University of the Philippines Diliman, Quezon City National College of Public Administration and Governance

In partial fulfillment of the requirements in PA 151: LOCAL GOVERNMENT AND REGIONAL ADMINISTRATION

Project Analysis: Integrated Shelter & Land Tenure for the Urban Poor to Effectively Reduce the Incidence of Poverty & Homelessness in Las Pias City

Submitted by: Decena, Shella Marie Guiang, Julliano Fernando Ignacio, Eunice Anne Submitted to: Prof. Zita Concepcion Calugay

April 7, 2011
Table of Contents:

I.

Introduction

A. Statement of the problem

B. Objectives of the Paper C. Methodology D. Limitations of the paper

II. Review of Related Literature

III. Socio-Economic Profile of the Las Pias City IV. Profile of the Project A. Title of the project

B. Situation Analysis C. Goals and objectives of the project

D. Structure, staffing, partners E. Funding, Budget, and Utilization of funds F. Project Implementation V. Assessment of the Project

A. Accomplishments
B. Issues and concerns C. Measures to address the issues VI. Recommendations and Conclusion

Review of Related Literature The Philippine Housing Dilemma

There is a notion that could not be written in legal documents or even informal records has been existent in the minds of people since time in memorial, that is every household must be able to have their own house, no matter what it looks like or no matter how humble it is the point is that there is a house that is owned. Individuals, families, or groups may not be able to materialize this notion abruptly. There is a choice to own a house of for the mean time rent, but the latter is the less preferred one because again of the notion of house ownership.1 House ownership assures people the security of tenure of having a place to live in. It also gives proper investment by means of having a place which could be developed in the long run, like the places value, aesthetic aspects, etc. Lastly, though not very significant to all, house ownership entails a status in society. So why have status if housing is a necessity in society? Indeed, it is essential but reality dictates that this certain need is not provided to everyone due to various dilemmas. The Philippines faces an enormous housing problem. According to studies, one third of the Philippine population can only afford appropriate shelter. In the countrys metropolis areas such as Metro Manila, 3.3 million are considered informal settlers. If we are to analyze further why there dilemmas occur, it could be results of various aspects such as fiscal difficulties, policies and interventions or lack of intervention of the government, and even a sociological perspective of norms and culture of the Filipinos. Another point is that the Philippines stretch out on the destructive typhoon belt, this unfortunate fact of course is out of the hands of the administrators of our country; however, even though we cannot change this fact, we
1

Llanto, G., Orbeta, A., Sanchez, T., & Tang, M., A Study of Housing Subsidies in the Philippines. [Online] Available at: http://www3.pids.gov.ph/ris/dps/pidsdps9842.pdf [Accessed 06 Mar 2011]

can still do something about it. It is a point that must be significantly considered for everyone, especially the authorities, to intensify the concern in solving the housing problems so as to prevent possible scenarios that could make numerous lives suffer. Talking about these possible scenarios, the Philippines spend half a billion yearly as a response to the damages made by uncontrollable natural disasters. This very massive amount of budget could have been allocated to other equally or more important services, if only proper housing programs were implemented.2 Having the situation stated with regard to the dilemmas in Philippine housing, the challenge on recognizing concrete reasons of why these should be addressed immediately rises. According to a statement released by the Catholic Bishops Conference of the Philippines which was written by Archbishop Lagdameo of Jaro, there are housing dilemmas in the Philippines due to lack of adequate housing. Adequate and humane dwelling is said to be a fundamental right of the people. Further human rights are even connected with it such as having clean and inexpensive water, decent house, a community that is free of stagnant and diseaseridden waters, and uncollected garbage. Also, proper housing entails the human right of having security of tenure. The said statement begins with a quote from the Pontifical Commission Justice & Peace on the International Year of Shelter for the Homeless in the year 1988, Any person or family that, without any direct fault on his or her own, does not have suitable housing is the victim of an injustice. The Church stands firm that proper housing programs, being a necessity to all citizens, should be provided due to human rights that must be adhered. Failure of the

Torres, J., Addressing Housing Problems. [Online] Available at: http://housingproblem-torresjohn.blogspot.com/2009/01/addressing-housingproblem-in.html [Accessed 06 Mar 2011]

government to deliver to address these problems entails unjust implications to the constituents.3 Recognizing grave effects and possible scenarios that could occur in the future if the said dilemma is not addressed, the government, non-government organizations, religious organizations, and other groups have been proactive in contributing to the desired solution of the Philippine housing problem. The success of formulating and implementation of solutions firstly depends on the active participation of the national and local government, the constituents being affected by certain programs, non-government organizations, and other groups. The government is in the perfect position lead the move in addressing the problem such as creating policies that could deliver timely and long-term needs. It is also the governments responsibility to mobilize and make the people follow the policies which they have created, for instance is the policies on land use which basically prohibits illegal settlement. Government must exert much effort in informing all citizens regarding all laws, so as to have a society that is sound and orderly due to the citizens adherence to proper guidelines. The government is also in the proper position to focus on the financial aspect, by regulating policies that would promote the feasibility of financing programs and projects. The successful implementation of these programs would definitely prevent the existence of other possible dilemmas.4 Another aspect that could be considered as a solution is the proper management of financial matters such as the administration of taxation. Efficient
3

Catholic Bishops Conference of the Philippines, A Statement of the Nations Housing Problems. [Online] Available at: http://www.cbcponline.net/statements/statementonhousingproblems.html [Accessed 06 Mar 2011]

Torres, J., Addressing Housing Problems. [Online] Available at: http://housingproblem-torresjohn.blogspot.com/2009/01/addressing-housingproblem-in.html [Accessed 06 Mar 2011]

and effective management would surely entail more funds for the program, or much proper allocation of budget to certain programs. Upon discussing taxation, the inclusion of another linking age-old dilemma of corruption will never be pass. If the citizens want to have proper allocation of funds and proper administration of taxes, citizens must also play their part to ensure that these will all materialize by being proactively vigilant.5 Another solution would be subsidies and other sources. Here enters the crucial role of the non-government organizations and international organizations. The government could only do so much, which is why these groups enter the frame. Their image do not necessarily make the government look so bad; rather it entails the notion that government would be much effective if there is participation of external efforts which primarily focus on the further development of the nation, same as what the government focuses on. The said groups must just only ensure that proper coordination would be conducted so as not to make their efforts and programs overlap with one another.6 There is rapid formation of new households, most especially in urban areas, and with these formations, great demand for supplies arises which is also a primary reason why poor households fail to get full access to decent housing. The demand-supply gap being suggested is being responded by the government through intervention of the housing market, again for the benefit of the poor households. Governments intervention entails formulation of regulatory,

production, and financing measures. Such measures bring back the discussion to

Ibid.

Torres, J., Addressing Housing Problems. [Online] Available at: http://housingproblem-torresjohn.blogspot.com/2009/01/addressing-housingproblem-in.html [Accessed 06 Mar 2011]

subsidies. Housing subsidies exist to bring down the cost of housing. It is an instrument used by the government to provide targeted households of having decent housing. This instrumentality is targeted to relatively poor members of the society; however, government and as well as non-governmental organization and concerned citizens must ensure if these target beneficiaries are the actual beneficiaries of the subsidies it is just a notion of consistency on being proactively vigilant.7 The government has also made efforts to addressing the dilemma being tackled. The National Shelter Program was created to address the housing problem. It aims to solve housing problems through minimum government assistance. It also states that the private sector would be the principal player in giving decent and affordable housing, this basically reiterates the notion of participatory and inclusive governance, that sectors would be tapped so as to make the administration of the government more effective in being able to focus on matters which they should prioritize. Also, the said program allows the government to focus more in assisting poor families.8 Banks of the government such as the Land Bank of the Philippines (LBP) also have programs in providing loans to people for housing. LBP had launched their Pabahay Program in line with their social mission that is to allocate housing fund to lend to eligible borrowers, specifically homeless Filipinos. LBP had formulated a basis in providing financial assistance such as entertaining eligible borrowers only. They should not legally own a house and lot and has not availed any housing loans from funding institutions like the SSS and GSIS. Borrowers should also have a Gross
7

Llanto, G., Orbeta, A., Sanchez, T., & Tang, M., A Study of Housing Subsidies in the Philippines. [Online] Available at: http://www3.pids.gov.ph/ris/dps/pidsdps9842.pdf [Accessed 06 Mar 2011] 8 Ibid.

Family Monthly Income (GFMI) of Php10,000. LBP had also cleared that amount of loan that could be transacted is from Php80,000 to Php180,000 only. Lastly, the bank had created and continuously uses a methodical and efficient collection system.9 The Catholic Church had also contributed in giving our possible solutions to solve the housing dilemma. They recognize that our country lacks resources, but that should not hinder us in doing something about it. First, the government must stop uncaring evictions and demolitions. Authorities must recognize that there are laws which entail proper processes in evicting people from their places. They should also ensure that the people they are evicting should be transferred to a relocation site with provisions of human needs such as clean water, electricity, etc. Second, government officials must be able to be consistent with the plans which they were saying during their campaigns before they were elected. Lastly, the Church suggests to create a government-church-civil society commission that will focus in formulating guidelines for further development of our cities.10 In status quo, the Philippines continue to face the mentioned series of dilemmas on housing. The new administration, under the leadership of President Benigno Aquino III, has laid out their list of promises. The 45 th promise is called Working with LGUs in solving housing problems. National government will continue to work with the Local Government Units to be able to have full implementation of the provisions provided by the Urban Development & Housing
9

Land Bank of the Philippines, Housing Loans. [Online] Available at: https://www.landbank.com/products_houseloan.asp [Accessed 06 Mar 2011] Catholic Bishops Conference of the Philippines, A Statement of the Nations Housing Problems. [Online] Available at: http://www.cbcponline.net/statements/statementonhousingproblems.html [Accessed 06 Mar 2011]

10

Act (UDHA). LGUs will also be empowered to address their housing needs, according to their contextual situations. Empowerment will be concretized upon the provision of incentives such as co-financing schemes, technical assistance, among others. Lastly, there will be institutionalization and strengthening of participatory shelter planning at the local level.11

Las Pias Socio-Economic Profile Summary Las Pias has grown from a municipality into a highly urbanized city by the late 1990s. In 2000, it had a total population of 472,780 (which composed 4.8 percent of the regions population) and a growth rate of 2.93 percent. In the same year, Las Pias was considered the tenth densest city in the National Capital Region with a density of 14,463 persons per sq. km.

11

President Benigno Aquino III, Promise. [Online] Available at: http://www.noynoy.ph/v3/covenant-urban-poor.php [Accessed 06 Mar 2011]

Two districts compose Las Pias City: District 1 which has more barangays but a smaller land area, and District 2 which has fewer barangays but a bigger land area. The two biggest barangays, Almanza Dos and Talon Dos, are located in District 2. The smallest barangay in terms of land area is Barangay Ilaya. Most of the lands in Las Pias are used for residential structures, followed by commercial establishments. Smaller areas are occupied by industries, institutions and utilities. Vacant areas and open spaces are still present; however, they are already undergoing development or are planned to be developed for residential and commercial uses. At present, the Alabang-Zapote Road serves as the primary spine of Las Pias City while the Old Quirino Highway serves as the secondary spine. The city does not have a central business district. Activities are concentrated in areas surrounding major shopping malls and residential subdivisions, which result in heavy vehicular and pedestrian traffic. To address the build-up in traffic along major thoroughfares, the so-called Friendship Routes were opened up to motorists.

Political Subdivision Las Pias City comprises two districts and twenty barangays. Found in Table 1 is the list of barangays with their corresponding land area.

District 2 has fewer barangays than District 1 but it has a bigger land area with 1,995.17 hectares. This represents approximately 60 percent of the total land area of the city. It also has the two biggest barangays: Almanza Dos with 507.01 hectares (15.37 percent) and Talon Dos with 391.61 has (11.87 percent). The

smallest barangay in terms of land area is Barangay Ilaya which covers less than a hectare. Table 1. Land Area in Las Pias, by Barangay Barangay Las Pias CAA-BF International Village Daniel Fajardo Elias Aldana Ilaya Manuyo Uno Manuyo Dos Pamplona Uno Pamplona Tres Pulanglupa Uno Pulanglupa Dos Zapote Almanza Uno Almanza Dos Pamplona Dos Pilar Village Talon Uno Talon Dos Talon Tres Talon Kuatro Talon Singko Island Source: 1995 Socio-Economic Profile of Las Land Use Las Pias became a first-class municipality with the construction of the South Superhighway during the late 1960s. This eased access from the Land Area (has.) 3,298.60 216.65 30.77 33.36 13.32 74.85 187.89 72.64 235.31 143.56 195.40 69.68 247.44 507.01 112.16 204.09 209.62 391.61 115.22 70.77 137.25 30.00 Pias Percent to total 100.00 District I 6.57 0.93 1.01 0.40 2.27 5.70 2.20 7.13 4.35 5.92 2.11 District II 7.50 15.37 3.4 6.19 6.36 11.87 3.49 2.15 4.16 0.91

southern provinces of Laguna and Batangas, and the eastern region of what would eventually be called Metro Manila. The seat of local government was

transferred from Barangay Daniel Fajardo to Barangay Pamplona Tres, and the commercialization of the Old Town shifted to areas along the Alabang-Zapote road. Residential subdivisions and large industrial establishments were put up

in the municipality because of its geographical advantage and relatively inexpensive land rent. Because of the development of the nearby towns of

Cavite, traffic congestion along the old Quirino highway became problematic. Las Pias City became vulnerable to urban sprawl. In the 1980s, the Manila-Cavite Coastal Road was constructed and it somehow relieved the Quirino highway of traffic congestion. Commercial growth along the Alabang-Zapote Road continued. During the same period, population increased and became concentrated in the central portion of Las Pias where many residential subdivisions were developed. The conversion of agricultural lands into urban uses, mostly commercial and residential, was very evident. In the same decade, Las Pias began to play host to new industries and those that were originally based in the center of Metro Manila. It experienced a boom in the commercial and industrial sectors; major transport routes became dense with commercial establishments. Meanwhile, the influx of migrants to Las Pias City contributed significantly to the mushrooming of informal settlements on public and private lands. At present, Las Pias City is largely residential. Population growth has become more dispersed as the need to urbanize more areas increased. The

current uses of land in Las Pias are based on the Land Use Plan crafted in 2002. Residential lands occupy roughly 71.48 percent of Las Pias City. At present, there are over 200 existing residential subdivisions or ongoing residential development in the city. The land uses are summarized in Table 2. Table 2. Land Uses in Las Pias City, 2002

Source: City Planning & Development Office, Las Pias City Area (has.) Land Use Percent Commercial 1 136.48 4.14 Commercial 2 100.19 3.04 Commercial 3 297.68 9.02 Industrial 131.29 4.0 Institutional 72.17 2.19 Residential 1 462.96 14.04 Residential 2 1,753.54 53 Residential 3 146.37 4.44 Tourist Area 9.08 0.28 Utility 3.0 0.09 Cemetery 16.43 0.5 Parks & open spaces 82.61 2.5 Mixed Use 24.68 0.75 Promenade 18.68 0.57 PUD 43.45 1.32 3,298.60 100.00 Total Land Use Map:

Population In the year 2000, Las Pias City registered a total count of 472,780 with a growth rate of 2.93 percent, compared to a total population of 413,086 and a growth rate of 6.39 percent in 1995. Its fast population growth was due to rapid urbanization influenced by the construction of major infrastructure such as the South Expressway in the late 1960s. The population continued to grow especially in the 1970s and 1980s when a lot of migrants from the provinces came to Las Pias to seek greener pastures in what is now known as Metro Manila. Table 3. Total Population by Barangay, 2000 Populatio Barangay Percent to Rank n t (1 as the o highest) t a l Las Pias City CAA-BF International Village Talon Dos Almanza Uno Almanza Dos Pulanglupa Uno Talon Uno Pamplona Tres Talon Singko Talon Tres Pulanglupa Dos Pilar Talon Kuatro Zapote Pamplona Uno Manuyo Dos Elias Aldana Pamplona Dos Daniel Fajardo Manuyo Uno 72,768 37,136 35,684 33,548 30,891 27,514 26,538 24,617 24,076 23,301 21,544 20,478 17,925 17,415 13,438 11,097 10,379 9,411 8,643 15.39 7.85 7.55 7.10 6.53 5.81 5.61 5.21 5.10 4.93 4.56 4.33 3.79 3.68 2.84 2.35 2.20 1.99 1.83 472,780 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19

Source

Ilaya 6,377 : National Statistics Office (NSO)

1.35

20

Based from the National Statistics Office survey, the city had a total number of 97,962 households in 2000. The average household size in 2000 was about five family members per household. The population of Las Pias City is projected to increase at an annual rate of2.93 percent. Table 4. Projected Population of Las Pias (2007-2017) Percentage Increase Year Total Population from Previous Year 2000 472,780 (actual) n/a 2007 532,330 (actual) 12.60 2008 547,927 2.93 2009 563,981 2.93 2010 580,506 2.93 2011 597,515 2.93 2012 615,022 2.93 2013 633,042 2.93 2014 651,590 2.93 2015 670,682 2.93 2016 690,333 2.93 2017 710,560 2.93 Source: Actual figures from 2007 Census; Projected figures computed by research group based on NSO projected annual rate. Informal Settlers Like other urban areas in Metro Manila, Las Pias City is faced with the challenge of an increasing number of informal settlements that encroach on both public and private lands. As of 2006, there are about 226 identified informal settlements or urban poor communities within the city, consisting of an estimated 34,061 household structures (Table 5). Roughly 3,127 structures are in danger of demolition. Table 2.12 Identified informal settlements in Las Pias, June 2006 Location No. of household Social housing No. of identified

Almanza I Almanza II CAA/BF International D. Fajardo E. Aldana Ilaya Manuyo I Manuyo II Pamplona I Pamplona II Pamplona III Pilar Pulang Lupa I Pulang Lupa II Talon I Talon II Talon III Talon IV Talon V Zapote

structures 2,390 2,026 11,178 470 248 422 1,286 1,411 374 256 582 938 2,193 704 2,319 1,504 1,072 1,369 2,002 1,317

Total 34,061 Source: Urban Poor Affairs Office, Las

beneficiari es 1,056 30 10,19 1 292 108 220 828 1,411 348 0 252 818 903 374 1,447 463 750 1,113 1,071 457 22,1 32 Pias City

communitybased organizations 15 6 13 5 4 6 7 5 6 5 4 12 17 7 46 15 9 7 27 10 226

These figures have increased exponentially as time passed, from 34,061 households to 36,710 in 2007, then to 41,505 households of informal settlers (from final figures gleaned in December 2009).

Profile of the Project Title of the Project Integrated Shelter & Land Tenure for the Urban Poor to Effectively Reduce the Incidence of Poverty & Homelessness in Las Pias City The project of the city of Las Pias on housing for the urban poor entitled Integrated Shelter & Land Tenure for the Urban Poor to Effectively Reduce the

Incidence of Poverty & Homelessness was awarded as one of the ten outstanding local government programs in 2007 by Galing Pook Foundation. The program recognized the fact that shelter is an important factor in upholding ones dignity. The late Pope John XXIII also said that Shelter is not only a basic human need but a basic right of every person and families that must be uphold by those who have been given the responsibility and authority to do so. Being said so, the government had the responsibility not just to help but also to uplift the life and situation of those who are in need. Poverty as defined by the United Nations is the absence or inadequate realization of certain basic freedom, foremost of which are the freedoms to avoid hunger, disease, illiteracy, and other brought about in the lack of command over resources. By taking that view into account, Las Pias City considered charity as an important tool in achieving their obligations as well as an instrument for empowerment to the urban poor. Situational Analysis Prior to the implementation of the project, the number of informal settlers in the City was numerous and had been going uncontrolled for a long time. Informal settlers were squatting on idle lands that are either owned by the local government or by private land owners. In order to address the issue on land ownership and housing problems of the informal settlers the City of Las Pias decided to create a housing program for them. Objectives of the Project

To successfully trim down the incidence of poverty and homelessness in Las Pias City, the program on Integrated Shelter and Land Tenure for the Urban Poor aims to achieve the following:

1. Ensure security of land tenure of the 36, 710 urban poor families of Las Pias
City; 2. Generate local as well as national resources for social housing; 3. Enhance the capabilities of Community Based Organizations (CBOs) in implementing their housing project from beginning to end and beyond; 4. Establish mechanisms governance and for CBO empowerment towards participatory

5. Work for a more meaningful principled partnering with NGOs, the private sector and other sections.

ORGANIZATIONAL STRUCTURE OF THE LAS PIAS CITY URBAN POOR OFFICE

Project Implementers and Their Roles 1. ICSI Acts as the project holder and will be directly accountable for the documentation and reporting of the project. It will be responsible in putting together the inputs for the research component and the discussions as well as serve as resource person for the trainings. 2. Urban Poor Affairs Office (UPAO) It coordinates all the activities including meetings, dialogue, and workshop involving other department; trainings of interviewers, encoders and database person in-charge and the field work in the barangays. It will facilitate participants attendance and logistical requirements (venue, computer and other equipments) of trainings and discussions. 3. FDA

The organization assists in facilitating the conduct of activities in the community such as data gathering and training of community leaders. It will also actively join as a participant in the training process. Having previous working relationship with Las Pias City Government in securing tenure for the urban poor, it will definitely involve in post-project activities particularly in institutionalizing the pro-poor mechanisms in the LGU. FINANCIAL PROFILE OF THE PROGRAM FOR THE LAST THREE YEARS Sources of Funds LGU of Las Pias National Governme nt Communit y-Based Organizati ons NGOs & Private Sector Year 2004 P 151,857,608.83 257, 676, 810. 60 7, 432, 091. 00 1, 955, 000. 00 1, 900, 000. 00 00 Year 2005 P 149,791,210.31 350, 744, 534. 80 10, 404, 927. 40 60 2, 000, 000. Year 2006 P 111,535,321.45 412, 282, 896. 95 11, 891, 345. Total P 413, 184, 140. 59 1, 020, 704, 242. 35 29, 728, 364. 00 5, 855, 000. 00

PROGRAM BUDGET CALENDAR YEAR 2007

I. Personal Services
2,586,507.00 Salaries and Wages PERA ADCOM Clothing & Uniform Allowance Productivity Incentive Benefits Overtime & Night Pay Cash Gift Year end Bonus Life & Retirement Insurance Benefits Pag-ibig Contribution Philhealth Contribution ECC Contribution Monetization 1,329,600.00 120,000.00 120,000.00 60,000.00 40,000.00 432,120.00 100,000.00 110,020.00 158,709.00 24,000.00 15,000.00 24,000.00 52,973.00

II. Maintenance and Other Operating Expenses

4,045,385.00 Travelling Expenses - Local Office Supplies Expenses Gasoline, Oil & Lubricants Expense Telephone Expenses Landline Repairs & Maintenance Office Equipment Repairs & Maintenance Motor Vehicles Donations Other Maintenance & Operating Expenses 215,385.00 600,000.00 200,000.00 50,000.00 70,000.00 100,000.00 2,000,000.00 800,000.00

III. Economic Development (CDC Res. No. 02-06)

42,000,000.00 14,000,000.00

IV. Comprehensive Development Plan and

Public Investment Program ________________ TOTAL BUDGET 62,631,892.00

Program Delivery and Assisted Projects ( 2007 YEAR END REPORT) Mode of Land Acquisitions Community Mortgage Program Direct Purchases Zonal Improvement Program Presidential Proclamation Miscellaneous Sales Deed of Donation Usufruct Area for Priority Development Land Tenurial Assistance No. Of CBOs 97 18 8 46 4 3 4 1 5 Area Occupied (sq. M) 323, 857. 1 42, 150 141, 064. 2 569, 919 8, 001 23, 069 15, 000 0 16, 936 No. Of HH per Acquisition 8, 573 1, 115 2, 072 10, 985 310 661 785 180 601 Project Cost (Land Acquisition) 427,853,314.3 7 74, 918, 377. 98 34, 410, 187. 63 520, 000. 00 3, 000, 000. 00 0 0 0 40, 118, 200

Program of NHA Group Land Acquisition and Devt of PAGIBIG fund

657

24

1, 182, 600