HLURB CLUP Guidebook Volume I 2006
HLURB CLUP Guidebook Volume I 2006
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:
ii
International, Samal Island Biodiversity, Sentro para sa Ikauunlad ng Katutubong
Agham at Teknolohiya, Inc. (SIKAT), Subdivision and Homeowners Developers
Association (SHDA), University of the Philippines –Institute of Environmental Science,
National Center for Transportation Studies (NCTS), National College of Public
Administration and Governance (NCPAG), School of Urban and Regional Planning
(SURP), U.P. Planning and Development Research Foundation, Inc. (UP PLANADES),
United Architects of the Philippines (UAP), URBIS, USAID;
HLURB is likewise grateful for the technical inputs, insights, comments and suggestions
from CONCEP, Inc.; to the following individuals who acted as resource persons/reactors:
Dr. Asteya Santiago, Dr. Geronimo V. Manahan, En.P. Roque Arrieta Magno, Arch. Joy
Onosawa, Dean Primitivo Cal, Dean Benjamin Cariño, Arch. Requito Bellosillo, En.P. Juanita
Canta; Ms. Cora Jose, Arch. Christer Kjorneberg and Arch. Celestino Ulep for the technical
editing works.
The Board would like to express its gratitude to the United Nations Population Fund (UNFPA)
and the Commission on Population (POPCOM) for the technical inputs and financial support
during the preparation of this Guidebook.
Special thanks to the Project Team composed of both the central and regional officers and staff
of HLURB headed by the Project Manager, Gracia M. Ang for their perseverance, diligent and
participation during the seemingly endless discussions.
Finally, we also would like to convey our sincere appreciation to those whose names may
iii
ACRONYMS
ACRONYM DEFINITION
v
ACRONYM DEFINITION
vi
vii
ABOUT THE GUIDE
The Guide to Comprehensive Land Use Plan Preparation was designed to provide Local
Government Units (LGUs) with the basic steps in preparing their Comprehensive Land Use
Plans (CLUPs), which is one of the fundamental tools for local governance and decision making.
It is intended for LGU planners mainly, but may also prove useful to consultants assisting the
LGUs, planners in national government agencies, planning professionals and students, and
other stakeholders interested in local development planning.
The preparation of the Guide was done with the participation of the LGUs, particularly the City/
Municipal Planning and Development Coordinators (C/MPDCs) who attended the various
consultative workshops conducted nationwide, such as focus group discussions, surveys,
regional consultations, experts fora and validation workshops. These consultative activities
were likewise participated in by representatives from the academe, Non-Government
Organizations (NGOs), National Government Agencies (NGAs), planners, consultants, and
other stakeholders in land use planning. Results of the said consultative activities provided the
necessary inputs in the subsequent drafting of the guidelines, which was also done in a
participative manner, i.e., involving the central and regional staff of the HLURB.
Among the recommendations made during the consultative discussions with LGUs are the
following:
This Guide is Volume 1 of the following set of guidelines in preparing Comprehensive Land Use
Plans comprising five (5) separate but complementary volumes:
ix
Volume 3. A Guide to Data Management in the CLUP Preparation
This provides the basic elements for a GIS and other information systems
needed in plan preparation process, often referred to as “GIS Cookbook”.
Volume 4. Planning Strategically: Guidelines for the Application of the Strategic Planning
Process in the Preparation of the CLUP and to Important Urban Area Issues
and Problems including guides for community consultation.
The above Guides are designed to provide the rudiments for City/Municipal land use planning
and plan implementation. The Guides will complement the academic and field planning
experiences of the users that will hopefully lead to resourcefulness and creativity in preparing
a realistic and implementable plan.
These guides are therefore not prescriptive but allow for flexibility, creativity and strategic thinking
on the part of the users.
x
INTRODUCTION
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
person’s 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 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.
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.
1 Introduction
The Comprehensive Land Use Plan
The Comprehensive Land Use Plan (CLUP) refers to a document embodying specific proposals
for guiding, regulating growth and development of a city or municipality. It is comprehensive
because it considers all sectors significant in the development process, i.e. demography,
socio-economic, infrastructure and utilities, land use and local administration, within the territorial
jurisdiction.
Comprehensive Land Use Planning puts into practice the essence of local autonomy among
LGUs. This process and its output which comes in a form of a Comprehensive Land Use Plan
document sets the direction which the LGUs have to take to enable them to attain their vision
and to transform them into active partners in the attainment of national goals.
The CLUP process provides a venue to level off the different groups with varied interests in the
local planning area. It opens an opportunity for gaining community support, understanding and
ownership of the Plan through a broad-based consensus formation efforts and participatory
arrangements. The process attempts to rationalize the allocation of the limited local land
resources by using empirical basis to analyze existing social, economic, physical,
environmental, political and institutional situation. This enables the LGUs to formulate
development goals and objectives, design alternatives, and arrive at sound policies, strategies,
programs and projects.
Linkage of the Comprehensive Land Use Plan to the Provincial Physical Framework
Plan (PPFP) and other Plans (Figure 1)
The national, regional and provincial physical framework plans are policy oriented and
indicative in nature, where different land use categories such as forest lands and
agricultural lands are categorized into protection and production land uses.
The broad allocation of land uses in the level of physical framework plans are treated in
detail in the Comprehensive Land Use Plan. The goals and objectives of the framework
plans are considered in the formulation of the CLUPs.
Introduction 2
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.
3 Introduction
Figure 1. HIERARCHY AND LINKAGES OF PLANS
PHYSICAL
FRAMEWORK AND SOCIO-ECONOMIC INVESTMENT
COMPREHENSIVE DEVELOPMENT PROGRAMS (IPs)
LAND USE PLANS PLANS (DPs)
NATIONAL (N)
(1) (3) (3)
NPFP MTPDP MTPIP
National
Agency Plans
and Programs
REGIONAL (R/RD)
(1) RDP RDIP
RPFP
Regional
Agency Plans
and Programs
(1)
PROVINCIAL (P/PD) PPFP
CITY (C/CD) PCLUP (4) PDIP/CDIP
(2) PCDP/CCDP
Provincial
Plans and
Programs
LOCAL (L/LD)
MUNICIPAL (M) (2) C/M CDP LDIP
C/M CLUP
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 4
Legal Mandates
1987 Constitution
“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)
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…”
5 Introduction
Section 447(2)(vii) / Sec. 458(2)(vii)
“ Adopt a Comprehensive Land Use Plan for the municipality (Sec. 447(2)(vii)/city (Sec.
458(2)(vii): Provided, that the formulation, adoption, or modification of said plan shall be
in coordination with the approved Provincial Comprehensive Land Use Plan.”
Prescribe reasonable limits and restraints on the use of property within the jurisdiction of
the municipality (Sec. 447(a)(2)(ix) / city (Sec. 458(a)(2)(vi).
“ Adopt measures to safeguard and conserve land, mineral, marine, forest, and other
resources of the municipality (Sec. 444(b)(3)(vii) / city (Sec. 455(b)(3)(vii).”
(Sections supplied)
Other related legal bases on CLUP formulation provided for under RA 7160 are found
under sections 106(a); 109,a,1-2 and 458(2)(ix); 476(7).
Executive Order 72 was issued providing for the preparation and implementation of the CLUP
by the local government units and for the review and approval thereof by the HLURB and the
Sangguniang Panlalawigan.
“(a) Cities and municipalities shall continue to prepare or update their Comprehensive
Land Use Plans, in conformity with the land use planning standards and guidelines
prescribed by the HLURB and to national policies”
“(c) Cities and municipalities of Metro Manila shall continue to formulate or update their
respective land use plans, in conformity with the land use planning and zoning standards
and guidelines prescribed by HLURB”.
Introduction 6
“(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”.
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:
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”
“(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”
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 country’s 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.
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.
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 country’s
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 country’s 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.
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 8
Equitable access to physical and natural resources- Ensuring equitable access to resources
through a just distribution of the country’s resources and by providing equal opportunities to all
Filipinos in the use and acquisition of land and other resources.
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.
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.
9 Introduction
approach ensures or provides a mechanism for integrating sustainable development indicators
in planning. ( Refer to Volume 2 for the detailed discussion of gender responsive population
and development framework)
It is recommended that LGUs adopt a combined bottom-up and top to bottom approach in
preparing the CLUP as presented below:
Under the Local Government Code of 1991, the Local Development Councils, in the
case of barangay, the Barangay Development Councils are tasked to prepare Barangay
Development Plans to be submitted to the Sangguniang Barangay for review and
approval.
Thus, integration of Barangay Development Plans into the city or municipal plan is one
methodology which the LGUs can adopt in the formulation of the CLUP.
The integration aims to harmonize development goals and objectives of all barangays
in cities or municipalities. It also identifies and reconciles inconsistencies and
incompatibilities in land use proposals among adjacent barangays.
In the absence of barangay and municipal development plans, the local planners adopt
the top to bottom approach to planning. In this case, the Provincial Land Use Plan/
Physical Framework Plan (PPFP), if available, may serve as basis and framework for
the formulation and updating of the CLUP without precluding consultation with component
LGUS. In the absence of a Provincial Land Use Plan (PPFP), other higher level plans
may serve as bases for the formulation, such as the Medium-Term Development Plan,
Regional Physical Framework Plan, metropolitan or other cluster area development
plans (i.e. MIMAROPA, CALABARZON, etc.).
Planning Area
The planning area is defined by the cities’/municipalities’ political boundaries. This includes all
component barangays and the city/municipal waters extending 3 kilometers from shoreline for
coastal LGUs. Thus, the CLUP shall cover both land and water resources of the city/municipality.
Planning Period
The CLUP covers a planning period of 10 years at the minimum. It may be reviewed every 3
years coinciding with the term of the Mayor and other locally elected officials, for their appreciation
and for continuity of plan implementation. Such review will also provide an opportunity for the
incumbent or incoming Mayor and local officials to harmonize the new administration’s
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.
This Guide is intended to provide emphasis on the significant elements of the Comprehensive
Land Use Plan in order to achieve its full appreciation as well as to ensure efficiency,
transparency, and accountability in its implementation.
PRELIMINARY PAGES
Brief History
Human Resource
Population (size, growth rate, density, distribution, labor force)
Physical Features
Geographic location, territorial jurisdiction, barangay subdivision
Physical/Infrastructure Resources (Inventory of Maps and Tables)
Transportation Network (internal and external linkages)
Social Services facilities/utilities/amenities
Utilities: Power, Water, Communication Network, Waste Management
11 Introduction
The Economic Structure
Revenue sources (Industries, agriculture, etc.)
Employment
Average Family Income and Expenditure vis-à-vis Poverty Level
Existing Land Use and Land Use Trends
Comparative/Competitive Advantages
Weaknesses: Priority issues and concerns
Functional Role of the City/Municipality
Vision / Mission
Goals, Objectives, Strategies
The Concept/Structure Plan (text and map)
The Land Use Plan (Text and Map Format)
Priority Programs and Projects
This volume presents the locally enacted ordinance which embodies, among others, the
regulations affecting uses allowed or disallowed in each zone or district, and the conditions
and deviations legally allowed from the requirements of the ordinance.
Definition of Terms
Zone Classifications
Zone Regulations
General District Regulation
Innovative Techniques
Miscellaneous Provisions
Mitigating Devices
Administration and Enforcement
Introduction 12
B. The Zoning Map
This is the Official Zoning Map enacted by the LGU and duly ratified and authenticated
by the approving body (Sangguniang Panlalawigan/HLURB) which is an integral
part of the Zoning Ordinance. It is the graphic presentation of the zone classifications/
designations, location and boundaries of the districts/zones that were duly
established in the zoning ordinance.
1. Demography
2. Physical/ environment
3. Social sector
Housing
Health
Education
Protective Services
Sports and Recreation
Social Welfare
4. Economic Sector
Industry
Commerce and Trade
Agriculture
Forestry
Tourism
Sector analysis, both technical and participatory, shall be summarized in a matrix form
emphasizing on the findings/observations and their causes, effects/implications, and
possible interventions. In its final form, an integrated listing of priority issues and problems
concerning the sector and across sectors, shall be highlighted together with the
recommended policies, strategies and priority programs and projects.
13 Introduction
The CLUP
Towards the Improvement
of Quality of Life
THE 12-STEP PROCESS TO COMPREHENSIVE LAND USE PLANNING
Every city/municipality is a unique planning area. Thus, planners need to rely on strategic
planning approach to arrive at a more responsive/realistic CLUP.
This manual provides for a 12-step process that is proactive, rather than reactive, in approach.
It is vision-oriented and promotes maximum stakeholders participation at all stages in the
planning process to come up with a plan owned and supported by the community.
The process is dynamic and cyclic in many ways and at many times. This is an extremely
important characteristic that the users/planners should continuously bear in mind. Every step
of the way involves a cycle of brainstorming/idea building/data gathering; consensus building
and decision-making and presentation/validation of results/decisions arrived at. The cycle is
continuous until the planning team attains some level of confidence on the output of a particular
step. The process therefore allows for great flexibility and resourcefulness on the part of the
users.
The following 12-step process provides the general procedures from which the planning team,
with or without a formal training in planning, can proceed with the CLUP and ZO preparation.
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
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.
The work program shall include the timelines/schedule of planning activities. The
CLUP preparation process normally takes a maximum of 18 months depending on
availability of resources, materials, and prevailing circumstances. The schedule
must be flexible enough to allow sufficient time to accomplish each activity. (Refer
to Annex 1-1 for the sample schedule of planning activities in Gantt Chart)
4. Present the proposal to the Local Chief Executive and SB/SP for approval.
5. Organize planning team and technical working groups consistent with the
proposal.
The core group will coordinate the planning activities, draft and consolidate the
contents of the CLUP document. The Office of the MPDC/CPDC shall constitute
the Core Group with the following suggested members:
MPDC/CPDC
Planning Officer
Draftsman
Encoder
Statistician and researcher
Architect/environmental/urban planner
Legal officer as may be available
Note: In cases where the Office of the CPDC/MPDC is not adequately staffed as
enumerated above, staff from other departments may be tapped to compose the core
group. Hiring of consultants and other resource persons like a legal expert, etc., on
contractual basis and partnerships with the private sector, civil society, NGOs and the
like may also be opted to.
Mandates/national
policies feedback
issues and trends
Decision to Stratategies
prepare/update to undertake
CLUP planning
1 3
Discuss need to 2 Prepare work
prepare/update Asses available program, budget
CLUP resources work teams
CLUP Proposal
for approval
EO designating SB/SP
members of Resolution
PTs/TWGs approving
proposal
5 4
6
Organize Present proposal
Brief planning
Planning Team to local officials
Team
Defined roles
and responsibilities
7
Disseminate Community
information to awareness
general public
ACTIVITY M1 M2 M3 M4 M5 M6 M7 M8 M9 M10 M11 M12 M13 M14 M15 M16 M17 M18
1. Getting Organized
• Getting endorsement/approval of SB/SP
• Preparation of work program
20
• Endorsement to SP/HLURB for Ratification/Approval
• Ratification of SP/HLURB
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.
Comprehensive Land Use Planning
CLUP
IDENTIFYING STEP
STAKEHOLDERS 2
Public participation is a fundamental part of the planning process. It ensures the
involvement of all stakeholders in order to enhance awareness, raise the quality of the
plan, and increase the likelihood of the plan’s acceptability and success of
implementation. Stakeholder participation has two essential and related components,
namely: information sharing among the stakeholders (especially between LGU and the
citizenry), and the active involvement of stakeholders in identifying issues, evaluating
options, and formulating strategies.
Who are the stakeholders and how are they identified? The next step in the planning
process, which may be held in parallel with Step 1 (Getting Organized) is Identifying
Stakeholders (IS). A stakeholder is any person, group or institution, who is potentially
affected by the plan or who can have a significant impact on the implementation of the
plan.
Stakeholder participation is important in the planning process since this gives them the
opportunity to play an active role in decision-making and in the consequent activities
that will affect them.
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
STEPS
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.
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)
A rule of thumb is to relate each stakeholder to the problems which the plan is
seeking to address.
primary stakeholders are those who are ultimately affected, i.e. who expect
to benefit from or be adversely affected by the planned interventions;
secondary stakeholders are those who are indirectly affected by the impacts
of the CLUP but may have a particular knowledge and/or significant roles
related to its formulation, implementation, and/or evaluation.
Key stakeholders are those who can significantly influence the project, or are
most important if the CLUP objectives are to be met. Both primary and
secondary stakeholders may be key stakeholders.
It is particularly important that women are fully consulted on all planning and
development proposals.
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)
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.
1.7 Develop an Information and Education Campaign (IEC) plan to inform and
solicit support and commitment of the identified stakeholders and the
general public.
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
Conduct workshops to
identify stakeholders
affected by the CLUP
Objectives informed
List of interest groups/individuals
Action Plan/strategies for approaching
and involving stakeholders
• Analyzing data to 6 Planning team and Explore the pros and cons of various options
generate and evaluate interested members through participatory design workshops,
options of the community evaluative workshops, and interactive
displays/exhibits .
• Developing a draft 7 All members of the Gather feedback to fine-tune the draft through
CLUP community presentations /displays, public hearings, work-
shops and submission of written comments.
• Finalizing the plan 7,8,9 All members of the Inform the community of the final outcomes
& 10 community and decisions through use of tri-media, flyers,
and various levels of public assemblies.
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.
PURPOSE
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:
1.3 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.
2.2 Make a brief presentation on the importance of a vision in CLUP preparation and
to the city/municipality
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.
What do you like about the municipality/city as it is now? (aspects you may
wish to preserve)
What don’t you like about the municipality/city? (issues to be resolved/
changed)
What do you think should be done to improve the municipality/city? (things
you want to have/create in your municipality/city)
The result of this activity will provide an approximate description of the current
situation as a form of leveling-off for the participants’/community’s 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)
2.8 Summarize and validate in a plenary the relevant descriptors as shown below:
ELEMENTS DESCRIPTORS
(sample)
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
3. After the visioning workshop disseminate the selected Vision Statement to the
Sangguniang Panglunsod/Bayan and the general public for feedback.
5. Present the refined Vision Statement to the LDC for endorsement to the Sangguniang
Panglunsod/Bayan for subsequent adoption.
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:
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.
4. Group the participants into smaller groups (ideally 6-8 persons per group).
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.
EXAMPLES
Clean and Safe Quality at allowable N Monitoring and testing of surface and
water level set by ground water quality
Phil. National
Drinking Water
Standard
Low apprehended 3
violators, filed cases/
imposed penalties,
sanctioned violators
1. 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.
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.
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 group’s 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.
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
Reference: Materials given during the Refresher Course on Basic Group Facilitation and
Conflict Resolution, Philippine Urban Forum, 6 June 2003, Innotech, Quezon City
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.
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 the needs, issues and concerns to be addressed by the CLUP and the
opportunities/potentials that can be tapped to achieve the community 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.
Demography
Social
Economic
Infrastructure
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.
The base map shall serve as the working map where the different land use
categories of the whole municipality/city shall be delineated.
To facilitate a more accurate delineation of land uses, the working base
map may be enlarged to cover certain districts (i.e. CBD, growth/urbanizing
areas) and/or by clusters of barangays.
A topographic map provides important physical information and reference
points for the base map while a cadastral map gives a more accurate
parcellary boundary information of the municipality/city.
Use the standard scales as suggested by the Inter-Agency Task Force on
Geographic Information for uniformity and ease in overlaying techniques.
Suggested scales are:
1:5,000/1:10,000/1:25,000
1:2,000/1:4,000 ( for enlarging specific areas in the LGU)
The use of GIS gives greater flexibility in preparing the base/working
map in any desired scale.
Road networks and surface drainage (water bodies) shall be properly
delineated in order to facilitate the conduct of land use survey.
Coastal and marine areas should be reflected in the maps, showing the
boundaries of the municipal water .
Samples of base maps, existing land use and other thematic maps are presented
in Annex 4- 2
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.
Foot survey
Area inspection is done on foot (walking). This is recommended for high-density areas
to produce precise survey checks, specifically for the urban areas or poblaciones.
Windshield survey
Windshield survey is done while riding a vehicle. It involves a rapid survey of land uses
particularly in low density areas. It is used for a general land use survey of the entire
municipality/city.
The following technology will facilitate the determination and/or validation of actual land
uses:
• Global Positioning System (GPS)
The use of handheld GPS receivers is the best way to perform actual
ground survey and ground truthing.
• Aerial photos and satellite imagery
Available aerial photographs and satellite imagery, combined with GIS
technology, is used to derive and analyze land use data.
The procedural steps in land use survey are presented in Annex 4-1; Annex 4-3
presents the land use categories and the corresponding color coding.
C. Land Use (Refer to Annex 4-3 on Land Use Categories) Primary Survey
including the following Special Interest Areas:
D. Environmental Condition
1. On-going and pipeline projects: type, location, area NGAs (i.e. DPWH), LGU
covered
2. Policies covering Production, Protection, Infrastructure PPFP
and Settlement areas as defined in the Provincial
Physical Framework Plan (PPFP)
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.
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. Establish the relationship of each data with other relevant data.
3.4.4 Analyze impacts of existing land uses on the environment of the city/
municipality, e.g. subdivision projects on sloping areas.
Table 4-2. Existing Land Uses Area, Distribution, and Percent to Total
TOTAL 100%
Area per land use category and percentage to total land area (include table
of these information).
Prevailing dominant land use and their location/distribution/intensity of use
Physical condition, adaptability for future use, and constraints to development
(e.g. typhoons, fault lines, etc.)
Conflicting land uses and other land use problems and issues (e.g.
settlements inside forest areas, flooding, blight, etc.)
Urban form and development trend (direction of physical/land use change
and intensity of development)
Development potentials
5. Establish the significant historical land use trends by describing the major
land uses and general characteristics of such uses that prevailed in the
city/municipality in previous plans or at certain points/eras in the past.
5.1 Trace historical land use from as far back as existing records (documents,
maps, pictures, etc.) and verified information are available;
5.2 Presentation shall be in chronological order, from the earliest time to the
present;
5.3 Identify the major land use activities and their location
5.4 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:
In addition to the land use survey, supplementary land studies may be undertaken
to obtain additional information on the physical setting which may be needed in
the formulation of the land use plan. These additional studies may or may not be
carried out, depending on local circumstances, previous studies undertaken,
available resources, etc. The discussions on Other Supplemental Land Studies
in CLUP Preparation are presented in Annex 4-5.
Land supply is the land area available within the city/municipality for urban use expansion.
Basically, this is what is left after deducting the areas considered for protection/
preservation and conservation such as the Network of Protected Agricultural and Agri-
Industrial Development Areas (NPAAADs), National Integrated Protected Areas Systems
(NIPAS), natural risks and hazards areas, and existing urban areas.
Sample Computations:
Given Parameters (Figures are hypothetical) Areas (in Has.)
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:
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.
Where the growth index is an appropriate factor to which standards are applied;
specifically, it refers to forecast levels of housing stocks, employment, production
and facility requirements.
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.
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.
Opportunities
- Development role assigned by higher-level plans
- On-going or pipeline investment plans, development projects of the national
government and/or private investors
- Developments in the region, province, offering opportunities for tapping the LGUs
resources
- Other internal national, regional, or local circumstances/events offering
opportunities for the LGU.
The procedural steps for the conduct of SWOT and Cross-Sectoral analysis
techniques are presented in Annexes 4-6 and 4-7, respectively.
STEPS OUTPUTS
Demographic/Socio-
Economic/Infrastructure-
Utilities Profile
Conduct Sectoral
sectoral studies needs/issues/problems
Projected/future
sectoral land requirements
Physical Environmental
Conduct
Profile
assessment of
natural/physical/
environmental Existing Land Uses:
features Categories and Areas
Existing Land Use Map
Thematic and Analysis Maps
Development Constraint/
Non-buildable areas
Total future land requirements
Potential development areas
3
Pace factor is applied to calculate frontage distance for each structure in the block/zone being
surveyed.
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)
Read and follow the manufacturer’s instruction on the use and operation of the
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.
• Mining/quarrying
• Grassland/pasture
• Agro-industrial
• Tourism
• Other uses /categories
• 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)
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.
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
14. Seagrass beds - vegetation dominated by flowering grasses which grow best in sandy-
muddy 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
Vacant lands are classified according to topographic and drainage characteristics and
availability of improvements near such vacant lands. Vacant lands may be classified as
prime lands, 0-15% in slope, and are in close proximity to water, sewer and other utility
lines. Such vacant lands are suitable for industrial, commercial, residential, and other urban
uses.
Marginal lands are lands subject to flooding, over 15% in slope, or other lands unsuitable or
uneconomic to develop.
Availability of prime vacant lands for development will depend on such factors as willingness
of owners to release the property, existence of clear titles, and absence of other
encumbrances on the land.
Data on vacant lands can be presented both with the use of maps and statistical tables.
For map presentation, prime and marginal vacant lands should be distinguished by an
appropriate legend.
Compute and tabulate areas of vacant lands from the map, using dot grid or planimeter
according to previously suggested table formats. The resulting figures can then be compared
with identified needs for new development areas.
The main purpose of this study (which is usually included in the land use survey) is to
classify vacant lands within the planning area as to suitability for development.
This particular study forms the basis for two general types of proposals:
a. Proposals for flood control works which aim to keep water away from man; and
b. Proposals for control of flood plain development through planning and regulatory efforts
which aim to keep man away from the water.
In some cases, delineating general floodway areas based on past flood records may be
sufficient for purposes of this type of study. But in more urbanized areas and where flooding
is a significant or potential problem, flooding studies should be carried out in more detail
and complexity. This would require the services of an engineer, or better, a hydrologist.
Three types of flood levels are established in the more complex flooding studies1. These
are:
a. “Highest flood of record” – areas along river or stream inundated by highest known
flood for which records are available;
1
Stuart F. Chapin, Jr., Urban Land Use Planning, University of Illinois Press, 1965, p. 307.
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.
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.
The study of the quality of the urban environment and of man-made structures (residential,
commercial, industrial, institutional) is aimed at identifying the so-called urban renewal
area. Urban renewal actions are of two types:
Conditions of blight are categorized into two types – simple and complex forms of blight.
Physical indicators of simple blight include such conditions as structural deterioration,
missing sanitation facilities, structures in disrepair or lacking in elemental maintenance,
presence of trash and rubbish accumulations, adverse, environmental influences such as
noise, odors, dust, etc., and missing community facilities such as schools, playgrounds,
public water and sewerage system, and adequate street and drainage facilities. Social
indicators may also be considered, such as abnormally high rates of juvenile delinquency,
and low health and welfare indices. Economic indicators include concentration of tax
delinquents and untaxed titled properties, declining property values, and large number of
building vacancies.
The presence of simple forms of blight usually call only for rehabilitation measures. These
may involve such actions as spot condemnation of structures, building repairs, or provision
of missing sanitary facilities through sanitation code enforcement, a public improvement
program for the provision of missing community facilities and a campaign for voluntary
clean-up, painting and improved building maintenance standards. The presence of too
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
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.
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.
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 Assessor’s 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.
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
Land use planning is also concerned with the preservation and development of certain
natural and man-made features of the planning area in a manner calculated to enhance
these qualities for the enjoyment of residents, as well as visitors to the locality. Studies of
aesthetic are most directly related to the amenity considerations involved in land use
planning.
There is yet no method devised by which aesthetic features can be studied on a wholly
objective manner. Criteria used will largely depend on local policies and the values of
those concerned – local officials, planners, and the citizens alike.
As to what to look for in conducting aesthetic studies, local planners may be guided by the
following:
1. urban textures
2. green areas
3. circulation facilities
4. paved open spaces
5. individually significant architectural masses
5.2 Record significant paths and vantage points from which the city/municipality can
usually be perceived.
From the reconnaissance surveys of the city/municipality’s sites, natural and man-made
features which should be visually accented or utilized and enhanced for aesthetic reasons
can be spotted and outlined on a base map. A sketchbook or photo album record of such
features may also be used.
FURTHER READING
Stuart F. Chapin, Jr., Urban Land Use Planning, University of Illinois Press, 1965.
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 LGU’s natural/physical, human and fiscal resources.
Serves as basis for evaluating where the LGU’s 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
LGU’s 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.
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
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.
Step 6. List the key external threats in the lower left cell.
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 weak-
nesses 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.
SWOT MATRIX
LGU is among the small Local officials to make To cooperate with the JICA
irrigation project areas of representations with the JICA authorities to facilitate
the JICA. project team for early construction of irrigation facilities
implementation. in the area.
LGU is located within the Raise crops which can Construct facilities to mitigate
typhoon belt. withstand typhoon. floods during heavy downpour.
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.
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.
The participants may be grouped into the (a) Social Sector, (b)
Economic Sector, (c) Environment Sector, (d) Institutional
Matrix 1
Economic-Social Inter-Sectoral Issues
Note: Repeat the exercise with other sectoral pairs as listed above.
The analysis will likely have revealed “weaknesses” or gaps in the municipality’s/city’s
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
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.
Sample:
“An accessible, well developed City that provides high quality services and
facilities.”
3. Formulate for each goal the objectives based on the identified situations that
might fall under a particular sector.
STEPS OUTPUTS
General goals
(multi-sectoral)
Formulate objectives to
translate the general goals
SMART Objectives
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.
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
municipality’s/city’s vision, goals and objectives. In that sense, the scenarios are theme-
based 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.
EXPECTED OUTPUTS
Structure Plan
STEPS
The municipality/city may opt to pursue any of the following development thrusts
if suitable or applicable:
Agricultural Development
Industrial Development
Tourism Development
Commercial Development
Forestry Development
Coastal Development
Combined Development e.g. Tourism with Agriculture Development, Industrial
with Commercial, as may be applicable
Refer to Annex 6-1 for the description of the above development thrusts.
1.4 Present the result of the situation analysis particularly the following:
Comparative advantage/potentials
Physical and environmental constraints
Land use trend/growth pattern
Environmental quality
Sectoral needs/requirements/issues
Step 6. Establishing the Development Thrust and Spatial Strategies 74
Population characteristics and projections
Functional role
Local economic structure
Infrastructure and utilities
1.5 Brainstorm on the possible development options for the city/municipality such as
those listed below considering the formulated vision, goals, objectives and the results
of situation analysis.
1.6 Reach consensus on the development thrust to be pursued within the planning
period.
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
Implications on environment
City/Municipality ecosystems (i.e. generally coastal, upland, island, etc.)
Implications on local economy and employment
Equitable access and distribution of services
Demand and need for social infrastructure
Social and economic implications to disadvantaged sector
Gender sensitivity and responsiveness
Urban-rural integration
Inherent comparative advantages/potentials
Impact on local heritage, culture and traditions
Sustainable utilization of indigenous resources
Financial implications
Role and impact/s on the component barangays
Functional role of the LGU as reflected in the higher level or inter-area development
plans (e.g. MTPDP, RPFP, PPFP, BIMP-EAGA, CALABARZON, etc.)
Level of development of the LGU and its adjacent LGUs
Policies on production, protection, settlement, and infrastructure land uses as defined
in higher plans
Others, as may be applicable to the local conditions
Example:
Refer to Annex 6- 2 for the procedural steps of some of the above techniques.
4. Reflect the spatial strategy for the preferred development thrust on a working
base map.
4.1 Designate probable locations of functional and development areas consistent with t h e
preferred development thrust and using the predetermined lands available for expansion
(Refer to CLUP Process Step 4 – Situation Analysis on quantified land requirements).
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.
4.4 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.
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.
STEPS OUTPUTS
3 Development scenarios
(future images of desired
development scheme)
Evaluate the alternative
4 development scenarios and
select the most suitable
delopment strategy/ies
Pros and cons of
development scenarios and
preferred development
thrusts
Reflect the spatial strategy for the
5 preferred development thrust
I) Agricultural Development
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, Agri-
Tourism, 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
The city or municipality may opt to prepare a tourism plan to layout the
detailed activities, programs and projects that support the thrust.
IV) Commercial
Cities and municipalities with higher level of urban functions and services may
choose or opt to adopt Intensified Commercialization/Trading Center or Urbanization
as a development thrust or option. With this development option, the LGU may
further intensify the city/municipal commercial base and strengthen or highlight its
role within the province or region.
Given this option, the LGUs need to ensure the presence or availability of facilities,
utilities, measures and incentives to encourage investors to further diversify and
increase investments.
The required programs and projects and the corresponding mitigating measures
need to be identified to address the impacts of intensified commercial activities
such as increased volume of solid and liquid wastes, need for more parking areas,
management of traffic, workers’ housing, business/personal services, health
facilities, warehouse/storage facilities, etc.
The LGU should promote Community-based Forestry Management Options for its
forest areas in accordance with recent government policy. This option is needed in
order to address the dependence of communities on forest resources. However, it
is now accepted that focus should be given to the use of non-timber forest products
such as fruits, fiber, resins, and the like, in lieu of harvesting timber products which
are not allowed under current laws.
To help the city/municipality identify other development areas, the legal status of
lands within the jurisdiction of the city/municipality must be identified, established
and mapped accordingly to appropriately allocate lands for development in
accordance to the best and highest use of the land.
The development of physical infrastructures such as bridges and roads within forest
lands are viewed, at times, as detrimental or threatening to the protection of forest
lands. These types of infrastructures may “open” protected areas to further intrusion
of population and to other types of non-sustainable extraction of forest
resources. In this regard, the concerned local government unit/s may adopt policies
that will ensure the 1) sustainable utilization of forest resources; 2) control or regulate
the expansion of settlements within forestlands; 3) observe the rights of Indigenous
Communities; 4) settle conflicts between land suitability and legal land status; etc.
Under existing Rules and Regulations by the Department of Environment and Natural
Resources, the local government unit/s can not classify or zone its forestlands and
resources for other purposes.
The development option of some cities and municipalities may be influenced by the
presence of an extensive coastline and or sizeable bodies of inland waters within
their respective territorial jurisdiction. It becomes essential to integrate coastal
area planning in the LGUs respective overall or general planning.
Cities and municipalities must, at the outset, conduct an inventory of its coastal
resources, determine priority issues and concerns, ascertain existing risks and
potential impacts to the community, and harmony with the general or overall
development option.
In planning the coastal zone as part of the general development of the city or
municipality, the LGUs must ensure the compatibility of land uses within the
coastal zone that will include uses both within the innermost (land) and the
outermost (water) limits. There are various processes and options recommended
for integrated coastal management regimes which are currently advocated by
national government agencies such as DENR, and the LGUs will do well to consult
with these agencies for the appropriate development options which are aimed at
achieving sustainable coastal development.
LGUs may also opt to adopt combined development options if and when two or
more options or thrusts play significant functions in the existing local economic
structure, and, when the combination of development options will lead to the
transformation of the LGU to a well-developed city/municipality.
Example:
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 strategy’s 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 LGU’s goals and objectives.
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.
EASE OF SECONDARY
BENEFITS COSTS IMPLEMENTATION TIME IMPACTS
The expected The cost will be It will be very It will be more It also results in
benefits will be very high = 1 difficult to than 5 yrs. Before some negative
minimal = 1 implement = 1 the benefits are impacts = 1
seen = 1
The expected The cost will be It will be difficult to It will be 1-5 It also results in
benefits will be high = 2 implement = 2 years before some negative
good = 2 benefits are seen impacts = 2
=2
The expected The cost will be There will be a few It will be 1 to 3 It also results in
benefits will be very low = 3 obstacles to putting years before some positive
good = 3 it into practice = 3 benefits are seen impacts = 3
=3
Alternative 1
Heavy Industrial
Development
Alternative 2
Light-Medium
Industrial
Development
Alternative 3
Micro, Small and
Medium-Scale
Enterprise
Development
GOAL-ACHIEVEMENT ANALYSIS
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 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., creditor’s policy evaluation matrix
in which effectiveness of the alternatives in achieving the stated policy objectives is qualitatively
expressed using the following terms:
No significant relationship
Checklist 1
PARTICIPANTS OF THE STAKEHOLDERS WORKSHOP
CHECK ( / ) 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 pre-
determined 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.
When the project contribution is (+) or (-), the extent of the contribution shall be indicated using
the following scale:
1.3 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.
Several methods, tools and techniques are available in analyzing information for comprehensive
land use planning. According to Kaiser in his book, Urban Land Use Planning, these methods
are Developability Analysis and Perceptual Analysis.
1. Developability Analysis
This deals with determining the accurate Pick the land use to be analyzed
information about the supply of available
land within the LGU jurisdiction to prepare
a land use plan. These have four types: Determine the site attributes that
determine suitability for that
1.1 Land Suitability Analysis (LSA) is particular use
an in-design evaluation method for
planning areas that retain
important natural environmental Weight each individual attribute
features. The outcome of the in terms of relative importance
valuation depends to a large extent for suitability
on expert judgment based on
scientific k n o w l e d g e . T h i s
evaluation method is not Rank (rescale) the internal
comprehensive but rather limited characteristics of each attribute
to alternative sites within a
specified study area for a particular
land use or set of land uses. Multiply each attribute rank by the
attribute weight
It is a procedure for mapping the
variation in relative suitability for a
particular land use across the Define the rules for the model to
jurisdiction or planning area combine weighted attributes into a
(Ortolano, 1984) single suitability scale
Steps in Land Suitability
Analysis
Reclassify the resulting range of
a. Pick the land use to be numerical scores into a simplified
analyzed (e.g., residential, composite score
commercial, institutional,
industrial, etc.)
Transform the outcome into
b. Determine the site attributes suitability by choosing a set of
that determine suitability for patterns to represent the different
that particular use (e.g., slope, degrees of suitability
inter-LGU access, water and
sewer availability).
Generate a statistical report showing
for each suitability class, the site
identification, number of acres and
other relevant data.
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.5 Transform the outcome into a suitability map by choosing a set of patterns
to represent the different degrees of suitability (e.g., darker pattern for
the most suitable sites, grading to lighter patterns for less suitable
sites)
c.6 Generate a statistical report showing for each suitability class, the site
identification, number of hectares/square meters and other relevant
data.
The procedure for conducting this analysis Overlay the maps to show the
varies according to the system whose aggregate committed land areas.
capacity is at issue.
2. Perceptual Analysis
This relies on people’s 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.”
2.3. Symbolism - refers to the meanings that people attach to various parts of the urban
area.
Projecting Demand - the convenient way of determining the need (demand) by using
population-land resources relationship (man-land relationship) assumption on per capita
space requirements for every sector as indicated in the Sectoral Manuals. It must be
noted, however, that standards do not address the uniqueness of individual localities. It
must be noted that per capita allocation is applicable only to predominantly rural areas/
towns where urban growth is associated with the normal increase in the urban population
usually in the poblacion.
Basis for Projecting Demand for Urban Land Uses (Chapin, 1965)
One of the many activities in land use planning is related to the choice of an optimal future
land use for a particular space in the land or the selection of an optimal area to locate a
specific activity. This process is more commonly known as “site selection” in the context of
urban planning and is in a number of ways comparable to “land evaluation”. A general
example might be to determine where or which land in the locality is available for future
urbanization and how much people could be accommodated. Site selection can also be
very specific. One specific urban application is the determination of the best location for a
new site and services scheme. This process is called “Suitability Mapping” which identifies
constraints and opportunities.
Depending on the importance of the proposed activities and objectives of the selection, the
attention given to each of the aspects may vary.
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.
1. Where are the areas that are too steep to build upon or prone to landslides?
3. Where are the areas where ground conditions are not good for construction?
5. Where are the rights of ways for major roads not yet fully built and for high tension
electricity lines?
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.
Step 1 Make several transparent sheets (reproduce) of previously prepared base maps
on tracing paper based on the number of the thematic maps. (The transparent
sheets will be used for tracing the derived aspect maps to be overlaid to come
up with the map containing suitable areas.
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 Prepare aspect maps by enlarging or reducing the thematic maps (slope,
hazard, etc.) according to the scale of your base map. Using the transparent
sheets, trace the enlarged/reduced thematic map. You have the flexibility
to add or delete other thematic maps other than the ones prescribed)
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 Step 6. Establishing the Development Thrust and Spatial Strategies
Alternative 5: Combined Alternatives
It must be noted that the LGU may opt to adopt a combination of development alternatives and
present it as the fifth option.
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.
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:
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
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.
Vision , Sectoral
Needs and wants Total Land Area
Residential
Industrial NIPAS
Infrastructure
Cultural
YES NO Heritage
Open Space
Matched?
ECAs
Parks and Playground
Adjusment/
Cemeteries Revision?
Other Uses
2.1. If the supply is adequate for the quantified needs and requirements, determine if
modifications or adjustments are necessary
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 city’s/municipality’s 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.
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:
Possible nuisance (noise, smoke, fumes, glare, etc.) from one use to
another adjacent area;
Incompatibility in terms of aesthetic considerations;
Traffic generation where one area is exposed to heavy traffic generated
by another use or where adjacent uses (i.e. commercial and industrial
areas) generate undesirable traffic levels.
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.
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)
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.
Review of the vision, goals and objectives and the findings of the situation analysis on
issues/problems, and the recommended interventions
Assessment of land use relationships (compatibility and linkages between land uses,
inter-intra-area compatibility)
Identification of policies that respond to specific situations in order to attain the vision,
goals and objectives.
At this stage due consideration and consistency with the general policies stipulated in
higher plans such as, PPFP, RPFP or NFPP on production, protection, settlements
and infrastructure areas shall be observed.
Checking the consistency of policies with the issues, goals and objectives. Guide
questions are as follows:
- 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.
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:
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.
8.4 Classify programs and projects that can be implemented by national, regional
provincial, city / municipal government, private sector, NGOs or POs. Identifying areas
of responsibility will facilitate coordination of project implementation. These programs
and projects can be further classified according to sector.
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).
STEPS OUTPUTS
Table on proposed
land (and water) use
areas
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:
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.
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.
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.
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
EXPECTED OUTPUTS
STEPS
The Planning Team, assisted by the TWGs/Committee on Land Use, shall conduct series
of meetings to draft the zoning ordinance based on the CLUP, particularly, the land use
plans/policies, vision, goals and objectives of the CLUP.
The inclusion of a legal officer and/or an SB/SP member in the planning team is an advantage.
In all these steps, the Model Zoning Ordinance (MZO) published by HLURB
shall serve as reference for the suggested details of the ordinance.
The purpose is defined based on the goals and objectives of the CLUP.
Sample Purpose:
To guide, control and regulate future growth and development of (name of city/
municipality) in accordance with its Comprehensive Land Use Plan.
Promote and protect the health, safety, peace, comfort, convenience and general
welfare of the inhabitants in the locality.
The designation of zones or districts by the local government units shall be based
on the CLUP. Essentially therefore, the technical justifications of zoning lie with the
planning activities that led to the formulation of the CLUP
ZONING
CLASSIFICATION DESCRIPTION
Socialized Housing An area principally used for dwelling/housing purposes of the underprivileged/
low-income earners
Industrial An urban area within a city or municipality for industrial purposes. Industrial
zones can be divided into areas of light, medium or heavy industries.
Agricultural An area within a city or municipality intended for cultivation/fishing and pastoral
activities
Agro-industrial An area within a city or municipality intended primarily for integrated farm
operations and related product processing activities.
Park and other An area designed for open space recreational facilities and maintenance of
recreation ecological balance of the community.
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.
The output of this step will be a Zoning Map, boundary description of each zone in the
map and the accompanying text.
The basic zone classifications shall use the same color codes as the land use
categories (Annex 4-3) while each sub-zone classification shall be superimposed
with different patterns /symbols, e.g. hatching with diagonal/straight lines, letters,
and/or numbers, etc. (Refer also to Vol. 3, Guide to Data Management in CLUP
Preparation)
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 locality’s stated vision,
goals and objectives.
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.
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.
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;
5.3 Creation of Local Zoning Board of Adjustments and Appeals (LZBAA) composed of:
In order to ensure that due process is observed in the enforcement of the Zoning
Ordinance, it is advisable that local governments provide for a Local Zoning
Board of Adjustment and Appeals. However, due to limitation in planning
expertise, some localities may find it difficult to organize their own Local Zoning
Board of Adjustment and Appeals. In these cases, the local government may
authorize the HLURB to act as its Zoning Board of Adjustment and Appeals.
5.4 Creation of Local Zoning Review Committee (LZRC) composed of the following
sector representatives responsible for the operation, development and progress of
all sectoral undertakings in the locality:
The Local Zoning Review Committee shall have the following powers and
functions:
3. Provide information to the HLURB that would be useful in the exercise of its
functions..
Changes in the Zoning Ordinance as a result of the review by the Local Zoning
Review Committee shall be treated as an amendment, provided that any
amendment to the Zoning Ordinance or provisions thereof shall be subject to
public hearing and review evaluation of the Local Zoning Review Committee
and shall be carried out through a resolution of three fourths vote of the
Sangguniang Panlungsod/Bayan. Said amendments shall take effect only after
approval and authentication by HLURB or Sangguniang Panlalawigan.
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
Define Title
1 and Purpose
of ZO
Art. I & II. Authority
and Purpose
Designate/
2 classify
specific zones
Art. IV. Boundary
Descriptions
Identify
zone use
3 and
regulations
Art. V & VI. Zone/
District Regulations
Determine innovative
techniques,
4 miscellaneous
provisions and
mitigating device
Art. VII, VIII & IX.
Innovative Techniques,
Miscellaneous Provisions
and Mitigating Devices
Identify/define
provisions to
5 administer and
enforce ZO
Art. X.
Administration
and Enforcement
List/define
6 terms
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
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
Executive Summary of the Plan (Refer to Annex 9-1 for the suggested
outline)
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.
Orient the City/Municipal Mayor, Local departments, SP/SB members, and Local
Development Council on the draft CLUP. This may be conducted in one general session or
series of sessions for different cluster groups.
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.
The Mayor, as Chairperson of the Public Hearing Board, shall preside over
the public hearing. In the absence of the Chairperson or inability to preside,
the members of the hearing board shall elect among themselves the
Presiding Officer of the day.
5.1.1 Identify strategic areas to display the above documents. Suggested places
are: the provincial/city/municipal halls, barangay centers, public markets, civic
centers, shopping centers, and other places frequently visited by the public.
5.1.2 Exhibit the plan and other information documents at least seven (7) days
prior to the public hearing.
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.
The presence of the Provincial Land Use Committee (PLUC) members during
this stage is suggested to facilitate the subsequent review of the draft CLUP/ZO.
The public hearing may be conducted with the following suggested activities:
The Public Hearing Board shall be guided by the following parameters to ensure
accountability of actions relative to the consultation/hearing:
ii. Presentation of the highlights of the draft CLUP and ZO and supporting sectoral
studies.
Refer to step 5.2.3 above for the flow of activities during the committee hearings.
Step 9. Public Hearing for the Draft CLUP and ZO 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.
EXECUTIVE SUMMARY
CITY/MUNICIPALITY
PlanningPeriod to
I. Vision
Demography
Social Services
Economiy
Physical Infrastructure
Natural Environment (forest, water bodies, solid/liquid wastes, etc.)
Land Use Development Trend
Local Administration
The following points summarize the key aspects or principles that underpin an effective
consultation process. They are useful to use as a checklist when planning and undertaking
a consultation process.
1. Clearly define the purpose and scope of the consultation process including:
3. Involve the community as early as possible and in all stages of the project
in:
Different levels of interest and awareness about the topic under discussion;
The need for different techniques for different situations.
Longer time frames that will be needed for more complex projects or proposals;
Consultation events that do not conflict with other commitments such as holidays,
peak times for business and major community events.
8. Ensure that decision making processes are open and accountable by:
Advising those who have participated about the outcomes of the decision making
process which followed consultation;
Demonstrating how the outcomes of the consultation have been considered in
making the final decision.
Evaluating the consultation process both during and at the end of the process;
Learning from these experiences
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
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.
Step 10. Reviewing, Adopting and Approving the CLUP and ZO 134
2. Conduct of review, approval and ratification of the CLUP/ZO by the following
authorized bodies as mandated by law:
Note: Other agencies concerned may be invited as necessary. e.g., NCIP, POPCOM,
etc.
135 Step 10. Reviewing, Adopting and Approving the CLUP and ZO
The CLUPs/ZOs of the cities and municipalities in Metro Manila shall be reviewed
by Metro Manila Development Authority (MMDA).
X Refer to Figures 1-3 for the systematic activities in conducting the CLUP
review.
Annex 10-3, Plan Review, Adoption and Approval Process for Metro
Manila Cities and Municipalities (MMCMs)
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.
5. SP/SB submits adopted CLUP and enacted ZO to the SP/HLURB for approval/
ratification (See flowchart process, Figures 1-3).
Step 10. Reviewing, Adopting and Approving the CLUP and ZO 136
The following documents are to be submitted:
6. LGU publishes the approved/ratified CLUP and Zoning Ordinance consistent with
Section 59 of the Local Government Code (RA 7160).
137 Step 10. Reviewing, Adopting and Approving the CLUP and ZO
Annex 10-1
PLAN REVIEW, ADOPTION AND APPROVAL PROCESS FOR
COMPREHENSIVE LAND USE PLANS
OF COMPONENT CITIES AND MUNICIPALITIES (CCMS)
NOTE: * Refer to Annex 9-1 of CLUP Step 9 for Sample Executive Summary.
141 Step 10. Reviewing, Adopting and Approving the CLUP and ZO
RESPONSIBLE PARTY ACTIVITIES
Provincial Land Use 4.7 Conducts review of CLUP & ZO consistent with
Committee (PLUC) the review parameters hereto attached.
4.8 Committee members present respective
comments and recommendations.
4.9 Prepares report/recommendations.
Local Government Units (LGU) 5. Revises the draft CLUP and ZO integrating the
recommendations of PLUC. (LGU may coordinate/
consult with PLUC). Proceeds with activity 6.
Local Government Units (LGU) 8. SB/SP adopts CLUP and enacts ZO.
Step 10. Reviewing, Adopting and Approving the CLUP and ZO 142
RESPONSIBLE PARTY ACTIVITIES
- HLURB-RFO (1 set)
- LGU (remaining copies)
Local Government Units (LGU) 15. Complies with publication requirement per Sec.
59 of Local Government Code (R.A. 7160).
1. Provincial 1.a If the province has a provincial plan, checks if local plan
Planning and conforms or is in harmony with the provincial plan.
Development 1.b If the province has no provincial plan, checks if plan
Coordinator conforms with development thrust of the province and does
(PPDC) not conflict with the land use plans or development thrust of
other adjacent municipalities.
2. Provincial 2.a Checks if irrigated and irrigable lands are identified, delineated
Agriculturist and quantified per RA 8435.
(PA) 2.b Determines if areas identified for urban expansion are outside
the identified Network of Protected Areas for Agricultural and
Agro-Industrial Development (NPAAAD) and Strategic
Agriculture and Fisheries Development Zones (SAFDZ).
2.c Checks if the fishponds (if any) are identified, delineated and
quantified.
3. Non- 3.a Checks whether the plan increases the access of the under-
Government privileged and other basic sectors to socio-economic
Organization opportunities.
(NGO) 3.b Evaluates how development strategies, programs and projects
will affect the basic sectors.
3.c Evaluates the CLUP vis-à-vis laws and regulations affecting
human rights, gender, and other sectoral concerns.
4. Housing and 4.a Checks whether LGU clearly identified its functional role and
Land Use whether the proposed land use plan and development strategies
Regulatory are consistent with its vision.
Board 4.b Evaluates if the plan is in harmony with the land use plans of
(HLURB) 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 Step 10. Reviewing, Adopting and Approving the CLUP and ZO
properly allocated, and delineated.
4.f Evaluates if proposed socio-cultural and other infra. support
facilities are adequate and supportive to the city’s functional
role and development thrust.
4.g Checks if sites for socialized housing are identified pursuant
to R.A. 7279 (Urban Development and Housing Act of 1992).
4.h Checks if the identified programs/projects are responsive to
the LGU’s needs, properly prioritized and incorporated in the
LDIP.
4.i Checks whether the land use plan is translated into the requisite
Zoning Ordinance with clear Zone Boundaries.
4.j Evaluates the CLUP vis-à-vis approved agency related policies/
plans/programs.
5. Department of 5.a Checks whether present and proposed settlement sites are
Environment free from legal and environmental constraints.
and Natural 5.b Checks whether there are inconsistencies between areas
Resources proposed for development and areas for protection.
(DENR) 5.c Checks if there are sites identified for disposal and projects
for management of solid and other hazardous waste within
the city.
5.d Checks the consistency of the City/Municipal Solid Waste
Management Plan with the CLUP.
5.e Checks if the plan promotes the enhancement of the
environmental quality through local initiatives to control water,
air and land pollution.
5.f Evaluates the CLUP vis-à-vis approved agency related policies/
plans/programs.
7. Department of 7.a If applicable, checks if the sites jointly identified by DTI and
Trade and LGU as Regional Agro-Industrial Centers (RAICs), District Agro-
Industry Industrial Centers (DAICs)/ Countryside Agro-Industrial Centers
(DTI) (CAICs) /Provincial Industrial Centers (PICs)/Peoples Industrial
Estates (PIEs), etc. are delineated, considered and quantified
in the plan.
7.b If applicable, checks if Special Economic Zones identified by
PEZA are delineated and quantified in the plan.
7.c Evaluates if the proposed industrial sites are feasible and
suitable for industrial development per DTI standards.
7.d Checks if the requisite utilities and facilities are adequate for
identified industries in the area.
7.e Evaluates the CLUP vis-à-vis approved agency related policies/
Step 10. Reviewing, Adopting and Approving the CLUP and ZO 144
plans/programs.
9. Department of 9.a Checks if potential tourism sites are identified and considered
Tourism in the plan.
(DOT) 9.b Checks if the sites identified for local tourism development is
supportive of the Regional Tourism Master Plan.
9.c Determines if there are adequate utilities/facilities to support
tourism activities needed to sustain projected number of
tourists.
10. Department of 10.a Checks if the proposed projects/programs are the actual
Interior and translation of the LGUs needs and requirements as identified
Local in the socio-economic and infrastructure sector and if these
Government are prioritized.
(DILG) 10.b Checks if the implementing mechanisms are adequately
provided.
10.c Checks the adequacy/sufficiency of the proposed organizational
structure for CLUP/ZO implementation.
10.d Evaluates the sources of funds for identified programs and
projects.
10.e Checks if the proposed implementing and monitoring schemes
are consistent with the Local Government Code.
10.f Evaluates the CLUP vis-à-vis approved agency related policies/
plans/programs.
145 Step 10. Reviewing, Adopting and Approving the CLUP and ZO
Annex 10-2
PLAN REVIEW, ADOPTION AND APPROVAL PROCESS FOR
COMPREHENSIVE LAND USE PLANS OF HIGHLY-URBANIZED CITIES (HUCS)
AND INDEPENDENT COMPONENT CITIES (ICCS)
Local Government Unit (LGU) 1. City Mayor transmits to the Housing and Land
Use Regulatory Board - Regional Field Office
(HLURB-RFO), one (1) set of presentation maps
and at least three (3) copies of final draft of
Comprehensive Land Use Plan (CLUP) & Zoning
Ordinance (ZO) together with the following
documents:
a. Executive Summary of the CLUP*;
b. Sangguniang Panlungsod (SP) Secretary’s
Certificate of Public Hearing conducted;
c. Minutes of Public Hearing;
d. List of Invitees and sector represented;
e. Copy of Issued Invitation letter/Notice of Public
Hearing; and
f. Copy of Attendance Sheet.
Housing and Land Use 2. RFO receives plan documents and checks
Regulatory Board (HLURB) completeness.
a. Schedules review.
b. Routes copies of plan documents to members
at least two (2) weeks before the actual review.
c. Invites other stakeholders as needed.
NOTE: * Refer to Annex 9-1 of CLUP Step 9 for Sample Executive Summary.
Step 10. Reviewing, Adopting and Approving the CLUP and ZO 146
RESPONSIBLE PARTY ACTIVITIES
Local Government Unit (LGU) 7. Revises the draft CLUP and ZO integrating the
recommendations of RLUC (LGU may
coordinate with RLUC). Transmits documents to
RLUC.
Local Government Unit (LGU) 10. SP adopts CLUP and enacts ZO.
Housing and Land Use 12. FOSG receives documents. Conducts cursory
Regulatory Board (HLURB) review (coordinates with LGU, if necessary),
Central Office recommends CLUP and ZO for Board approval
and requests presence of HLURB Regional Officer
during the Board Meeting.
147 Step 10. Reviewing, Adopting and Approving the CLUP and ZO
RESPONSIBLE PARTY ACTIVITIES
Local Government Unit (LGU) 17. Complies with publication requirement per Sec.
59 of Local Government Code (R.A. 7160).
1. National 1.a Checks if the CLUP/ZO is consistent with the PPFP, RPFP
Economic and and other national/regional policies set by NLUC/RLUC.
Development 1.b Checks if the CLUP/ZO does not conflict with the land use
Authority plans or development thrust of adjacent cities and municipalities.
(NEDA) 1.c Evaluates the CLUP vis-à-vis approved agency related
policies/plans/programs.
2.a Checks whether LGU clearly identified its functional role and
2. Housing and whether the proposed land use plan and development strategies
Land Use are consistent with its vision.
Regulatory 2.b Evaluates if the city plan is in harmony with the land use plans
Board of adjacent cities and municipalities.
(HLURB) 2.c Evaluates if the land requirements for basic services and facility
are identified, quantified and properly delineated.
2.d Evaluates if proposed socio-cultural and other infrastructure
support facilities are adequate and supportive to the city’s
functional role and development thrust.
2.e Checks if sites for socialized housing are identified pursuant to
R.A. 7279 (Urban Development and Housing Act of 1992).
2.f Checks if the locality has responsive programs and projects to
solve the squatting problems, if any.
2.g Checks if the identified programs/projects are responsive to
the LGU’s needs, properly prioritized and incorporated in the
Step 10. Reviewing, Adopting and Approving the CLUP and ZO 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-à-vis approved agency related policies/
plans/programs.
3. Department of 3.a If applicable, checks if the sites jointly identified by DTI and
Trade and LGU as Regional Agro-Industrial Centers (RAICs), District Agro-
Industry Industrial Centers (DAICs)/Countryside Agro-Industrial Centers
(DTI) (CAICs)/Provincial Industrial Centers (PICs)/ Peoples Industrial
Estates (PIEs), etc. are delineated, considered and quantified
in the plan.
3.b If applicable, checks if Special Economic Zones identified by
PEZA are delineated and quantified in the plan.
3.c Evaluates if the proposed industrial sites are feasible and
suitable for industrial development per DTI standards.
3.d Checks if the requisite utilities and facilities are adequate for
identified industries in the area.
3.e Evaluates the CLUP vis-à-vis approved agency related policies/
plans/programs.
4. Department of 4.a Checks if potential tourism sites are identified and considered
Tourism (DOT) in the plan.
4.b Checks if the sites identified for local tourism development is
supportive of the Regional Tourism Master Plan.
4.c Determines if there are adequate utilities/facilities to support
tourism activities needed to sustain projected number of tourists.
4.d If the locality has identified priority sites for tourism development,
reviews the local tourism plan prepared by private groups (local/
international) and other government agencies.
149 Step 10. Reviewing, Adopting and Approving the CLUP and ZO
6.e Checks if the proposed implementing and monitoring
schemes are consistent with the Local Government Code.
6.f Evaluates the CLUP vis-à-vis approved agency related policies/
plans/programs.
7. Department of 7.a If applicable, checks if irrigated and irrigable lands are identified,
Agriculture delineated and quantified per RA 8435 and checks if areas
(DA) identified for expansion of urban uses are outside the coverage
of the Network of Protected Areas for Agriculture and Agro-
Industrial Development (NPAAAD) and Strategic Agricultural
and Fisheries Development Zone (SAFDZs).
7.b If applicable, evaluates if the areas identified for reclassification
are not or have ceased to be economically feasible for
agricultural purposes.
7.c Evaluates CLUP vis-à-vis approved agency related policies/
plans /programs.
8. Department of 8.a Checks whether present and proposed settlement sites are
Environment free from legal and environmental constraints.
and Natural 8.b Checks whether there are inconsistencies between areas
Resources proposed for development and areas for protection.
(DENR) 8.c Checks if there are sites identified for disposal and projects for
management of solid and other hazardous waste within the
city.
8.d Checks the consistency of the City Solid Waste Management
Plan with the CLUP.
8.e Checks if the plan promotes the enhancement of the
environmental quality through local initiatives to control water,
air and land pollution.
8.f Evaluates the CLUP vis-à-vis approved agency related policies/
plans/programs.
10. Department of 10.a Checks/evaluates if the proposed road network and other
Public Works infrastructure facilities and utilities are adequate to support the
and Highways various land uses and are consistent with regional and national
(DPWH) sectoral plans.
10.b Evaluates if the CLUP has integrated DPWH plans and
programs for implementation within the planning period.10.c
Determines if mitigating measures for flooding and appropriate
disaster prevention programs are identified.
10.d Checks if the proposed Traffic Management Program (TMP)
has linkage with the TMPs of adjacent cities and municipalities.
Step 10. Reviewing, Adopting and Approving the CLUP and ZO 150
10.e Evaluates the CLUP vis-à-vis approved agency related policies/
plans/programs.
12. Non- 12.a. Checks whether the plan increases the access of the under-
Government privileged and other basic sectors to socio-economic
Organization opportunities.
(NGO) 12.b. Evaluates how development strategies, programs and projects
will affect the different sectors.
12.c. Evaluates the CLUP vis-à-vis laws & regulations affecting
human rights, gender and other sectoral concerns.
151 Step 10. Reviewing, Adopting and Approving the CLUP and ZO
Annex 10-3
PLAN REVIEW, ADOPTION AND APPROVAL PROCESS
FOR METRO MANILA CITIES AND MUNICIPALITIES (MMCMS)
Local Government Unit (LGU) Important: Step 1 below shall only take place after the
following activities had already been undertaken:
Local Government Unit (LGU) 1. SP/SB transmits to the MMDA planning office
(OAGMP), one set of presentation maps and at
least 2 copies of draft of Comprehensive Land Use
Plan (CLUP) and Zoning Ordinance (ZO) together
with the following documents:
a. Executive Summary of the CLUP*;
b. Sangguniang Panlungsod/Bayan (SP/SB)
Secretary’s Certificate of Public Hearing
conducted;
c. Minutes of Public Hearing;
d. List of invitees and sector represented;
e. Copy of issued Invitation letter/Notice of public
hearing; and
f. Copy of Attendance Sheet
Metro Manila Development 3. Conduct joint technical review and prepare report/
Authority (MMDA) and recommendation.
Housing and Land Use
Regulatory Board (HLURB) a. If without revision, requests LGU to adopt
CLUP and enact ZO. Proceed to activity 7.
b. If with revision, proceed to activity 4.
Local Government Unit (LGU) 4. Revises the draft CLUP and ZO integrating the
recommendations of joint tech. review group. If
necessary, conducts public hearing among
stakeholders affected by the revisions, incorporate
critical comments in the revision.
5. Transmits the documents to MMDA-OAGMP.
NOTE: * Refer to Annex 9-1 of CLUP Step 9 for Sample Executive Summary.
Step 10. Reviewing, Adopting and Approving the CLUP and ZO 152
RESPONSIBLE PARTY ACTIVITIES
Local Government Unit (LGU) 8. SP/SB conducts 3rd / final reading. Adopts CLUP
and enacts Zoning Ordinance.
9. Endorses the plan and submits to MMDA-AGMP
four (4) copies of CLUP & ZO together with the
following documents:
Metro Manila Commission 12. MMC Passes resolution endorsing the CLUP and
ZO to HLURB for approval/ratification.
Housing and Land Use 13. FOSG receives documents. Conducts cursory
Regulatory Board (HLURB) review (coordinates with LGU, if necessary),
recommends CLUP & ZO for Board approval/
ratification.
153 Step 10. Reviewing, Adopting and Approving the CLUP and ZO
RESPONSIBLE PARTY ACTIVITIES
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.
Step 10. Reviewing, Adopting and Approving the CLUP and ZO 154
RESPONSIBLE PARTY ACTIVITIES
155 Step 10. Reviewing, Adopting and Approving the CLUP and ZO
RESPONSIBLE PARTY ACTIVITIES
Step 10. Reviewing, Adopting and Approving the CLUP and ZO 156
RESPONSIBLE PARTY ACTIVITIES
g.1 Economic
157 Step 10. Reviewing, Adopting and Approving the CLUP and ZO
RESPONSIBLE PARTY ACTIVITIES
g. 3 Social
Step 10. Reviewing, Adopting and Approving the CLUP and ZO 158
RESPONSIBLE PARTY ACTIVITIES
RA 7279.
g.4 Environment/Ecology
159 Step 10. Reviewing, Adopting and Approving the CLUP and ZO
RESPONSIBLE PARTY ACTIVITIES
Step 10. Reviewing, Adopting and Approving the CLUP and ZO 160
RESPONSIBLE PARTY ACTIVITIES
161 Step 10. Reviewing, Adopting and Approving the CLUP and ZO
Comprehensive Land Use Planning
CLUP
IMPLEMENTING THE STEP
CLUP AND ZONING
ORDINANCE 11
Implementing the CLUP requires resources, institutional structures and procedures,
among others, to be realized. The Local Government Code allows great flexibility for
LGUs to design and implement its own organizational structure and staffing pattern
taking into consideration its vision, mission, goals and objectives as contained in the
CLUP and accountability to the community
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
STEPS
The CLUP need people, institutional structures and procedures, among others, to be realized.
The Local Government Unit can design and implement its own organizational structure
and staffing pattern taking into consideration its vision, mission, goals and objectives as
contained in the CLUP and accountability to the community. The Local Government Code,
however, serves as the legal basis for the following activities.
The review shall cover all operating units which are mandated by law or generic to the
LGU and those special bodies or units created for purposes relevant to CLUP/ZO
implementation. Special bodies may be on a permanent or ad hoc tenure. Note that
the review of organizational structure shall be governed by the limitation set forth by
the Local Government Code (LGC), Civil Service Commission (CSC) and other
relevant laws and legally constituted authorities.
OFFICES/ADHOC
BODIES DIRECTLY ISSUES AND RECOMMENDED
IMPLEMENTING CLUP CONCERNS ACTION
Office of the Zoning Strengthening the Office of the Capability building training/
Administrator Zoning Administrator seminar
Local Zoning Board of Not yet constituted Constitute the LZBAA per
Appeals and Adjudication ZO
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 Step 11. Implementing the CLUP and Zoning Ordinance
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.
Some recently approved CLUPs/ZOs have resulted to the creation of special bodies/
committees where the stakeholders are aptly represented. To cite some:
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).
Membership, functions and duties of the units shall be based on the approved
zoning ordinance.
c. Assess applications for land use development permits and management schemes
based on the following considerations:
c. As maybe necessary, prepare draft ordinance that will respond to the identified
gaps in legislative measures needed to implement CLUP/ZO.
1.5 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
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.
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.
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.
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
people’s health.
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 X O N N N
Project 2 X O O X N
Project 3 O X X O O
Project 4 N X N X X
Project 5 N N N O N
Others X O X N O
1) Assign a number to each of the projects resulting from the first level assessment,
i.e.,Project 1, Project 2, etc.
2) Fill in the top most row and 1st column with the projects as numbered. (See above
matrix)
Leave blank the cells corresponding to same project listed in the row of projects.
STEPS OUTPUTS
Strengthen existing
institutional structures and
mechanisms
Define roles of offices/
departments, operational
guidelines and mechanisms
vis-a-vis the implementation
of the CLUP and ZO
2
Short-list of prioritized
programs and projects
including project proposal
and fund sourcing
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.
City/Municipality of ,
PROJECT BRIEF
Project Title
Project Activities
Expected Output
Budgetary Requirements
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 project’s 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 project’s social and economic
costs and benefits (net benefit-cost ratio) to the community or society. This component
assesses the project’s benefit to the community such as additional income or revenue to
the locality, generation of employment, human resource development and other indicators
of a community’s overall well being. For example, building a P10 million 50-kilometer farm-
to-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 project’s
implementers and the entity assigned to run and manage the project. This includes analysis
of the project’s organizational structure and staffing pattern and the cost of operating and
maintaining such structure and personnel.
FURTHER READING
- Gender-responsive Population and Development Planning Guide, Step and Preparation and Projection of Concept
- Guide to Population and Development Planning
- Setting the Plan Mechanism
PURPOSE
To assess impacts of land development project issued permits and clearance on the
local economy, environment and on social services.
EXPECTED OUTPUTS
Monitoring system and procedures, and set of indicators for quality of life assessment.
STEPS
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.
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 community’s 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.
Actual data is compared with the plan to determine whether clearance from funding
and support agencies has been sought and whether there are any deviations from
the original plan. The cause of deviations, if any, are examined and solutions/persons
likely to solve the problem and necessary interpretations are identified. (Refer to
Annex 12-1, Designing a Project Monitoring Scheme)
183 Step 12. Monitoring, Reviewing and Evaluating the CLUP and ZO
2.4 Conduct of review and evaluation of action taken and development outcomes to
determine relevance, efficiency, effectiveness, impact and sustainability. The intent
is to incorporate lessons learnt in the process.
3. Conduct actual monitoring consistent with the developed system and procedures.
Step 12. Monitoring, Reviewing and Evaluating the CLUP and ZO 184
Findings and recommendations may lead to:
Revision of strategies or policies provided for in the CLUP and development control/
guidelines in the ZO or at least revision of CLUP.
ANNEXES
FURTHER READING
185 Step 12. Monitoring, Reviewing and Evaluating the CLUP and ZO
Flow Chart for Plan Monitoring and Evaluation
Organize/create
monitoring review
1 and evaluation
(MRE) teams
Develop
monitoring
2 systems and
procedures
Monitoring systems and
procedures, including
benchmarks and indicators
Conduct actual
3 monitoring Monitoring of:
Step 12. Monitoring, Reviewing and Evaluating the CLUP and ZO 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.
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 gender-
differentiated progress of projects for target beneficiaries, should be formulated vis-à-vis identified
project performance targets.
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.
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.
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.
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 Step 12. Monitoring, Reviewing and Evaluating the CLUP and ZO
Annex 12-2
CORE INDICATORS FOR GENDER-RESPONSIVE
POPULATION AND DEVELOPMENT (POPDEV) PLANNING AT THE LOCAL LEVEL
LATEST SOURCE
INDICATOR DEFINITION LEVEL OF FREQUENCY AVAILABLE OF BASIC
DESEGRAGATION DATA DATA
Population Processes
1. Crude Birth Rate The number of live national, regional, Annual 1997 1) Vital Statistics Report,
births per 1,000 provincial, National Statistics
population during a municipal, city, Office (NSO)
given period
national, regional, After every 1995-2005 2) Population Projections,
provincial census year NSO
2. Crude Death Rate The number of deaths national, regional, Annual 1997 1) Vital Statistics Report,
per 1,000 population provincial, NSO
during a given municipal, city
period
national, regional, After every 1995-2005 2) Population Projections,
provincial census year NSO
3. Total Fertility Rate The average number national, regional, Annual 1997 1) Vital Statistics Report,
of children that would provincial NSO
be born alive to a
woman during her national, regional, After every 1995-2020 2) Population Projections,
lifetime if she were to provincial census year NSO
pass through her
child-bearing years
conforming to the age-
specific fertility rates of
a given year
4. Maternal Mortality Rate The number of deaths national, regional, Every 5 1997 1) Vital Statistics Report,
among women 15-49 provincial years NSO
years old from
pregnancy-related 1990-1995 2) Technical Working
causes per 100,000 Group - Maternal and
live births in a given Child Mortality, NSO
period
Population Outcomes
5. Annual Population The pace at which the national, regional Every 10 2000 Census of Population and
Growth Rate population is increas- provincial, city, years Housing (CPH), NSO
ing (or decreasing) municipality
during a given period
on a yearly basis
expressed as a
percentage of the
basic population
Step 12. Monitoring, Reviewing and Evaluating the CLUP and ZO 188
LATEST SOURCE
INDICATOR DEFINITION LEVEL OF FREQUENCY AVAILABLE OF BASIC
DESEGRAGATION DATA DATA
Development Processes
7. Percentage Distribution Percentage Regional, Annual 2001 Bureau of Local
of Local Government Distribution of Local provincial, city, Government Finance
Expenditures by Specific Government municipality
Activities 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
8. Labor Force Participat- Percent of National, regional Quarterly October-00 Integrated Survey of
ion Rate by Sex population 15 years provincial, key Households Bulletin,
old and over who are cities Labor Force Survey,
either employed or NSO
unemployed but
looking for work in
relation to the total
population
9. Length of Local The length of local National, regional, Annual 2001 DPWH
Government Roads by government roads provincial, city -
surface Type (in kilometers) by municipality
surface type such as:
earth, gravel, asphalt
and concrete
10. Elementary and The number of total National, regional Annual SY 2000 - DECS Statistical Bulletin
Secondary Cohort enrollees in the provincial, city - 2001 and/or Basic Education
Survival Rates beginning grade/ municipality Statistics
year who reached
189 Step 12. Monitoring, Reviewing and Evaluating the CLUP and ZO
LATEST SOURCE
INDICATOR DEFINITION LEVEL OF FREQUENCY AVAILABLE OF BASIC
DESEGRAGATION DATA DATA
11. Doctor-Population Ratio The number of National, regional, Annual 1996 Philippine Health
population per provincial, city – Statistics, (PHS), DOH
doctor in a municipality
population
12. Hospital Bed-Population The number of National, regional, Annual 1996 PHS, DOH
Ratio population per provincial, city
hospital bed
13. Percent of births The number of births National, regional, Annual 1997 1) Vital Statistics Report
attended by Health attended by health provincial, city
Personnel personnel expressed 2) PHS, DOH
as a percentage of
the total number of
births in a given
period
14. Contraceptive The percentage of National, regional Every 5 1998 National Demographic
Prevalence Rate women currently years and Health Survey,
using a family (NDHS), NSO
planning method
among currently
married women in
the reproductive
ages (15-49)
15. Percentage Distribution The number of National, regional, Annual 2000 CPH, NSO
of Households by Type households by type provincial, city,
of Housing Unit of unit occupied municipality
Occupied which include:
1) single house;
2) duplex;
3) apartment/
accessoria/
condominium;
4) improvised
barong-barong;
5) commercial/
industrial/
agricultural/etc.;
and
Step 12. Monitoring, Reviewing and Evaluating the CLUP and ZO 190
LATEST SOURCE
INDICATOR DEFINITION LEVEL OF FREQUENCY AVAILABLE OF BASIC
DESEGRAGATION DATA DATA
6) other housing
units, expressed
as a percentage
of the total
number of
households
16. Percentage Distribution The number of National, Every 10 2000 CPH, NSO
of Households by Main households by main provincial, city, years
Source of Water Supply source of water municipality
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
17. Percentage Distribution The number of National, regional, Every 10 2000 CPH, NSO
of Households by Type households by type provincial, city, years
of Toilet Facilities Being of toilet facilities used municipality
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
18. Percentage Distribution The number of National, Every 10 2000 CPH, NSO
of Households by Type households by type provincial, city, years
of Garbage Disposal of garbage disposal municipality
which include:
1) pick by garbage
truck;
2) burning;
3) composting; and
4) burying,
expressed as a
percentage of the
total number of
households
19. Crime Rate by Type Number of crimes National, regional, Annual 2001 Philippine National Police
reported per provincial, city,
100,000 population municipality
by type
20. Percentage Distribution The number of National, regional, Annual 2001 Department of Social
of DSWD Clienteles DSWD clienteles provincial Welfare and Development
Served by Type and by served by type which
Sex include:
1) household heads
and other needy
adults;
2) socially-
disadvantaged
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
Development Outcomes
21. Unemployment Rate, Total number of National, regional, Quarterly October-00 Integrated Survey of
Total and by Sex unemployed persons provincial, key Households Bulletin,
expressed as a cities Labor Force Survey,
percent of the total NSO
number of persons
in the labor force,
total or by sex
Step 12. Monitoring, Reviewing and Evaluating the CLUP and ZO 192
LATEST SOURCE
INDICATOR DEFINITION LEVEL OF FREQUENCY AVAILABLE OF BASIC
DESEGRAGATION DATA DATA
22. Average Family Income Refers to the total National, regional, Every 3 2000 Family Income and
family income provincial, key years Expenditure Survey,
received in cash or in cities NSO
kind realized by all
families in the area
divided by the total
number of families in
the same area
23. Literacy Rate by Sex The percentage of National, Every 10 2000 1) CPH, NSO
the population who regional,provincial years
can read and write a 2) Functional Literacy,
simple message in Every 5 1994 Education and Mass
any language or years Media Survey, NSO
dialect classified by
sex
24. Percentage of The number of 7-10 National, Every 5 1996 Updating of the Nutritional
Malnourished 7-10 year old children who regional,provincial, years Status of Filipino Children
Years Old Children are moderately and key cities at the Provincial Level,
severely underweight FNRI
expressed as a
percentage of total
population of
children 7-10 years
old
25. Percentage of Infants The number of National, regional, Annual 1997 Vital StatisticsReport,
with Low Birth Weight Infants with birth provincial, city NSO
weight of less than
2.5 kilograms
expressed as a
percentage of the
total number of
infants
26. Morbidity Rates by The number of National, regional, Annual 1996 PHS, DOH
Leading Causes reported illnesses provincial, city
from a specific
leading cause
expressed as a
percentage of the
total number of
illnesses from all
causes
27. Elementary and Completion rate National, regional, Annual 2003 BEIS, DepEd
Secondary Completion refers to the private and public
Rates by Sex percentage of first
year (female/male)
entrants in the cycle
of education
surviving to the end
193 Step 12. Monitoring, Reviewing and Evaluating the CLUP and ZO
LATEST SOURCE
INDICATOR DEFINITION LEVEL OF FREQUENCY AVAILABLE OF BASIC
DESEGRAGATION DATA DATA
28. Employment rate by Ratio (in percent) of National, regional Quarterly 2004 LFS, NSO
sex, age group and the total number of
highest grade completed women/men in labor
force
29.Nutritional status of The condition of the National, regional Every 5 2003 FNRI
pregnant women/ body resulting from years
incidence of Malnutrition the intake, absorp-
tion and utilization of
food and from
factors of pathologi-
cal significance
30.Mortality by leading Death ratios. Shows National, regional, Annual 2004 Vital Statistics Report,
causes, age and sex the numerical provincial NSO
relationship between
deaths from a cause
and from the total
number of deaths
from all causes in all
ages taken together
31.Morbidity by leading Morbidity is any National, regional Annual 2001 FHSIS, DOH
causes, age and sex departure, subjective
or objective from a
stage of physiological
well-being
33.Percent of women in Number of women in National, regional, Quarterly 2004 CPH, LFS, NSO
managerial, supervisory managerial, provincial,
and technical positions supervisory and municipality
technical positions
over the total
number of women in
managerial,
supervisory and
technical positions
Step 12. Monitoring, Reviewing and Evaluating the CLUP and ZO 194
LATEST SOURCE
INDICATOR DEFINITION LEVEL OF FREQUENCY AVAILABLE OF BASIC
DESEGRAGATION DATA DATA
34.Percent of male/female Number of male/ National, regional Annual 2003 CPH, NSO, FIES, APIS
headed households by female headed
civil status households by civil
status over the total
number of
households
195 Step 12. Monitoring, Reviewing and Evaluating the CLUP and ZO
Annex 12-3
GUIDELINES ON THE EVALUATION OF CLUP/ZO FOR REPLANNING PURPOSES
(REF: HLURB REGION X)
I. OBJECTIVES:
III. PARAMETERS
Step 12. Monitoring, Reviewing and Evaluating the CLUP and ZO 196
All revisions/rezoning found to be too harsh for implementation
All projects implemented as against projects programmed for implementation
V. PROCEDURAL GUIDELINES
VII. RE-PLAN
197 Step 12. Monitoring, Reviewing and Evaluating the CLUP and ZO
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.
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.
Step 12. Monitoring, Reviewing and Evaluating the CLUP and ZO 198
Annex 12-4
UPDATING OR REVISING AN EXISTING CLUP
Existing Data
Existing Conditions Should always be kept
Sectoral Data up-to-date and readily
Base Mapping accessible. GIS or MIS is
Constraints ideal, but also possible in
SWOT Analysis hardcopy
Monitoring of decisions,
Decision-making and outcomes, compliance,
CPDO administrative and complaints may
process indicate the need for
changes
199 Step 12. Monitoring, Reviewing and Evaluating the CLUP and ZO
Rules and Regulations Implementing the Local Government Code of 1991, RA 7160.
201 References
STAKEHOLDERS FEEDBACK ON THE FINAL DRAFT OF THE GUIDEBOOK
The following are some feedbacks on the final draft of this guidebook gathered during the
nationwide validation workshops:
DILG - Region X . . .
“ The revised CLUP Guide are logically presented and can be easily
understood. This will be surely utilized by the LGUs who will be updating
their CLUPs.”
“The steps provided allow for flexibility and creativity, hence generally
acceptable.”
CARAGA participants . . .
STEERING COMMITTEE
Comm. TERESITA A. DESIERTO Comm. ROMULO Q. M. FABUL Comm. JESUS YAP PANG
SECRETARIAT
Coordinator: Ms. Julie A. Torres, RSDG
Members: Ms. Angelita C. Agustin, RSDG
Josefina R. de Lara, RSDG
Eleonor C. Sandoval, FOSG
Sectoral Development Study Group Sectoral Development Study Group Sectoral Development Study Group
(SDSG) 1 (Luzon Region) (SDSG) 2 (Visayas Region) (SDSG) 3 (Mindanao Region)
Sectors : Social Sector and Sectors : Demography, Sectors : Economic Sector and
Infra-Utilities Sector Environmental Local Administration
Management and
Chairman : Dir. Alfredo M. Tan II Land Use Chairman : Ms. Evangeline B. Agan
Regional Officer, RFO IV-B Regional Officer, RFO X
Chairman : Ms. Pilar J. Jamandre
Project Coordinators: Regional Officer, RFO VI Project Coordinators:
Ms. Rebecca Torres Ms. Elizabeth A. Bueno
Regional Officer, CAR Project Coordinators: Regional Officer, RFO IX
Dr. Teresita V. Galacgac, Ph. D. Rose Marie M. Bermejo, Mr. Roy T. Lopez
Regional Officer, RFO I Staff, RFO VI Regional Officer, RFO XI
Mr. Antonio P. Urata Alipio Bacalso, Jr. Mr. Ayunan B. Rajah
Regional Officer, RFO II Staff, RFO VII Regional Officer, RFO XII
Ms. Editha U. Barrameda Anacetas Dalangin, Ms. Charito A. Raagas
Regional Officer, RFO III Regional Officer, RFO VIII Regional Officer, (CARAGA)
Dir. Belen G. Ceniza
Regional Officer, RFO IV-A Members: Members:
Dir. Jesse A. Obligacion Cristina C de la Cruz (FOSG) Nemiah R. Hernandez (RSDG)
Regional Officer, ENCR Evelyn D. Gatchalian (FOSG) Dolores O. Alcala (FOSG)
Mr. Nestor Dizon Annabelle F. Guanzon (RSDG) Ricardo Ma. E. Rivera (Office of
Staff, RFO V Emma C. Ulep (Head, MIS-ITG) Commissioner for Planning)
Meselemia R. Bitancor (PPG) Jocelyn A. Vailoces (RFO IX)
Members: Jemima M. Ragudo (RSDG) Judy G. Sumabat (RFO X)
Lloyd A. Sioson (RSDG) Jamelon A. Bellosillo (RFO VI) Ramon E. Revilla (RFO XI)
Betty O. Jimenez (FOSG) Rosario Ladrido (RFO VI) Abdila U. Bayao (RFO XII)
Marissa R. Felizardo (RSDG) Amy P. Tantioco (RFO VI) Harvey A. Villegas (CARAGA)
Julius Caesar O. Villanea (RSDG) Melka Turley (RFO VII)
Percival E. Asuncion (FOSG) Zenaida Estur (RFO VIII)
Arilda Solano (CAR) Ofelia Yu (RFO VIII)
Roderico Beltran (RFO I)
Sherwin Patanao (RFO I)
Alexander Carrera (RFO II)
Julie Collado (RFO II)
Eleodor Balgos (RFO III)
Corazon Labay (RFO III
Lilia Lumbera (RFO IV-A)
Elizabeth Bandojo (RFO IV-B)
Jose Christopher Mendoza (RFO IV-B)
Eva Balisnomo (RFO V)
203