CHAPTER I

INTRODUCTION

The combined forces of urbanization and globalization is said to be the

driving force that drove the highly industrialized cities around the world to push for
the implementations of policies which aims for comprehensive urban development.
Other factors in this development phenomenon include democratization and
decentralization, evolution in communication, improvements in transportation,
privatization and the strengthening of the private sectors. Strong policy
implementation and sound governance may also be cited in drawing the patterns of
urban development.1 In this new era of globalization, public administration has
changed dramatically in line with broader socio-political and economic reforms. One
of the problems that can be cited in looking into the ways how local governments
manage themselves is the lack of new alternatives in dealing with the problems
experienced by the city. Local government leaders should check out their leadership
styles in order, to see if their old styles are still applicable and if not local leaders
must venture in new styles of leadership that may render high probability of
development.2

A. Background of Study

1. Housing Policy

The problem concerning the illegal settlements of the urban poor within Metro
Manila has become widely recognized as one of the major concerns that both the
national and local government should be dealing with. Even during the 1970s when
Ferdinand Marcos was still the president, different presidential decrees and
programs has been issued to quenched the growing number of informal settlers
within the countries capital and its surrounding cities. Since every president has
given the prerogative to disregard, renew, revise or continue and improve the
policies made by their predecessors it is visible that after Marcos, the succeeding
Aquino administration also conducted a development program through the Republic
Act No. 7279 or also known as the Urban Development and Housing Act of 1992,
which was enacted by the Philippine Congress (1992). The said act aims to provide a

1
Chapisa, F. G. (2011). Transnational City-to city Partnerships as Strategic Tools for Sustainable Urban
Development- Case of the Haarlem. Erasmus School of Economics.
2
Hamid, N. &, Martin, J. (1999). Leadership and Change in City Management: Asian Cities in the
Contemporary Approaches to Municipal Management 21st Century. Asian Development Bank.

1|Page
conducive housing plan to those who do not have a decent place to live, particularly
those who live within the public, private areas within Metro Manila including the
danger zones.3

Prior to the Urban development and Housing Act of 1992, former President
Corazon Aquino, through the Executive Order No. 90, created housing agencies that
will execute the national shelter plans of the government. The said national shelter
agencies provides a bureaucratic interaction in dealing with the housing concerns of
the country the said agencies are as follows; National Housing Authority (NHA),
Human Settlement Development Corporation (HSDC), National Housing
Commission (NHC), Housing and Land Use Regulatory Board (HLURB), and the
National Home Mortgage Finance Corporation (NHMFC). These agencies are the
ones in charge of responding to the different housing and resettlement programs
across the country. The National Housing Authority (NHA), among the other
housing agencies involved in the government shelter program, serves as the primary
agency that deals with the resettlement program concerning the poor who have been
determined by the government as residents living within the areas considered as
danger zones.

This kind of resettlement programs includes the cooperation between the local
government units and the different national housing government agencies. Private
and public sectors within the society may also participate in venturing in this kind of
program. The Philippine Congress, through the Urban Development and Housing
Act of 1992, used and defined the term Joint Venture which is the process as to how
two or more bodies of government agencies including non-governmental
organizations and private sectors, commit themselves in an agreement that their
agencies must work together under one purpose in joining there funds, land
resources, facilities, and services in attaining a certain goal. This study applies the
concept of joint venture concerning urban development in housing or relocating the
urban poor towards a more conducive and convenient place to live at.

Based on the research conducted by Yoshie Yamamoto (1996), the population

displacement in the Philippines turned out to soar high within Metro Manila,
therefore, the government issued a lot of programs from the Marcos regime to Ramos
adapting different styles of approach in handling the said problem. Though, his
findings shows that 50-60% of the problem cannot be solved by the National Housing

3
Urban Development and Housing Act. R.A. No. 7279, fifth Cong. (1992).

2|Page
 Authority due to the issues concerning involuntary resettlements, which in turn
projects end up being abandoned.4

2. Urban Migration

According to Erhard Berner (1996), urban cities across the globe especially in
developing countries, serves as the saving valve for the struggling economy in the
rural places within a specific country like the Philippines. 5 Those people who live in
rural places set their minds to migrate in urban places to look for greener pastures.
When this people failed to secure their luck, most of them no longer return from the
provinces where they came from, which in turn serves as an avenue for them to
squat in public places such as railroads, river banks, dump sites, coastal areas, and
many other places be it publicly and privately owned. Some of these places were
considered by the experts as danger zones.

Those people who failed to push their luck as migrants in urban cities
particularly, in the City of Manila, which is the capital of the country, turned out to
be what the society usually considers as the slum areas, squatters or the marginalize
sector. According to Berner (1996), nowadays, the term squatter is used
interchangeably with the term urban poor. The urban poor has been commonly
associated with unemployment, filth, uncollected garbage, laundry women, street
hawkers, show shiners, car washers and some other low-income earners. This people
are now the ones who live in areas that needs to be resettled by the government to
safeguard their lives ,and improve their well-being by providing them adequate
homes to live at and livelihood programs that they can productively enjoy.

3. Danger Zones

Cities around the world deal with the security of their citizen in terms on
providing them a safe dwelling place away from the threat of any form of disaster
since climate change has become one of the most prevailing problems that the world
is now facing. These cities must seek to rehabilitate areas which seem to draw
inherent danger. This kind of places is what experts considered as danger zones.
Based on the government program report conducted by Marife Ballesteros and
Marife Engana which is entitled: Efficiency and Effectiveness Review of the National

4
Yamamoto, Y. (1996). Involuntary Resettlement in Urban Development Projects: Project Experiences
from the Philippines
5
Berner, E. (1996). Legalizing Squatters Excluding the Poorest: Urban Land Transfer Programs In The
Philippines. University of Biefield: Faculty of Sociology Research Center.

3|Page
 Housing Authority Resettlement program (2012), the National Housing Authority
through their relocation programs, prioritize the families that needs to be relocated
from urban places to the resettlement areas that they provided because of the
growing adverse impacts of climate change which made the danger areas or danger
zones within the Metropolitan cities highly visible. 6

Under the 1992 Urban Development and Housing Act, the term Danger Zone
has been defined as dangerous areas where people settled areas such as esteros, rail
road tracks, dump sites, riverbanks, waterways, shorelines, and other public places
including sidewalks, roads, parks and play grounds. The act mandates the
government agencies concern to conduct evictions and demolition programs and
relocate the families living in the said area in order to safeguard their lives.

4. The City of Manila

Manila is the capital city of the Philippines and the center of development and
commerce of the country. The city of Manila is considered as one of the most
urbanized city in the country because of the presence of different businesses and
social structures. It is also the center of commerce because of the presence of ports,
which is the center of importation and exportation of products in Manila. It is one of
the main reasons why different citizens from the nearby provinces migrate to the city
of Manila. In 2007, Manila has a population of 12 million residents, with an expected
growth in numbers during the present year, 3 million of which were part of the
considered squatters and residents of the slum areas.

Different areas in the City of Manila are occupied by informal settlers or

squatters, and most of these areas are considered as Danger zones. Examples of
these areas are the Baseco Compound in Tondo. Baseco Compound is a community
that lies along Manila Bay even though it is a danger zone, it was also considered as a
reclaimed area. Another area within the comforts of Manila is the Estero de Paco, in
Pandacan, it is considered as one of the most clogged areas in the city.

5. Estero de Paco, Pandacan

Estero de Paco which is located in Pandacan, Manila, lies near within the
mouth of Pasig River, around 19 creeks, called by the Spanish name estero,

6
Ballesteros, M., & Egana, J. (2012). Efficiency and Effectiveness Review of The National Housing
Authority (NHA) Resettlement Program. Philippine Institute for Development studies, Depart of
Budget and Management.

4|Page
discharged into the river. The name estero derives from the estuarine nature of the
Pasig River system depending on the tide, seawater would flow into the river
eventually meeting the freshwater of Laguna Lake or vice versa. Estero de Paco is
one the largest esteros in Manila.

Estero de Paco, a 2.9 kilometer tributary of the Pasig River in Manila City and
originating as an open canal in Barangay 811, winds northward before discharging
into the main river. Different families habituate the surroundings of the Estero de
Paco even though it is dangerous. The threat of flashfloods and overflowing of the
creek are the main concern of these areas. It is considered as one of the danger
zones in Manila because of its unsafe location. However, this area used to be
occupied by informal settlers, even though it is considered as a Danger zone.7

Today, the City Government of Manila has resettled the informal settlers to
clear the danger zones including the residents of Estero de Paco. Around 1,400
families have been relocated from Estero de Paco since relocation activities started on
July 9, 2009, in which about 49 families remains to be resettled. Affected families
were relocated in Calauan, Laguna, which is 25 kilometers south of Manila,
supported by the National Housing Authority and the Bayanijuan Program.

B. Statement of the Problem

1.Main Problem

The main question of this study is how the relationship between the National
Housing Authority and the City Government of Manila works in implementation of the
governments resettlement programs using the case of Estero de Paco. The place was
considered to be a danger zone, which is prone to any kind of natural calamity and
had a large number of illegal settlers living in it. This paper aims to shed light on the
relationship between the local government unit of the city of Manila and the National
Housing Authority concerned in the implementation of the national housing plan of
the government in the said area, thus making the main focus of this study is to assess
how their coordination effectively implements the Urban Development and Housing
Act of 1992 for the residents of Estero de Paco, Barangay 811, Pandacan, Manila.

2. Sub-Problems

7
Muaa, R. (2013). Private Sector Initiative in the Estero de Paco Project: A Case Study on Manila
Waterways Urban Redevelopment Plan, Department of Civil Engineering, Global Hydrology and
Water Resource Engineering Laboratory, Urban and Regional Policy and Planning

5|Page
 1) What are the duties and roles of the City Government of Manila &
National Housing Authority in implementing the resettlement
program?
2) How did the City Government of Manila and National Housing
Authority collaborate in the implementation of the resettlement
program in Estero de Paco?
3) How does the City Government of Manila & NHA implement their
resettlement program?
4) What are the indicators to assess the effectiveness of the relationship
between City Government of Manila and National Housing Authority
in the implementation of the said act?

3. Thesis Statement

The coordination between the National Housing Authority in the Philippines

and the City Government of Manila effectively implements the Urban Development
and Housing Act of 1992 for the residents of Estero de Paco, Barangay 811 Pandacan,
Manila.

C. Significance of the Study

1. Theoretical Significance

The study will provide law students a clearer view as to how the different
government agencies, through its systematized bureaucracy, collaborate with each
other in the implementation of different policies and laws. The study focuses on
inter-agency collaboration through joint venture programs, specifically in terms of
the assessment of policies and their implementation. The study will benefit the
branches of law such as Political Law, in the sense that the field will gain reference as
to how inter-agency network organizations function together in the implementation
of the governments policies that seek to cater the needs of the citizens. It shows the
Principle of Blending of Powers wherein a power or function is not confined in one
department or agency but is shared by them.8

This study will also help both the students of Public Administration and
Political Science by providing a clearer view on how inter- agency organization
works in terms of policies and government programs. Furthermore, this study will be
significant to the scholars of political science since this study would be in connection
to the flow of policy implementations, local governance, and other political concerns

8
Philippine Political Law 2015 Edition by Isagani Cruz

6|Page
that are taking place in the very fabric of the society. It will render feasible amount of
information on the assessment of various political phenomenon, in which the
relationship between the national government and local government will be
highlighted through policy implementation that provides high importance to the
field.

The study will be a beneficial tool for other researchers and academicians who
will conduct future researches as regard to policy implementation about urban
development, inter-agency collaboration, and collaborative governance.

2. Practical Significance

A major part of the study provides both the national and local government a
sense of awareness that will enhance their knowledge on the area of policy making
and policy implementation. It will provide a basis for national and local government
to better improve their relationship in terms of the processes that involves the
decentralization of policy implementation and systematic correlation when it comes
to the different functions of the different government agencies; starting from the
national government to the executive department down to the local government
units, especially in policies concerning national urban development.

This research will also help other national housing agencies which cater to the
needs of the urban poor and homeless people; specifically the different national
agencies of the government like the National Housing Authority (NHA), Housing
and Urban Development Coordinating Council (HUDC), Human Settlement
Development Corporation (HSDC), Housing and Land Use Regulatory Board
(HLURB), and National Mortgage Finance Corporation (NMFC) to further enhance
their capacity to respond to the needs of the proponents of their projects towards a
stable security for the citizens welfare and urban development.

The study could also help the City of Manila and other local government
agencies to further enhance their capacity to respond to the needs of the citizens and
focus more on providing the residents from the squatters area, which are within their
constituencies, a better area to live with in a living space away from criminality,
illiteracy, unhealthy environment, and most specially away from danger.

This study will also benefit different policy-makers and lawmakers in

reviewing the various housing policies and laws in the Philippines. This research can
be used as a basis in drafting new policies and amending housing policies that will
improve the housing programs of the country. This assessment can be essential to

7|Page
future drafting and amendments of policies regarding social housing, joint ventures,
and inter-agency collaborations.

The study will also be beneficial to the residents of the Estero de Paco resettled
in Calauan, Laguna for there will be a high possibility that after their resettlement
from the city of Manila to Calauan, Laguna, the study will be able to determine
whether or not they received the fundamental needs in conducting and sustaining a
decent resettlement and housing program set by the Urban Development and Housing
Act of 1992; these fundamental needs are basic education for the children,
comprehensive livelihood programs, proper waste management, and health care
facilities, and other different facilities that will cater the basic needs of the resettled
residents from the said area.

D. Scope and Limitations

The study would assess the relationship between the National Housing
Authority and the City Government of Manila in terms of policy implementation of
the resettlement program of the government. It will be viewed using the case of
Estero de Paco Barangay 811 Pandacan, Manila. The residents who have been
resettled from the Estero de Paco, which is part of the Pasig River waterways, to the
constructed resettlement area provided by the National Housing Authority in
Calauan, Laguna will be the main proponents of this study.

The Estero de Paco Barangay 811 Pandacan, Manila (See Figure 1) will be the
focus of this study because the residents there has already been resettled in Calauan,
Laguna under the programs made by the collaborative joint venture program
conducted by the National Housing Authority and the City Government Of Manila.

8|Page
 Figure 1: Estero de Paco Map

Source: Estero de Paco Map,Ronald Muaa, 2013

Since different resettlement programs are not new in the governments agenda
and in fact present in every administration in the Philippine history, and considering
the amount of data that could possibly be gathered if the research will cover each
administration, this study will focus only on the law or policy that has been
implemented by both the National Housing Authority and the City Government of
Manila in response to the immediate needs of the citizens of the Estero de Paco in
terms of adequate and secured housing facilities, so that the data that can be
gathered is feasible and can be assessed thoroughly in order to shed light in
answering the studys main and sub-questions.

The main respondents of this research will be the resettled residents of the
said Estero, which has been relocated in Calauan, Laguna since they were the ones
who experienced the effects of the implementation of the projects made by the City
government of Manila in cooperation with the National Housing Agency. They are
the ones who can determine the effectiveness and success of the laws, policies, and
programs the government created and implemented for the betterment of their lives.
Also, since the research will aim to answer the process on how the government
policies work, particularly in terms of the decentralization of the governments

9|Page
program from the national government down to the local government, it is essential
to include the institutions such as National Housing Authority and offices from the
City Government Of Manila who is in charge of these programs to be the source of
this research information.

Since there might be some concerns when it comes in data gathering like the
lack of possible information due to the failure of the said government units to focus
on the said area, the use of other sources such as, books, journals (either foreign or
local), interviews, and surveys will be needed in order to collect alternative reliable
sources in answering the researchs main and sub-questions.

E. Definitions of Terms

Operational Definitions.

Resettlement- Resettlement involves the relocation of informal settlers

occupying public and government lands to a developed site with housing
component. Resettlements usually happened in an off-city basis meaning a particular
group of citizen will be transferred from one city to another.

Relocation- Involves the transferring of a particular group of residents from

one place to another so long as the place where they will be going will still be within
the premises of the land from which they came from. This kind of housing
movement is considered as in-city relocation wherein citizens will only be
transferred within the parameters of their home city.

Inter-agency collaboration- involves the coordination between different

government units, which serves as a network for a more collaborative effort in terms
of policy and government program implementations.

ISF Informal Settlers Families includes the different families who reside
within the area which is considered as danger zone.

Professional Squatters- Pertains to individual/group of people who occupy

lands without the consent of the land owner despite having sufficient income to
afford legitimate housing.

10 | P a g e
Conceptual Definitions.

Social Housing refers to the forms of housing that were in public ownership.
These publicly owned houses were provided by the state through the local
authorities. The said housing program serves as a means for the government to
provide its citizens a good and decent house for the entire population.9

Urban Poor are those people that belong in the category of, squatters, slum
dwellers, makeshift dwellers, and landless poor which were unable to receive the
amount of income that will enable them to sustain their daily lives decently.10

Squatting refers to the illegal occupancy in a land owned by others, which

has become a preferred solution to the housing problems by those with little or
none resources. The places where the said people settles may also be considered as
dangerous areas such as, railroads, riverbanks, dump sites, and coastal areas
which can be harmful for the settlers especially in times of calamity.

Urban Development and Housing act of 1992 also known as Republic Act. 7279
which is enacted by the Congress of The Philippines in 1992 is an act that aims to
provide a comprehensive and continuing urban development and housing
programs that will uplift the lives of the urban poor by providing them decent
houses and livelihood programs that will may lead to development.

Joint Venture the Philippine Congress (1992), through the Urban

Development act of 1992, defined the term Joint Venture explains the process of
how two or more bodies of government agencies including Non-Governmental
Organizations and private sectors, commit themselves in an agreement that the
said agencies must work together under one purpose in joining there funds, land
resources, facilities, and services in attaining a certain goal.

Danger Zone The term danger zone has been defined as, dangerous areas
where people settled areas such as, esteros, rail road tracks, dump sites, riverbanks,
waterways, shorelines, and other public places including sidewalks, roads, parks and
play grounds.

9
Walsh, M., Stephen, D. &, Moore, S. (2000). Social Policy and Welfare housing Policies. Stanley
Thornes Ltd. Publications Inc.
10
Rebullida, Ma,G., Endriga, D.H. &, Santos, G.M. (1991). Housing The Urban Poor: Policies and
Approaches. UP Center for Integration Studies.

11 | P a g e
 CHAPTER II

REVIEW OF RELATED LITERATURE & STUDIES

A. Urban Development

Urbanization and globalization combined is said to be the driving force that

drove urban developed cities around the world to push for the implementation of
policies which would lead to urban development. Factors in this development
phenomenon includes, democratization and decentralization, evolution in
communication, improvements in transportation, privatization and the strengthening
of the private sectors. Strong implementation of policies and sound governance also
contributed in creating a successful pattern towards urban development.11 The new
era of globalization has significantly changed the role of public administration,
particularly in the socio political aspect and economic reformation. The lack of new
alternatives in dealing with certain situations has always been a problem experienced
by local government leaders. An effective way in solving this issue involves the
leadership to assess their styles of leadership and implementation and see whether or
not it is still applicable to their community. If proven otherwise, the leader must
venture for new styles that may render a high probability of development for their
community.12

Recognizing the effects of history in the evolution of a city towards

development can also be useful in explaining how most of the urbanized cities
develop.13 Taking for instance the case of Singapore, in which after they seceded from
the Malaysian government, they rebuild their country with self-determination,
political will, and massive citizen participation, which later on made their country as
one of the fastest growing economy in the world and the city of Singapore being
considered as one of the prime cities across the globe.

The geographical set-up and demographic stance of a city must also be

considered in studying how development takes place in that particular area. In the
case of China, particularly in Beijing, formal progress only took place after its
government launched the Open Door program. The said program aims to attract a

11
Chapisa, F. G. (2011). Transnational City-to city Partnerships as Strategic Tools for Sustainable
Urban Development- Case of the Haarlem. Erasmus School of Economics.
12
Hamid, N. &, Martin, J. (1999). Leadership and Change in City Management: Asian Cities in the
Contemporary Approaches to Municipal Management 21st Century. Asian Development Bank.
13
Primitivo, C. C., et,al. (2005). The Leading Factors for the Urban Development in Asian Context:
Case Studies of Makati. Cebu, Taipei, and Bangkok. Journal of The Eastern Asia Society.

12 | P a g e
freer market conducive for foreign and local investments. This kind of policy change
and innovation towards their style of leadership enabled China to progress
economically, particularly visible on its premier cities. The decentralization strategy
played a pivotal role to urban progress in China, with its inception the local
governments took advantage and created programs which would be in line with the
centralized program of China; it was far more effective than having a centralized
system which they have employed for years.14

Cities in Asia such as Tokyo, Seoul, Beijing, Singapore, and Taipei evidently
showcased their urban development to a higher degree of technological
advancements. Technological advancements created and paved the way for more
urban improvements within the environment of these developed Asian cities. With
the use of enough resources brought about by the said technological advancements,
these Asian cities continuously innovated their programs for more developments,
they started to infuse sustainable programs and policies which can be of use to their
urban development plans. Their urban development plans primarily pushed for
economic growth and poverty alleviation. This includes housings for the poor, fast
dissemination of information, livelihood programs, and other different
developmental plans that may cater progress for the growth of urban cities. 15

B. Decentralization for Urban Development

Urbanized Asian cities started to strengthen and empower their local

governments, these Asian cities believed that in order for them to contend with
known cities across other continents, they must learn how to develop their local
government systems. With the use of new paradigms and approaches they were able
to vastly improve their city planning and management programs. Innovation helped
Asian urban cities to deliver success in addressing issues such as health, water
supply, shelter, transportation, and most of all poverty alleviation.16 Scarcities of
resources and economical hindrances have continuously haunted local government
units from various parts of the globe which is why it is of utmost importance for the
leaders of a local government system to look for strategic collaborations with both
the private and public sectors, most especially with the national government in order
for them to properly address the problems that each locality has to face. Cross-

14
Wang, J. (2012). Urban Development And Urban Planning In Contemporary China- A Case study of
Chengdu. Montana State University
15
Odeh, K., Seckinger, A,. & Knecht S,F. (2009). Connected Urban Development (CUD) Initiative as an
Approach towards Sustainability in Urban Areas. Blekinge Institute of Technology.
16
Asian Development Bank (2006). Urbanization and Sustainability in Asia: Good Practice Approaches
in Urban Region Development. Asian Development Bank Institute of Cities Alliance.

13 | P a g e
sectorial collaboration has been proven effective in developing schemes which would
effectively ease up the complex problems that each city has to address.17

The Asian Development Bank (2004) recommends a city development strategy

that would involve a comprehensive decentralization program to address the
growing number of population in urbanized areas. Cooperation between the national
and local government is pivotal in having a seamless transition from central control
to a more decentralized market, based on the provision of services. 18 The result of
which would surely push for a more driven urban development plan which would
focus on the local governments commitment to providing the needed services to its
citizens. Decentralization empowers the local government units to further enhance
and improve their cities towards urban development; it is designed to efficiently
provide services and public goods that would enhance the lives of every individual
living in urbanized cities. Furthermore decentralization empowers the people to
participate in communal decision making, being able to participate in the decision
making process would surely help the local government in identifying the weak
points of the previous policies and programs implemented, making it easier for them
to accurately address the necessary loopholes for the benefit of the people living in
the area. 19

Decentralization can be seen as an aid to the growing problems of the

government particularly in the Philippines, since the country is divided into islands,
it makes it hard for the national government to reach out to the people. The process
of decentralization paved the way for administrative deconcentration and political
devolution. The decentralization strategy facilitated a faster delivery of needed basic
services and promoted participatory governance. With the inception of
decentralization, remote areas within the city were able to experience and enjoy the
services of the national government represented through their respective local
government units.20

17
ODonnel, O. (2012). Strategic Collaboration in Local Government :A review of International
Examples of Strategic Collaboration in Local Government. Institute of Public Administration.
18
Asian Development Bank (2004). City Development Strategies to Reduce Poverty. Asian
Development Bank Institute.
19
Brillantes, A. (2000). Decentralization,Devolution, and Democratization: Old Concepts and
Approaches. Kasarinlan: Philippine Journal for Third World Studies
20
Alex B. Brillantes, J., & Moscare, D. (2002). Decentralization and Federalism in the Philippines.
Decentralization and Devolution in the Philippines.

14 | P a g e
C. Housing Problems

Population growth is becoming more and more of a trend in the society.

Experts have predicted the dramatic rise in population of urban areas, particularly in
the urbanized settlements of third world countries. This dramatic rise requires the
local governments to reassess its plans of action to be able to cater to the needs of the
ever changing situation in urban population. Local governments must act and
conduct compulsory relocation of urban population to counter the threat that is
overpopulation.21

Housing problems can be derived from the governments lack of policy

provisions concerning the spontaneous settlement of the people on lands which they
do not own. The lack of policy provisions made by the government resulted in the
inadequate government service and support they ought to receive. An analysis was
made by various anthropologist and sociologist working on squatter settlements and
slum areas across the globe. They have concluded in the observations that such
problems belong mostly to third world countries.22 One of the key issues needed to
be considered in addressing the situation on housing problems would be the lack of
will by the government to impose the policies they had created, concerned with the
prevention of illegal settling. The passiveness and the stagnancy of the government
in dealing with these kinds of situation resulted to more housing problems in the
cities, particularly those cities belonging to third world countries. 23 As urban
population continuous to grow, the need for a quick and decisive response from the
local government is dire; promulgation of the housing policies created must be the
focus of any local government unit in order to prevent the hindrances from taking
over the development of the country.

In the case of the Philippines, migrants from rural places have travelled to
urbanized cities to try and look for new opportunities, with the hopes of improving
the state of living they are into. Sadly, those who have failed to gain improvements
settle down within the urban cities illegally.24 Illegal urban settlements have become
part of the countrys urban landscape, the trend of illegal settlements created

21
Yamamoto, Y. (1996). Involuntary Resettlement in Urban Development Projects: Project
Experiences from the Philippines
22
Napier, M. (2002). The Origins and Spread of Core Housing. Urban Landmark, United Kingdom.
23
Donnovan, S. (1996). Housing, the state and Urban Poor Organization Metro Manila : A Thesis
presented in fulfillment of the requirements for the Degree of Doctor of Philosophy in development
study in Massey University. Massey University.
24
Berner, E. (1996). Legalizing Squatters Excluding the Poorest : Urban Land Transfer Programs In The
Philippines. University of Biefield : Faculty of Sociology Research Center.

15 | P a g e
negative perceptions towards the Filipino culture.25 Illegal settlers are made up of
poor families squatting in areas which are either public or privately owned.
Unfortunately, most of the illegal settlers live in areas which are classified as
dangerous.

Since the post-war period, the influxes of migrants and settlers in urban cities
have been enormous. During the 90s it was perceived that 40% of the countrys
population can be found in the urban cities of the Philippines, Metro Manila for
instance, being the countrys metropolis, has always been the target for illegal settlers
coming in from the rural areas, in their quest of achieving the greener pastures that
they wished for.26 Various factors can be considered as to why these illegal settlers
migrate from their respective rural areas and transfer to urbanized cities, but the
most outstanding of all factors considered would be the search for instant wealth.
These people believed that by transferring to the hubs of development of the country
such as Metro Manila, they would be able to reach the so called greener pastures
they have so desired for. Only when they reach their destination would they find out
that living in urbanized cities is not as nice and grand as it may seem.27

The high urban growth rate in the Philippines, which reflects the rural urban
migration and natural population growth, is very similar to other countries in Asia.
As the country continuously experience rural-urban migration, the problems of those
who migrated from the rural areas would now be shouldered by the urbanized cities,
rendering high unemployment rates as well as higher population density which in
turn, would exceed the citys capacity of inhabitants, resulting to more diverse
problems needed to be addressed by the government.28

Studies have shown that by 2020 the developing world as a whole is likely to
have become more urban than rural. If progress is to be considered, poverty
alleviation is critical in shaping the social, economic, and political life of the next
century. As poor countries continuously urbanize, the inclusion of the demographic

25
Lagman, M.S. B. (2012). Informal Settlements as Spatial Outcomes of Everyday Forms of
Resistance: The Case of Three Depressed Communities in Quezon City. Department of Geography.
University of the Philippines,Dilliman.
26
Carino, B. V. (2000). Urban Growth In the Philippines: Policies Issues and Problems. University of
the Philippines.
27
Quetulio-Navarra, M., Niehof, P. D., & Vaart, D. W. (2012). Social Capital In Involuntary
Displacement And Resettlement.
28
Cario, B., & Corpuz, A. (2008). Toward a Strategic Urban Development and Housing Policy for the
Philippines. Discussion paper series no. 2009-21.

16 | P a g e
set up of the country would be crucial in policy making.29 The creation of
comprehensive housing policies must be made and implemented in order to address
the growing needs of the society for housing accessibility.30

Overpopulation has become a constant threat in the creation of housing

policies in Metro Manila. In the year 2000 the population of Metro Manila has tripled,
compared to the last decade, before the new millennium. The lack of decent housing
plans have become very visible in the country, Manila city in particular face a
number of illegal settlement problems which as of now has yet to be resolved. The
government has prioritized the relocation and resettlement of the illegal settlers, in
order to ensure the safety of the people and accommodate their needs for housing.31
The immense number of settlers and migrants from the rural areas of the country has
rapidly increased.32 The government is trying its best to address the situation, but if
this kind of housing scarcity will continue, there is a high probability of
underdevelopment for the country.

D. Housing Policies

A move towards a modern analysis on social housing must start from a basis
of taking a collective view of housing needs, with this, the local and national
government may find it easier to determine the position where housing programs
must be created.33 Social housing refers to the programs created by the government to
supply adequate houses to the citizens who are in need of it; these houses came from
public ownership provided by the state in collaboration with the local authorities.
The local government units are then expected to use these provisions as a means of
supplying quality housing which would help improve the lives and meet basic
necessities needed by the people, the housing policies created are expected to help
the lives of the people, particularly those relocated from the slums and illegal
settlements that are transferred towards their new housing havens provided to them
by the government.34

29
Montgomery, M. R., et, al. (2004). Cities Transformed: Demographic Change and Its Implications in
the Develop World. National Academy of Science.
30
Fu,M. (2007). The Role of Housing Co-operatives In The Housing Affordability Crisis.
31
Rebullida, Ma,G., Endriga, D.H. &, Santos, G.M. (1991). Housing The Urban Poor: Policies and
Approaches. UP Center for Integration Studies.
32
Ragragio, J. M. (2002). The Case of Manila Philippines. UN HABITAT for Humanity.
33
Beider, H. (2012). Race, Housing & Community Perspectives on Policy and Practice. Ltd.
Publications Inc.
34
Walsh, M., Stephen, D. &, Moore, S. (2000). Social Policy and Welfare housing Policies. Stanley
Thornes Ltd. Publications Inc.

17 | P a g e
 In dealing with the implementation of housing policies, the national and local
government must practice decentralization; sectorial agents must also be included in
making sure that the sentiments of the people are being heard of by the government.
Such a system would work effectively, as it does with developed urban cities.
Knowing what the people really needs is crucial to a quality housing policy,
therefore, the insertion of sectorial agents would make sure that the demands are
met. Policy implementation shall be carried out using the top-bottom approach in
order for the resources to flow seamlessly. Non-governmental sectors involved in the
creating a better housing for the people would also come in handy with the policy
implementation process.35

The achievement of acceptable housing are constrained by certain factors,

factors such as: the ratio needed in the housing income is rapidly rising, few low-
cost housing alternatives are being offered in the market, housing finance are limited,
and micro-finance programs available suffers from the slow liquidation processes
within the government. The government must address the housing hindrances in a
broader context. The issues must be viewed as a wide scale urban development
perception, the tremendous shortage in housing provisions supplied by the
government in our country are very visible. It only shows that the demand and
supply of houses have had a wide gap, most of the citizens do not have the capacity
to pay for a house and lot of their own, therefore heavily relying on the governments
housing policies to provide them one.36

E. Housing Policies in the Philippines

National urban policy goals have little independent validity outside the
context of society in general goals. These societal goals include promoting economic
efficiency and economic development, improving equity, as well as national security
development. Policy planning is embedded in macro and sectorial planning but
spatial and housing policies must be planned and consolidated by local and national
agencies.37 In 1992, the Corazon Aquino government launched a housing program
that has been enacted by the Philippine congress during that time. This particular act
is known as the Urban Development and Housing Act of 1992 or the Republic Act.
7279. The said act aims to provide a comprehensive and continuous urban

35
Olesen, P. H. (2009). The Challenge of Squatters: An Assessment of Housing Provision in The
Philippines in the Context of Decentralization. Aalborg University.
36
Ballesteros, M. M. (2002). The Dynamics of Housing Demand In The Philippines: Income and
Lifestyle Effect. Philippine Institute for Development Studies.
37
Fuchs, R.J, Jones, W. J. &, Pernia, E. M. (1990). Urbanization and Urban Policies in Pacific Asia. West
view special studies on East Asia. Boulder, London.

18 | P a g e
development and housing plans for the poor. It aims to uplift the conditions of the
unprivileged and homeless citizens in the urban areas by providing them low-cost
decent house, basic services, and employment opportunities.

Years after the Corazon Aquino administration, her son, Benigno Aquino
became the President of the Philippines. President Benigno Aquino vows to promote
equality and alleviate poverty in the country. With the help of the National Anti-
Poverty Commission, he constructed an Anti-Poverty Program ranging from the
years 2010-2016. This particular program of the government focused on uplifting the
poor as the main task, using good governance as the main instrument. Even though
the program that has been elaborately put on emphasis is the Pantawid Pamilya
program, housing programs in cooperation with the local government units were
also part of the current governments agenda in poverty alleviation towards
development.

During the height of the debates of the Reproductive Health Bill in the
Philippines, one argument was to use the nations money and resources in funding
the contraceptives that will be used in preventing the population growth in the
Philippines. Instead they should focus more on the primary problems concerning
poverty alleviation programs of the government particularly the policies concerning
social housing. Since it was said that the concentration of the bigger population in the
urban cities were the main problem and not the growing population alone. The
Philippines still has a vast amount of lands habitable by human beings. Therefore the
government must shift its attention in creating social housing in pursuant of the
Republic Act. 7279 rather than focusing on scraping the population through
contraceptives.38

The local government units in the Philippines are facing a big problem in
terms of housing resources for the citizens. Various case studies have proven that the
creation of efficient policies can address the needs of housing in a city.39 Marikina
city created a unique and effective interaction of policies, through balance politics
and civil society involvement, which in turn, contributed to the human development
system in terms of resettlement. With their effective leadership, the administration
created a policy concerning the prevention of the mushrooming squatters by utilizing
their resources in helping provide social housing for the poor. This particular step of
the Marikina city administration enabled them to minimize the number of illegal
settlers within their city.

38
Umali (2012).
39
Baac, V. G. &, Librea. R. C. (2012). The Marikina Resettlement Program: A Model for Community
and Development.

19 | P a g e
 On the other hand, one of the best examples of housing policy implementation
in the Philippines can be traced in the city of Navotas. There was a specific relocation
area in Tanza Cavite known as Sanagman Relocation Site; the Sanagman relocation
area which did not grant the local government of Navotas and Malabon to relocate
their evicted citizen to the said relocation area. The reason for the said rejection was
the unwanted addition of the urban poor in their municipality, thus, the City of
Navotas bought the adjacent land next to the Sanagman relocation area in Tanza,
Cavite and converted it into a new relocation area that will accommodate the evicted
illegal settlers of Malabon and Navotas. It could be seen that if the local government
units will delicately prioritize the improvement of the lives of the urban poor,
particularly the illegal settlers, changes towards development may take place.40

The joint venture cooperation between the local government and the private
sector improves the stance of the city. Public-private partnership is part of the
strategies that can be used to attain development. This kind of strategy may develop
a system of expanded utility of networks and services. Example of which are:
extended telecommunication and information services, construction of sewer water
ways, and garbage management. More importantly this kind of private public
partnership may boost the policy efficiency and implementation programs of the
local government units.41 There was a specific review on the efficiency and
effectiveness of the National Housing Authority resettlement programs, which stated
that the resettlement programs of the government does not just aim to relocate and
safe guard peoples lives away from the danger zones but also aims to ensure its long
term benefits. Lastly, it was found out that the success in attaining policy
implementation lies in the further participation of the Local Government Units along
with the NHA. LGUs must take responsibility maximizing the use of local land and
properly allocating housing programs.42

F. Urban Development and Housing Act of 1992

The Urban Development and Housing Act of 1992 (Republic Act No. 7279) is a
legislation that calls for a comprehensive and long-term urban development and
housing program, and to create the mechanism for its implementation. This law is
also informally known as the Lina Law after its author, former senator Jose D. Lina;

40
Oloffson, L. &, Truong, S. (2007). Sustainable Housing in Navotas, The Philippines : A minor field
study on Low Cost housing in Disaster Prone Areas. LTH School of Engineering.
41
Rodinelli (2004).
42
Ballesteros, M., & Egana, J. (2012). Efficiency and Effectiveness Review of The National Housing
Authority (NHA) Resettlement Program. Philippine Institute for Development studies, Depart of
Budget and Management.

20 | P a g e
the law states that the local government with the help of the national government has
to take on urban development and renewal with respect to the underprivileged and
homeless citizens. Furthermore, the said act sets guidelines and procedures for the
eviction of informal settlers and demolition of their homes. However, the Urban
Development and Housing Act of 1992 is commonly misunderstood. Usually, national
and local government officials have failed to understand its idea, and at times,
deliberately twisted the said law to suit the interests of informal settlers and
professional squatters.

In the article Debunking the Misconceptions of R.A. 7279, the author listed the
common misconceptions about the said law that contributed to the continuous
failure to end squatting: First is the misunderstanding that under the 1987
Constitution of the Philippines, squatters will own the land they are occupying
after the lapse of more than ten years. Second, it is also not true that private
landowners are obliged to pay the informal settlers occupying their land before the
eviction for disturbance compensation. Third, it also false that the consent of the
informal settlers are required in relation to their relocation site since the only thing the law
requires is consultation with them and not consent The government has the discretion
where the relocation site would be. Fourth, the socialized housing mandatorily includes
a house and lot, since in reality, this could be in the form of lot only or house only.
Lastly, the informal settlers have the right and are entitled to free housing by the
government is untrue since such claim has no basis under the Constitution or RA
7279.43

CONCEPTUAL FRAMEWORK

The theory of Collaborative Governance as per used by most urban

development scholars like Chris Ansell and Alison Gash who conducted a study
about the effectiveness of Collaborative governance in various countries in different
continents created a new concept when it comes to inter-agency collaboration. A new
strategy of governing called collaborative governance has developed. This mode
of governance brings multiple stakeholders together in common forums with public
agencies to engage in consensus-oriented decision making. Stakeholders are the term
used by Ansell & Gash (2007) refer both to the participation of citizens as individuals
and to the participation of organized groups. The theory depicts a vivid outlook as to
how collaboration between agencies, the private sector, and the people would prove
to be beneficial in addressing housing concerns. The Collective Governance theory

43
ZipMatch. (2013, September 9). Real Estate Laws: Debunking the Misconceptions of R.A. 7279.
Retrieved from ZipMatch Blog: http://www.zipmatch.com/blog/debunking-the-misconceptions-of-
ra-7279

21 | P a g e
shall be used in this study to further understand the relationship between the
national and local government in terms of policy implementation particularly in
executing their relocation and housing programs using the case of Estero de Paco.

National Housing Authority and the City offices of Manila are in-charge of
resettling the residents of Estero de Paco. This framework will provide the
application of the Collaborative Governance Theory to the study. Figure 3 illustrates
the flow of the collaboration process between the National Housing Authority and
the City Government in resettling the residents of Estero de Paco located in Manila,
Philippines.

The National Housing Authority collaborates with the City Government of

Manila to address the issue of providing social housing to the residents of Estero de
Paco. It properly coordinates and exhibits interdependency with the City
Government of Manila. Trust and cooperation is the key to the success of the
collaboration. The housing agency and the city government of Manila act accordingly
in planning strategies which would ease up the resettling process for the residents of
the said Barangay.

Non-Governmental Organizations provide assistance to both the National

Housing Authority and the City Government of Manila. NGOs encourages the
housing agencies as well as the City Government of Manila to facilitate the process of
resettlement.

Figure 3: Framework

22 | P a g e
 In relation to the Collaborative Governance Theory, the said framework
provides a meaningful interpretation of emphasizing the need for interdependence
and cooperation which is very applicable in the current study. In addition, the theory
would help understand and elaborate the means and ways as to how the National
Housing Authority and the city government of Manila effectively implement their
policies and programs.

Estero de Paco, the area in which the study would focus on, has been chosen
as the case study for the said research because the variables given in the figure above
can be seen as actively participating in resettling the residents to a safer location.
Notably the non-governmental organizations in the previous years have been
collaborating intensively with the housing agencies and the City Government of
Manila to help better the lives of the residents who are living in such a congested and
dangerous location.

The collaboration between the National Housing Authority and the City
Government of Manila with the assistance of the non-governmental organizations
will in effect provide a conducive resettlement program for the residents of Estero de
Paco.

23 | P a g e
 CHAPTER III

RESEARCH METHOD

A. Research Design

The methods applied in this study will be the qualitative and quantitative
method. The qualitative method aims to gather an in-depth understanding of human
behavior and the reasons that govern such behavior in connection with the
implementation of laws. The qualitative method investigates the why and how of
decision-making. The method will be used to determine the different actions and
behavior of the different variables in this study. The qualitative method will be used
to assess the relationship between the City Government of Manila and National
Housing Authority.

The quantitative method uses statistical, mathematical, numerical data or

computational techniques in interpreting empirical investigation of observable
occurrences. The quantitative method of this study will be used as an empirical
support to the qualitative method that will also be employed to this study. The
method aims to provide sufficient data that will support or reject the hypothesis of
this study.

The research will also include the gathering of secondary sources that will
further support the arguments and paradigms claimed by the researcher to further
establish the focus of their study. The triangulation method of research will be
employed in order to acquire sufficient amount of data and to properly validate the
data that will be gathered using the different techniques. This kind of method utilizes
the quantitative method through survey questionnaire, qualitative method through
validate interview and gathering of secondary sources of data in one analytical
interpretation in order elicit the facts that the study aims to present. The application
of the Collaborative Governance Theory by Ansell & Dash (2007) will be adapted as
the research theoretical framework of the study.44 It will be used as the backbone of
the research to analyze the different phenomena regarding the resettlement program
and the relationship of City Government of Manila and National Housing Authority.

The use of the triangulation will specifically be adapted in this study through
the comparing of the results out of the gathered primary and secondary data that will
be taken by the proponent. These primary data are comprised of two parts the use of

44
Ansell, C & Gash, A. (2007). Collaborative Governance in Theory and Practice, University of
California, Berkeley, Oxford University Press, pp 543-571

24 | P a g e
survey method and interview method whereas, in the part of secondary sources
books, journal articles, and other related studies shall be used in support to the
study. As soon as the said data are gathered, their outcomes will be assessed in
relation to one another to answer the questions on the study.

B. Data Gathering

1. Primary Sources

This research will use a survey method in order to assess the current
conditions of the resettled residents of Estero de Paco after they have been relocated
on the resettlement sight of the National Housing Authority in Calauan, Laguna.
Through this survey method, the proponent of this study will be able to find out as to
whether or not the basic guidelines in terms of facilitating a proper housing
programs has been properly provided by the National Housing Authority of the
Philippines in cooperation with the City Government of Manila as regard to the
needs for adequate and secured housing for the resettled residents of Estero de Paco
in Pandacan, Manila. The survey will be used to assess the effectiveness of the
Resettlement Program using different indicators. (See Appendix A)

The study will use the Slovins formula to determine the sample size of the
population. Slovin's formula is used when nothing about the behavior of a population
is known at all. The sample size of the respondents for the survey will be 300. Using
the Slovins formula, the sample size of 300 is considered accurate to represent the
1,300 population size of Estero de Paco. (See Appendix B)

The use of validated interview shall also be taken in this study in order to
draw the inherent link between interviewing the National Housing Authority
involved in the resettlement program conducted to the focus area of the study and
their relation to the City Government of Manila this will further explain the
relationship of the said government agencies in terms of joint venture collaboration
when it comes to policy implementation. The interview will be the basis in answering
the question regarding the functions of the NHA and the City Government of Manila
in implementing the resettlement program. A set of questions is prepared for both
the NHA and City Government of Manila to elaborate and discuss. (See Appendix E)

2. Secondary Sources

The use of secondary sources such as books, journal articles, and other related
articles about governmental collaborative efforts, policy making, policy

25 | P a g e
implementation, and urban housing programs will also be used in order to further
support the data that will be featured in this study. The study will also use different
Republic Acts, Executive Orders, Memorandum Circulars, and Presidential Decrees
to serve as a basis in verifying the functions and mandates of different national and
local agencies.

C. Treatment of Data

1. Primary Sources

The proponent will request a list of resettled Estero de Paco residents from the
City Government of Manila and will conduct random sampling survey from the said
list. The proponent of this study will conduct a survey on the resettled residents of
Estero de Paco in Calauan, Laguna and the result of the said research will be
interpreted using a statistical formula that will provide answers as regards to the
main and sub-questions of this study. The results of the survey will be used in
assessing the effectiveness of the resettlement program through the answers of the
residents of Estero de Paco. The results of the survey will be tallied and interpreted.
(See Appendix C) The survey results will be interpreted by computing its mean and
standard deviation to further expound the tallied grades by the respondents. The
Mean was used to get the average of the scores given by the respondents and
Standard deviation was used to get the range of the results. (See Appendix D)

The survey results will be used in assessing the effectiveness of the

resettlement program using the different indicators. The use of graphs and tables will
be used in interpreting the tally and computations of the survey results. It will be
used to show the effectiveness of the resettlement program.

An interview will be conducted for those agencies involved in the

resettlement program conducted on the said place agencies such as, NHA and
concerned committees for Housing and Urban Planning of the City of Manila. The
interview will be used to validate the results of the survey and primarily to know the
level of cooperation of the NHA and the City Government of Manila. The interview
will be used to assess the level of coordination and participation of different agencies
and NGO in the collaboration process. The proponent shall also take ocular
inspections in both Estero de Paco Brgy 811 Pandacan, Manila and to the
resettlement area in Calauan, Laguna in order to have a grasp and a view of the
places mentioned above. Lastly, the data analysis and drawing of conclusion and
recommendations will be the final output on this study.

26 | P a g e
 2. Secondary Sources

The proponent of this study will conduct library research in search for journal
articles, books, and related studies with regards to the focus of this research both in
the University library, National Library and different other libraries in order to have
a clearer and more substantive basis for the research. The journal articles, books, and
related studies will be used as references in gaining knowledge about the subject
matter of the thesis. The study will also explore and analyze different Republic Acts,
particularly the Urban Development and Housing Act of 1992, other Executive Orders,
Memorandum Circulars, and Presidential Decrees that mandates different agencies
will be used by the proponent to serve as a basis in verifying the functions and
processes of different national and local agencies.

27 | P a g e
 CHAPTER IV

Data Analysis and Interpretations

In order to answer the main question and the sub-questions of this research
certain indicators have been set. These indicators will serve as the parameter in
assessing the effectiveness of the implementation of housing program conducted by
the National Housing Authority (NHA), and the City Government of Manila using
the case of Estero de Paco, Manila. The primary indicators set by the researcher in
assessing the effectiveness of the resettlement program includes: (a) the smooth flow
of relocation process which has been answered through an interview and survey, and
(b) whether or not the new place where the residents has been relocated can be
considered as safe-zone compared to their previous area of settlement, and (c) the
efficiency of the socio-economic aspect in terms livelihood program and support
system were also included as an indicator in measuring the success of the housing
program conducted by both the City Government Of Manila, and National Housing
Authority (NHA) for the residents of Estero de Paco, Pandacan, Manila. The answer
to the said indicators has been derived from an interview with the National Housing
Agency NCR IV-Division head along with the head of The Urban Settlement Office
of the City of Manila. A survey through the resettled residents of Estero de Paco
whos now living in Calauan Laguna has also been conducted. The result deriving
from the survey has been treated using the necessary statistical methods that will
further shed light on the facts raised on this research. All of the data gathered will be
treated in accordance with the theoretical and conceptual framework in this research.

The housing program in Estero de Paco addresses the dangerous situation of

the informal settler families (ISF) who resides within the area. The principal goal of
the program is to remove the ISF who reside within the 3 meter easement of the
estero. The Estero de Paco in Pandacan, Manila is classified as one of the danger
zones in Manila and one of the priority areas to be resettled by the Manila City
Government. The NHA, in collaboration with the City Government of Manila,
executed a resettlement program for the residents of the Estero de Paco to situate
them in a safer place. One of the priority programs of the National Housing
Authority is the Resettlement Program for ISFs Living along Danger Areas in Metro
Manila. The program involves the relocation and resettlement of families living
along danger areas in Metro Manila particularly those along waterways such as
creeks, rivers and esteros. In the said program, the resettlement can be undertaken
through in-city low-rise housing development utilizing government owned land or
off-city resettlement wherein in-city project plans are not feasible. The Resettlement

28 | P a g e
Program is the housing program that was implemented by the NHA for the residents
of Estero de Paco.

The resettlement of the residents started from 2009 and was finished on 2012.
The 1,375 ISFs in Estero de Paco were transferred to Southville 7 Resettlement Site I,
Dayap, Calauan, Laguna (See Figure 4) which is considered by the NHA as their best
relocation site. (See Appendix F) The resettlement program for the residents of Estero
de Paco was affirmed and declared by the City Government of Manila and National
Housing Authority as 100 percent implemented and effective (See Appendix F).

Figure 4: Relocation Site

Source: Google Map, 2013

The NHA and City Government of Manila considered the Estero de Paco as
priority area for the reason that it is a high-risk area and a danger zone. The hazard
of massive fire and the threat of flashflood on the area were some of the features to
consider Estero de Paco as a high-risk area or danger zone. (See Appendix F) It is also
recognized that the houses of the residents in Estero de Paco are not sufficient for the
ISF. The resettlement of the residents is believed to be a stepping stone for the
families to have a better way of living and to have a more convenient life. The
Resettlement Project for the residents of Estero de Paco is essential for the reason that
it deals with the safety and security of its inhabitants.

29 | P a g e
 A. Roles in Resettlement Program in Estero de Paco

1. National Housing Authoritys Role in Resettlement Project

The role of the National Housing Authority (NHA) in the resettlement

program in Estero de Paco and in any other projects that they are involved with lies
in accordance to the fulfillment of their mandate was derived under Presidential
Decree. 757. In an interview with the IV-Division Head of the NCR office of NHA
(See Appendix F) she stated that all of the operations undertaken by their office are
in accordance with their obligation which is to provide housing to low and marginal
income families with the objectives of providing and maintaining adequate housing
for the people, to undertake housing development, resettlement and other housing
activities for every Filipino people, and lastly, to harness and promote private
participation in housing ventures in terms of capital expenditures, land, expertise,
financing and other facilities for the sustained growth of the housing industry. The
NHA officer also added that under the Urban Development and Housing Act of 1992,
their agency assumed the role as the provider of technical and other forms of
assistance to local government units in implementing their urban development
program and social housing programs.

The main role of NHA, according to their division officer, was to provide
assistance to the local government units which in this case, the City Government of
Manila, in promoting their urban development and social housing program (See
Appendix F). The National Housing Authority performed their duty under the Local
Inter-Agency Committee of the City of Manila. The said committee is spearheaded by
the head of the Urban Settlement and Development office of the City of Manila
which serves as the alternate chairman and representative of the city mayor.

The National Housing Agency in collaboration with the City Government of

Manila works with the Local Inter Agency Committee (LIAC) which is comprised of
different other local agencies involve in promoting the urban development and social
housing program of the city of Manila. The said committee was made up of the
following contributory agencies: Department of Social Welfare and Development
which provides 18,000php as an initial livelihood assistance fund for the resettled
families, Department of Education for securing that there will be schools available to
the area of resettlement, the Philippine National Police that will provide security and
peaceful relocation, MMDA for transportation and lastly, the Department of Local
and Interior Government for its supervision on LIAC.

30 | P a g e
 The NHA is the agency responsible in providing the land for different housing
programs. In the case of Estero de Paco resettlement, the land in Calauan, Laguna
was provided by the NHA where they built the core houses that will cater to the
needs of the residents of Estero de Paco. The National Housing Authority, under the
Urban Development and Housing Act of 1992, is allowed to transact with non-
governmental organizations and private companies to further improve and lessen
the amount of housing cost under the principle of joint venture program. This joint
venture program involves an agreement by two or more persons/groups in carrying
out a certain goal that will cater mutual benefits as they combine their resources such
as: funds, land resources, facilities, and services. Under this principle of joint venture
program the National Housing Authority signed a Memorandum of Agreement with
the Bayan Ni Juan Foundation of the ABS-CBN Foundation Inc. which aims to
improve the lives of those who are living within the danger zones, such as in this
case the residents of the Estero de Paco. The NHA and the Bayan ni Juan Foundation
agreed that, with the sponsorship of the said foundation, the housing supply for the
residents of Estero de Paco will be funded by the Bayan ni Juan Foundation and that
they will also be in-charge for the improvement of the livelihood programs within
the community of the resettlement area in Calauan Laguna.

The National Housing Authority is part of the monitoring and preventing the
spread of the different practices undertaken by professional squatters which is to sell
their houses or make it available for rent as they go back to the previous city where
they came from. Since the agency is part of the LIAC, they were also involved in the
overall evaluation of the programs that they implemented as a committee.

2. City Government of Manilas Role in Resettlement Project

The City Government of Manila played a vital role in fulfilling the

resettlement program for the residents of Estero de Paco in Pandacan, Manila. The
Local Inter-Agency Committee, headed by the chief officer of the citys Urban
Settlement Office, is made up of different government agencies grouped together in
order to promote, construct, and implement the urban development programs in
terms on socialize housing for the residents of the City of Manila.

The City Mayor of Manila delegated his power to the head officer of the Urban
Settlement Office of Manila to be the head of the Local Inter-Agency Committee that
aims to promote the urban settlement programs for the residents of Manila. Together
with other local agencies such as the National Housing Authority (NHA), the
committee was made up of the following city government offices: City Engineers
office which is in-charge of evaluating the condition of the area where the residents

31 | P a g e
came from, Manila City Health Department whose responsible in checking the health
condition of the residents before they travel to their new house, Department of Public
Services whose in-charge for cleaning operation and the Urban Settlement Office of
Manila who promotes the urban settlements programs of the City of Manila.

In the case of Estero de Paco, the implementation of the resettlement program

for its residents was spearheaded by the officers of Urban Settlement Office of
Manila. In an interview with the office head of Manilas Urban Settlement division
(See Appendix F), the officer said that as the head of the Local Inter-Agency
Committee, her office was tasked to collaborate with the different government
agencies particularly with NHA in order to properly plan schemes as to how they
can effectively relocate the residents of Ester de Paco.

The Urban Settlement head officer of Manila, while serving the role as the
LIAC head, adopted the method of participative planning alongside with the
different government agencies involved in the resettlement of the residents of Estero
de Paco. According to the Urban Settlement office head of the city of Manila, the
whole committee conducted pre-planning, planning proper, and assessment and
evaluation mechanism that will ensure the proper implementation of the
resettlement project for the residents of Estero de Paco. The committee head officer
added that they conducted three sets of dialogue in the residents of the Estero de
Paco alongside with their leaders as regards to their resettlement program, they also
conducted an ocular inspection in the Estero, called on community meetings,
conducted surveys, area mapping, coordinated with the NGOs concern with their
program, and they created a master list that featured the names of official families
that will benefit from the relocation program.

The City of Manila through the Local Inter-Agency Committee also

coordinated with the City Government of Calauan, Laguna since the said city will be
the one who will serve as the receiving LGU for the resettled families coming from
Ester de Paco. As the head of the inter agency collaboration the City Government of
Manila, through its Urban Settlement Office, they must also be the one in-charge in
the assessment of the programs that they have conducted. In the case of Estero de
Paco, one of the means employed by the LIAC in order to know as to whether or not
their resettlement program succeeded is by going to the resettlement area from time
to time to look into the present condition of the residents that they resettled.

32 | P a g e
 B. Collaboration Process

The relationship between the City Government of Manila and National

Housing Authority was forged under the Local Inter-Agency Committee wherein
they share the common goal of promoting the urban development in terms of
settlement and social housing for the residents of the City of Manila. In relation to the
theory of collaborative governance by Ansell & Dash (2007), the starting point of the
collaborative process must consider the imbalances between resources or power of
the agencies involved, incentives to participate in the collaboration, and the history
of conflict or cooperation among those involved agencies. In terms of the
Resettlement Program for the residents of Estero de Paco, the City Government of
Manila through the Urban Settlement Office served as the supervising head of the
Local Inter-Agency Committee while the National Housing Authority along with the
other local agencies that falls under the LIAC as member agencies faithfully
performing their functions accordingly. Though the urban settlement office served as
the head of the committee, all the member agencies perform their duties equally.
With an aim to provide development services in terms of social housing, the
committee was formed in accordance with Urban Development and Housing Act.

In relation to the theory of collaborative governance, facilitative leadership is a

crucial factor in the success of the collaboration process. In the case of the
Resettlement Program for the residents of Estero de Paco, the NHA along with the
other members of the Local Inter-Agency Committee encourage NGOs, private
organizations and peoples organization to participate in the collaboration process.
Collaboration with NGOs, private organizations, and peoples organization are
practiced through Joint Venture by local agencies with other non-governmental
organizations. It serves as an empowerment for the residents of Estero de Paco and to
other NGOs, particularly to the AFI, which the NHA had undergone a memorandum
of agreement with in facilitating the resettlement program in Calauan, Laguna.

An institutional design is also an important component for the success of the

collaborative process according to Ansell & Dash. In relation to the implementation
of the program for Estero de Paco residents, the share of resources such as
manpower, funds, land, facilities and services has been widely visible to the practice
of the Local Inter-Agency Committee. The institutional design between the Urban
Settlement Office of the City of Manila, National Housing Authority and other local
agencies performed their tasks on a more efficient and effective manner under the
principle of cooperation and participative planning.

33 | P a g e
 A shared understanding and a common belief is one of the elements that make
a collaborative process successful. The NHA, City Government of Manila, and the
NGOs shared a common understanding that the Estero de Paco project will benefit
the community as a whole. The LIAC and the NGOs accepted the interest of other
groups and agencies and shared a common mission. The LIAC spearheaded the
project to promote urban planning and the protection of the residents while the
NHAs main concern is to provide houses for the ISF in Estero de Paco, and on the
other hand, the KBPIPs concern is the rehabilitation of the Pasig River. Even though
the main objectives of the participants in the collaborative process may vary, they
share a common goal, and that is to serve for the betterment of the community. They
shared a united belief that their common problem is the ISF in the Estero de Paco and
the common solution is to resettle the ISFs.

With a common goal and common mission, the collaboration of stakeholders

produced intermediate outcomes. The intermediate outcomes are the initial response
or actions of the collaboration such as small wims action, participative planning,
and joint-fact findings. The intermediate outcomes of the collaboration of the NHA
and City Government of Manila are the ocular inspections, structural mapping, and
their participative planning. The participative planning is conducted under the LIAC
meeting which focuses on the distribution of power and resources. The City
Government of Manila through the Urban Settlement Office will serve as the
supervisory head of the meetings and will set the pre-planning, planning and
assessment planning in the resettlement project. The LIAC meeting will be a face-to-
face dialogue by the LIAC members and other cooperative NGOs. In relation to the
theory of collaborative governance, the face-to-face dialogue is a crucial element in
collaborative process for it to succeed. Dialogue and meetings is an effective way in
to build trust with member-agencies and participants.

The collaboration process in the resettlement program for the Estero de Paco
residents was strengthened by the built trust by every stakeholder to one another.
Each and every member of the Local Inter-Agency Committee particularly the NHA
and the Urban Settlement Office shared a common goal in implementing the said
program. The effectiveness by the agencies in executing their duties and tasks were
noticeably affected by the level of confidence towards the Local Inter-Agency
Committee. The NHA and the Urban Settlement Office established a harmonious
working relationship throughout the process of resettling the Estero de Paco
Residents. The Estero de Paco was the pilot project by the LIAC together with the
KBPIP in resettling the ISF in different esteros within Manila. The Estero de Paco
project provided an established trust and harmonious relationship for future
collaboration projects.

34 | P a g e
 Interdependency also plays a vital role in the implementation of the
resettlement program in Estero de Paco. The NHA and the City Government of
Manila promotes the interdependence of every member-agencies of the LIAC to one
another for the fulfillment of the resettlement program. According to the
collaborative governance theory, interdependence will provide a much more efficient
manner in fulfilling the goals of a certain project. In case of the resettlement program
in Estero de Paco, the Local Agencies rely the success of their actions in the
effectiveness of other agencies actions. An example would be when the City
Government of Manila relied on the MMDA in transporting the relocates to Calauan.
Another example is the reliance of the NHA to the other non-governmental
organizations in constructing a much more stable and concrete houses. The success
of the NHA is dependent to the success of the social preparations and social works
done by the City Government of Manila. The perception of interdependency in
collaborative process displays the importance of the commitment by every agency
towards process implementation.

The recipient or beneficiaries of the resettlement program which are the

residents of the Estero de Paco will be the indicators whether the resettlement
program is successful. Part of the collaborative process is the participation of the
residents in Estero de Paco. The residents must participate by attending the peoples
organization dialogue and must submit the essential requirements to be a valid
beneficiary. Majority of the residents agreed that they know the reason for their
resettlement and believed that the LIAC will be able to provide solutions. Majority of
the residents also agrees that the set of requirements and conditions for the
resettlement program are justifiable. Based on the conducted survey, most of the
residents complied with these requirements.

Figure 5 illustrates the collaboration process of National Housing Authority

and the City Government of Manila through the Local Inter-agency Committee
(LIAC). The process and roles in implementing the resettlement programs of the
government would be elaborated further in the next part of this research.

35 | P a g e
Figure 5: Collaboration Process

36 | P a g e
 A. Implementation of the Relocation Process

The Local Inter-Agency Committee (LIAC) is involved in a participative

planning with various governmental agencies in the implementation of the housing
resettlement programs of the government. The planning is divided into three parts:
Pre-planning, Implementation of the plan, and Post-planning for careful evaluation
of the actions taken. First is the pre-planning part, in which they carefully assess the
situation in the area that needs to be relocated, they conducted ocular inspections to
survey the areas needed for relocation assistance and would call for community
meetings to hear the grievances of the residents. Conducting a survey is crucial to the
pre-planning process, by doing so they would be able to determine the full list of
names of the residents in the area that needs to be resettled. Developing a structural
map of the place would help in determining the size and scope of the area. After the
completion of the preliminary steps, The National Housing Authority (NHA) in
charge of the pre-qualification process of the residents would cross reference the data
previously gathered in previous housing plans to carefully deliberate and avoid the
so called Professional Squatters in taking advantage of the housing given by the
government. After careful deliberation, the NHA would then release the master list
of the accepted applicants for housing, they would then disseminate the information
of the needed requirements to be submitted by the applicants in accordance with the
housing policies and guidelines set by the government.

As to the implementation of the said plan, a total of three successive dialogues

were conducted in order to properly prepare the residents on their relocation. The
first dialogue aims to discuss the housing policies of the government and how they
plan on implementing it in the relocation process, the said dialogue would also
discuss the dangers of the area they are currently situated in. Weeks after the first
dialogue, the LIAC would again return for a second dialogue to discuss the
approved relocation site. In this dialogue the residents would now be asked to
submit the needed requirements for the approval of their relocation, they are also
asked to pay 250 pesos worth of cash monthly when transferred, failure to do so
would render their application useless. The second dialogue would also determine
the willingness of the residents to relocate to the approved relocation site. The NHA
would collect the qualifications needed by the third and final dialogue. The
requirements are: marriage contract, birth certificate, barangay certificate, police
clearance, certificate of employment, and a family picture. For those who are neither
married nor employed, they are asked to submit an affidavit of cohabitation and
certification of self-employment. The purpose of these are to know the legality of

37 | P a g e
their claims, that they are indeed part of a household that lives in an area needed to
be resettled.

The LIAC gave them an ample time to prepare the requirements necessary
before conducting the third and final dialogue. The final dialogue focuses on the
completion and submission of the requirements needed for relocation. Afterwards,
they were briefed on the relocation plans such as when and how they are going to be
transferred to the relocation site. Furthermore, they were given by the government a
financial aid of 18,000 pesos to help them in their fresh start in their new
environment; after all the requirements have been submitted and approved, each
resident that is to be relocated would be given an entry pass that they would present
to the persons-in-charge in the relocation site. They are to be transferred by a bus,
van, or a truck. The handicaps as well as the women and children are transferred
through buses and vans. The Commission on Human Rights (CHR) makes sure that
the transportation process is done accordingly and that no one is being maligned on
their way to the relocation site. The Department of Social Welfare and Development
(DSWD) provides the residents with food packs on their way to the site. They are
also given free check-ups before and after their transportation.

As soon as they arrive to the relocation site, they are welcomed by the
persons-in-charge of the place and are briefed on their new environment.
Furthermore, the allotment and assignment of houses to the residents was
conducted. The LIAC also created a Reception Action Center, which is strategically
placed in the Barangay Hall so that the residents may accessibly go to and ask for
further assistance if they need to.

Weeks after the residents have settled in their new environment, the Pasig
River Rehabilitation Commission (PRRC) would spearhead the monitoring process
and check the current conditions of the evacuated site. A census would be conducted
to check on the condition of the residents. Post-planning is to be done by the agencies
to assess the success of the implementation of the relocation plan. In post-planning
careful re-evaluation of the implementation would be done in order for them to
know the things needed to be addressed in future housing implementations, and also
the effectiveness of the entire committee in fulfilling its duties and responsibilities as
the lead agencies in the implementation of the housing policies set by the
government.

38 | P a g e
 C. Effectiveness of the Resettlement Program

In order to further assess the effectiveness of the program for the residents of
Estero de Paco a survey has been conducted to those whose already been resettled in
Calauan, Laguna which came from Estero de Paco. The researcher used indicators
such as: (1) the smooth flow of the relocation process, (2) as to whether or not they
were resettled on a safer place than their previous area of settlement which is
considered as a danger zone, and (3) did the community improve their socio-
economic well-being by giving them livelihood and job programs that will secure
their daily survival. These indicators will be presented as we go along the discussion
of the statistical results derived from the survey. The (4) challenges and issues during
the preparation of relocation, implementing the resettlement and in sustaining the
program will also be discussed.

1. Relocation Process

The process of relocation was also assessed by the relocated Estero de Paco
residents. The following were assessed through the survey:

1. Mode of demolition of the houses

2. Transportation Vehicle
3. Transportation
4. House Turnover
5. Turnover Process

39 | P a g e
Graph 1: Relocation Process

RELOCATION PROCESS
180
160
140
120
100
80
60
40
20
0
1 2 3 4 5
Talagang Sumasang-Ayon 61 74 63 50 64
Sumasang-Ayon 135 162 166 121 146
Hindi Masabi kung Sumasang-
63 48 25 52 65
ayon o Hindi
Hindi Sumasangayon 33 11 36 65 17
Talagang Hindi Sumasangayon 8 5 10 12 8

The graph above shows the comparison of answer for question 2.1-2.5 (See
Appendix C) and it determine whether the residents in Estero de Paco undergo a
correct process of relocation. Majority of the Residents agree that the relocation
process is fair. The results show that the residents were satisfied with the relocation
process that was implemented. The agencies and offices concerned have transported
the residents humanely as per compliance to the directives of the Commission on
Human Rights which is a member-agency of the LIAC. The modes of demolition of
the previous houses were assisted by some of the residents in order for them to
collect the spare parts of their houses and utilize it for future use. The vehicles that
were used in transportation were graded remarkably high because most of the
residents and their belongings were transferred safely and humanely.

The turnover process had also received positive remarks from the residents of
Estero de Paco. Majority of the respondents agreed that the turnover process was
convenient for every party. The process has a systematic procedure in handing over
the houses. 210 out of 300 respondents agreed that the turnover process was
convenient and systematic while only 25 disagrees that the turnover process is
convenient.

40 | P a g e
 2. Safe Zone

The safeness of the relocation site and the durability of the new house against
calamities were evaluated by the survey research. The Graph 2 shows that the
majority of the residents believe that the houses provided for them have a strong
quality and durable against natural calamities. In Graph 3, the results have shown
that residents agree that flooding is not a major problem in Calauan, Laguna.

Durability of the Flood Prone

house 3%

12%
10% 14% 23%

14% 14%

29%
48%
33%
Talagang Sumasang-Ayon
Talagang Sumasang-Ayon Sumasang-Ayon
Sumasang-Ayon
Hindi Masabi kung Sumasang-ayon o Hindi
Hindi Masabi kung Sumasang-ayon o Hindi
Hindi Sumasangayon Hindi Sumasangayon
Talagang Hindi Sumasangayon Talagang Hindi Sumasangayon

Graph 2: Durability of the House Graph 3: Frequency of flash flood

The visibility of the police and security officials in the relocation site were also
assessed. Graph 4 shows that the relocated residents felt the presence of police and
security officials. The results shows that 44% of the respondents agree the there is a
proper security system in their site while 25% of the respondents disagrees. In the
case of Estero de Paco, other than the presence of a police precinct, the community of
Calauan, Laguna sets up a security system or a method of securing their area even
though there is no police. The residents arrange for a Martial Volunteers from two
oclock until six oclock in the morning that deals with the problems of robbery
during nights.

41 | P a g e
 Security Fire Station/Fire
Fighters
10% 16% 13% 6%
12%
15%

28% 29%

31% 40%

Talagang Sumasang-Ayon
Sumasang-Ayon
Hindi Masabi kung Sumasang-ayon o Hindi
Hindi Sumasangayon
Talagang Hindi Sumasangayon
Talagang Sumasang-Ayon
Sumasang-Ayon
Hindi Masabi kung Sumasang-ayon o Hindi
Hindi Sumasangayon
Talagang Hindi Sumasangayon

Graph 4: Security of the Community Graph 5: Firefighting entities

However, the presence of fire station and fire fighting units is not felt by the
respondents. In Graph 5, the results show that 42% of the respondents stated that
there are no fire stations within the vicinity of Southville 7 Calauan, Laguna. The
other 40% of the respondents cant tell if there is a fire station or a fire fighting
mechanism within the vicinity of Southville 7. However, according to an interview
with the respondents, the residents state that their area in Calauan is much safer
from the threat of massive fire compared to Estero de Paco.

Overall, the residents agrees that the new relocation site is much safer
compared to their situation in Estero de Paco. The new relocation site is far from
waterways, creeks, and estero and it is not considered as a Danger Area. The
residents feel much safer in their new relocation site and consider it as a peaceful
community.

3. Poverty Reduction

The crucial part of the satisfaction of the residents resettled in Estero de Paco
is whether their life was alleviated from poverty. Graph 6 shows that most of the
respondents said they are not satisfied with the new relocation place in Laguna. It is
shown in the results that their lives were not alleviated even though they were
relocated to a much better site.

In the survey that was conducted, most of the residents are still planning to
leave their new location and move to another place. One of the reasons that was

42 | P a g e
given by the residents was that in Calauan, Laguna, the source of income is limited
compared to their previous neighbourhood, specifically the Estero de Paco. Some of
the residents leave their houses during weekdays because their jobs are situated in
other places such as Manila. Graph 6 drastically shows that the residents were
unsatisfied with the resettlement program in terms of providing livelihood programs
for the new settlers in Calauan, Laguna.

Graph 6: Satisfaction of the residents

Satisfaction
140

120

100

80
RATING

60

40

20

0
Hindi Masabi
Talagang kung Hindi Talagang Hindi
Sumasang-Ayon
Sumasang-Ayon Sumasang-ayon Sumasangayon Sumasangayon
o Hindi
Series1 10 54 87 111 38
Series2 12 29 67 129 63
Series3 24 46 81 110 39
Series4 24 33 88 100 55
Series5 21 63 104 69 43

Series1 = permanency of stay

Series2 = frequent visit of the government officials
Series3 = satisfaction on their living
Series4 = better livelihood
Series5 = better economic status

The question regarding the visitation or checking of the government officials

from the City of Manila or other government agencies to the residents of Estero de
43 | P a g e
Paco received a remarkably low grade. The residents said that the government
officials never checked their status and situation in Calauan after relocation. Out of
300, 192 of the residents said that the officials never checked them again while 67
cannot recall whether the officials visited them again and only 41 residents believe
that they were visited by the officials.

The circumstances that were stated above were the reason why some of the
residents and beneficiaries had sold their houses and left the relocation site. Most of
the residents have stated that their lives were not improved and they havent
experience a better economic status since the resettlement. The BayaniJuan has
provided livelihood programs and training for the residents, however, it is not
sufficient and beneficial for the residents. The livelihood trainings are not translated
into businesses or industries within the area. The training has no bearing for the
residents because they cannot practice it for the reason that there are no industries or
business in the area that can use their training.

4. Challenges

The resettlement program encounters different challenges along with

its implementation. Addressing the challenges is one of the indicators if the whole
program of resettling the Estero de Paco residents is successful and effective. The
challenges that were faced by the NHA and City Government of Manila in
implementing the resettlement program are the following:

a. Professional Squatters

According to the Urban Settlement Office representing the City of Manila and
the NCR IV Division head of NHA involved in the resettlement of the people living
in Estero de Paco, they stated that the problem with dealing with the so called
Professional Squatters still serves as one of the primary impediments as to why the
resettlement program cannot be fully considered as totally successful; because this
concern which according to them is present in every of urban community that needs
to be resettled still looms within the process. (See Appendix F) Professional
Squatters pertains to individual/group of people who occupy lands without the
consent of the land owner despite having sufficient income to afford legitimate
housing. The term also applies to those who made the lands given to them for sale,
for leased, and transferred their rights illegally to other people and go back to the
place where they previously came from. According to the two agencies, they are
trying their best, in the case of the resettled people in Calauan Laguna from Estero de
Paco, to improve the monitoring system in addressing their problem when it comes

44 | P a g e
to professional squatters because they believe that as long as this kind of business
exists, no matter how many times they conduct resettlement programs, housing
problems for the urban poor will never be reduced. These professional squatters
where also used by the politicians and other interest groups in pursuing their own
agendas.

b. Lack Of Funds

Another issue that the City Government of Manila and the National Housing
Authority encountered in addressing the problem in Estero de Paco is the lack of
funds (See Appendix F). Since the local government unit of Manila relies on the
Internal Revenue Allotment (IRA) in funding this kind of projects, the amount given
to the committee from the revenue allotted for the City of Manila was very limited
considering that there other programs that needs funding. The funding that was used
in purchasing the land where resettlement houses will be built solely came from the
National Budget allotted for the National Housing Authority by the President. These
two agencies both agreed that with the help of the ABS-CBN Foundation Inc.,
through BayaniJuan, they were able to outsource funds that will further develop the
resettlement facilities and produce more houses that will cover a total of 40,000 sq.
meters as part of the Memorandum of Agreement signed by NHA and the ABS-CBN
Foundation.

c. Politics

Dirty politics can also be considered as part of the impediments in

implementing the governments resettlement program for Estero de Paco. According
to the head officer of the Urban Settlement Office of the City of Manila, during the
process of dialogue, some politicians kept on polluting the minds of the residents
that there is no need for them to be resettled and that they can help the people to stay
on the Estero as residents of Manila with the help of their political connections. This
kind of tactic according to the head officer of the agency was being employed in
order to secure enough voters that will patronize the politician during the election
period. In addition, other interest groups such as radical movement and leftist party
list that see the resettlement program as marginalizing and undemocratic, are
leading demonstrations against the City Government of Manila and other agencies
that are part of the resettlement program. The head officer of the Urban Settlement
Office mentioned that theyre addressing the said problem by reiterating that what
they were doing is only in accordance to the mandate of their office that is why there
is no reason for the people of Estero de Paco should be swayed by self-serving
politicians. (See Appendix F)

45 | P a g e
 d. Receiving LGUs

The receiving LGUs are also part of the challenges that the interagency collaboration
committee struggle with as they implement their resettlement programs. The NCR
IV-Division head of the National Housing Authority stressed out that in the case of
Estero de Paco, the receiving LGU, which is the City Government of Calauan,
Laguna did not want to let the residents to be resettled in Calauan resettlement site.
(See Appendix F) The Calauans government did not allow the residents from Manila
to enter the resettlement site. The reason that was given by the City Government of
Calauan is that they were not informed about the project and they felt that they were
being bypassed by the City Government of Manila and the NHA. The NHA already
gave the clearance for the project and can implement the project regardless of the
approval of the City Government of Calauan but the NHA and the LIAC still
coordinated with the Government of Calauan to establish a harmonious relationship
for the sake of future projects. The head officer also mentioned that there is high
tendency for the receiving LGUs to demand before they allow passage of the
relocates such as: building of schools, creation of new cemeteries, and enough funds
to support the needs of the new residents of their city. These problems were resolved
through compromise and mutual agreements by the LGUs and government agencies
concern.

46 | P a g e
 CHAPTER V

SUMMARY, CONCLUSION, RECOMMENDATIONS

A. Summary

In answering the main and sub questions of this paper, indicators were used
to serve as parameters in assessing the effectiveness of the housing program
implemented by the City Government of Manila and the National Housing
Authority under the guiding principles of inter-agency collaboration. The answer to
these indicators has been elicited through a survey conducted by the researcher to
the resettled families from Estero de Paco, Pandacan, Manila to Calauan, Laguna; as
one of the beneficiaries of the governments housing projects. The results of the
survey have been validated by the answers made by the officials of the National
Housing Authority NCR division and the Head Officer of the Urban Settlement
Office of Manila through an interview concerning the housing program which they
implemented, since they were the ones who spearheaded the implementation of the
project.

The following indicators were used: (a) safe-zone, (b) relocation process, (c)
poverty reduction, and (d) challenges. The indicators represent the essential elements
needed in formulating an effective social housing program for poor families living in
areas considered as danger zones. A total of 300 residents of Calauan, Laguna which
formerly reside in Estero de Paco have been surveyed. The result of the survey shows
that in security away from danger zones, smooth flow of the relocation process, and
giving solutions to the different challenges during the relocation process has been
successfully dealt with by the implementing government agencies involved,
although, the statistical results shows that among the four indicators the lowest
number of approval from the residents came from the slow process of poverty
reduction because there is no sufficient livelihood programs available in their new
area of dwelling.

D. Conclusion

1. What are the duties and roles of the City Government of Manila & NHA in
implementing the resettlement program?

The main role of the City Government of Manila in this program is to be

the head of the Local Inter-Agency committee, which is composed of various
local government offices involved in handling a resettlement program. The

47 | P a g e
 Urban Settlement Office of Manila serves as the overall head of the Local
Inter-Agency Committee, in which the National Housing Authority is part of.
The National Housing Authority has the main goal of providing low cost and
socialize housing for the poor who are in need of affordable and comfortable
homes that will further improve their living condition. The IV NCR Division
office of NHA, in cooperation with the different agencies involved in the
LIAC, provided the land and houses where the residents of Estero de Paco
will be relocated which is on the site which the NHA owns in Calauan
Laguna.

2. How do the City Government of Manila and National Housing Authority

collaborate in the implementation of the resettlement program in Estero de
Paco?

The collaboration between the City Government of Manila and

National Housing Authority was forged under the Local Inter-Agency
Committee, wherein they share the common goal of promoting the urban
development and social housing for the residents of the City of Manila. The
city government of Manila through the Urban Settlement Office serves as the
head of the Local Inter-Agency Committee in which the NHA is part of. The
members of this committee fulfilled their duties faithfully by engaging
themselves on a series of pre-planning, implementing and post-planning
schemes which was built on trust and commitment in the process of resettling
the residents by the said agencies.

The collaboration process for the resettlement program was

strengthened by the trust of each stake holder of the program had for each
other, trust that has been rooted from interdependency, participative
planning, share in man power and resources among the agencies involved in
the program, and lastly, the commitment of every agency to fulfill their
respective tasks, these solidified the collaboration between the agencies
involved in the resettlement.

3. How does the City Government of Manila & NHA implement their
resettlement programs?

The City Government of Manila and NHA implement their

resettlement program by engaging themselves on a series of planning,
implementing, and post-planning procedures. In planning, the different
heads of the Local Inter-Agency Committee meet and plan about the steps

48 | P a g e
 that they will be using in implementing the resettlement program, which
includes the distribution of task, determining the source of funding, share
in man power, setting the target days for the program, and drawing key
strategies on how to execute their plan. After the planning stage, the
implementing stage will follow, a census will be conducted in order to
determine the number of families qualified to avail the resettlement
program, afterwards, three dialogues with the beneficiaries will be
conducted, in which orientations about the program is included. Finally,
the transfer of the families from Estero de Paco to their new home in
Callauan Laguna shall be made.

On the last part of the program, which is the post-planning, the LIAC
will assess the success of the resettlement program which they have
implemented as a committee; this assessment includes the determining of
their strengths and weaknesses in order for them to improve their
implementation on their succeeding projects.

4. What are the indicators to assess the effectiveness of the relationship

between City Government of Manila and National Housing Authority?

The following indicators were used: (a) safe-zone, (b) relocation

process, (c) poverty reduction and (d) challenges. The indicators represent
the essential elements needed in formulating an effective social housing
program for poor families living in areas considered as danger zone.

It is evident that there is an effective relationship between the National

Housing Agency and the City Government of Manila in terms of
implementing the social housing policies for the residents of Manila which
needs to be resettled. Through a special committee which is consist of various
local and national agencies under the form of the Local Inter-Agency
Committee (LIAC) wherein the National Housing Agency NCR IV Division
belongs to, with the primary housing and urban development office of the
City of Manila which is the Urban Settlement Office, they pursue the goal of
moving the dwelling place of the people from dangerous areas to live in a
more socialized and developed area that can improve their lives.

This claim can be justified by viewing the experience of the residents of

Estero de Paco, Pandacan, Manila. In which according to both the heads of the
Urban Settlement Office of Manila, and the NHA-NCR IV division head, the
positive feedbacks of the resettled people from the Estero de Paco to Calauan

49 | P a g e
 Laguna has been one of the most evident signs of success that they achieved as
they implemented the housing programs of the government.

While among the four indicators necessary in providing an adequate

social housing program the survey shows that 3 out of the 4 indicators drew
positive remarks from the residents affected by the housing program in the
areas such as the flow of the relocation process, delivery away from danger
zones, solving the challenges along the process the government received a
positive response from the residents of Estero de Paco that has been relocated
in Calauan Laguna, while on the area of poverty reduction the government
receive a low approval rating based on the statistics given since according to
most of the residents, there they were not able to gain access to a stable
livelihood program.

Even though, the National Housing Authority and the City

Government Of Manila garnered low approval grade on one of the indicators
in effective social housing provision, which is in the area of poverty reduction
because the survey illustrates the shortage of available livelihood program for
the resettled residents, still both the government officials who implements the
housing program and the residents who benefited from the success of the
implementation agreed that the project was a success which leads to the
notion that the collaboration between the National Housing Agency and the
City government of Manila under the structure of the Local Inter-Agency
Committee has effectively executed their housing program for the residents of
the Estero de Paco in Pandacan Manila.

C. Recommendations

a. Since one of the challenges on the housing implementation process has

become evident within the communication with the receiving LGUs, the proponent
of this research would like to recommend that the receiving LGUs must be invited
to be part of the Local Inter-Agency Committee starting from the pre-planning,
planning and up until the implementation and assessment stage of the housing
program so that there would not be any problem or any miscommunication.

b. The government agencies involve in implementing the housing programs

of the government must secure and visit the resettled residents to their current
dwelling in order for them to gain update on the living condition of the residents
because one of the sentiments that most of the resettled residents is that there was

50 | P a g e
 no frequent visitation from the part of the government officials involved in their
resettlement which makes them feel somehow neglected.

c. The practice of having a Local Inter-Agency Committee must be adapted

by other LGUs across the country since it gives an efficient and resourceful way of
implementing both the national and local governments development plans and it
also serves as collaboration that enables agencies to share manpower and resources
in achieving a common goal the proponents of this research would like to
recommend to other LGUs and government agencies to practice this kind of
organizational structure.

d. The government both the national and local level must be aggressive and
consistent in implementing their social housing projects in order for the condition of
their citizens that are living within the danger zones and highly underdeveloped
areas to be improved since the threat of climate change is causing us to experience
different natural calamities, therefore, it is appropriate that the lives of the citizens
must be safe guarded by removing them from dangerous areas and resettling them
to a community that is not just safe but also will improve their socio-economic well-
being.

e. The role of NGOs and different other private sectors interested in

improving the living conditions of the citizens must be promoted by continuously
engaging to various joint venture programs and public-private participation in
improving the living condition of the poor people and of the welfare of the society.

f. The role of the government agencies which implemented the housing

program must not end when the residents of a particular place has already been
resettled they must see to it that improvements on the well-being and welfare of the
resettled people must be consistently being promoted so that they will no longer opt
to go back on the condition where they came from before they have been resettled.

51 | P a g e
 BIBLIOGRAPHY

Alex B. Brillantes, J., & Moscare, D. (2002). Decentralization and Federalism in the
Philippines. Decentralization and Devolution in the Philippines.

Ansell, C & Gash, A. (2007). Collaborative Governance in Theory and Practice,

University of California, Berkeley, Oxford University Press, pp 543-571

Asian Development Bank (2004). City Development Strategies to Reduce Poverty.

Asian Development Bank Institute.

Asian Development Bank (2006). Urbanization and Sustainability in Asia: Good

Practice Approaches in Urban Region Development. Asian Development Bank
Institute of Cities Alliance.

Baac, V. G. &, Librea. R. C. (2012). The Marikina Resettlement Program: A Model for
Community and Development.

Ballesteros, M. M. (2002). The Dynamics of Housing Demand In The Philippines:

Income and Lifestyle Effect. Philippine Institute for Development Studies.

Ballesteros, M., & Egana, J. (2012). Efficiency and Effectiveness Review of The
National Housing Authority (NHA) Resettlement Program. Philippine
Institute for Development studies, Depart of Budget and Management.

Beider, H. (2012). Race, Housing & Community Perspectives on Policy and Practice.
Ltd. Publications Inc.

Berner, E. (1996). Legalizing Squatters Excluding the Poorest : Urban Land Transfer
Programs In The Philippines. University of Biefield : Faculty of Sociology
Research Center.

Brillantes, A. (2000). Decentralization,Devolution, and Democratization: Old

Concepts and Approaches. Kasarinlan: Philippine Journal for Third World
Studies

Carino, B. V. (2000). Urban Growth In the Philippines: Policies Issues and Problems.
University of the Philippines.

52 | P a g e
Carino, B. &, Corpuz,A. (2008). Towards a Strategic Urban Development and
Housing Policy for The Philippines. Philippine Institute for Development
Studies.

Chapisa, F. G. (2011). Transnational City-to city Partnerships as Strategic Tools for

Sustainable Urban Development- Case of the Haarlem. Erasmus School of
Economics.

Curley, A. M. (1992). Theories of Urban Poverty and Implications for Public Housing
Policy. Journal Sociology & Social Welfare. Vol.32, No. 2.

Donnovan, S. (1996). Housing, the state and Urban Poor Organization Metro Manila :
A Thesis presented in fulfillment of the requirements for the Degree of Doctor
of Philosophy in development study in Massey University. Massey University.

Fu,M. (2007). The Role of Housing Co-operatives In The Housing Affordability

Crisis.

Fuchs, R.J, Jones, W. J. &, Pernia, E. M. (1990). Urbanization and Urban Policies in
Pacific Asia. West view special studies on East Asia. Boulder, London.

Gerhander, M. &, Mornhed, E. (2006). From Slums to Adequate Homes: A study on

Housing solutions for the Urban Poor in Manila, Philippines. Lund
University,Sweden.

Hamid, N. &, Martin, J. (1999). Leadership and Change in City Management: Asian
Cities in the Contemporary Approaches to Municipal Management 21st
Century. Asian Development Bank.

Lagman, M.S. B. (2012). Informal Settlements as Spatial Outcomes of Everyday Forms

of Resistance: The Case of Three Depressed Communities in Quezon City.
Department of Geography. University of the Philippines,Dilliman.

Manansan, R.G. &, Mercado, R.G. (1999). Governance and Urban Development: Case
Study of Metro Manila. Philippine Institute for Development Studies.

Montgomery, M. R., et, al. (2004). Cities Transformed: Demographic Change and Its
Implications in the Develop World. National Academy of Science.

Muaa, R.(2013). Private Sector Initiative in the Estero de Paco Project: A Case Study
on Manila Waterways Urban Redevelopment Plan, Department of Civil

53 | P a g e
 Engineering, Global Hydrology and Water Resource Engineering Laboratory,
Urban and Regional Policy and Planning

Napier, M. (2002). The Origins and Spread of Core Housing. Urban Landmark,
United Kingdom.

National Anti-Poverty Commission. Office of The President of The Republic of The

Philippines.(2010). National Anti-Poverty Program

Odeh, K., Seckinger, A,. & Knecht S,F. (2009). Connected Urban Development (CUD)
Initiative as an Approach towards Sustainability in Urban Areas. Blekinge
Institute of Technology.

ODonnel, O. (2012). Strategic Collaboration in Local Government :A review of

International Examples of Strategic Collaboration in Local Government.
Institute of Public Administration.

Olesen, P. H. (2009). The Challenge of Squatters: An Assessment of Housing

Provision in The Philippines in the Context of Decentralization. Aalborg
University.

Oloffson, L. &, Truong, S. (2007). Sustainable Housing in Navotas, The Philippines :

A minor field study on Low Cost housing in Disaster Prone Areas. LTH
School of Engineering.

Primitivo, C. C., et,al. (2005). The Leading Factors for the Urban Development in
Asian Context: Case Studies of Makati. Cebu, Taipei,and Bangkok. Journal of
The Eastern Asia Society.

Quetulio-Navarra, M., Niehof, P. D., & Vaart, D. W. (2012). Social Capital In

Involuntary Displacement And Resettlement.

Rebullida, Ma,G., Endriga, D.H. &, Santos, G.M. (1991). Housing The Urban Poor:
Policies and Approaches. UP Center for Integration Studies.

Ragragio, J. M. (2002). The Case of Manila Philippines. UN HABITAT for Humanity.

Urban Development and Housing Act. R.A. No. 7279, fifth Cong. (1992).

Walsh, M., Stephen, D. &, Moore, S. (2000). Social Policy and Welfare housing
Policies. Stanley Thornes Ltd. Publications Inc.

54 | P a g e
Wang, J. (2012). Urban Development And Urban Planning In Contemporary China-
A Case study of Chengdu. Montana State University

Yamamoto, Y. (1996). Involuntary Resettlement in Urban Development Projects:

Project Experiences from the Philippines

ZipMatch. (2013, September 9). Real Estate Laws: Debunking the Misconceptions of R.A.
7279. Retrieved from ZipMatch Blog:
http://www.zipmatch.com/blog/debunking-the-misconceptions-of-ra-7

55 | P a g e