
2. Develop monitoring systems and procedures and establish indicators and
benchmark data and frequency of monitoring activities to serve as guide for
monitoring in the following aspects: (Refer to Annex 12-1 Designing a Project
Monitoring System)
Step 12. Monitoring, Reviewing and Evaluating the CLUP and ZO
182
2.1
Quality of Life Assessment using the essential elements of the vision adopted by
the city/municipality. This can be done through:
a. The Vision Reality Gap Analysis described in Step 3, Setting the Vision.
b. Use of indicators of well-being consistent with population and development
sensitive planning approach. These indicators of abilities (to be) or capabilities
(to do) include, among others, health (to be healthy); nutrition (to be wellnourished); education (to be educated or to be knowledgeable and skilled); fertility
(to bear and rear desired number of children); and migration (to travel in search of
economic and social opportunities)
2.2
Land Use Changes, considering land use development clearances and permits
issued by the Office of the Zoning Administrator. These are presented in reports of
issuances, decision maps and environmental studies conducted for the purpose.
Consultations with stakeholders are also conducted to assess communitys reactions
on the particular project or land use change.
Decision mapping may be done manually by indicating in the Zoning Map the
approximate location of land development projects issued clearances and
permits using mapping pins. To facilitate interpretation color of pin shall
correspond to the color codes for land use categories specified in Step 7:
Preparing Land Use Plan. This method will make transparent to stakeholders
the real-time monitoring of land use changes. The guide on the use of GIS in
monitoring land are provided in the HLURB GIS Cookbook for LGUs.
If a significant number of locational clearances or development permits are
non-conforming or inconsistent with the CLUP/ZO, the LGU may decide to
revisit the effectiveness/responsiveness of the existing CLUP/ZO.
A sample guideline prepared by HLURB-RFO 10 for assessing when to revise
the CLUP is presented in Annex 12-3.
2.3
183
2.4
3. Conduct actual monitoring consistent with the developed system and procedures.
3.1
3.2
3.3
184
Annex 12-2
Annex 12-3
Annex 12-4
FURTHER READING
Gender Responsive Population and Development Planning Guide
Planning Strategically
185
Organize/create
monitoring review
and evaluation
(MRE) teams
MRE Teams created/organized
Develop
monitoring
systems and
procedures
Monitoring systems and
procedures, including
benchmarks and indicators
Conduct actual
monitoring
Evaluate results
of monitoring
activities
Monitoring of:
- Changes in quality of life
(impacts)
- Land use changes
- Programs and projects
implementation
186
Annex 12-1
DESIGNING A PROJECT MONITORING SCHEME
The Project Monitoring Scheme (PMS) is basically a systematic design of monitoring a particular
project. If properly designed, it serves as a useful tool to systematize the task of monitoring. It
is input-based, activity-related and output oriented.
Steps in Designing and Implementing PMS:
Step 1
A PMS should specify the purpose for undertaking monitoring. A set of objective statements,
which include checking of explicit consideration of population factors/issues and tracking genderdifferentiated progress of projects for target beneficiaries, should be formulated vis--vis identified
project performance targets.
Step 2
The monitoring plan embodies the project outputs, critical activities and project inputs (data on
these can be gathered from various project documents), monitoring points, and the plans and
schedule for gathering and analyzing of information.
Step 3
Gather Information
Actual monitoring starts with the collection of information regarding the conduct of the project.
Depending on the kind of information needed, technical person assigned in the monitoring then
selects the best monitoring strategies to employ to achieve this end.
Step 4
Analyzing Information
Analyzing information for monitoring purposes generally involves comparing the actual
performance/ accomplishments (dates, activities, outputs) with the intended or planned; and
then finding the reasons for and correcting, any discrepancies - whether the deviations are
reasonable and beneficial or unjustified and harmful to the project.
Step 5
When gathering and analyzing information about a project, one may come across many ideas
on how to improve the conduct of the project, or how to correct certain deficiencies. There
may be several alternatives for improving the project. One of the tasks in project monitoring is
to discuss the alternatives with the implementer and decide what plan of action would be best
for the interest of the project.
There should be a list of options for interventions. Resources needed are determined for
each option.
For urgent cases, one may directly suggest corrective measures
Legal measures are a last resort and sought only when other options failed
Monitoring should end with report writing, summarizing the findings and recommendations.
187
Annex 12-2
CORE INDICATORS FOR GENDER-RESPONSIVE
POPULATION AND DEVELOPMENT (POPDEV) PLANNING AT THE LOCAL LEVEL
INDICATOR
DEFINITION
LEVEL OF
DESEGRAGATION
FREQUENCY
LATEST
AVAILABLE
DATA
SOURCE
OF BASIC
DATA
national, regional,
provincial,
municipal, city,
Annual
1997
national, regional,
provincial
After every
census year
1995-2005
2) Population Projections,
NSO
national, regional,
provincial,
municipal, city
Annual
1997
national, regional,
provincial
After every
census year
1995-2005
2) Population Projections,
NSO
national, regional,
provincial
Annual
1997
national, regional,
provincial
After every
census year
1995-2020
2) Population Projections,
NSO
national, regional,
provincial
Every 5
years
1997
1990-1995
2) Technical Working
Group - Maternal and
Child Mortality, NSO
national, regional
provincial, city,
municipality
2000
Population Processes
1.
2.
3.
4.
Population Outcomes
5. Annual Population
Growth Rate
Every 10
years
188
INDICATOR
LATEST
AVAILABLE
DATA
SOURCE
OF BASIC
DATA
DEFINITION
LEVEL OF
DESEGRAGATION
FREQUENCY
Percentage
distribution of the
population classified
by 5-year age group
and by sex
National, regional
provincial, city,
municipality
Every 10
years
2000
CPH, NSO
Percentage
Distribution of Local
Government
Expenditures by
Specific Activities
such as:
1) social
improvement;
2) adjudication;
3) protective
services;
4) general
administration;
5) government
finance;
6) equipment;
7) economic
development;
8) real property;
9) inter government
aids, loans/
advance/
transfers;and
10) others
Regional,
provincial, city,
municipality
Annual
2001
Bureau of Local
Government Finance
Percent of
population 15 years
old and over who are
either employed or
unemployed but
looking for work in
relation to the total
population
National, regional
provincial, key
cities
Quarterly
October-00
Integrated Survey of
Households Bulletin,
Labor Force Survey,
NSO
9. Length of Local
Government Roads by
surface Type
National, regional,
provincial, city municipality
Annual
2001
National, regional
provincial, city municipality
Annual
SY 2000 2001
6. Percentage of
Population
by Five-Year Age
Group and by Sex
Development Processes
7. Percentage Distribution
of Local Government
Expenditures by Specific
Activities
189
DPWH
INDICATOR
DEFINITION
LEVEL OF
DESEGRAGATION
FREQUENCY
LATEST
AVAILABLE
DATA
SOURCE
OF BASIC
DATA
The number of
population per
doctor in a
population
National, regional,
provincial, city
municipality
Annual
1996
Philippine Health
Statistics, (PHS), DOH
The number of
population per
hospital bed
National, regional,
provincial, city
Annual
1996
PHS, DOH
National, regional,
provincial, city
Annual
1997
14. Contraceptive
Prevalence Rate
The percentage of
women currently
using a family
planning method
among currently
married women in
the reproductive
ages (15-49)
National, regional
Every 5
years
1998
National Demographic
and Health Survey,
(NDHS), NSO
The number of
households by type
of unit occupied
which include:
1) single house;
2) duplex;
3) apartment/
accessoria/
condominium;
4) improvised
barong-barong;
5) commercial/
industrial/
agricultural/etc.;
and
National, regional,
provincial, city,
municipality
Annual
2000
CPH, NSO
2) PHS, DOH
190
INDICATOR
DEFINITION
LEVEL OF
DESEGRAGATION
FREQUENCY
LATEST
AVAILABLE
DATA
SOURCE
OF BASIC
DATA
6) other housing
units, expressed
as a percentage
of the total
number of
households
16. Percentage Distribution
of Households by Main
Source of Water Supply
The number of
households by main
source of water
supply which include:
1) tap (inside
house);
2) public well; and
3) private deep well,
expressed as a
percentage of the
total number of
households
National,
provincial, city,
municipality
Every 10
years
2000
CPH, NSO
The number of
households by type
of toilet facilities used
which include:
1) water-sealed,
sewer/ septic
tank, used
exclusively by the
household;
2) water-sealed,
sewer/septic tank,
shared with other
households;
3) water-sealed,
other depository,
used exclusively
by the
households;
4) water-sealed,
other depository,
shared with other
households;
5) close pit;
6) open pit; and
7) others, expressed
as a percentage
of the total
number of
households
National, regional,
provincial, city,
municipality
Every 10
years
2000
CPH, NSO
191
INDICATOR
DEFINITION
The number of
households by type
of garbage disposal
which include:
1) pick by garbage
truck;
2) burning;
3) composting; and
4) burying,
expressed as a
percentage of the
total number of
households
National,
provincial, city,
municipality
Number of crimes
reported per
100,000 population
by type
Development Outcomes
21. Unemployment Rate,
Total and by Sex
LEVEL OF
DESEGRAGATION
FREQUENCY
LATEST
AVAILABLE
DATA
SOURCE
OF BASIC
DATA
Every 10
years
2000
CPH, NSO
National, regional,
provincial, city,
municipality
Annual
2001
The number of
DSWD clienteles
served by type which
include:
1) household heads
and other needy
adults;
2) sociallydisadvantaged
women;
3) children in difficult
situations;
4) victims of
calamities and
social
disorganization;
and
5) disabled persons,
expressed as a
percentage of the
total number of
clienteles and
classified by sex
National, regional,
provincial
Annual
2001
Department of Social
Welfare and Development
Total number of
unemployed persons
expressed as a
percent of the total
number of persons
in the labor force,
total or by sex
National, regional,
provincial, key
cities
Quarterly
October-00
Integrated Survey of
Households Bulletin,
Labor Force Survey,
NSO
192
LATEST
AVAILABLE
DATA
SOURCE
OF BASIC
DATA
INDICATOR
DEFINITION
LEVEL OF
DESEGRAGATION
FREQUENCY
National, regional,
provincial, key
cities
Every 3
years
2000
The percentage of
the population who
can read and write a
simple message in
any language or
dialect classified by
sex
National,
regional,provincial
Every 10
years
2000
1) CPH, NSO
Every 5
years
1994
2) Functional Literacy,
Education and Mass
Media Survey, NSO
24. Percentage of
Malnourished 7-10
Years Old Children
National,
regional,provincial,
key cities
Every 5
years
1996
The number of
Infants with birth
weight of less than
2.5 kilograms
expressed as a
percentage of the
total number of
infants
National, regional,
provincial, city
Annual
1997
Vital StatisticsReport,
NSO
The number of
reported illnesses
from a specific
leading cause
expressed as a
percentage of the
total number of
illnesses from all
causes
National, regional,
provincial, city
Annual
1996
PHS, DOH
Completion rate
refers to the
percentage of first
year (female/male)
entrants in the cycle
of education
surviving to the end
National, regional,
private and public
Annual
2003
BEIS, DepEd
193
INDICATOR
DEFINITION
LEVEL OF
DESEGRAGATION
FREQUENCY
LATEST
AVAILABLE
DATA
SOURCE
OF BASIC
DATA
National, regional
Quarterly
2004
LFS, NSO
29.Nutritional status of
pregnant women/
incidence of Malnutrition
National, regional
Every 5
years
2003
FNRI
30.Mortality by leading
causes, age and sex
National, regional,
provincial
Annual
2004
31.Morbidity by leading
causes, age and sex
Morbidity is any
departure, subjective
or objective from a
stage of physiological
well-being
National, regional
Annual
2001
FHSIS, DOH
32.Percent of women
candidates and share in
local elective positions
The number of
women candidates
over the total
number of
candidates
National, regional,
provincial,
municipality
Every
election year
2004
COMELEC
33.Percent of women in
managerial, supervisory
and technical positions
Number of women in
managerial,
supervisory and
technical positions
over the total
number of women in
managerial,
supervisory and
technical positions
National, regional,
provincial,
municipality
Quarterly
2004
194
DEFINITION
LEVEL OF
DESEGRAGATION
FREQUENCY
LATEST
AVAILABLE
DATA
34.Percent of male/female
headed households by
civil status
Number of male/
female headed
households by civil
status over the total
number of
households
National, regional
Annual
2003
35.Leadership/membership
in labor unions,
cooperatives and
peasant organizations by
sex
Distribution of
leadership/
membership in labor
unions, cooperatives
and peasant
organizations in
labor unions by sex
National
Annual
2003
BITS-BLES
INDICATOR
195
SOURCE
OF BASIC
DATA
Annex 12-3
GUIDELINES ON THE EVALUATION OF CLUP/ZO FOR REPLANNING PURPOSES
(REF: HLURB REGION X)
I.
OBJECTIVES:
To provide bases in recommending decisions as to whether an area/locality needs to
replan, update and/or amend their CLUP/ZO.
1. To identify areas for re-planning/updating.
2. To provide systems and procedures on the assessment/evaluation of the
implementation of the approved CLUP/ZO.
3. To ensure the integration of solutions on issues/problems identified in the course of
implementing the CLUP/ZO.
196
VIII. RE-ZONE/UPDATE
Development is still within the confines of the plan, but certain proposed zones have
been developed into other uses.
Development has reached the limit of the plan within the immediate period, thus, the
need to update projections, requirements and land use proposal, etc.
If the approved plan has not been enforced, it should be updated to keep abreast with
current developments.
IX. STATUS QUO
If at least ten (10) out of the fourteen (14) questions in the questionnaire for review have
been answered yes
If the plan and actual developments are at par.
198
Annex 12-4
UPDATING OR REVISING AN EXISTING CLUP
Existing Data
Existing Conditions
Sectoral Data
Base Mapping
Constraints
SWOT Analysis
EXISTING
CLUP
Prioritized PPPs
Decision-making and
CPDO administrative
process
REVISED
CLUP
Based on updated data
Steps in strategic process
as necessary
Inputs from monitoring
and review(s) undertaken
in the planning period
199
Monitoring of decisions,
outcomes, compliance,
and complaints may
indicate the need for
changes
Rules and Regulations Implementing the Local Government Code of 1991, RA 7160.
Serote, Ernesto M. 2004. Property, Patrimony & Territory:
Foundations of Land Use Planning in the Philippines. School of Urban and Regional
Planning, University of the Philippines and UP Planning and Development Research
Foundation, Inc., Diliman, Quezon City.
201
References
202
PROJECT ORGANIZATION
Comm. TERESITA A. DESIERTO
STEERING COMMITTEE
Comm. ROMULO Q. M. FABUL
Coordinator:
Members:
POLICY REVIEW
COMMITTEE
AND CONSULTANT
SECRETARIAT
Ms. Julie A. Torres, RSDG
Ms. Angelita C. Agustin, RSDG
Josefina R. de Lara, RSDG
Eleonor C. Sandoval, FOSG
Sectors
Sectors
Sectors
203
: Demography,
Environmental
Management and
Land Use