Cebu - Urban Development in the Philippines

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

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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



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



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


DEVELOPMENT


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


DEVELOPMENT


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


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.


DEVELOPMENT


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


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


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

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ON

MA

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ET, C

EB

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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.

Documents

Cebu - Urban Development in the Philippines