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URBAN DEVELOPMENT
IN THE PHILIPPINES: Trends and Challenges of Urban
Space Utilization in the Cities of
Cebu and Lapulapu
OUTLINE
Urbanization and Urban Growth Patterns in the
Philippines
Legal Mandate for land use planning and urban
development in the Philippines
Current status of public urban space utilization
in Cebu City and Lapulapu City
Land Use Planning and Urban development
activities in Cebu City and Lapulapu City
Observations and Areas for research
PH
ILIIP
PIN
E M
AP
HISTORICAL TREND IN URBAN
DEVELOPMENT IN THE PHILIPPINES
Spanish Regime - Poblacion and plaza complex
American Regime – expansion of the poblacion
and Plaza complex to include public school and
public market, road network, water system, and
telecommunication.
Current urban development – the role of the
poblacion as the center of urbanization becomes
less and less important as other areas of the town
vie for designation as urban center.
barangay
Rural sector Core built up
Area/Poblacion
Urban
fringe
Urban
barangay
Isolated
residences
Urban
shadow
Rural
Hinterland
Form of a Typical Philippine Town
* Adapted from Russwurm ass cited by E. Serote
Inner Outer
The Philippines
HISTORICAL TREND IN URBAN
DEVELOPMENT IN THE PHILIPPINES
There was no deliberate attempt to shape
urban growth according to a predetermined
concept
Introduction of real estate business that
resulted to private-led land development
Unmanaged urban growth
Dualism in urban space utilization
Rise of squatters in open spaces
Commercial and industrial establishments
are sporadic
Open space for public use and benefits are
not protected for the public
HISTORICAL TREND IN URBAN
DEVELOPMENT IN THE PHILIPPINES
Open Space
Sidewalks are utilized as spaces for commerce
River and utility easements have been built over
Waterfronts, coastal zones, mountain ridges and
visual corridors are built over
Town plazas are giving way to commercial buildings,
covered courts and other similar construction.
Government regulations especially on real estate
development was not effective in influencing the
direction and location of developments. Power and
resources were still centralized.
TYPES OF URBAN DEVELOPMENT
Predominantly rural towns with their poblacion
as the only urban core
Towns with a much expanded urban core but the
contiguous area is still within the town
boundaries.
Metropolitan area
URBAN AREAS IN THE PHILIPPINES AS DEFINED
BY THE NATIONAL STATISTICS OFFICE
All cities and municipalities with a population
density of at least 1,000 persons/sq. km.
Poblaciones or central districts of municipalities
and cities which have a population density of 500
persons/sq. km.
Poblaciones or central district (not included in 1
or 2) regardless of population size which have a
network of streets, commercial/manufacturing/
recreational/personal services establishments,
and public places (town hall, plaza, market,
school, hospital, health centers, library)
LEGAL MANDATE FOR LAND USE AND URBAN
DEVELOPMENT
Urban Development and Housing Act of 1992
The law declares that, “ It shall be the policy of
the State to undertake, in cooperation with the
private sector, a comprehensive and continuing
Urban Development and Housing Program,
which aims to :
Uplift the conditions of the underprivileged and
homeless citizens in urban areas and in resettlement
areas
LEGAL MANDATE FOR LAND USE AND URBAN
DEVELOPMENT
Urban Development and Housing Act of 1992
Provide for the rational use and development of urban
land to bring about :
Equitable utilization of residential lands in urban and
urbanizable areas
Optimization of the use and productivity of land and
urban resource
Development of urban areas conducive to commercial
and industrial activities
Reduction in urban dysfunctions, particularly those
that adversely affect public health, safety and ecology
Access to land and housing by the underprivileged
and homeless citizens
LEGAL MANDATE FOR LAND USE AND URBAN
DEVELOPMENT
Urban Development and Housing Act of 1992
Adopt workable policies to regulate and direct
urban growth and expansion towards a dispersed
urban net and more balanced urban-rural
interdependence
Provide for an equitable land tenure system that
shall guarantee security of tenure to Program
beneficiaries
Encourage more effective people’s participation
in the urban development process
Improve the capability of local government units
in undertaking urban development and housing
programs and projects
LEGAL MANDATE FOR LAND USE AND URBAN
DEVELOPMENT
Exemptions from RA 7279
Those used or set aside for parks, reserves for flora
and fauna, forests and watersheds, and other areas
necessary to maintain ecological balance or
environmental protection, as determined and
certified to by the proper government agency;
Those actually and primarily used for religious,
charitable, or educational purposes, cultural and
historical sites, hospitals and health centers, and
cemeteries or memorial parks.
LEGAL MANDATE FOR LAND USE AND URBAN
DEVELOPMENT
Urban Development and Housing Act of 1992
The law requires that a National Urban
Development and Housing Framework (NUDHF)
be formulated by the Housing and Land Use
Regulatory Board (HLURB) under the direction of
the Housing and Urban Development Coordinating
Council (HUDCC) in coordination with all local
government units and other concerned public and
private sectors within one (1) year from the
effectivity of the law.
INSTITUTIONAL FRAMEWORK FOR LAND USE
AND URBAN DEVELOPMENT
Urban Development and Housing Act of 1992
The UDHA Framework refers to the
comprehensive plan for urban and urbanizable
areas.
In the formulation of the framework, a review and
rationalization of existing town and land use plans,
housing programs, and all other projects and
activities of government agencies and the private
sector which may substantially affect urban land
use patterns, transportation and public utilities,
infrastructure, environment and population
movements shall be undertaken with the
concurrence of the local government units
concerned.
INSTITUTIONAL FRAMEWORK FOR LAND USE
AND URBAN DEVELOPMENT
Urban Development and Housing Act of 1992
The policy direction set by the UDHA is towards
the provision of the basic need for shelter of the
underprivileged and the homeless.
There are no clear provisions for the development
of public urban space; these are included in the
discussions on ecological balance and transport
system. But the other functions of public spaces
are not mentioned but assumed to be part of the
Comprehensive Land Use Plan (CLUP) the LGUs
are required to prepare.
The local government units are the implementers
of the law.
URBAN GROWTH AND
DEVELOPMENT OF CEBU CITY
No. of
Barangays
Percent
Distribution
Area
(Sq Km)
Percent
Distribution
Cebu City 80 100.00 326.10 100.00
Urban 50 62.50 78.09 23.95
Rural 30 37.50 248.01 76.05
North District 46 100.00 156.28 100.00
Urban 30 65.22 53.52 34.25
Rural 16 34.78 102.76 65.75
South District 34 100.00 169.82 100.00
Urban 20 58.82 24.57 14.47
Rural 14 41.18 145.25 85.53
Total Land Area: Cebu City, By District, Urban and Rural
In Square Kilometers (Sq Km)
Census
Year
Total
City
Population
% to
Province’s
Total
Inter-
censal
Population
Change
Intercensal
Change
Average/Yr.
% Annual
Average
Growth
Rate
Population
Density
(Pop./
Sq. km.)
1903 45,994 7.71 141.1
1918 65,502 8.52 19,508 1,300 2.36 200.9
1939 146,817 16.24 81,315 3,872. 3.84 450.2
1948 167,503 17.88 20,686 2,068 1.32 513.7
1960 251,146 23.86 83,643 6,970 3.38 770.2
1970 347,116 28.26 95,970 9,597 3.24 1,064.4
1975 413,025 31.07 65,909 13,181 3.48 1,266.6
1980 490,281 32.88 77,256 15,451 3.43 1,503.5
1990 610,417 32.89 120,136 12,013 2.19 1,871.9
1995 662,299 32.09 51,882 10,376 1.63 2,031.0
2000 718,821 30.23 56,522 11,304 1.77 2,204.0
Cebu City Intercensal Population: 1903-2000
Source: NSO 2000 Census Report
District
Total
Population
Density
Per Sq. Km.
Annual
Growth Rate
662,299 2,031 1.54
- Urban 589,841 7,553 1.26
North District 271,280 5,069 0.38
South District 318,561 12,965 2.06
- Rural 72,458 292 3.99
North District 34,877 339 3.31
South District 37,581 259 4.64
Population, Density and Annual Growth Rate. Cebu City
Summary of Existing Urban Land Use, 2000
Cebu City
Land Use Classification
Est’d Land Area
(hectares)
Percent (%) to
Total
Residential 4,222 54.06
Commercial 610 7.81
Industrial 34 0.43
Institutional 364 4.67
Parks and Playground 12 0.15
Agricultural 22 0.30
Infrastructure Facilities 46 0.58
Cemetery 40 0.51
Open Space 2,325 29.77
Sports and Recreation 109 1.40
Waste Disposal Site 25 0.31
Total 7,809 100.00
CEBU CITY LAND USE AND ZONING
ORDINANCE
Objective
promote and protect the health, safety, peace, morals,
comfort, convenience and general welfare of the
inhabitants;
guide, control and regulate future growth and development
protect the character and stability of residential,
commercial, industrial, agricultural and open space
areas
prevent undue congestion of population
CEBU CITY LAND USE AND ZONING
ORDINANCE
Development Strategy. “The planning approach
is to induce development towards the hinterlands
to accommodate future population overspill.
….The land use planning is interphased with the
planning of the metropolitan transportation
system.
The architectural design of buildings must
respect Filipino heritage, culture, character and
the historical background of the site. All
structures shall blend with the surroundings to
preserve order and ecological balance..” (Cebu
City Zoning Ordinance, 1996)
CA
RB
ON
MA
RK
ET, C
EB
U C
ITY, P
HIL
IPP
INE
S
The current
Carbon Public
Market’s
capacity
cannot
accommodated
the current
demand for
market space.
Hence, nearby
streets along
the current
location are
being utilized
by vendors.
CO
LO
N S
TR
EE
T, C
EB
U C
ITY
, PH
ILIP
PIN
ES
A normal
scene along
Colon Street,
the oldest
street in the
City; it serves
the function of
transport, and
economic
activity for
lack of proper
spaces for
these
functions to be
delivered by
the local
government.
JO
NE
S A
VE
NU
E, C
EB
U C
ITY
PH
ILIP
PIN
ES
Competing use
of public
spaces: market
space and
pedestrian
areas.
CA
RB
ON
MA
RK
ET
, CE
BU
CIT
Y, P
HL
IPP
INE
S
There is order in chaos: the multi-functional use of the street along Carbon market: pedestrian, motor vehicle transport, and market place.
FU
EN
TE
OS
ME
NA
, CE
BU
CIT
Y , P
HIL
IPP
INE
S
One of the
two
remaining
green spaces
in Cebu City:
Fuente
Osmena.
PL
AZ
A IN
DE
PE
ND
EN
CIA
& F
OR
T S
AN
PE
DR
O, C
EB
U C
ITY
A historical and cultural site showing the Spanish influences in the city currently being renovated as a consequence of urban transport expansion: the construction of an underground tunnel.
CE
BU
CIT
Y S
PO
RT
S C
OM
PL
EX
, CE
BU
CIT
Y
The sports complex becomes a venue not only for sports related activities but for concerts, festivals, and public discourse more than what it ws originally intended to be used.
PL
AZ
A IN
DE
PE
ND
EN
CIA
, CE
BU
CIT
Y, P
HIL
IPP
INE
S
On-going
renovation of
Plaza
Independencia:
part of the
construction
work
undertaking of
the
underground
tunnel road.
TU
NN
EL U
ND
ER
PL
AZ
A IN
DE
PE
ND
EN
CIA
, CE
BU
CIT
Y
Care was
taken not to
create much
damage to the
structures
above this
tunnel road
under Plaza
Independencia
CE
BU
CIT
Y H
AL
L A
ND
PL
AZ
A C
OM
PL
EX
The
Plaza
complex
in the old
district of
Cebu City
CE
BU
CIT
Y L
IBR
AR
Y A
ND
MU
ES
UE
M,
The building
built in the
1920’s.
Originally a
hospital, it now
houses the city
library and
museum. The
upper floor also
serves a
function room
which could be
used for private
parties and
public
gatherings.
MU
SE
O S
UB
GO
, CE
BU
CIT
Y P
HIIP
PIN
ES
This
building
built
originally
built in
1869 as a
prison cell is
now a
museum for
Cebuano
heritage
and history.
CE
BU
SO
UT
H B
US T
ER
MIN
AL
, CE
BU
CIT
Y
The newly
renovated
public
transport
terminal has
provided a
comfortable
space for the
commuting
public with a
minimal fee of
P7.00
AS
IAT
OW
N IT
PA
RK
, CE
BU
CIT
Y, P
HIL
IPP
INE
S
Originally a
domestic
airport, the
Asia Town IT
Park , an
integrated
special
economic zone
and modern
trading center .
NIG
HT
AT
TH
E M
US
EU
MS T
OU
R, C
EB
U C
ITY
, PH
IL.
An annual
activity of
the Ramon
Aboitiz
Foundation
offering
visits to 9
museums
from 6 pm
to 12
midnight
including
Museo
Sugbu.
AY
AL
A C
EN
TE
R C
EB
U, P
HIL
IPP
INE
S
The mall
provides an
alternative
“public space”
for the
residents of
Cebu City and
its neighboring
towns/
municipalities
2000 2005 2010 2020
Residential 4,222 4,524 4,825 5,434
Commercial 610 654 697 785
Industrial 34 36 39 44
Institutional 364 390 416 469
Parks and Playground 12 13 14 15
Agricultural 22 24 25 28
Infrastructure/Utilities 46 49 53 59
Cemetery 40 43 46 51
Open Space 2,325 2,491 2,657 2,993
Sports and Recreation 109 117 125 140
Waste Disposal Site 25 27 29 32
Total 7,809 8,367 8,925 10,051
Future Urban Land Use Requirements
Cebu City
Note: assumption made on the basis of current ratio and trends
Cebu City Master Plan
URBAN GROWTH AND
DEVELOPMENT OF LAPULAPU CITY
MA
CT
AN
ISL
AN
D, C
EB
U, P
HIL
IPP
INE
S
Lapulapu City
and the
municipality of
Cordova
comprise the
Island of
Mactan.
Total
Population
Sept. 1, 2000
Population
Density
Per Sq. Km.
Annual Growth
Rate 1995-2000
(%)
Metro Cebu 1,693,881 1,990 2.26
Compostela 31,446 387 3.73
Liloan 64,970 1,130 5.33
Consolacion 62,298 1,170 5.18
Cordova 34032 3,146 5.41
Lapulapu 217,019 2,933 4.88
Mandaue 259,728 6,743 6.36
Cebu City 718,821 2,370 1.77
Talisay 148,110 3,062 4.56
Comparative Total Population and Annual Growth Rate
Metro Cebu, Province, Region VII and Philippines
LA
PU
LA
PU
CIT
Y, P
HIIP
PIN
ES
An aerial
view of the
city of
Lapulapu.
The city
lacks a
well
established
road
network.
AE
RIA
L V
IEW
, MA
CT
AN
, CE
BU
The coastlines
and islands of
Lapulapu City
has been
earmarked for
tourism
development
which may pose
problems to the
environmental
conditions of
the coastal
zones.
LA
PU
LA
PU
CIT
Y G
OV
ER
NM
EN
T C
EN
TE
R
The city was
able to secure
land to locate
government
public services
infrastructure.
PU
J T
ER
MIN
AL
, LA
PU
LA
PU
CIT
Y
The infrastructure was constructed by the city government, however most of the public utility vehicles don’t often use this public transport space. Most of these vehicles just pick up passengers along the way exacerbating the city’s traffic problem.
PU
BL
IC M
AR
KE
T, L
AP
UL
AP
U C
ITY
Dilapidated
condition of
the
Lapulapu
Market
Market.
ST
RE
ET
S A
LO
NG
LA
PU
LA
PU
PU
BL
IC M
AR
KE
T
ST
RE
ET
AL
ON
G L
AP
UL
AP
U P
UB
LIC
MA
RK
ET
LA
PU
LA
PU
PU
BL
IC M
AR
KE
T
MA
CT
AN
SH
RIN
E, L
AP
UL
AP
U C
ITY
A cultural
and
historical
site,
frequented
by domestic
and foreign
tourism.
BASIC OBSERVATIONS
National policy on the provision of public spaces
provides the framework for urban development. The
task lies primarily on the Local Government Unit
(LGU), as powers and responsibilities for urban
planning implementation are within its jurisdiction.
They are capable of addressing the concerns for the
provision of public urban spaces provision/
development but would still need technical, financial
and management assistance.
The success of urban public space development lies
on the presence and initiative of “drivers” and
“movers” within the public and private spheres, i.e.
local government officials, civic and professional
groups.
BASIC OBSERVATIONS
The provision of public urban spaces are less of a
priority of most LGUs. How can the private
sector and civil society participate and ensure the
provision of public spaces? How are conflicts in
the use of public spaces resolved?
There is a disconnect between private land
developers and the city planning activities. While
these groups create very livable environment, in
most cases, these do not fit to the surrounding
area where it located and it excludes local
residents in enjoying its amenities.
BASIC OBSERVATIONS
Community participation in ensuring that public
spaces are provided/available are not strongly
advocated. Does it speak also of the priorities of
local residents or the lack of understanding of its
significance? Have they found alternative means
and schemes that could substitute these public
spaces? How much are they willing to pay to
avail of these spaces?
AREAS FOR RESEARCH
Impact of tourism development and investment
policies on land development along coastal areas
on the way of life of local residents in Lapulapu
City
Validation of people’s perception on the provision
of public green spaces or urban public spaces.
Documentation of good/current practices in urban
public space development and management, user
fees and charges for urban public space
utilization.
Designing a renewal/revitalization incentive
schemes for property owners Central Business
District of Cebu City.
AREAS FOR RESEARCH
Social acceptability of converting historically
significant Colon Street into a pedestrian zone.
Redefining the concept of urban space from 2
dimensional to 3 dimensional perspective due to
limited land area. (Valuation of space in an
urban area)
Reclamation Projects as new urban spaces.