DYNAMICS OF LAND USE CHANGE:

THE CASE OF COMMONWEALTH AVENUE ROAD WIDENING

(Section of Katipunan to Litex Roads)
Commonwealth Avenue was part of the grand plan of President Manuel Quezon to transfer the
seat of government to a new city, the present day Quezon City. He had envisioned a city with all the
major government institutions in one location, after he was advised that Manila was not an ideal
location for the seat of government. Manila was then under the constant threat of attacks from the
Manila Bay. He then commissioned American architects William Parsons and his assistant Harry Frost to
draft the plan for his ideal city.
Commonwealth Avenue, played a vital role in linking the Government Center (the present day
Elliptical Circle) to the proposed Legislative Building, where The Congress compound now sits. Originally
intended to be an avenue flanked with the embassies of countries with whom we maintain diplomatic
relations, present day Commonwealth Avenue was among those project plans that never materialized,
as it was intended. Nevertheless, it evolved into a business hub that Quezon City can be proud of.
Build in the late 1960s, Commonwealth Avenue, formerly known as Don Mariano Marcos
Avenue, has undergone a number of road widening programs that transformed a four- lane highway to
the eighteen- lane highway it is today. It proposed to link the Quezon Memorial Circle northwards to
Quirino Highway, as part of the radial road 7 plan (R7). In the following decades, Quezon City
population increased exponentially, as developers, representing the formal economy, began to market
Quezon City as an ideal place to take up residence, offering very affordable home lots to low and middle
income families.
Farm lands of the Zuzuarreguis (covering parts of D2, QC) were transformed into residential
subdivisions, easily distinguishable by the subdivision names bearing the prefix Don and Dona.
Other developers followed suit. Thus, subdivision developments in the area mushroomed left and right
of the highway, while multiple road right of way allowed access to interior subdivision developments,
expanding both eastward, towards San Mateo and Marikina and westward, towards Caloocan.
The stretch of Commonwealth Avenue from Katipunan to Litex and its neighboring communities
cover most of District 2 Quezon City. It includes the barangays of Matandang Balara, Batasan Hills
(largest urban poor community in the country), Bagong Silang Commonwealth, Payatas and Holy Spirit.
Based on the local government data, the population of these barangays is estimated to have grown to
1,785,242 with an annual growth rate of 4.12% and a population density of 18,545.
Urban Development
Commonwealth Avenue provided access to a number of government buildings namely the
Commission on Audit, the Department of Social Welfare and Development, the Electoral Tribunal and
the House of Representatives. This government initiated investment translated to the development of
the area surrounding the IBP Complex, particularly the IBP-San Mateo Road, which is an alternate route
to Marikina and San Mateo, and a number of residential subdivisions (Filinvest) which provided housing
for government employees, members of congress and their legislative staff.
Sometime in the 1980s, the road was widened to a 12-lane highway, to keep up with the urban
sprawl and worsening traffic congestion experienced in Quezon City.

Urban development though the influx of population best characterizes development along
Commonwealth Avenue. The surge of human settlements resulted in a free-for-all urban
development, where formal housing developments were punctuated by shanty towns. Subdivision walls
delineate economic boundaries of residential developments.
The moneyed communities, in their interest to protect themselves from criminality, build gates
that regulate the flow of people into the subdivisions. Under PD 1216- Sec2, it has become
mandatory for subdivision owners/developers to donate roads to the local government upon the
completion of the project, as certified by the Authority. The rule only makes the exception for parks
and playgrounds as open space which could be donated to the homeowners association, upon the
consent given by the local government. As such, no homeowners association should refuse entry to
roads donated to the local government, which in effect became public property upon its donation, and
thus should be accessible to all.
In reality, homeowners associations remain in control of securing subdivision roads , thereby
rendering the local government toothless in enforcing its jurisdiction over previously turned over roads,
and the use of the same in gaining access to a network of roads which could ease the traffic congestion
in some areas during rush hours.
According to the Local Governments Subdivision Administration Unit, homeowners association
cannot refuse entry to these roads, precisely because these roads are for public use, to be enjoyed not
only by residents of the subdivisions, but also by the general public.
In my opinion, the local governments inability to provide security to these community at a level
they require, makes them cede authority over such matters, to the detriment of the general public, who
have every right to use these roads, specially as alternate routes to avoid traffic congestion.
Human Settlements
Human settlement, prior to the road expansion can be characterized as mostly, single family
dwellings of modest to average size. Today, formal housing types vary from single family dwellings, to
town houses/duplex, low rise condos and high rise condominium. This translates to increased
population densities, a larger demand for utilities and services, a greater demand for education and
employment, more economic activity, more revenues for the government in terms of real property tax
and other taxes, an increase in road use and pollution, and an increase in solid waste production.
The market for high end residential living became an off-shoot of the road expansion. As the
city transitions into an urbanized area, it becomes more attractive to the high end market. Apart from
high density condos, high end residential developments have likewise become major players in the citys
economy, bringing in more revenues, with minimal demand for consumption spending on the part of
the government. (Tivoli Royale, Vista Real Estates, Ayala Heights)
Traffic
The road expansion of Commonwealth Avenue can be viewed as a two-edged sword, as far as
traffic is concerned. Though Commonwealth Avenue is notoriously dubbed the Killer Highway to this
day, it has brought about benefits beyond the expectations of those who regularly use the road.
It has greatly eased traffic congestion specially during rush hours, with the exception of the
bottleneck caused by the narrow Tandand Sora flyover. The wider avenue likewise allowed more buses

and jeepneys to ply more routes and in greater number, making the suburban city more accessible and
investor-friendly.
The DPWHs response to the death of Lourdes Simbulan led to the road assessment of
Commonwealth Avenue by a third party group of consultants in 2011. It proved vital in minimizing the
occurrence of accident by implementing the recommendations given in the study. Some of these
measures included the stricter implementation of the speed limit, the bus-PUJ and motorcycle
segregation by means of designating lanes, the MMDAs re-study of U-turn slot locations , increasing the
weaving distance, the provision of road warning signs and fences to discourage jaywalking, and the
reconfiguration of pedestrian overpass.
The significant drop in the occurrence of accidents prompted the MMDA in 2013 to implement
the same speed limit for stretch from Batasan to Dona Carmen.
Mixed reactions came from different segments of society. Civil society groups proposed that
government should regulate the issuance of LTFRB bus franchises, while Partyt list member 1UTAK
aired concern with regard to the practice of making bus drivers work 10-16 hours on the average to
meet the daily boundaries set by bus companies. Rep. Teddie Casino reacted by drafted a bill for PU bus
drivers to receive fixed salaries, and do away with the boundary system.
DSWD Inefficiency
It is noteworthy that urban poor children as young as 3 years old can be seen begging on the
highway and getting on and off public utility vehicles to beg from commuters, while their mothers chitchat with friends from a distance. This practice exposes these children to unnecessary risks, condones
child labor and abuse, and irresponsible parenthood.
There are likewise solvent-sniffing children who are often seen loitering near the pedestrian
overpass, either begging or engaging in petty crimes.
The DSWD, which holds office just a few kilometers away allows these things to occur right
under their noses, in spite of repeated reports made by the citizenry.
The Formal Economy
From small, single story leasable space to multi-story office buildings, full- fledged companies
and major banking institutions-this is perhaps the biggest contribution of the road widening program to
the urbanization and shift in land use patterns for the area in study.
The wide avenue opened the doors to investments from BPO companies which in turn
generated employment for the young urban population. With a high purchasing power, these
employees gave rise to businesses such as malls, coffee shops, restaurants, bars and 24-hour
establishments that cater to their needs. Condominiums and townhouses became in fashion as housing
units for urban professionals.
Car dealerships became an indicator of progress as a growing population acquired more money
that enabled them to spend for these luxuries. Major commercial banks supplied the option for
housing, car and business loans that continued to propel the economy.

Home depots are slowly replacing small hardware companies, sash companies and furniture
shops in the area, which is actually indicative of an economic gentrification. So have established dub
shops substituted small-scale vulcanizing, machine and car maintenance shops. It is unclear if these
enterprises developed on their own or, if these small scale businesses are being eased out by business
owners who have the capital, who in turn just hire the manpower to provide the service. It probably
requires a more in depth study to know the implications of such a shift.
Supermarkets thrive side by side with the public markets and talipapa since these cater to
people from different economic backgrounds. Malls with different clientele likewise sprout like
mushrooms, seemingly oblivious to the possible traffic they will create once operational.
In my opinion, the proposed construction of an SM mall along Amsterdam Road, next to the
Residences at Commonwealth development is expected to create a traffic bottle neck for residents
from Vista Real, Tivoli Royale, Capitol Park Homes among other neighboring villages, due to a very
narrow street servicing the area.
More private schools are founded to meet the growing number of students requiring their
services, as affordable fast food restaurants near schools provide them budget-friendly meals.
Different religions fight over followers, as both major and minor groups establish their places of
worship in an attempt to gain a steadier foothold. As a result, more often than not, the informal
economy takes advantage of the heavy foot traffic by setting up businesses ranging from selling street
food, fruits and vegetables, religious articles, DVDs and the like right outside the compounds of these
churches. As a result, crowd control and petty crime soon become the problem of the government.
The construction of mortuaries and columbaries proved significant, as 24-hour establishments
and flower shops flourish to meet the demands of a steady clientele.
Informal Settlements and Informal Economies
As I had observed informal settlements began to proliferate along the highway, particularly near
Luzon Avenue and the creek near BF Homes Quezon City. Before we knew it, areas without known
structures became magnets for informal settlers. With the designation of Payatas as a garbage
dumpsite in the 1990s, the informal settlement population ballooned. The ravine which was deemed
unfit for habitation, turned into a squatter colony overnight, as scavengers flocked to the dumpsite to
earn their living.
It also gave rise to informal businesses along the Manggahan Road and Litex Roads
intersections, as street hawkers turned the highway into a big market place, causing horrendous traffic
in the area. There were numerous attempts by local government to clear the highway of vendors. But,
time and again, whoever is assigned to head the clearing operation, turned up dead.
Of the 6 lanes of the highway, only one or two lanes became passable. Then Mayor Sonny
Belmonte conducted an public dialogue which included the barangay, market and hawker officials and
the police and law enforcement, in order to reach an agreement with regard to the problem. It was
settled that plant boxes will be situated along the highway to prevent vendors from encroaching on
streets.

Late last year, a QCPD officer assigned to Task Force Commonwealth, in charge of operations
against illegal vendors was ambushed. A few days later, 20 illegal vendors on the Litex pedestrian
overpass were charged for selling their wares on non-designated areas. To date, the flower boxes have
been replaced by steel fence, but vendors continually sell their wares right where they can be seen by
law enforcers.
In the case of informal settlement and informal economies, obviously the local government is at
the losing end in such a scenario. Apart from being unable to extract real property tax, they are likewise
not receiving proceeds from the conduct of business from these informal businesses. Furthermore,
these communities pose as a liability since a great number of them are dependent on social services
provided by the government.
Solid Waste Management
Disposal of garbage account for a large portion of local government expenditures. As such, the
council passed ordinance SP2235, Series of 2013 requiring all households in Quezon City to share in the
burden of solid waste disposal by charging a garbage fee, based on the area of their real property. Of
course, this will be a subject of debate since garbage collection used to be a service provided for by the
local government, at no added cost to its citizenry.
The Local Government and the MMDA
It is perhaps the local government and the MMDA that are equally at fault for its failure to
enforce laws pertaining to illegal parking, jaywalking, vendor control, littering and the like. The unclear
delineation of responsibility between the two bodies is probably the issue we must look into, as far as
legal mandate is concerned. The overlapping of responsibility leaves the citizenry with the burden of
having to deal with minor issues which in turn create bigger problems for the society.
Site of Demonstrations:
There must have been a reason why President Manuel Quezon wanted embassies to line the
avenue towards Congress. It was probably his brand of leadership, to highlight the growing pains
plaguing our nation today. After all, it was he who said that he preferred a government run like hell by
Filipinos to a government run like heaven by Americansbecause, however bad a Filipino government
might be, we can always change it.
Commonwealth Avenue lives up to its name, whenever people rally for the common good at
every State of the Nation Address delivered in Congress.
The issues with regard to poverty, unemployment, lack of access and inadequacy of basic social
services, social justice, peace and order, and the environmental degradation will remain with us for now.
It will take time before we achieve the equilibrium we dream of realizing, where the general welfare is
guaranteed and where the economic gap between the rich and the poor is almost nil.
But, it is only by being true to ourselves, and through our own admission of our shortcomings
that we can correct our mistakes and move forward. It is not in fabricating statistics that support our
claim for development, so as to satisfy our egos and receive standing ovations from the members of
Congress.

. For now, we validate the conflict theory, as we undergo the never ending series of actions and
reaction, until such time all parties to the exercise are satisfied and an equilibrium is achieve, if there is
such a thing.
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