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Copyright is owned by the Author of the thesis. Permission is given for a copy to be downloaded by an individual for the purpose of research and private study only. The thesis may not be reproduced elsewhere without the permission of the Author.
HOUSING, THE STATE AND U R BAN POOR ORGANISATIONS I N METRO MANILA.
A thesis presented in fulfilment of the
requirements for the degree of
Doctor of Philosophy in Development Studies at
Massey University
Donovan Storey
1996
ABSTRACT
This study has sought to place housing into social and political contexts
of analysis. It suggests that the failure to house the urban poor is a
result of particular political systems in operation throughout the Third
World. In particular, the system of neopatrimonialism is forwarded to
explain the logic of many Third World regimes and to describe the nature
of their relationship with society. Civil society is neither passive nor
stagnant however. The proliferation of community organisations and Non
Government Organisations in the South is testimony to this. Many feel
that these actors may create enough pressure to challenge current
development directions. Whilst this study supports this argument it is
qualified support, as the nature and direction of this change is not clearly
understood nor apparent. In examining these processes research was
conducted in Metro Manila during 1994. There is strong evidence to
confirm the endurance of neopatrimonialism in the Phifippines and its
effect on the logic of politics and the character of state-society relations.
There are also clear connections between the historical development of
the Filipino state and the housing crisis. In looking at the response of
social actors, two urban poor organisations are studied in a comparative
context, as is the role of an intermediary NGO. This study finds some
support for the argument that NGO/UPO alliances are more progressive
and impactive than 'traditional' UPOs, though there is evidence to
suggest there are as many similarities as contrasts. UPOs that operate
within urban or national social movements may be involved in change,
though it is still unclear whether this is progressive or will be at the
forefront of social and political transformation. While UPOs play an
important role in civil society, expectations of their place in an 'alternative
society' should still be circumspect and cognizant of the adversities
these groups confront.
ii
ACKNOWLEDGEMENTS
This work is the result of a n umber of people who have supported me over the past several years . I n part icu lar, those friends in the Ph i l ippines that offered thei r homes, food, hospital ity and warmth made th is a l l possib le. The l ife opportunity to l ive with these wonderfu l people (herewith unfortunately referred to as 'the u rban poor' ) , was a rare opportunity and l i fe changing experience. To Pon ing and fam i ly , A lb i and fami ly and the residents of the two commun ities I had contact with , salamat, I am forever i n you r debt.
I also derived a great deal of support on othe r levels. To C roz Walsh who fi rst insp i red me on these issues, to J eff S luka who offered great advice and frank thoughts throughout, and to John Overton whose support and patience was end less (though I th i n k I got close at t imes) I a lso offer thanks. I can't wait to be able to talk to you without asking for something!
I n the Ph i l i pp ines I benefited from open ing doors of opportunity made possib le by two very ab le people , 'J ing' Karaos and Ann ie de Leon. Thank you both. You offered refuge to an otherwise f labbergasted visitor and helped define the d i rect ion this stu dy has taken. The work you do is an inspiration to me and I hope this effort offers some cont ribut ion to the struggle.
Helen M itche l l has stood by me, racked with concern and a h int of d ismay as I have enro l led i n course after course, degree after degree over the years . He len was partic u larly i ndustrious over the last weeks with offers of help as she sought a mention in the acknowledgments. You were always there He len , but thanks for the he lp anyway! This study is as much a reflection of her hard work and commitment to the cause as any other persons . A lso , my m other, Roselyn, h as g iven me support throughout my student 'career' . To a l l othe r friends and 'professional ' stu dents whose fri en dsh ip and ideas helped insp ire my own , perhaps this wou ld have f in ished earl i e r i f i t was n ot for your i nterestin g company. To a l l those who have ' lo itered with i ntent' in the G raduate room (you know who you a re!) , I ' l l m iss you r company.
This work is dedicated to Kate M itche l l , who died whi l e I was completing f ie ldwork in Man i la .
i i i
TAB LE OF CONTENTS
Title Page
Abstract i i
Acknowledgements i i i
Tab le o f Contents i v
L ist of F igures v i i i
L ist of M aps i x
List o f Tab les x
List of P lates x i
G lossary of F i l ip ino Words and Terms x i i i
Abbreviations x iv
I NTRODUCTION 1
CHAPTER ONE: THE THIRD WORLD HOUSING CRISIS 7
I ntroduction 7
Housing D i rect ions: From Lerner to Turner 9
The Hous ing Debate and the Showdown that Wasn't 1 4
Beyond the Theoretical Impasse: The Pol icy Impasse 1 7
Out of the I mpasse: N ew Polemics 1 8
THE U RBAN POOR, HOUS I N G , AND THE THI R D WORLD STATE 23
The N eopatrimon ia l State 26
Neopatrimon ia l ism at the G rassroots: The U rban Poor, Local Level Po l it ics and Resource A l location 33
I mp l icat ions of the M odel for the Urban Poor 36
S ummary 38
CHAPTER TWO: BALANCING STATE HEGEMONY: NGOs AND THE RESPONSE OF CIVIL SOCIETY 40
I ntroduct ion 40
The P ro liferation of C iv i l Society Organisations: Non G overnment Development Organisations 42
U rban Poor Organisations 46
iv
The 'M issin g Lin k' : I NGOs, U POs and the Bu ilding of U rban Social M ovements 54
The I N G O-UPO Nexus: Rethinking Utopianism 61
Summa ry 65
CHAPTER THREE: STATE, POLITICS AND HOUSING IN THE PHILIPPINES 67
I ntroduct ion 67
The Ph il ippine State and Phil ipp ine Style Democracy 68
U rbanisatio n , Poverty and Housing 89
Contin uity and Change: H ousing and the U rban Poor 1 05
Summary 107
CHAPTER FOUR: THE RESPONSE OF CIVIL SOCIETY: N GOs, U POs AND THE U RBAN SOCIAL MOVEMENT IN METRO MANILA 1 09
I nt rodu ct ion 109
Non G overn ment Organisations in the Phil ippines 1 09
The Response of the G rassroots: Peoples Organisat ions and the U rban Poor 1 1 2
The R ole o f I ntermed iary N GOs i n U rban Poor Organisations in the Philippines 116
Summa ry 1 23
CHAPTER FIVE: METHODOLOGY AND FIELDWORK 1 26
I ntrodu ction 1 26
Research Procedures: The Discovery and Adaptation of M ethodology 128
Research P ractise 131
Use of Journals 134
Research Experience: I ntroduction to Manila 1 37
C ultu re Shock and Orientation 1 39
Gain ing Access and Choosing Sites 147
Legitimacy and Role 150
Summary 153
v
CHAPTER S IX: SAMAHANG B IYA YANG TUBIG
I nt roduct ion
Sett lement H istory
The Emergence of Local Organisat ions
Samahang B iyayang Tubig
Organist ion Objectives and Methods
Po l it ical Partic ipat ion of SBT
Summary
CHAPTER SEVEN: TOWARDS AN ALTERNATIVE SOCIETY? THE FOU N DATION FOR DEVELOPMENT ALTERNATIVES
I n troduct ion
FDA: F ra mework and Evolut ion
FDA and Commun ity O rganisat ions
FDA and Commun ity Organis ing
Widen ing the I mpact
E lectoral Empowerment Strategies
UPO Viabi l ity and Susta inabi l ity
Summary
CHAPTER EIGHT: THE ALMA N OVA ALLIANCE
I nt roduct ion
Area H isto ry
Organisat ion H istory
Organisat ion Structure
Organisation Objectives and M ethods
Po l it ical Part ic ipation
Summary
Postscript
CHAPTER N INE: CONCLU SION
I ntrod uct ion
Mani la 's U rban Poor Organisat ions: Comparative Evidence
1 54
1 54
1 56
1 6 1
1 64
1 70
1 78
1 88
1 9 1
1 9 1
1 93
1 94
1 97
201
202
204
205
207
207
208
2 1 2
2 1 8
223
234
242
243
244
244
245
v i
The Role and Impact of I ntermediary NGOs
Areas for Future Research
Re-Th inking Housing
P rospects and Myths of 'Empowerment'
H igh l ighting and Reth inking the Th i rd World State
Where to From Here? Some Future Directions for Research
APPENDICES
1 . Detai ls of I nterviews
2. Constitution and By-Laws of SBT
3. Constitution and BY-Laws of ALMA N OVA
BIBLIOGRAPHY
249
25 1
252
254
257
258
260
260
263
266
268
vi
v i i i
LIST OF FIGURES
1 . 1 Th i rd World State Typologies 26
1 .2 Patron-Cl ient Systems 28
1.3 The Context of Pol icy Implementation 35
3. 1 Agencies I nvolved in the National Shelter P rogramme 99
6.1 Election Flyers 1 84
7. 1 FDA and the Stages of Commun ity Organ ising 196
8 .1 ALMA N OVA and Local Organ isations 2 1 6
8.2 Levels of Organ isation and L inkages 23 1
LIST OF MAPS
5. 1 Metro Mani la with Fie ldwork S ites
6. 1 Penci l Sketch of Fie ldwork Area in Muntin lupa
8 . 1 Penci l Sketch of Sauyo
1 27
155
209
ix
LIST OF TABLES
6. 1 Popu lat ion Characteristics of Putatan
x
1 61
xi
LIST OF PLATES
1 Barangay politics is very personal in nature. 85
2 Patronage sign in Muntinlupa school, Metro Manila. 85
3/4 Contrast in housing: Pasig River Squatters and Forbes Park. 92
5 The urban poor as represented in the press. 95
6 Demolition at dawn to make way for a shopping mall. 95
7 NGOs/UPOs public education display. 118
8 Demonstration over the implementation of UDHA. 1 18
9 Some of Manila's icons; jeepneys, traffic and religion. 138
10 The local sari-sari store with Susan, the owner. 138
11 Learning to wash clothes under the watchful eye of experts. 142
12 Family banyo. 142
13 I was always offered the best sleeping conditions available. 144
14 Washing day in Muntinlupa. 144
15/16 Reciprocity could be extended through donations to projects around the home. 146
17/18 Host families and friends. 152
19 Bustling early morning scene. 159
20 Train lines looking north toward Manila. 159
21 Crowded housing adjoining the riles. 160
22 The area also includes more impressive housing and white collar workers. 160
23/24 Muntinlupa housing and local sari-sari store. 162
25 Informal sector business, and electricity meter. 163
26 Housing pride. 163
27 Tenure arrangements are not often clear. 166
28 With no garbage collection, rubbish is either burned or dumped in a communal area. 166
29 One of the water outlets accrued by SBT. 172
30 Laguna 'lake' front. 172
3 1/32 Building of pathways. 175
33/34 Induction night of SBT leaders. 181
35/36 Barangay election materials placed near the community. 185
xi
37 An established high quality house. 210
38 Local sari-sari store. 210
39 Bakery established by recent migrants to Metro Manila. 211
40 One of the original houses of the area. 211
41/42 Flooding during rainy season. 213
43 Common problems of stagnant water and garbage disposal. 214
45 Water supply to a house. 217
46 Electricity is often 'tapped'. 217
47/48 Out in Force! 236
49 Poning on her once infamous 'rice cake run'. 239
50 NGOs and UPO activists meet at a ULR-TF conference. 239
G LOSSARY OF FILI PINO WORDS AND TERMS
Anak 8ayang Pi!ipino
Anak 8ayang Tondo
8alik Probinsya
banyo
barangay
burgis
compadre
datu
hiya
ilustrado
kagawad
kamote
katipunan
kato!
pakikisama
personalismo
principalia
Punong
riles
sambayanan
Santa Cruz
sari-sari
tagalog
tag/ish
utang na loob
Children of the Philippines
Children of Tondo·
'Back to the Provinces' policy
bathroom
pre-colonial community and now the smallest political unit
colloquial for bourgeoisie
chosen sponsors of children in baptism and confirmation
leader of traditional barangays
shame
university (usually foreign) educated leaders of nationalist movements in 19th Century
barangay councillor
tubular starch plant eaten by rural and urban poor
name given to group of revolutionaries in late 19th Century
slow burning insect repellent
smooth interpersonal relations
the social and political elevation of the individual
Spanish-created local elite
barangay captain
railway lines
community, or community spirit
a festival
small community stores
official language of the Philippines
language which combines taga/og and english
debt of gratitude
xiii
ALMA NOVA
ASEAN
B I KTIMA
BLISS
C-5
CIA
CO
COM ELEC
CPP
DPWH
DSWD
EDSA
FDA
G RO
H U DCC
ICS I
I M F
I NGO
KPML
LGC
LOI
M H S
NAC U PO
NCR
N G DO
NGO
N HA
N HMFC
N I C
N S P
ABBREVIATIONS USED I N TEXT
Alyansa Ng Mga Maralita Sa Novaliches
Associat ion of South East Asian Nat ions
Bighis Tinig Maralita
Bagong Lipunan Sites and Services
C i rc umferential Road N umber Five
Centra l I nte l l igence Agency
Commun ity Organisation
Commission for E lections
Commun ist Party of the Ph i l ippines
Department of Publ ic Works and H ighways
Department of Social Welfare and Development
Epifanio de los Santos Avenue
Foundat ion for Development Alternatives
Grassroots Organisation
Hous ing and U rban Development Coord inating Counci l
I nstitute on Church and Social Issues
I nternational Monetary Fund
I ntermediary Non Government O rgan isation
Kongreso ng Pagkakaisa ng Maralita Lunsod
Local Government Code
Letter of Instruct ion
M in istry of H uman Sett lements
Nat ional Congress of U rban Poor Organ isations
Nat ional Capital Region
Non Government Development Organisation
Non G overnment Organisation
Nat ional Housing Authority
Nat ional Home M o rtgage Finance Corporation
N ewly Industria l is ing Country
National Shelter P rogramme
xiv
NTMOC
NUPCC
PACO
PAKSA LUPA
PCUP
PO
PECCO
PHHC
PHILSHA
PnB
PNR
PO
OC3
SEC
SOCO
TRAPO
ULR-TF
UPO
USM
VAT
ZIP
ZOTO
Ngakakaisang Tinig ng Maralita sa Ouezon City
National Urban Poor Coordinating Council
Putatan Athletic Community Organisation
Pambansang Kaisahan ng mga Maralita Para sa Repormang
Presidential Commission for the Urban Poor
Presidential Decree
Philippine Ecumenical Centre for Community Organising
People's Homesite and Housing Corporation
Private Sector Low Income Housing Association
Partido ng 8ayan
Philippine National Railways
People's Organisation
Ouezon City Coordinating Council
Securities and Exchange Commission
Self-Organised Community Organisation
Traditional Politician
Urban Land Reform Task Force
Urban Poor Organisation
Urban Social Movement
Value Added Tax
Zonal Improvement Programme
Zone One Tondo Organisation
PHI LI PPINE CURRENCY
During the period of fieldwork one American Do"ar was equivalent to 27 Pesos (P)
and one New Zealand Do"ar was equivalent to 1 5 Pesos ( 1 00 Centavos make one
Peso) .
XI