clup guidebook vol 1 2006

This is a guideline open toyour resourcefulness and creativity!

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:

Local Government Units, particularly the City Planning and Development Coordinators(CPDCs), Municipal Planning and Development Coordinators (MPDCs), and Provincial Planning and Development Coordinators (PPDCs);

National Government Agencies such as: Commission on Higher Education (CHED), Department of Agrarian Reform (DAR), Department of Agriculture (DA), Department of Education (DEPED), Department of Environment and Natural Resources (DENR), Department of Finance (DOF), Department of Health (DOH), Commission on Population (POPCOM), Department of Interior and Local Government (DILG), Department of Public Works and Highways (DPWH), Department of Social Welfare and Development (DSWD), Department of Tourism (DOT), Department of Trade and Industry (DTI), Department of Transportation and Communication (DOTC), Bureau of Fire Protection, Bureau of Fisheries and Aquatic Resources (BFAR), Bureau of Jail Management and Penology (BJMP), Bureau of Soils and Water Management (BSWM), Environmental Management Bureau (EMB), Forest Management Bureau (FMB), Housing and Urban Development Coordinating Council (HUDCC), Laguna Lake Development Authority (LLDA), Land Management Bureau (LMB), League of Cities of the Philippines, League of Municipalities of the Philippines, Local Government Academy (LGA), Local Water Utilities Administration (LWUA), Manila Water and Sewerage System (MWSS), Metro-Manila Development Authority (MMDA), Mines and Geosciences Bureau (MGB), National Commission on Cultural Arts (NCCA), National Commission on Indigenous People (NCIP), National Economic and Development Authority (NEDA), National Electrification and Administration (NEA), National Housing Mortgage and Finance Corporation (NHMFC), National Mapping and Resource Information Authority (NAMRIA), National Police Commission (NAPOLCOM), National Power Corporation (NAPOCOR), National Statistical Coordination Board (NSCB), National Statistics Office (NSO), National Telecommunication Commission (NTC), National Water Resources Board (NWRB) Pasig River Rehabilitation Commission (PRRC), Philippine Atmospheric, Geophysical and Astronomical Services Administration (PAGASA), Philippine Coast Guard, Philippine Economic Zone Authority (PEZA), Philippine Institute of Volcanology and Seismology (PHIVOLCS), Philippine NationalPolice (PNP), Philippine Postal Corporation (PPC), Philippine Sports Commission (PSC), Protected Areas and Wildlife Bureau (PAWB);

Other stakeholders such as the Academe, Private Sector, Non-Governmental Organizations, Consultancy Firms, Donor Agencies, Professional Organizations, namely: A-Homes, Ateneo de Manila University, Bata for Shelter, Capstone, Inc., Chamber of Real Estate and Builders Association (CREBA), CIDA/LGSP, Dagupan City Heritage Commission, Dai/EcoGov, Dela Salle University, Manila, DMCI, Ecosystems and Resources Planning and Management, Ecosystem Planning and Development Corporation, DARUNA Technologies, Inc., Environmental Education Network of the Philippines, Inc., Geodata, Inc., Haribon Foundation for the Conservation of Natural Resources, Heritage Conservation Society, Infratech System Consultants, Inc., Legal Rights and Natural Resources Center Kasama sa Kalikasan, LTK, MACCH Consultants, Manila Water Company, Inc. (MWCI), Maynilad Water Service, Inc. (MWSI), Megaworld, Miriam College, Palafox and Associates, PHILDHRRA, Philippine Business for the Environment, Philippine Institute of Environmental Planners (PIEP), Philippine Support Service Agencies (PHILSSA), Prime@75, SANAGMANA, Recycling Movement of the Philippines Foundation, Sagip Pasig Movement, SAGRIC

ACKNOWLEDGEMENT

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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 Cario, 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

ACRONYMS

ACRONYM DEFINITION

ADSDP - Ancestral Domain Sustainable Development PlanAFMA - Agriculture and Fisheries Modernization ActAIP - Annual Investment PlanARC - Agrarian Reform CommunitiesATO - Air Transportation OfficeBAI - Bureau of Animal IndustryBAS - Bureau of Agricultural StatisticsBFAR - Bureau of Fisheries and Aquatic ResourcesBDP - Barangay Development PlanCARP - Comprehensive Agrarian Reform ProgramCDP - Comprehensive Development PlanCENRO - Community Environment and Natural Resources OfficeCLUP - Comprehensive Land Use PlanCPDO - City Planning and Development OfficeCZC - Certificate of Zoning ComplianceDAR - Department of Agrarian ReformDBM - Department of Budget and ManagementDILG - Department of Interior and Local GovernmentDENR - Department of Environment and Natural ResourcesDPWH - Department of Public Works and HighwaysFAO - Food and Agriculture OrganizationFMB - Forest Management BureauFSDZ - Fisheries Strategic Development ZonesGAM - Goals Achievement MatrixGIS - Geographic Information SystemGPS - Global Positioning SystemHLURB - Housing and Land Use Regulatory BoardHUCs - Highly Urbanized CitiesICCs - Independent Component CitiesIEC - Information and Education CampaignIPAS - Integrated Protected Area SystemIPRA - Indigenous Peoples Rights ActIPs - Indigenous PeoplesIRA - Internal Revenue AllotmentKm2 - Square kilometerLC - Locational ClearanceLCE - Local Chief ExecutiveLDC - Local Development CouncilLDIP - Local Development Investment ProgramLGU - Local Government UnitLMB - Land Management BureauLSA - Land Suitability AssessmentLTO - Land Transportation OfficeMAO - Municipal Agricultural OfficeMEO - Municipal Engineering Office

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ACRONYM DEFINITION

MGB - Mines and Geoscience BureauMMA - Metro ManilaMPDO - Municipal Planning and Development OfficeMRF - Material Recovery FacilityMTPDP - Medium-Term Philippine Development PlanMTPIP - Medium-Term Philippine Investment PlanMZO - Model Zoning OrdinanceNAMRIA - National Mapping and Resource Information AuthorityNEDA - National Economic and Development AuthorityNGAs - National Government Agency/iesNGOs - Non-Government OrganizationsNIPAS - National Integrated Protected Areas SystemNPAAAD - Network of Protected Agricultural and Agri-Industrial Areas for

DevelopmentNPFP - National Physical Framework PlanNSO - National Statistics OfficeNWRB - National Water Resources BoardPAG-ASA - Philippine Atmospheric, Geophysical and Astronomical Services

AdministrationPAMB - Protected Area Management BoardPARO - Provincial Agrarian Reform OfficePAWB - Protected Areas and Wildlife BureauPCA - Preservation and Conservation AreaPENRO - Provincial Environment and Natural Resources OfficePHIVOLCS - Philippine Institute of Volcanology and SeismologyPLUC - Provincial Land Use CommitteePO - Peoples OrganizationPOPDEV - Population and DevelopmentPPA - Philippine Ports AuthorityPPFP - Provincial Physical Framework PlanPUD - Planned Unit DevelopmentRDIP - Regional Development Investment PlanRDP - Regional Development PlanRLUC - Regional Land Use CommitteeRPFP - Regional Physical Framework PlanSAFDZ - Strategic Agriculture and Fishery Development ZonesSB - Sagguniang BayanSMART - Specific, Measurable, Attainable, Realistic and Time SpecificSP - Sangguniang Panlalawigan/PanglunsodSWOT - Strengths, Weaknesses, Opportunities and ThreatsTOP - Technique of ParticipationTWG - Technical Working GroupUNEP - United Nations Environmental Programme

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ABOUT THE GUIDE

The Guide to Comprehensive Land Use Plan Preparation was designed to provide LocalGovernment Units (LGUs) with the basic steps in preparing their Comprehensive Land UsePlans (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 theLGUs, planners in national government agencies, planning professionals and students, andother 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 variousconsultative workshops conducted nationwide, such as focus group discussions, surveys,regional consultations, experts fora and validation workshops. These consultative activitieswere likewise participated in by representatives from the academe, Non-GovernmentOrganizations (NGOs), National Government Agencies (NGAs), planners, consultants, andother stakeholders in land use planning. Results of the said consultative activities provided thenecessary inputs in the subsequent drafting of the guidelines, which was also done in aparticipative manner, i.e., involving the central and regional staff of the HLURB.

Among the recommendations made during the consultative discussions with LGUs are thefollowing:

Minimize the use of technical terminology Focus on CLUP preparation process Streamline process and provide simple and clear procedural steps Integrate environmental guidelines Simplify the guidelines into just one or two volumes Standardize CLUP outline and format and provide pro-forma templates Include guide for cross-sectoral integration visioning, IEC for implementation and

monitoring Translate local dialect and improve presentation and layout The guidelines can be followed without consultant

This Guide is Volume 1 of the following set of guidelines in preparing Comprehensive Land UsePlans comprising five (5) separate but complementary volumes:

Volume 1. A Guide to Comprehensive Land Use Plan PreparationThis provides the basic steps in the CLUP process, from getting started (Step1) through monitoring and evaluation (Step 12). It prescribes a participatoryapproach throughout the process, in order to engender community participationnot only in planning but in the plan implementation as well. This is to be used intandem with Volume 2.

Volume 2. A Guide to Sectoral Studies in the CLUP PreparationThis provides the basic guidelines for demographic and sectoral studies neededfor the formulation of the CLUP. The guidelines include those for social, economicand infrastructure sectors, including the integrating frameworks, analytical tools,methods, standards, and other tools necessary in undertaking the sectoralstudies.

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Volume 3.A Guide to Data Management in the CLUP PreparationThis provides the basic elements for a GIS and other information systemsneeded in plan preparation process, often referred to as GIS Cookbook.

Volume 4. Planning Strategically: Guidelines for the Application of the Strategic PlanningProcess in the Preparation of the CLUP and to Important Urban Area Issuesand Problems including guides for community consultation.

Volume 5.Model Zoning OrdinanceThis provides the basic elements of a Zoning Ordinance, which is one of theimplementing tool of the CLUP, among others.

The above Guides are designed to provide the rudiments for City/Municipal land use planningand plan implementation. The Guides will complement the academic and field planningexperiences of the users that will hopefully lead to resourcefulness and creativity in preparinga realistic and implementable plan.

These guides are therefore not prescriptive but allow for flexibility, creativity and strategic thinkingon the part of the users.

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INTRODUCTION

Land Use Planning Concepts

The first step in understanding Comprehensive Land Use Planning is knowing the basic conceptsassociated 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, tobe conserved and cared for with due regard for its effect on society as a whole and forthe 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 apersons right to own and use his/her property as well as permits government to imposereasonable limitations on its use to protect public health, promote safety and generalwelfare of the people.

Land Use Planning

Land use planning refers to the rational and judicious approach of allocating availableland resources to different land using activities, (e.g. agricultural, residential, industrial)and for different functions consistent with the overall development vision/goal of aparticular locality.

It entails the detailed process of determining the location and area of land required forthe implementation of social and economic development, policies, plans, programsand projects.

It is based on consideration of physical planning standards, development vision, goalsand objective, analysis of actual and potential physical conditions of land anddevelopment constraints and opportunities.

Land use planning is done to meet the following objectives:

To promote the efficient utilization, acquisition and disposition of land and ensurethe highest and best use of land;

To direct, harmonize and influence discussions and activities of the private andpublic sectors relative to the use and management of land;

To reconcile land use conflicts and proposals between and among individuals, privateand government entities relative to the present and future need for land;

To promote desirable patterns of land uses to prevent wasteful development andminimize the cost of public infrastructure and utilities and other social services;

To conserve areas of ecological, aesthetic, historical and cultural significance.

Introduction1

The Comprehensive Land Use Plan

The Comprehensive Land Use Plan (CLUP) refers to a document embodying specific proposalsfor guiding, regulating growth and development of a city or municipality. It is comprehensivebecause it considers all sectors significant in the development process, i.e. demography,socio-economic, infrastructure and utilities, land use and local administration, within the territorialjurisdiction.

Rationale for the Formulation/Revision of a Comprehensive Land Use Plan

To achieve an improved quality of life; To guide the orderly development of a city/municipality to promote the health, safety,

welfare and convenience of the population; To promote sustainable development; To preserve special natural features and environmentally critical areas; To translate socio-economic policies into physical policies and plans; To comply with the requirements of Article 41 of the Implementing Rules and

Regulations of the Local Government Code of 1991 (Sec. 20, RA 7160); To provide guidelines for the appropriate use of natural resources; To allocate land for settlements, industries and other urban uses on land least suitable

for agricultural and farming uses; To serve as basis for reclassifying and converting land; To reflect changes in the physical, social and economic characteristics of the community;

and To incorporate changes in the goals and objectives of the community

Comprehensive Land Use Planning puts into practice the essence of local autonomy amongLGUs. This process and its output which comes in a form of a Comprehensive Land Use Plandocument sets the direction which the LGUs have to take to enable them to attain their visionand 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 thelocal planning area. It opens an opportunity for gaining community support, understanding andownership of the Plan through a broad-based consensus formation efforts and participatoryarrangements. The process attempts to rationalize the allocation of the limited local landresources by using empirical basis to analyze existing social, economic, physical,environmental, political and institutional situation. This enables the LGUs to formulatedevelopment 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 FrameworkPlan (PPFP) and other Plans (Figure 1)

The national, regional and provincial physical framework plans are policy oriented andindicative in nature, where different land use categories such as forest lands andagricultural lands are categorized into protection and production land uses.

The broad allocation of land uses in the level of physical framework plans are treated indetail in the Comprehensive Land Use Plan. The goals and objectives of the frameworkplans are considered in the formulation of the CLUPs.

Introduction 2

The local plans shall have the following relationships to the other plans existing in thecountry:

1. Provincial plans shall promote the goals and objectives provided for in the nationaland regional plan and shall provide the guidelines for the preparation of city andmunicipal plans.

2. The city and municipal Comprehensive Land Use Plans shall be consistent withand supportive of the goals and objectives in the provincial plan and shall providethe guidelines for the development of plans for parts of the city or municipality suchas 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 goalsand objectives set forth in the city or municipal plan of which it forms part andshall furthermore, provide the guide to plans of smaller scale such as neighborhoodor community.

All local plans shall be consistent with the existing national agency plans, i.e. Tourism MasterPlan, Forestry Master Plan, Medium Term Agricultural Development Plan, etc.

Further, all local plans shall conform with set national planning goals, policies, as well as planningguidelines and standards promulgated by HLURB as much as practicable.

Introduction3

Figure 1. HIERARCHY AND LINKAGES OF PLANS

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

City/MunicipalPlans andPrograms

RDIPRDP

(1)NPFP

(1)RPFP

(1)PPFP

PCLUP(2)

(2)C/M CLUP

(3)MTPDP

(4)PCDP/CCDP

C/M CDP

(3)MTPIP

PDIP/CDIP

LDIP

NationalAgency Plansand Programs

RegionalAgency Plansand Programs

ProvincialPlans andPrograms

NATIONAL (N)

REGIONAL (R/RD)

PROVINCIAL (P/PD)CITY (C/CD)

LOCAL (L/LD)MUNICIPAL (M)

PHYSICALFRAMEWORK ANDCOMPREHENSIVELAND USE PLANS

SOCIO-ECONOMICDEVELOPMENT

PLANS (DPs)

INVESTMENTPROGRAMS (IPs)

Introduction 4

Legal Mandates

Comprehensive Land Use Planning is a constitutionally supported undertaking. The Statedeclares its land use policies and principles in terms of relation to national economy andpatrimony as well as its police power for the promotion of public health, public safety, publicinterest, public order, and general welfare.

1987 Constitution

Article XIII, Section 1 :

The Congress shall give highest priority to the enactment of measures that protect andenhance the right of all the people to human dignity, reduce social, economic, and politicalinequalities, and remove cultural inequities by equitably diffusing wealth and political powerfor 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, isexplained in another provision of the Constitution, to quote:

The use of property bears a social function and all economic agents shall contribute tothe common good. Individuals and private groups, including corporations, cooperatives,and similar collective organizations, shall have the right to own, establish and operateeconomic enterprises, subject to the duty of the State to promote distributive justice andto intervene when the common good so demands. (Art. XII, Section 6)

Republic Act 7160

The Local Government Code of 1991 or Republic Act 7160 provides the mandate of LGUs onlocal planning, legislation, implementation, including budgeting, and monitoring.

Section 16.

Every LGU shall exercise the powers expressly granted, those necessarily impliedtherefrom, as well as powers necessary, appropriate or incidental for its efficient andeffective governance, and those which are essential for the promotion of the generalwelfare. Within their respective territorial jurisdictions, local government units shall ensureand support, among other things, the preservation and enrichment of culture, promotehealth and safety, enhance the right of the people to a balanced ecology, encourage andsupport the development of appropriate and self-reliant scientific and technologicalcapabilities, improve public morals, enhance economic prosperity and social justice,promote full employment among their residents, maintain peace and order and preservethe comfort and convenience of their inhabitants.

Section 20(c)

The local government units shall, in conformity with existing law, continue to preparetheir respective Comprehensive Land Use Plans enacted through zoning ordinanceswhich shall be the primary and dominant bases for the future use of the land resources

Introduction5

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 bein coordination with the approved Provincial Comprehensive Land Use Plan.

Section 447(2) (ix) - Municipality / Section 458(2) (ix) - City

Enact integrated zoning ordinances in consonance with the approved ComprehensiveLand Use Plan, subject to existing laws, rules and regulations,

Section 447(a)(2)(vi) / Sec. 458(a) (2) (vi)

Prescribe reasonable limits and restraints on the use of property within the jurisdiction ofthe municipality (Sec. 447(a)(2)(ix) / city (Sec. 458(a)(2)(vi).

Section 444(b)(3)(vii) / Sec. 455 (b) (3) (vii)

Adopt measures to safeguard and conserve land, mineral, marine, forest, and otherresources of the municipality (Sec. 444(b)(3)(vii) / city (Sec. 455(b)(3)(vii).

Article Six. The Planning and Development CoordinatorSection 476. Qualifications, Powers and Duties

(b)(1) Formulate integrated economic, social, physical and other development plans and policies for consideration of the local development council.

(b)(5) Prepare comprehensive plans and other development planning documents for the consideration of the local development council.

(Sections supplied)

Other related legal bases on CLUP formulation provided for under RA 7160 are foundunder sections 106(a); 109,a,1-2 and 458(2)(ix); 476(7).

Executive Order No. 72

Executive Order 72 was issued providing for the preparation and implementation of the CLUPby the local government units and for the review and approval thereof by the HLURB and theSangguniang Panlalawigan.

Sections 1(a, c) and 2(a, e, f):

(a) Cities and municipalities shall continue to prepare or update their ComprehensiveLand Use Plans, in conformity with the land use planning standards and guidelinesprescribed by the HLURB and to national policies

(c) Cities and municipalities of Metro Manila shall continue to formulate or update theirrespective land use plans, in conformity with the land use planning and zoning standardsand guidelines prescribed by HLURB.

Introduction 6

(a) ...the powers of the HLURB to review and approve the Comprehensive Land UsePlans 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 ComprehensiveLand Use Plans of provinces, highly-urbanized cities and independent component citiesshall be reviewed and ratified by the HLURB to ensure compliance with national standardsand guidelines.

(f) Pursuant to EO 392 S. of 1990, the Comprehensive Land Use Plans of cities andmunicipalities of Metropolitan Manila shall be reviewed by HLURB to ensure compliancewith national standards and guidelines.

Republic Act 7279

The Urban and Development Housing Act (UDHA) or RA 7279 gives a clear-cut definition of aLand Use Plan which the LGUs are mandated to adopt.

Section 3(k) of RA 7279 defines Land Use Plan as the rationale approach of allocatingavailable land resources as equitably as possible among competing user groups and fordifferent functions consistent with the development plan of the area and the programunder this Act. The extent of comprehensiveness and the focus of land use planningprocess as well as the preparation of the CLUP document are defined within the boundsof land resources by this provision of UDHA which must be consistent with thedevelopment plan of the area.

The Housing and Land Use Regulatory Board (HLURB) is mandated by the following issuancesto formulate land use planning guidelines and standards:

Executive Order No. 648

Section 5, Article II

(a) To promulgate zoning and other land use control standards and guidelines whichshall govern land use plans and zoning ordinances of local governments

The Local Government Code of 1991

Section 468, 2, Article III, Chapter 3, Book III

(vii) Review the Comprehensive Land Use Plans and zoning ordinances of componentcities and municipalities and adopt a Comprehensive Provincial Land Use plan,subject to existing laws

THE GUIDING PRINCIPLES:

This Guide advocates the principles of the Philippine Agenda 21 (PA21), which is the nationalagenda for sustainable development. It outlines the integrating strategies for the countrys overallsustainable development and identifies the intervention areas (Action Agenda) from the nationalto 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

Introduction7

productivity, participatory and democratic process and living in harmony within the limits of thecarrying capacity of nature and the integrity of creation.

Sustainable development as defined in the PA 21 (1996) is harmonious integration of a soundand viable economy, responsible governance, social cohesion and ecological integrity, to ensurethat development is a life-sustaining process.

PA 21 has five goal elements, as follows:

Poverty Reduction: Poverty is a central concern of sustainable development.Consistent with this, PA 21 has a poverty reduction agenda that includes measures tocreate an enabling economic environment for sustained and broad-based growth;improve employment, productivity and income; and attain food security.

Social Equity: Social equity should mean allocation of resources on the bases ofefficiency and equity to achieve balanced development. Efficiency and equity mean thechanneling of resources to developing areas where greater economic benefitsaccumulate and where there is greater need, distribution being dependent on thepracticality and urgency of needs.

Empowerment and Good Governance: Empowerment is a precondition of informalchoices. Good governance is a necessary precondition to empowerment, asempowerment is to good governance. These two are a defining element of each other.

Peace and Solidarity: The cycle of poverty and conflict goes on as the costs of warescalate in terms of various kinds of destruction while withholding funds for basicservices, resulting in more poverty and underdevelopment.

Ecological Integrity: In general, the path towards enhancing the integrity of the countrysecological domain will have to involve heightened and sustained implementation ofenvironmental laws, as well as the continued pursuit of resource conservation, andenvironmental restoration/enhancement programs.

This Guide also promotes the following principles consistent with the planning and managementof resources provided for in the National Framework for Physical Planning (NFPP):

Food security - Utilizing the countrys land and water resources in a manner that providessufficient and affordable food products to all Filipinos of the present and future generationsthrough local production and/or importation.

Environmental stability and ecological integrity- Achieving environmental stability throughthe observance of appropriate standards and ensuring ecological integrity through effectivenatural resource management and balancing the demand of land using activities vis--vispreservation of ecosystems. Ensuring the proper selection of a site to minimize the damageboth to the environment and human health. (Appropriate location principle)

Regional Urban Development- Encouraging the sustainable growth of cities and large townswhile complementing the growth of rural areas by adopting alternative development approaches.

Spatial Integration- Linking consumption and production areas to achieve physical andeconomic integration through appropriate infrastructure systems.

Introduction 8

Equitable access to physical and natural resources- Ensuring equitable access to resourcesthrough a just distribution of the countrys resources and by providing equal opportunities to allFilipinos in the use and acquisition of land and other resources.

Private-public sector Partnership- Encouraging shared responsibility between the governmentand the private sector in the development and management of the countrysphysical resources.

People Empowerment- Establishing pragmatic appropriate flexible and dynamic structuresor mechanisms that involve the participation of key stakeholders.

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 ecologicaland intergenerational factors as a basic parameter in the allocation and useof physical resources.

4 Major Land Use Policy Areas Comprehensiveness may be viewed as covering all thefour major land use components of the Land Use Policy Guidelines which form the NationalFramework for Physical Planning, namely: 1) settlements development; 2) production landuse; 3) protection land use; and 4) infrastructure development.

Settlements - land uses and physical resources involving some degree ofurban or rural concentration and their associated demandand supply requirements.

Production - focused on economic production from the extractive to themodern service sectors.

Protection - resources that need to be protected, conserved,rehabilitated, including areas that require prevention andmitigation of disasters.

Infrastructure - deals with capital investments that support spatial integration,production efficiency and social service delivery.

Local Governance - This Guide advocates that all three actors in governance, namely:government (state), civil society, and the private sector are actively involved in theComprehensive Land Use Planning process. Good local governance allows for collaborativepartnerships among the local government, business, and civil society. Good governance ischaracterized as sustainable, participatory, transparent, accountable, legitimate and acceptableto the people, and promoting equity and equality.

Co-management Principle - Section 3 (i) of the Local Government Code provides that localgovernment units shall share with the national government the responsibility in the managementand maintenance of ecological balance within their territorial jurisdiction. Local governmentsand the national government are therefore mandated by RA 7160 to act as co-managers of thenational territory and patrimony.

Gender-responsive Population and Development (POPDEV) Framework - Theintegration of gender and explicit consideration of development (socio-economic, physical,cultural, etc.) and population inter-relationships in the entire planning process plan formulation,plan implementation, and monitoring and evaluation. The utilization of the POPDEV planning

Introduction9

approach ensures or provides a mechanism for integrating sustainable development indicatorsin planning. ( Refer to Volume 2 for the detailed discussion of gender responsive populationand development framework)

Approaches to CLUP Formulation

It is recommended that LGUs adopt a combined bottom-up and top to bottom approach inpreparing the CLUP as presented below:

1. Integration of Barangay Development Plans (Bottom-Up Approach)

Under the Local Government Code of 1991, the Local Development Councils, in thecase of barangay, the Barangay Development Councils are tasked to prepare BarangayDevelopment Plans to be submitted to the Sangguniang Barangay for review andapproval.

Thus, integration of Barangay Development Plans into the city or municipal plan is onemethodology which the LGUs can adopt in the formulation of the CLUP.

The integration aims to harmonize development goals and objectives of all barangaysin cities or municipalities. It also identifies and reconciles inconsistencies andincompatibilities in land use proposals among adjacent barangays.

2. Top to Bottom Approach

In the absence of barangay and municipal development plans, the local planners adoptthe 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 forthe formulation and updating of the CLUP without precluding consultation with componentLGUS. In the absence of a Provincial Land Use Plan (PPFP), other higher level plansmay serve as bases for the formulation, such as the Medium-Term Development Plan,Regional Physical Framework Plan, metropolitan or other cluster area developmentplans (i.e. MIMAROPA, CALABARZON, etc.).

Likewise, detailed area-specific plans such as coastal management plans, wastemanagement plans, forest land use plans, heritage preservation plans, etc. shallbe considered and integrated in the course of the preparation of the CLUP if such planshave already been prepared/approved. The incorporation of such plans shall be subjectto review and harmonization with the city/municipal vision, goals and objectives.

Planning Area

The planning area is defined by the cities/municipalities political boundaries. This includes allcomponent barangays and the city/municipal waters extending 3 kilometers from shoreline forcoastal 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 3years coinciding with the term of the Mayor and other locally elected officials, for their appreciationand for continuity of plan implementation. Such review will also provide an opportunity for theincumbent or incoming Mayor and local officials to harmonize the new administrations

Introduction 10

development agenda with the approved CLUP and to use the CLUP as basis for budgetpreparation and fund sourcing initiatives.

The review shall be without prejudice to a yearly review of the various programs and projectsidentified in the plan, to ensure attainment of the development vision/goals/objectives.

THE STRUCTURE AND CONTENTS OF THE COMPREHENSIVE LAND USE PLAN

This Guide is intended to provide emphasis on the significant elements of the ComprehensiveLand Use Plan in order to achieve its full appreciation as well as to ensure efficiency,transparency, and accountability in its implementation.

The CLUP document shall be presented/packaged in three (3) volumes:

Volume I The Comprehensive Land Use Plan

Volume 2 Zoning OrdinanceVolume 3 Sectoral Studies (a documentation of the supporting studies that were

undertaken to arrive at the resultant CLUP)

VOLUME 1 The COMPREHENSIVE LAND USE PLANThis shall comprise the formal and substantive elements of the CLUP/ZO and shallcontain the following:

PRELIMINARY PAGES

RESOLUTION adopting the CLUP and enacting the ZOFOREWORDAcknowledgementTable of ContentsList of MapsList of FiguresList of Tables

BRIEF PROFILE OF CITY/MUNICIPALITY (GENERAL INFORMATION)

Brief HistoryHuman Resource Population (size, growth rate, density, distribution, labor force)Physical Features

Geographic location, territorial jurisdiction, barangay subdivisionPhysical/Infrastructure Resources (Inventory of Maps and Tables)

Transportation Network (internal and external linkages)Social Services facilities/utilities/amenitiesUtilities: Power, Water, Communication Network, Waste Management

Introduction11

The Economic StructureRevenue sources (Industries, agriculture, etc.)EmploymentAverage Family Income and Expenditure vis--vis Poverty Level

Existing Land Use and Land Use TrendsComparative/Competitive AdvantagesWeaknesses: Priority issues and concernsFunctional Role of the City/Municipality

THE COMPREHENSIVE LAND USE PLAN

Vision / MissionGoals, Objectives, StrategiesThe Concept/Structure Plan (text and map)The Land Use Plan (Text and Map Format)Priority Programs and Projects

GLOSSARY OF TERMS AND ABBREVIATIONS AS NEEDED

THE CLUP BROCHURESuggested to be a one-page information material containing Vision/Mission, Goals,Objectives, Land Use Plan Map and Priority Programs and Projects

VOLUME 2 The ZONING ORDINANCE (ZO)

This volume presents the locally enacted ordinance which embodies, among others, theregulations affecting uses allowed or disallowed in each zone or district, and the conditionsand deviations legally allowed from the requirements of the ordinance.

Volume 2 is presented in two parts with the following contents:

A. The Zoning Ordinance (text)

1. SB/SP Resolution enacting the ZO2. Title and objectives of the Ordinance3. Substantive elements comprising articles on the following:

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 authenticatedby the approving body (Sangguniang Panlalawigan/HLURB) which is an integralpart of the Zoning Ordinance. It is the graphic presentation of the zone classifications/designations, location and boundaries of the districts/zones that were dulyestablished in the zoning ordinance.

VOLUME 3 THE SECTORAL STUDIESThis volume shall comprise the detailed documentation of the sectoral studiesconducted that provided the bases for the preparation of the CLUP. The presentation/documentation shall have the following major sections:

1. Demography2. Physical/ environment3. Social sector

Housing Health Education Protective Services Sports and Recreation Social Welfare

4. Economic Sector Industry Commerce and Trade Agriculture Forestry Tourism

5. Infrastructure and Utilities Sectors Transportation Power Water Communication Solid Waste Management

Sector analysis, both technical and participatory, shall be summarized in a matrix formemphasizing on the findings/observations and their causes, effects/implications, andpossible interventions. In its final form, an integrated listing of priority issues and problemsconcerning the sector and across sectors, shall be highlighted together with therecommended policies, strategies and priority programs and projects.

Introduction13

The CLUPTowards 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 strategicplanning 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 theplanning 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 extremelyimportant characteristic that the users/planners should continuously bear in mind. Every stepof the way involves a cycle of brainstorming/idea building/data gathering; consensus buildingand decision-making and presentation/validation of results/decisions arrived at. The cycle iscontinuous until the planning team attains some level of confidence on the output of a particularstep. The process therefore allows for great flexibility and resourcefulness on the part of theusers.

It is important to note however, that involvement of community/stakeholders varies in differentstages of the planning process for reasons of budget, timelines and its value to a particularstep. This highly participative process renders the role of planners/consultants to be that offacilitator consistent with the objective of planning for, by, and with the people.

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.

Figure 2. THE 12-STEP PROCESS TO COMPREHENSIVE LAND USE PLANNING

The Structure and Contents of the Comprehensive Land Use Plan15

Step 1 Step 2 Step 3 Step 4 Step 5 Step 6

Step 7Step 8Step 9Step 10Step 11Step 12

IdentifyingStakeholders

GettingOrganized

Settingthe Vision

Analyzingthe Situation

Setting theGoals andObjectives

EstablishingDevelopmentThrusts and

SpatialStrategies

Monitoring,Reviewing

andEvaluatingthe CLUPand ZO

Implementingthe CLUPand ZO

Reviewing,Adopting and

Approvingthe CLUPand ZO

ConductingPublic

Hearingon the Draft

CLUP and ZO

Draftingthe ZoningOrdinance

(ZO)

Preparingthe Land Use

Plan

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 theplanning activities.

To establish the guiding framework and focus of the planning activities.

EXPECTED OUTPUTS

Proposal for CLUP preparation/updating (including work program and budget) SB/SP resolution approving the proposal for the preparation of CLUP Executive Order designating members of the planning team, Technical Working

Group (TWG), etc. Defined roles/responsibilities of planning team, TWGs Information and Education Campaign (IEC) Materials for Community awareness

and participation

STEPS

The Office of the City/ Municipal Planning and Development Coordinator (C/MPDC) will undertakethe following activities:

GETTING ORGANIZED is an important first step to take before doing the actual planpreparation activities. Anticipating and preparing for the resources that will be neededfor the planning activities will lead to the smooth implementation and accomplishmentof the planning outputs on time.

1. Discuss with local officials/officers the need to prepare/update CLUP andidentify rationale, framework of activities, and timeframe for planning.

Note: The CPDO/MPDO is the office primarily concerned with the formulation of integratedeconomic, 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.

Comprehensive Land Use Planning

GETTING ORGANIZED

CLUPSTEP

11111

Step 1. Getting Organized 16

2. Assess available resources in terms of funds, personnel and other logisticsupport.

3. Prepare a detailed proposal to include the rationale, work program, requiredbudget, and planning teams.

The work program shall include the timelines/schedule of planning activities. TheCLUP preparation process normally takes a maximum of 18 months depending onavailability of resources, materials, and prevailing circumstances. The schedulemust be flexible enough to allow sufficient time to accomplish each activity. (Referto 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 theproposal.

Resources needed for planning may include the following:

1. Funds to finance planning activities2. Personnel for carrying out the planning activities3. Supplies and materials to be used for the planning activities4. Computers and other equipments to prepare documents, maps and other

planning materials5. Transportation and communications

The Planning Team shall be composed of a Planning Core Group assistedby Technical Working Groups.

The core group will coordinate the planning activities, draft and consolidate thecontents of the CLUP document. The Office of the MPDC/CPDC shall constitutethe 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 asenumerated above, staff from other departments may be tapped to compose the coregroup. Hiring of consultants and other resource persons like a legal expert, etc., oncontractual basis and partnerships with the private sector, civil society, NGOs and thelike may also be opted to.

Step 1. Getting Organized17

6. Brief the planning team on how planning activities will be undertaken.

7. Disseminate information on the planning activities to the general publicthrough barangay assemblies and other forums, posters, publications,broadcasts, etc. to encourage public participation at the earliest stage ofplan formulation.

The Technical Working Groups (TWG)s will assist the Planning CoreGroup in the following:

Conduct of sectoral / intersectoral analysis, validation and reports Conduct of surveys, consultations/meetings, workshops Integration/finalization of studies, research findings, and consultation/

survey outputs.

Suggested Composition of the TWGs:

Heads of local government departments, Representatives of community groups/organizations (include gender

sensitive and sustainable development advocates), concerned nationalgovernment agencies,

Ancestral Domain Consultative Body representatives in an indigenouspeoples (IP) community, or where applicable,

President of the city/municipal chapter of the Liga ng mga Barangay and/orBarangay Chairpersons of growth centers/priority development areas (asneeded),

Chairpersons of the concerned committees of the local sanggunian,i.e. Committee on Land Use and Zoning, etc.),

Sectoral Committee Representatives

The information dissemination should focus on informing the general public onthe purpose, expected outcomes, and the anticipated benefits of the planningactivity to the community. The campaign can likewise solicit ideas/recommendations/comments from the community. These will serve as a gaugeof public opinion about planning concerns that can be used as inputs in the planformulation.


Flow Chart for Getting Organized

Mandates/nationalpolicies feedbackissues and trends

Decision toprepare/update

CLUP

Stratategiesto undertake

planning

EO designatingmembers ofPTs/TWGs

SB/SPResolutionapprovingproposal

CLUP Proposalfor approval

Defined rolesand responsibilities

Communityawareness

1Discuss need toprepare/update

CLUP

2Asses available

resources

3Prepare work

program, budgetwork teams

6Brief planning

Team

5Organize

Planning Team

4Present proposalto local officials

7Disseminateinformation togeneral public

Step 1. Getting Organized19

Ann

ex 1

-1W

OR

KPR

OG

RA

M F

OR

CLU

P A

ND

ZO

FO

RM

ULA

TIO

N/R

EVIS

ION

ACTI

VITY

1.Ge

tting

Orga

nized

Ge

tting

endo

rsem

ent/a

ppro

val o

f SB/

SP

Prep

arat

ion o

f wor

k pr

ogra

m

Orga

nizati

on a

nd b

riefin

g of

plann

ing te

am2.

Iden

tifying

sta

keho

lders

Lis

ting

of s

take

holde

rs

Actio

n pla

nning

In

form

ation

diss

emina

tion

3.Se

tting

the V

ision

Co

nduc

t of v

ision

ing w

orks

hops

Ad

optio

n of

the v

ision

and

infor

ming

pub

lic o

f the

ado

pted

vision

4.Si

tuat

ion A

nalys

is

Secto

ral S

tudie

s an

d Ph

ysica

l/Lan

d Us

e St

udies

a.Ba

se M

ap P

repa

ratio

nb.

Data

Gat

herin

g an

d La

nd U

se S

urve

ysc.

Mapp

ing o

f Res

ults

(Org

anizi

ng re

sults

into

map

s, gr

aphs

, tab

les,

etc.)

d.Co

nsult

ation

s/Vali

datio

n W

orks

hop

e.Ne

eds/I

ssue

s an

alysis

and

pro

jectio

nsf.

Cros

s-se

ctora

l ana

lysis

and

integ

ratio

n5.

Settin

g of

Goals

and

Obje

ctive

s

Goals

and

obje

ctive

s fo

rmula

tion

work

shop

s6.

Estab

lishin

g the

Dev

elopm

ent T

hrus

t and

Spa

tial S

trateg

ies7.

Prep

aring

the

Land

Use

Plan

8.Dr

afting

of Z

oning

Ord

inanc

e an

d oth

er D

evelo

pmen

t Con

trols

9.Co

nduc

t of P

ublic

Hea

ring

Co

nduc

t of p

ublic

hea

rings

/cons

ultat

ions

Re

finem

ent o

f dra

ft CL

UP a

nd Z

O10

. CLU

P Re

view/

Adop

tion

and

Appr

oval

En

dors

emen

t for

revie

w to

app

ropr

iate

body

Co

nduc

t of r

eview

by

appr

opria

te b

ody

Re

turn

of CL

UP to

LGU

for r

efine

ment

Re

finem

ent o

f CLU

P

SB/S

P Ad

optio

n of

Refin

ed C

LUP

En

dors

emen

t to

SP/H

LURB

for R

atific

ation

/App

rova

l

Ratifi

catio

n of

SP/H

LURB

M1

M2

M3

M4

M5

M6

M7

M8

M9

M10

M11

M12

M13

M14

M15

M16

M17

M18

Subj

ect t

o ap

prop

riate

rev

iew/

appr

ovin

g/ra

tifyi

ng b

ody

s tim

etab

les.


Assu

mptio

n: C

LUP

form

ulatio

n wi

ll be

don

e by

the

LGU

Plan

ning

Team

. Plan

ning

activ

ities

may

be u

nder

take

n in

6 mo

nths

to 1

yea

r if L

GU h

ires

cons

ultan

t.

PURPOSE

To identify the key stakeholders and to assess their knowledge, interests and concernsrelated 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 conflictsof 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 planpreparation, plan implementation and monitoring

To avoid potential misunderstandings about and/or opposition to the plan.

Public participation is a fundamental part of the planning process. It ensures theinvolvement of all stakeholders in order to enhance awareness, raise the quality of theplan, and increase the likelihood of the plans acceptability and success ofimplementation. Stakeholder participation has two essential and related components,namely: information sharing among the stakeholders (especially between LGU and thecitizenry), and the active involvement of stakeholders in identifying issues, evaluatingoptions, and formulating strategies.

Who are the stakeholders and how are they identified? The next step in the planningprocess, which may be held in parallel with Step 1 (Getting Organized) is IdentifyingStakeholders (IS). A stakeholder is any person, group or institution, who is potentiallyaffected by the plan or who can have a significant impact on the implementation of theplan.

Stakeholder participation is important in the planning process since this gives them theopportunity to play an active role in decision-making and in the consequent activitiesthat will affect them.


IDENTIFYINGSTAKEHOLDERS

CLUPSTEP

22222

Step 2. Identifying Stakeholders21

EXPECTED OUTPUTS

List of identified stakeholders, their interests and related information Action plan/strategies for stakeholders participation Stakeholder support and commitment to the planning activities

STEPS

The following steps shall be undertaken by the Planning Team:

1. Conduct workshop/s to identify stakeholders to be involved in the planningactivities.

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.

The basic steps followed in the workshop are described below.

1.1 Explain the objectives of the exercise to the participants

1.2 Organize the participants into workgroups

1.3 Ask the members of each group to identify, list, and classify individuals and groupswho may have a stake in the CLUP.

The most effective way of doing this is to list as many stakeholders on a sheet ofpaper. It may help to list them in rough order of importance. (There may bechanges in order of importance after the analysis)

Step 2. Identifying Stakeholders 22

Specific stakeholders can be identified from the following sectors:

Local executives, legislators, special bodies. The Community: Residents, Non-resident landowners and neighborhood

associations. Non-resident employees or workers. Private utility companies, i.e., water, telecommunications, sewerage and

electricity (e.g., local water utilities or water districts, electric cooperativesor private electric companies, telephone companies or cellular phone serviceproviders).

Non-government Organizations (NGOs) and Peoples Organizations (POs)representing particular interest groups (e.g., women sector, indigenouspeoples, farmers and fisher folks, heritage and environmental advocates,etc.).

National Government Agencies (NGAs) providing a public service within thearea (e.g., Housing and Land Use Regulatory Board, Department ofEnvironment and Natural Resources, Department of Interior and LocalGovernment, etc.).

Any other person or group (public or private) whose activities and decisionscan have an impact on any of the other stakeholders within the area.

Checklist for identifying stakeholders

have all primary (directly affected) and secondary (indirectly affected)stakeholders been listed?

have all potential supporters and opponents of the plan been identified? has gender analysis been used to identify different types of female

stakeholders (at both primary and secondary levels)? have primary stakeholders been divided into user/occupational groups or

income groups? have the interests of vulnerable and disadvantaged groups (especially the

poor) been identified? are there any new primary or secondary stakeholders that are likely to emerge

as a result of the plan?

Checklist for drawing out stakeholder interests

Interests of all types of stakeholders may be difficult to define, especially if theyare hidden; or in contradiction with the openly stated aims of the organizationsor other groups involved.

A rule of thumb is to relate each stakeholder to the problems which the plan isseeking to address.

Interests may be drawn out by asking:

what are the stakeholders expectations of the plan? what benefits are there likely to be for the stakeholders? what resources will the stakeholder wish to commit (or avoid committing) to

the plan? what other interests does the stakeholder have which may conflict with the

plan? how does the stakeholder regard others in the list?

Information on stakeholders may be available from a review of the mandates ofthe different institutions and from social analyses. Many of the interests willhave to be defined by the persons with the best on-the-ground experience.Double check the interests being ascribed to stakeholder groups, to confirmthat they are plausible.


1.4 Ask the workgroups to choose from the list of stakeholders those individuals,groups, organizations and institutions who may be affected directly or indirectly,positively or negatively, and write these choices on metacards for ease of sortingand arranging.

1.5 Fill up a matrix that creates categories for stakeholders that will be directlyand indirectly affected in a positive or negative way by the plan. (As shown inTable 2-1)

A stakeholder is any person, group or institution that has an interest in adevelopment activity, project or program. This definition includes both intendedbeneficiaries and intermediaries, winners and losers, and those involved orexcluded from decision-making processes.

Stakeholders can be divided into two very broad groups:

primary stakeholders are those who are ultimately affected, i.e. who expectto benefit from or be adversely affected by the planned interventions;

secondary stakeholders are those who are indirectly affected by the impactsof the CLUP but may have a particular knowledge and/or significant rolesrelated to its formulation, implementation, and/or evaluation.

Key stakeholders are those who can significantly influence the project, or aremost important if the CLUP objectives are to be met. Both primary andsecondary stakeholders may be key stakeholders.

In designing a consultation process, it is important to identify all of thestakeholders because they are likely to be affected by the CLUP, and they canaffect the outcome of the CLUP through their access to, or influence on, theuse of resources and power.

In addition to stakeholders who you think may be directly or indirectly affected,it is also important to identify and include stakeholders who:

Perceive they may be affected even though you think otherwise Think they should be involved because of their standing in the community,

and are likely to get annoyed if not invited to participate May be neutral in their views about the project but could become critical

if not handled well.

It is particularly important that women are fully consulted on all planning anddevelopment proposals.


1.7 Develop an Information and Education Campaign (IEC) plan to inform andsolicit support and commitment of the identified stakeholders and thegeneral public.

FURTHER READING

HLURB, (2000), Planning Strategically, Chapter 4., Diliman, Quezon City

1.6 Prepare an action plan for approaching and involving each person or group.

Table 2-1. List of Stakeholders Affected by the CLUP

Note:A decision has to be made regarding involvement of the stakeholders, and the extent ofsuch 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 ownershipof the plan. Though general community participation is not always possible, extensiveinvolvement 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 solveany animosities or conflicts that may arise among the groups or individuals in publicconsultations. Problem solving processes and constructive handling of differing viewpointsshould be part of skills training for consultation managers and facilitators.

Knowing the participants beforehand could lead to a better consultation processes.

The IEC plan shall include detailed information on the plan preparation andprocesses involved, conduct of consultation activities, and timelines for thewhole planning process so that stakeholder participation is maximized.

2. Implement the IEC Plan to ensure the early involvement of stakeholders in theplanning process.

Groups/Individuals

A. Directly Affected

B. Indirectly Affected

Interests + / - Effects


Flow Chart for Identifying Stakeholders

Conduct workshops toidentify stakeholdersaffected by the CLUP

Inform and solicit support andcommitment of stakeholders

Stakeholder supportand commitment

Objectives informed List of interest groups/individuals Action Plan/strategies for approaching

and involving stakeholders

2

1


Annex 2-1GUIDE IN CONDUCTING CONSULTATIONS IN THE PREPARATION OF CLUPS

Note: For every step of the planning process, some forms of consultation will be requiredsuch as those involving the planning team, TWG, steering committees, and/or selectedstakeholder groups/individuals. The purpose of these consultations range from preparingdrafts, organizing reports/activities, sector analysis, review and finalization ofdocuments, etc.

WHAT(Stage)

Getting started

Identifying stakeholders

Planning Gathering information/

ideas to formulate/validate and establish:- the vision- the existing

conditions- the objectives

Analyzing data togenerate and evaluateoptions

Developing a draftCLUP

Finalizing the plan

Implementation

Monitoring andEvaluation

HOWto consult

Present proposal and generate commitment.

Generate list of primary and secondarystakeholders.

Identification of issues and ideas throughbroad-based discussions such as workshops,focus groups, surveys, meetings with existinggroups, and interviews.

Explore the pros and cons of various optionsthrough participatory design workshops,evaluative workshops, and interactivedisplays/exhibits .

Gather feedback to fine-tune the draft throughpresentations /displays, public hearings, work-shops and submission of written comments.

Inform the community of the final outcomesand decisions through use of tri-media, flyers,and various levels of public assemblies.

Consult concerned implementing offices/departments/individuals, affected areas,property owners, users, etc. depending onthe specific nature of the program or projectfor implementation.

Broad-based consultation regarding theoverall success of the plan and targetedconsultation to monitor, review, and commencethe revision of the CLUP.

WHEN(Step)

1

2

34

5

6

7

7,8,9& 10

11

12

WHOto consult

Key decisionmakers

Planning team/committees/TWGs

All members of thecommunity

Planning team andinterested membersof the community



Concernedindividuals/groups




SETTINGTHE VISION

CLUPSTEP

33333Setting the Vision is a participative process whereby the municipality or city defines thefuture that it wants. The vision lays out what the citizens of the community would liketheir municipality/city to look like in terms of its physical, environmental, social andeconomic development.

The visioning exercise binds the municipality/city together as a community whichrecognizes their shared values and purposes, and helps them articulate a shared visionof their locality. It creates a sense of ownership among the stakeholders to the extentthat they want to achieve their vision as the plan gets implemented over the years. Thevision serves as the driving force that moves the entire city/municipality towards theachievement of a common development direction and provides the overall guidanceand focus in the succeeding stages of the planning process.

The VISION needs to be formulated in a participatory manner, and arrived at in aconsensus. The formulation of the VISION may be done through the conduct of avisioning workshop participated in by the stakeholders.

In setting the VISION, the following essential elements may be considered:

Qualities of the people as individuals Qualities of the people as a society Nature of the local economy State of the natural environment Capacity of local leadership

The basic ingredients of a vision statement are:

Positive, present tense language Qualities that provide the reader with a feeling for the municipalitys/

citys uniqueness Depiction of the highest standards of excellence and achievement A focus on people and quality of life A stated time period

PURPOSE

To formulate a widely acceptable vision statement for the municipality/city To foster ownership of the vision statement

Step 3. Setting the Vision 28

EXPECTED OUTPUTS

An overall vision statement for the municipality/city Developed better communication among stakeholders A basis for formulation of goals, objectives, programs and policies

STEPS

There are various methods of setting the vision for the city/municipality. These can be donethrough surveys, interviews, workshop, etc. The following workshop method maybe used:

1. Conduct preparatory activities for the visioning workshop

1.1 Identify participants/stakeholders to be involved in the visioning workshopsession(s)

1.2 Schedule the visioning workshop

1.3 Announce and publicize the schedule of the visioning workshop/s and send outinvitations well in advance for maximum participation. Avoid scheduling meetingsthat will conflict with holidays or other important community events.

1.4 Prepare the workshop design using Technology of Participation (TOP)(Refer to Annex 3-1 for some techniques of participation)

2. Conduct the visioning workshop according to the workshop design/program of activities.During the workshop:

2.1 Discuss the objectives and mechanics of the visioning workshop

2.2 Make a brief presentation on the importance of a vision in CLUP preparation andto the city/municipality

2.3 Define and discuss the elements of a vision, specifically its relation to the planningprocess.

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 thegeneration and processing of data.

FOR CITY/MUNICIPALITY SETTING A NEW VISION STATEMENT

At the minimum, participants shall include the members of the LocalDevelopment Council (LDC).

Step 3. Setting the Vision29

2.5 Generate ideas on the perceived conditions of the city/municipality by posing thequestions below:

What do you like about the municipality/city as it is now? (aspects you maywish to preserve)

What dont you like about the municipality/city? (issues to be resolved/changed)

What do you think should be done to improve the municipality/city? (thingsyou want to have/create in your municipality/city)

2.6 Generate ideas on the future/ desired state of the city/municipality by posing thequestion: What do you want your city/municipality to become 10-20 years fromnow? Use descriptors or adjectives to write ideas on metacards (one idea/descriptorper metacards)

2.7 Group the meta-cards/ideas according to the following essential elements of avision:

Qualities of the people as individuals Qualities of the people as society Nature of the local economy State of the natural environment Condition of the built environment Capacity of local leadership

2.8 Summarize and validate in a plenary the relevant descriptors as shown below:

The result of this activity will provide an approximate description of the currentsituation as a form of leveling-off for the participants/communitys perceptionof their city/municipality.

2.9 Formulate at least two Vision Statements using the agreed descriptors generatedin the previous step

2.10 Evaluate, select, and reach consensus on the Vision Statement that best captureswhat the stakeholders want for their city/municipality

Natural EnvironmentLocal EconomyPeople as SocietyPeople as IndividualsLocal LeadershipBuilt Environment

Scenic, ecologically balanced, etc.Self-reliant, diversified, etc.Empowered, vigilant, etc.Disciplined, honest, law-abiding, etc.Transparent, responsible, firm, etc.Orderly, clean, vibrant, etc.

ELEMENTS DESCRIPTORS(sample)


3. After the visioning workshop disseminate the selected Vision Statement to theSangguniang Panglunsod/Bayan and the general public for feedback.

4. Validate and refine the Vision Statement considering the feedback.

5. Present the refined Vision Statement to the LDC for endorsement to the SangguniangPanglunsod/Bayan for subsequent adoption.

6. Conduct extensive information campaign on the adopted Vision Statement.

Evaluation of the vision may be guided by the following questions:

Does it capture the ideas/descriptions generated? Is it easy to remember/memorize? Is it inspiring, motivating and powerful? Can it be felt or experienced? Does it capture the aspirations of the community, and is it shared by all

sectors of the community? Is it attractive, ambitious and achievable?

The above visioning exercise was used in formulating the vision of Cagayan deOro City, the result of which was adopted by the city. The said vision statementis quoted as follows:

A peaceful, orderly, livable city with a modern trading centerwhere there are equal opportunities for our disciplinedcitizens to develop and prosper in a clean and healthyenvironment.

FOR CITY/MUNICIPALITY REVIEWINGAN EXISTING VISION STATEMENT

LGUs may revisit/revalidate their existing vision statement guided by the vision-realitygap analysis technique. This technique is best undertaken through a multi-stakeholderworkshop after the situation analysis stage (Step 4) of the CLUP process.

The workshop process will have the following steps:

1. Discuss the objectives and mechanics of the visioning workshop.

2. Present a brief situationer/current profile of the community.


14. Present the refined vision statement to the LDC for endorsement to the SP/SB forsubsequent adoption.

15. Disseminate the adopted vision to the general public.

3. Define and discuss the elements of a vision, specifically its relation to theplanning process.

4. Group the participants into smaller groups (ideally 6-8 persons per group).

5. Complete the vision-reality gap matrix (refer to sample matrix on succeedingpage) considering the result of the situation analysis.

6. Fill in the matrix with the elements of the vision statement.

7. Fill in the matrix with descriptors (desired quality) of the vision.

8. Identify and agree on the success indicators for each descriptor.

9. Compare success indicators with current state of development (existingsituation).

10. Rate each indicator according to its position in relation to achieving the vision.

11. Identify vision-reality gap (result of deducting the rating from the highest possiblescore).

12. Identify the planning concerns for action derived from descriptors with low achievementrating. 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 gapanalysis.

Use the following suggested rating scale.

0 = Nothing at all has been achieved1 = Very little (1% to 25%) has been attained2 = Attainment is about 26% to 50%3 = Attainment is quite high (51% to 75%)4 = Vision is very close to being realized (76% to 100%)N = Inadequate information

IF THE VISION IS REFINED


16. Proceed to the next step of the CLUP process

EXAMPLES

Vision-Reality Gap Matrix

PEOPLE AS INDIVIDUALS (element)

IF THERE IS NO REVISION,

PEOPLE AS SOCIETY (element)

Descriptor

God-loving

Healthy

SuccessIndicator

Peace-lovingHonestReliableCaringLaw abidingChild friendly

Long lifeexpectancyLow morbidity rateDrug-free

Rating

323122

3

21

Policy Options

Conduct extensive value orientationcourses

Strengthen moral recovery program Set up a local knowledge center for

children

Introduce life prolonging programs Provide medical support Establish/maintain a drug

rehabilitation center

Descriptor

Empowered

Vigilant

SuccessIndicator

Public consultationmade and integral partof the decision- makingprocess

POs/NGOsparticipate inplanning,implementation,monitoring andevaluation of LGUprograms and projects

Disaster preparedcitizenry

Rating

1

1

2

Policy Options

Encourage participation of civil society inpublic consultations

Institutionalize sectoral committees Involve POs/NGOs in the key stages of

implementation of government programs andprojects

Provide PO/NGO representation in all planningstages on continuing basis prolongingprograms

Strengthen City/Municipal/Brgy. DisasterCoordinating Council


ENVIRONMENTAL MANAGEMENT (element)

LOCAL ECONOMY (element)

Descriptor

Clean and Safe

Attractive

Balanced

SuccessIndicator

Quality at allowablewater level set byPhil. NationalDrinking WaterStandard

Density of greenswithin the urban core

Built-up areaintegrated with citysopen space network

Rating

N

1

1

Policy Options

Monitoring and testing of surface andground water quality

Protection of old trees, regenerationsites, mangroves, and open greenspaces

Formulate a city open space plan andmanagement guidelines

Descriptor

Diversified

EnvironmentFriendly

SuccessIndicator

Increased no. offinancial institutions

Increased no. ofserviceestablishments

Maximum 10% ofsurface water foraquaculture

Rating

4

3

0

Policy Options

Promote upgrading of qualityeducation

Encourage special health servicesto locate in Dagupan

Update and enact city ordinance toaccommodatethe informal sector

Regulate fishpens and enforceexisting local fishing ordinance


LOCAL GOVERNANCE (element)

1. Pasay CityA scenic premiere city thriving with business and economic opportunities, guided by dynamicand efficient local leadership, and home to self-reliant, healthy, and morally upright people.

2. Makati CityA sustainable, highly developed, environmentally balanced and progressive urban centerwhose residents have a sense of well-being and are morally upright, educated, disciplined,self-reliant, and community oriented.

3. San Fernando CityA well planned and properly regulated land use and philosophy that the utilization of land resourcesshould always gear towards improving the quality of life, especially the poor and underprivilegedand maintenance of ecological balance, over time, in the whole city.

4. Tuguegarao CityAn improved quality of life that endures the optimum, balanced and sustainable development ofthe municipality as an administrative, institutional, cultural and balance center for the CagayanValley Region.

5. City of Himamaylan, Negros Occidental

A progressive, Ecologically-Balanced, Peaceful City characterized by a healthy, empoweredand self-reliant citizenry under responsible, accountable governance with social justice andequality to all Himalaynon.

Examples of Vision Statements:

Descriptor

Firm

Progressive(not only LGUadministrationbut alsogovernance)

SuccessIndicator

Enforcement of locallaws (e.g. zoningordinance

Low apprehendedviolators, filed cases/imposed penalties,sanctioned violators

Less IRA dependent

NGO/PO registeredincrease, NGO/POactive participation

Rating

3

3

2

2

2

Policy Options

Strict imposition of penalties

Intensify tax collection by efficient monitoringand updating local ordinances on local taxes

Strengthen cash management Improve internal audit system Institutionalization of LGU-NGO-PO

undertakings Strengthening and federating SP-accredited

NGOs/POs


Annex 3-1THE BASIC METHODS OF TECHNOLOGY OF PARTICIPATION (TOP)

The basic methods of TOP as provided below have been successfully tested and applied inthe planning process.

1. Discussion method

This is a method of facilitating group conversations and discussions which allows a groupto deepen its insights and creativity on a common topic or experience. It allows the membersof 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 groups thinking about a particular topic into focuseddecisions and action. It is an effective way of building group consensus and moving it tojoint resolve and action.

3. Action Planning Method

This method, which combines both the discussion and workshop methods, is an effectivestructure for moving a group from a good idea to a concrete plan of action within specifictime periods and with specifically outlined assignments and responsibilities.

These methods may be applied to an infinite number of situations and purposes. Creativelycombined and even adapted, these methods can serve as powerful tools for both satisfyingand empowering group experiences.

Reference: Materials given during the Refresher Course on Basic Group Facilitation andConflict Resolution, Philippine Urban Forum, 6 June 2003, Innotech, Quezon City

9 Focused dialogue on a common topic orexperience

9 Share diverse perspectives in a non-confrontationalmanner

9 Deepen insights/resolve of a group

9 Focus insights/discussions of a group (commonground)

9 Build group consensus9 Move to joint action

DiscussionMethod

WorkshopMethod

TECHNOLOGIES OF PARTICIPATION

9 Build concrete plan (assumes consensus exists)9 Create clear forms of accountability9 Initiate group action

ActionPlanningMethod


PURPOSE

To identify/gather/update baseline data in order to assess the existing socio-economic and physical and environmental characteristics of the LGU;

To identify the needs, issues and concerns to be addressed by the CLUP and theopportunities/potentials that can be tapped to achieve the community vision;

To identify Indigenous Knowledge Systems and Practices (IKSP)


ANALYZINGTHE SITUATION

CLUPSTEP

44444Step 4 of the planning process, the Situation Analysis, basically answers the question:Where are we now? It is both analytical and diagnostic, geared towards identifyingissues, potentials and future development needs and spatial requirements of the city/municipality. Assessment involves technical and participatory methods.

Technical assessment is based on factual data derived from surveys, official publicationsand 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 incharacterizing the situations.

Participatory assessment is based on the outcome/results of barangay/communityconsultations, focus group discussions, meetings with key informants, multi-sectoralmeetings, etc. This activity facilitates the generation of the communitys felt needs,desires, and perceived issues and opportunities. Suggestions to address issues andconcerns can also be derived from this exercise.

Planning tools such as SWOT, Problem Tree Analysis, Sieve Mapping Technique,Geographic Information Systems (GIS ), etc. are helpful tools in situation analysis. TheHLURB A Guide to Data Management in the CLUP Preparation provides the applications,layouts and examples of CLUP formulation using GIS as a tool.

Step 4. Analyzing the Situation 38

EXPECTED OUTPUTS

Socio-economic, demographic, physical and environmental profile/data base ofthe city/municipality

Consolidated, prioritized major and significant development needs, issues,strengths and potentials of the LGU which have spatial components and arenecessary in the achievement of the vision.

Existing land use map, thematic maps, and analytical maps of the entire areacovered 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 discussedin Volume 2, Manual on Demography and Sectoral Studies In Comprehensive Land UsePlanning. All these studies may be done simultaneously.

1. Conduct sectoral studies of the planning area in parallel with the conduct ofnatural/physical/environmental, and land use assessment (step 2, below).

This step involves updating of the existing demographic and socio-economic data and theirsubsequent analysis to come up with information that will characterize the current andpast situations in the city/municipality.

2. Conduct an assessment of the natural/physical/environmental features andexisting land uses of the city/municipality following these steps:

2.1 Collect data/map requirements as shown in Table 4 - 1.

2.2 Prepare base map ( both presentation and report size maps ) of the whole planningarea. Refer to Mapping Guidelines, Vol. VII of the HLURB Guidelines for theFormulation/Revision of Comprehensive Land Use Plan, 1996 or the HLURB: AGuide to Data Management in the CLUP Preparation.

The sectoral assessment may be guided by the Guide to Sectoral Studies in the CLUP Preparation (Vol. 2) which covers the following:

Demography Social Economic Infrastructure

Step 4. Analyzing the Situation39

2.3 Conduct actual land use survey. Determine the existing land uses within the entireboundaries of the city/municipality including uses of its freshwater and marine waterboundaries.

Tips for the preparation of base maps

The base map shall serve as the working map where the different land usecategories of the whole municipality/city shall be delineated.

To facilitate a more accurate delineation of land uses, the working basemap may be enlarged to cover certain districts (i.e. CBD, growth/urbanizingareas) and/or by clusters of barangays.

A topographic map provides important physical information and referencepoints for the base map while a cadastral map gives a more accurateparcellary boundary information of the municipality/city.

Use the standard scales as suggested by the Inter-Agency Task Force onGeographic Information for uniformity and ease in overlaying techniques.

Suggested scales are:1:5,000/1:10,000/1:25,0001:2,000/1:4,000 ( for enlarging specific areas in the LGU)

The use of GIS gives greater flexibility in preparing the base/workingmap in anydesired scale.

Road networks and surface drainage (water bodies) shall be properlydelineated in order to facilitate the conduct of land use survey.

Coastal and marine areas should be reflected in the maps, showing theboundaries of the municipal water .

Samples of base maps, existing land use and other thematic maps are presentedin Annex 4- 2

Methods of land use survey:

Foot surveyArea i

clup guidebook vol 1 2006

Documents

national commission

national mapping

national electrification

development corporation

department of environment

department of interior

department of transportation

department of trade