guidebooks on preparation of sustainable land use plan

7/31/2019 GUIDEBOOKS on Preparation of Sustainable Land Use Plan

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GUIDEBOOKS ON SUSTAINABLELAND USE PLANNING AND MANAGEMENT

Sustainable Development Series

GUIDEBOOKON THE PREPARATION OF A

SUSTAINABLE LAND USE PLAN

VOLUME I

Sustainable Development Models and Systems Subprogramme (SDMS)-Integrated Environmental Management

for Sustainable Development (IEMSD) Programme

1997

NOTE TO THE READERS

In mid-1996, the Sustainable Development Models and Systems (SDMS)Subprogramme of the Integrated Environmental Management for SustainableDevelopment (IEMSD), a joint programme of the National Economic andDevelopment Authority (NEDA), the Department of Environment and NaturalResources (DENR) and the United Nations Development Programme (UNDP),initiated the conduct of a project on Capacity Building for Sustainable Land UsePlanning. The activity was conceived in response to the demand from local

government units (LGUs) for DENR assistance on land use planning in line with thedevolution requirements of the Local Government Code. Undertaken through thetechnical assistance of the UP Planning and Development Research Foundation, Inc.(UP PLANADES), the project aimed to develop tools and instruments that wouldassist LGUs in the preparation of their land use plans and in the integration ofsustainable development principles therein.

The initial outputs of the project included the: (1) Terms of Reference for Contractingthe Preparation of Comprehensive Land Use Plans and Zoning Ordinances for LGUs;and (2) Directory of Land Use Planners in the Philippines. The activity culminated inthe completion of a six-volume guidebook on sustainable land use planning. These

guidebooks are:

Volume I: Guidebook on the Preparation of a Sustainable Land Use Plan


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Volume II: Guidebook on Sustainable Coastal Land Use Planning andManagement

Volume Ill: Guidebook on Sustainable Forest Land Use Planning andManagement

VolumeIV: Guidebook on Sustainable Agricultural Land Use Planning andManagementVolume V: Institutional Development Concepts on Sustainable Land Use

Planning and ManagementVolumeVI: Laws and Regulations Relevant to Sustainable Land Use Planning

The guidebooks, which drew heavily from the existing manuals or guidelinesprepared by HLURB, DENR and DA, contain technical and procedural guidelines forthe preparation of an integrated land use plan and ecosystem-based planning for

agriculture, forest and coastal zones/communities including their appropriatedevelopment regulations. They are intended to supplement the official land useplanning guidelines prepared by HLURB, specifically Volume V: Guidelines for theFormulation/Revision of Comprehensive Land Use Plans - Land Use Sector, throughthe introduction of ecosystem-based land use planning and by integrating sustainabledevelopment concerns. The guidebooks are intended primarily for local governmentofficials, particularly, the Provincial, City and Municipal Planning and DevelopmentOfficials (PPDOs, CPDOs and MPDOs) and the Provincial, Municipal and CityEnvironment and Natural Resources Officers (Provincial, Municipal and City ENROs)as well as DENR PENROs and CENROs. The guidebooks are also useful to land useplanning contractors. They are envisioned to serve the following purposes:

Serve as handy reference materials for LGU officials/contractors in preparingcomprehensive (sustainable) land use plans and corresponding implementingtools;

Provide technical guidelines to help direct and rationalize the development ofenvironmentally sensitive and fragile zones and communities such as thecoastal, forest and agricultural areas;

Incorporate into the HLRB Guidelines for comprehensive land use planningprocess sustainable development principles" and integrate therein relevantprovisions of the Specialized Guidebooks for the coastal, agricultural and

forest areas; and Provide a takeoff point for future expanded coverage of the comprehensive

(sustainable) land use planning system to include other environmentallysensitive and fragile communities requiring more detailed treatment.

Prior to their finalization, the guidebooks were submitted to a series of roundtablediscussions attended by experts and technical staff from the academe (UP MarineScience Institute (MSI) and UP School of Urban and Regional Planning (SURP)) andconcerned institutions like the Housing and Land Use Regulatory Board (HLURB),Department of Interior and Local Government Bureau of Local GovernmentSupervision (DILG-BLGS), Environment and Natural Resources Office of the

Provincial Government of Batangas, National Economic and Development Authority Regional Development Coordination Staff (NEDA-RDCS), Department ofAgriculture (DA) Bureau of Soils and Water Management (BSWM) and Bureau of


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Fisheries and Aquatic Resources (BFAR), DENR Natural Resources ManagementProgram (NRMP), Fisheries Sector Program/Coastal Environment Program(FSP/CEP), Mines and Geo-Sciences Bureau (MGB), Protected Areas and WildlifeBureau (PAWB), Forest Management Bureau (FMB) and National Mapping andResource Information Authority (NAMRIA) for validation. The guidebooks were then

revised in accordance with the inputs and comments given by the experts andagency representatives.

Interim copies of the guidebooks (except for Volume V) were then printed for pilot-testing purposes. The objective was to validate their practicability and user-friendliness. The pilot- testing was done in two ways, namely: through the use of theguidebooks in the preparation of an actual land use plan for Sampaloc, Quezon andthrough the conduct of a series of training on sustainable land use planning forLGUs, CENROs, PENROs and HLURB planners in Luzon, Visayas and Mindanao.For the pilot-testing in Sampaloc, IEMSD tapped the services of the DevelopmentCatalysts, Inc. The series of training, on the other hand, was conducted by UP

PLANADES. A special run of the training was also conducted in collaboration with theMt. Makiling Reserve Area and Laguna de Bay Commission attended by LGUs in theLaguna de Bay Region. The guidebooks were also submitted to HLURB for reviewand possible adoption by its Board. HLURB has expressed the possibility of makingthe IEMSD Guidebooks, specifically, those focusing on agriculture, forestry andcoastal areas, as possible cross-references to their Volume V.

The results of the pilot-testing and the comments given by HLURB served as thebases for the refinement of the guidebooks. The said revisions are reflected in thisversion.

The Programme hopes that the Guidebooks, of which this volume is a part, wouldcontribute to enhancing the capacities of LGUs to become better environmentalmanagers.

Elmer S. MercadoUndersecretary for Environment andProgrammes Development, andProgramme Coordinator, IEMSD

FOREWORDTime and again, the attention of local planners is called to the need to incorporateenvironmental considerations at all levels of the planning process. Echoing the callfor sustainable development, it thus became imperative that local plans reflect, in realand substantive manner, measures that would ensure that land use and developmentis consistent with environmental management for the benefit of present and future

generations as well. Consequently, it became necessary for the local governmentsand the country's environment department to work hand in hand to ensure thatenvironmental aspects would not be overlooked in the course of land use planning.


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It is in this light that the Department of Environment and Natural Resources (DENR),through the Integrated Environmental Management for Sustainable Development(IEMSD) Programme initiated the formulation of a six-volume guidebook onsustainable land use planning (SLUP). The guidebooks are not intended to duplicatebut rather supplement the HLURB guidelines on comprehensive land use planning.

They are primarily aimed at assisting local planners in the integration of sustainabledevelopment principles into the comprehensive land use planning process andproviding detailed guidelines for the preparation of sustainable land use plans not justfor urban areas but for agricultural, forest, coastal zones/communities including theirappropriate development regulations.

It is hoped that through these guidebooks, the DENR would have taken another stepat enhancing the capacities of local governments in environmental planning andmanagement. After all, they are among DENR's partners in ensuring a betterenvironment for our children and our children's children.

Let's make things happen!

Antonio H. CerillesSecretary

FOREWORD

Growing demand for land and its natural resources creates competition and conflicts.As population growth continues, the remaining wildlands are converted to agriculturaluse, while at the same time land is appropriated for urban expansion. Chapter 10 ofAgenda 21, Managing Land Sustainably, recognizes that to meet humanrequirements in a sustainable manner, we must resolve these conflicts and find moreeffective and efficient ways of using land.

Conversion of wildlands to agriculture is still proceeding in many developing countriesand is likely to continue. It is estimated that by 2025, agricultural land area in the

Asia-Pacific Region will expand by 25 percent and most of the conversion will takeplace in the few remaining forested areas. The Philippines' 27.5 million hectares ofvirgin forest in 1575 has been reduced to 800,000 hectares in 1994 (the last knowncomprehensive data). Forest destruction has been caused largely by indiscriminatetimber cutting by both forest concessionaires and illegal loggers, as well as slash andburn agriculture, among others.

Urban population worldwide is currently growing at four times the rate of ruralpopulation. Over 60 million people are added to urban population each year -straining the capacity of local and national governments to provide event the mostbasic services to urban dwellers. More than half of the world's thirty largest urban

conglomerations are located in the Asia-Pacific region. It is estimated that by the year2000, there will be 28 megacities in the region with a population of over 200 million,an almost two-fold increase from 1995 figure of 125 million. This will obviously


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require further physical expansion over land areas. Associated with urbanization israpid industrialization. Often, for historical reasons, cities were established on someof the country's most agriculturally productive land. Thus, a principal problem in citiesand the surrounding areas is lack of planning, improper utilization and rapidconversion of agricultural lands to other uses. Other urban land use issues include

those of transportation infrastructure and waste disposal systems for an increasingpopulation, as well as the need for "green" space to reduce the high stress of living inurban conglomerations.

Land is finite resource and it must be used in ways that provide the greatestsustainable benefits. Land use planning provides a basic tool to ensure that land isdevoted to its most suitable use, thereby achieving efficiency. Efficiency measuresalso give proper weight to long- term needs in contrast to short-term profits. Properdistribution of land favors equity and proper conservation of land leads tosustainability.

This series of Guidebooks on Sustainable Land Use Planning and Managementrepresents an important contribution towards helping ensure efficiency, equity andsustainability of our land resources and the vast wealth that these contain. UNDP isproud to have worked in partnership with the DENR, HLURB, NEDA and otherconcerned agencies, to prepare and disseminate these guidelines for our localgovernment partners. UNDP will continue to promote the localization of thesustainable development agenda in partnership with all sectors of the society.Sarah L. TimpsonResident RepresentativeUnited Nations Development Programme, Manila

FOREWORDWe have come a long way since the monumental gathering of nations to establishthe agenda for action on sustainable development during the 1992 Earth Summit.

After we embarked with the creation of the Philippine Council for SustainableDevelopment (PCSD), we subsequently formulated the Philippine Agenda 21 (PA21). Various policies and programs adhering to the principles of sustainabledevelopment have been promulgated and implemented. And now, the formulation ofa 6-volume Guidebook on Sustainable Land Use Planning and Management hasbeen completed.

PA 21 reflects a firm commitment of all sectors in our nation to operationalize theprinciples of sustainable development in pursuit of a better life of the present andfuture generations. These principles of sustainable development in pursuit of a betterlife for the present and future generations. These principles are now integrated in the

Guidebooks on Sustainable Land Use Planning and Management giving both ournational and local planners a guide in the preparation of a sustainable land use,coastal, forest and agriculture plans. In effect, the Guidebooks on Sustainable Land


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Use Planning and Management are tools that support and facilitate the fulfillment ofthe various targets under the agenda for action of the PA 21.

At the local level where land use planning is a prerogative of local governments,these Guidebooks would be very useful in advocating for the national allocation,

utilization, development and management of their physical resources.

With the completion of these Guidebooks, we are further strengthening the advocacyon sustainable development not only in theory but much more in application,specifically, on the development if the various plans. And hopefully, with theimplementation of said plans, we would eventually come to realize a better life for ourpresent generation as well as the generations to come.

Isagani B. ValdellonDeputy Director-General

National Economic and Development Authority

FOREWORDThe Philippine Strategy for Sustainable Development (PSSD) or the PhilippineAgenda 21 aims to prevent unsustainable extraction or overexploitation of our natural

resources beyond their carrying capacities. It means living on the interest fromnatural capital rather than on natural capital itself. Sustainable development musttherefore include the integration of environmental considerations in planning anddecision-making.

In this regard, guidelines were promulgated to Local Government Units (LGUs) in theformulation or revision of their Comprehensive Land Use Plans (CLUPs) and ZoningOrdinances (ZO) which is the primary dominant bases for future use of their landresources. Pursuant to our mandate, the Housing and Land Use Regulatory Board(HLURB) approved a ten-volume Guidelines for the Formulation/Revision ofComprehensive Land Use Plans for local government units.The DENR under its IEMSD Programme embarked on the formulation of Guidebooksfor Sustainable Land Use Planning and Management. We know that this DENRpublication is of value to the target end users and the local government units andmay serve as additional reference in their mandate of preparing ComprehensiveLand Use Plans.

Romulo Q. FabulCommissioner and ChiefExecutive Officer

Housing and Land Use Regulatory Board(HLURB)


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TABLE OF CONTENTSPart 1 Introduction 11.1 Overview on the IEMSD Sustainable Land Use Planning (SLUP)

Guidebooks1

1.2 Other Related Land Use Planning Manual 11.3 Objectives of the IEMSD Guidebooks 21.4 Users of the Guidebook 31.5 Land Use Planning Body 31.6 Functional Responsibilities 3Part 2 Formulation of SLUP Guidebooks 52.1 Rationale 52.2 Formulation Process 5Part 3 Sustainable Land Use Planning 93.1 Definition of Land Use Planning 93.2 Definition of Sustainable Land Use Planning 103.3 Framework for SLUP 113.3.1 Principles, Parameters and Concerns of SD 123.4 SLUP Formulation Process 143.4.1 Outline of the SLUP 18Part 4 Preparation of an Ecological Profile 19Part 5 Development Issues and Concerns 435.1 Preparing the Statistical Compendium 54Part 6 Vision and Development Objectives 57Part 7 Alternative Spatial Strategies 697.1 Demand-Supply Balancing 597.2 The Base Plan or "Do Nothing" Scenario 617.3 Alternatives to the Base Plan 627.4 Evaluation and Selection of Alternatives 74Part 8 Sustainable Land Use Plan 818.1 General Land Use Plan 818.1.1 Protected Areas 818.1.2 Production Areas 838.1.3 Settlements 84


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8.1.4 Infrastructure 848.2 How to Prepare the "Existing General Land Use" Map 858.3 How to Prepare the Proposed General Land Use Map 898.4 Suitability Criteria for Various Land Uses 928.4.1 Residential Areas 928.4.2 Industrial/Commercial Areas 938.4.3 Agricultural Areas 948.4.4 Agroforestry Areas 948.4.5 Mineral Lands 948.4.6 Forest Lands 95

8.4.6.1 Production Forest 958.4.6.2 Protection Forest 95

8.4.7 Grazing Lands 958.4.8 Urban Land Use Plan 96

8.4.8.1 How to Prepare Urban Land Use Map 968.4.8.2 Computation of Area per Specific Urban Land UseCategory

998.4.8.3 Formulation of Urban Land Use Plan 101

Part 9 Implementation Plan 1099.1 Legitimization 1099.1.1 Public Hearing by the MDC 1099.2 Adoption by the Sangguniang Bayan 1099.3 Enactment of Zoning Ordinance 1099.4 Comprehensive/Multi-Sectoral Development Planning 1109.5 Public Investment Programming 1109.6 Institutional Development 1119.7

Other Local Legislation 112

9.8 Phasing of Implementation 1129.9 Monitoring and Evaluation 113

Tables

1 Analysis of Biophysical Environment 472

Analysis of Socio-economic and Related Data 49

3 Statistical Compendium 51


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4 Cost-benefit Analysis Table 755 Planning Balance Sheet 776 Goal Achievement Matrix 797 Summary of Results of Goal Achievement 798 Breakdown of Existing Land Uses, Municipality of, 19 899 Proposed General Land Uses, Municipality of, 19 9310 Area of Existing Land Uses, Municipality of, 19 10111 Proposed Urban Land Uses, Municipality of, 19 10512 Data Requirements for Natural Features 107

Figures

1 Comprehensive (Sustainable) Land Use Planning (C(S)LUP) ProcessFlow Chart

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2 Geological Map 213 Slope Map 234 Elevation Map 255 Soils/Physiography Map 276

Soil Map 29

7 Erosion Map 318 Drainage Pattern and Surface Water Body 339 Land Classification Map 3510 Flooding Map 3711 Sieve Mapping 4512 Strip/Linear Development 6513 Grid Development 6514 Concentric Development 6715 Central and Nodal 6716 Concentrated Urban Form 6917 Bipolar Strategy 7118 Tripolar Strategy 7319 Existing Land Use Map 8720 General Land Use Plan 9121

Existing Urban Land Use 97

22 Proposed Urban Land Use 103


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PART ONE INTRODUCTION1.1 Overview on the IEMSD Sustainable Land Use Planning GuidebooksThe Guidebook on the Preparation of a Sustainable Land Use Plan comprisesVolume I of the six-volume publications on Land Use Planning of the IntegratedEnvironmental Management for Sustainable Development (IEMSD) Programme. Thisvolume provides the standard planning processes, techniques and tools, andprocedures for preparing a comprehensive and sustainable land use plan. Itsupplements the official guidelines contained in Volume V of the Housing and LandUse Regulatory Board's (HLURB) publications on comprehensive land use planning.Added features of Volume I, however, include the integration of sustainabledevelopment principles and concerns in land use planning; the application of newapproaches and methods found useful and practical in improving the preparation of

land use plans; and it also ties up the usual general and urban land use planningprocesses with the specialized ecosystem-based land use planning, which aredescribed in the other five volumes, by making cross references to them. The otherseparate volumes on Sustainable Land Use Planning (SLUP) guidebooks are asfollows:

Volume II - Guidebook on Sustainable Coastal Land Use Planning and Management.This volume describes the land use planning approaches, guidelines and proceduresfor coastal ecosystem.

Volume III - Guidebook on Sustainable Forest Land Use Planning and Management.This volume describes the land use planning approaches, guidelines and proceduresfor watershed and forest ecosystem.

Volume IV - Guidebook on Sustainable Agricultural Land Use Planning andManagement. This volume describes the land use planning approaches, guidelinesand procedures for agroecosystem.

Volume V - Institutional Development Concepts on Land Use Planning andManagement. This volume describes linkages and integration of spatial plans, and afinancial reform package for the preparation of a sustainable land use plan by LGUs.

Volume VI - Laws and Legal Issuance Relevant to Sustainable Land Use Planning.This volume provides a list of laws and legal issuance related to land use.

1.2 Other Related Land Use Planning ManualWidely used nowadays by land use planners are two manuals on land use planning.Foremost and official is the ten-volume manual prepared by HLURB. HLURB is theagency mandated by law to "prescribe the standards and guidelines governing thepreparation of land use plans, and extend technical assistance and related forms ofplanning assistance to the LGUs" (E.O. 648: 1981, as amended). Thus, the manuals

published by HLURB are used by LGUs as the official document in preparing theirland use plans.


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The ten volumes of the HLURB cover the subject matter of Demography (Volume I);and the Planning Guidelines and Standards for the following sectors: the SocialSector (Volume II); the Economic Sector (Volume III); the Infrastructure and Utilitiessector (Volume IV); Land Use Planning and Environmental Management (Volume V);and Local Administration (Volume VI). The rest of the series consists of the Mapping

Guidelines (Volume VII); Report Writing Guidelines (Volume VIII); Guidelines for PlanReview, Adoption and Approval Process (Volume IX) and the Model ZoningOrdinance (Volume X).

The other set of manuals related to land use planning are those produced by theLocal Development Assistance Program (LDAP) under the general policy guidance ofa Steering Committee comprised of representatives from the Department of Interiorand Local Government (DILG); the National Economic and Development Authority(NEDA) and the League of Provinces, Cities and Municipalities and Liga ng mgaBarangay. The LDAP guidebooks consist of five volumes: Volume I - LocalDevelopment Plan; Volume II - Local Development Investment Program; Volume III -

Annual Investment Plan; Volume IV - Participatory Planning; and Volume V - LandUse/Structure Planning. Like the SLUP guidebooks, the LDAP guidebooks are meantto serve as references for LGUs, and to supplement HLURB's ten-volume guidelines.

1.3 Objectives of the IEMSD GuidebooksGuidebooks on sustainable land use planning were formulated and published by theIEMSD Programme for the following purposes:

1) serve as a handy reference materials for LGU officials/contractors, PENROs andCENROs in preparing land use plans in their areas of responsibilities;

2) provide detailed guidelines to help direct and rationalize the use of land bycommunities in sensitive ecosystems such as agricultural, forest and coastal areas;

3) supplement the guidelines on land use planning published by HLURB byintegrating sustainable development principles, concerns and practices.

The guidebooks are not meant to replace the official land use planning guidelinesprepared by HLURB (Volume V - Guidelines for the Formulation/Revision ofComprehensive Land Use Plan - 1997 version) but rather supplement it by

introducing the ecosystem-based land use planning and by integrating thesustainability dimension. Hence, the IEMSD Guidebooks will be most useful toplanners who will be preparing long- term land use plans and detailing various landuses suitable in forest, agriculture and coastal ecosystems. The urban orientation orbias of the Comprehensive Land Use Planning guidelines of HLURB is correctedunder the ecosystem-based land use planning guidebooks by providing thetechniques and procedures in detailing the land uses suitable in agriculture, forestand coastal ecosystems.

Being ecosystem-based, the guidebooks took into account the ecosystem dynamicsin land use planning. This makes it possible to relate the impacts of the land use plan

on environment and natural resources management concerns.

1.4 Users of the Guidebooks


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The target users of the Guidebooks are the local government officials, moreparticularly the Provincial, Municipal and City Planning and Development officials,(PPDOs, CPDOs, MPDOs), and the Provincial, Municipal, and City Environment andNatural Resources Officers (Provincial, Municipal, and City ENROs). They will findthese guidebooks useful in the preparation and implementation of their areas'

Comprehensive Land Use Plans (CLUPs). Other potential users of the Guidebooksare those individuals or firms contracted to prepare land use plans includingspecialized ones (i.e., agriculture, forestry and coastal). DENR's PENROs andCENROs would also find these guidebooks useful in the preparation of theirecosystem development and/or conservation plans.

Ideally, these target users (PPDOs, MPDOs, CPDOs, PENROs, and CENROs) couldwork together as a team in preparing an area's Sustainable Land Use Plan (SLUP).Such approach would harmonize and integrate the objectives of LGUs and sectoralagencies such as DENR in their use and development of land resources. The IEMSDGuidebooks will serve as an important instrument in this team planning effort.

1.5 Land Use Planning BodyAs mandated by the Local Government Code, planning in local areas is theresponsibility of the Local Development Council (LDC). The City/Municipal Planningand Development Office (C/MPDO) which serves as its technical arm and secretariatassist the LDC in its planning function. As the need arises, the LDC is also authorizedto tap the services of national government agencies (NGAs) and other experts toprovide technical advice.

The membership of the Local Development Council (LDC) draws representation froma broad cross-section of the local populace including People's Organizations (POs)and Non-government Organizations (NGOs). Given such representation in the LDC,direct consultations with the people even through informal means is still stronglyencouraged, if such is practicable.

The LDC, however, is a large body and meets only twice a year. Necessarily, theExecutive Committee (LDC-EXECOM) will have to take decisions and actions for themost part.

1.6 Functional ResponsibilitiesIn brief, the different actors in the planning process are responsible for the followingactions:

1. LDC - provides policy guidelines and political insights into the analysis andinterpretation of technical data.

2. Local Legislative Council (Sanggunian) - provides legal force to the actionsand decisions taken relative to the planning exercise.

3. LDC-EXECOM - acts on behalf of the LDC when the latter is not in session.4. Local Planning and Development Office - serves as technical arm of the LDC;

actually performs the bulk of activities needed to facilitate discussion and

decisions in the LDC and to produce the plan document.


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5. NGAs (PENROs, CENROs, and other agencies) - provide technical inputs andadvice on matters pertaining to their field of expertise or functionalresponsibility as well as relevant policies currently in force.

6. POs and NGOs - as members of the LDC bring into the debates and decisionstheir own reading of the popular pulse as well as particular insights derived

from their expertise and advocacy. Also undertake monitoring of program andproject implementation.

Although the mandate exists for the foregoing bodies to plan for the development oftheir locality, in many cases the initiative to prepare an SLUP does not come fromthem. External agents usually act as the precursors in the preparation of SLUP.Consultants hired by foreign funding institutions and donor agencies are usuallytapped to provide technical assistance for the job. Similarly, national agencies,volunteer groups, NGOs and other organizations encourage and prompt LGUs toundertake the preparation of land use plans. In so doing, the external agents shouldmake sure that the local officials responsible for making and using the plan are

involved in the process in a meaningful and substantial way. This is done byorganizing the participants in such a way that there is a technical working group(TWG) and a deliberative/decision-making body with the LDC as core. Then theexternal assistance should be structured in the form of a capability-building programconsisting of two approaches: on-the-job training (OJT) for the TWG and publicconsultation for the deliberative body. This capability-building strategy is an effectivemeans of transferring knowledge and skills on SLUP to local planning bodies.

guidebooks on preparation of sustainable land use plan

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