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2022 Portfolio-Inception Report (Global Future Cities)
2022 Portfolio-Inception Report (Global Future Cities)
In the last 10 years, the island of Cebu has experienced two of the most devastating typhoons:
(1) Category 5 Supertyphoon Yolanda (Haiyan) which hardly hit Northern Cebu in 2013, with 225kph
speed at the center and gustiness of 260kph; and
(2) Category 4 (upon landfall in Carcar, Cebu) Supertyphoon Odette (Rai) on December 16, 2021 (195kph
strength near center, with gustiness of 270kph) (PAGASA, 2022).
Cebu City was heavily affected by Typhoon Odette as it was along its landfall trajectory, with the City’s
road networks, critical facilities, power supply, water supply, and telecommunications severely damaged
and down for at least three to six weeks.
Figure 2. Tropical Cyclone Track during Northeast monsoon season. (Source: PAG ASA, n.d., cited in the conference report of
PEÑARANDA, n.d.)
Cebu City’s Resilience Challenged by Natural Disasters
The City’s resilience in infrastructure was put to test with the aftermath of Supertyphoon Odette in
December 16, 2021, disrupting energy and water supply in the communities, with simultaneous
occurrences of household fires in many barangays almost every week after the storm’s landfall. While
water and power supply were difficult for most households during the post typhoon down time, there
was also very little rainfall in December 2021 which aggravated the situation. There was no shortage of
supply for petroleum in the City, but motorists had to queue long hours in the gasoline stations for
about three weeks due to the shortage of generator sets and personnel to keep some stations
operating, with some stations that had to temporarily shut down because of the physical damage of
structures. Banking was also very difficult in all areas, with extremely long queues for ATM cash
withdrawals. With telecommunications down for more than four to six weeks, electronic payments
systems were unable to function. Deliveries of online stores were also not serving Cebu due to the down
times of transport networks by land, sea, and air.
Figure 3. Aftermath of the storm surge that brought massive damage to properties along South Road Properties (SRP) in Cebu
City. (Source: Author’s photos taken a few days after Supertyphoon Odette's landfall last December 16, 2021 in Cebu.)
In retrospect, another major disaster that hit Cebu City was an Intensity 7 earthquake due to the
movement of the North Bohol Fault, with a magnitude of 7.2 MW. It destroyed major areas in Cebu and
Bohol on its strongest ground shaking last October 15, 2013, with a total of 4,465 aftershocks. Although
earthquakes might be relatively seldom in Cebu, the whole island’s ridges are generally prone to
landslides due to the predominant limestone that dissolves easily by water discharges on steep slopes,
eventually forming underground caves or sinkholes (Miasco and Ambrad, 2018).
Attributes of Cebu City’s Existing Land Use to Climate and Disaster Risks Exposure and Vulnerability
Cebu City’s built-up areas are mostly situated in the lowlands, with origins as a Port City during the
Spanish Colonial Era and modernized with international ports during the American Period (Fajardo,
2019) (Kishiue, et al, 2003). Through the years of rapid urbanization, uncontrolled mixing and conflicting
land uses increased in the buildable lowlands, as development of the steep slopes of the City posed to
be more expensive and difficult.
As buildable lowlands became more scarce, urban expansion through land reclamation became a
necessity. The City’s first reclamation project started in the late 1962 until 1967, with a total of 169
hectares of reclaimed foreshore area from Cebu Port’s Pier 3 to the Subangdaku River (Bancom Realty
Corporation, 1980), intended to decongest the urban core (Uybengkee, 1980).
Figure 4. Cebu City's first reclamation project that was contracted by Cebu Development Corporation which started in 1962.
(Source: Bancom Realty Corporation, 1980).
Bancom Realty Corporation (1980) reports that during the inception phase of the reclamation project,
there were a total of 2,418 informal settlement families (ISFs) that were scattered around the pier areas
while middle income group ISFs were at the northeast portion. Some of these families had to be
relocated to sites in Consolacion, others were legally ejected, while some voluntary left.
In the later half of the 1990s, a 300-hectare reclamation project would be constructed along the south
coast of Cebu City as part of phase three of the Metro Cebu Development Project, which was then
known as the Cebu South Reclamation Project (CSRP) (Montenegro, Diola and Remedio, 2005), which
now presently is more known as the South Road Properties (SRP). Findings of the study by Amper
(2021) discussed how urban fishing communities were displaced from their livelihoods that relied mainly
on small scale fishing (“panawom (diving/spear fishing), pamasol (hook and line fishing), pamukot
(fishing using mesh nets), panginhas (gleaning), and panu (gathering shrimps and crabs at low tide”).
Amper’s study reports that as CSRP was implemented, these fisherfolks had to shift to mostly irregular
and informal service-related work.
Cebu City’s urban expansion has not only been
limited to reclamation of coastal areas in
attempting to decongest the lowlands, but has
been evident within the critical ecology of its
uplands as well. In a study by Kummer,
Concepcion and Cañizares (2003), it was seen that
the island of Cebu has virtually no remaining
natural forest. The same study states that while
Cebu receives less rainfall than other parts of the
Philippines, flooding in the lowlands are frequent,
which can be attributed to the aggradation of the
river caused by soil erosion from the degradation
of the uplands. The same authors state that the
decrease in agricultural productivity in the island
is primarily due to the uncontrolled soil erosion in
the uplands.
To this day, the continuous urban expansions are still happening towards the coastal areas and the
uplands of Cebu City, where critical ecosystems need to be protected to secure the sustainable growth
of the City. The foreseen impacts of Climate Change and disasters like water scarcity, flooding, and
landslides will become more pronounced, unless necessary urban growth limits are set in place and
implemented through stronger institutional arrangements and relevant and timely local legislation.
Climate and Disaster Risk Assessments: Risk and Exposure Maps of Cebu City
The coastal areas of Cebu City are vulnerable to Storm Surge Advisory 4 (Figure 8), while the uplands are
susceptible to High to Medium landslides (Figure 9) (NOAH, 2022). Areas in the barangays of Inayawan,
Bulacao, and SRP District are susceptible to flooding as shown in the 25-year return simulation (Figure
8).
Figure 6. Storm surge exposure along Cebu City's coastal areas (Storm Surge Advisory 4
only). Source: https://noah.up.edu.ph/know-your-hazards/storm-surge
Figure 7. Medium to High Risk vulnerability of built up areas in the Ports of Cebu City
(Storm Surge Advisory 4 only). Source: https://noah.up.edu.ph/know-your-
hazards/storm-surge
Figure 8. A simulation of a 25-year return period for Flooding shows that only Barangays Bulacao, Inayawan, and the SRP
District are susceptible to Low, Medium, and High Flooding. Source: https://noah.up.edu.ph/noah-studio
Figure 9. A simulation showing that most of the barangays in the uplands of Cebu City are Highly vulnerable to
landslides.
Source: https://noah.up.edu.ph/noah-studio
Housing in the Context of Cebu City’s Spatial Plans and Proposed Zoning Ordinance
The Cebu City Planning and Development Office (CPDO) has identified sites as Socialized Housing Zones
in its proposed Comprehensive Land Use Plan (Cuizon, A. Personal communication, 18 May 2022).
These sites include government owned and privately owned lots (See Figure 10).
Privately owned lands are designated by the City as resettlement sites on these parameters (Cuizon, A.
Personal communication, 01 June 2022):
1. sites within the urban area or on the fringes;
2. sites with little or no development;
3. site/s with existing informal settlers as occupants; and
4. housing sites to be distributed within the city urban limits to create balance in the overall
circulation/accessibility within the urban areas, securing equitable access to opportunities for
the end-users.
In an interview with the City’s DEPW Head (J. Reston, personal communication, 13 June 2022), it
transpires that the prioritization of infrastructure projects, including housing units for the resettlement
of informal settlers, emanates from a “long list” of Annual Invest Program (AIP) which is headed by the
oversight of the Local Chief Executive (LCE). It starts at the community level through the Barangay
Chairperson who executes priority requests from the constituents by filling out Form 101. The requests
pass through the CPDO for review before the “long list” gets endorsed to the City Development Council
(CDC) for further deliberation. Projects which qualify in the “long list” will be realized upon the
availability of the Local Development Fund (LDF), with priority projects to be finally decided by the City’s
Chief Executive (Mayor).
Sec 9. “The government…shall establish and develop resettlement sites for informal settlers,
including the provision of adequate basic services and community facilities, in anticipation of
informal settlers that have to be removed from the right-of-way site or location of future
infrastructure projects, pursuant to the provisions of Republic Act No. 7279 (UDHA)).”
Figure 11. The City’s updated Zoning Map as of March 2022, which is yet to be presented
in a public hearing (A. Cuizon, personal communication, 18 May 2022).
Existing Plans for the City’s Proposed Resettlement Areas
The City recognizes the urgent need to relocate informal settlement families, especially those in the
danger zones (M. Rama, personal communication, 14 June 2022). Priority agenda of the Local Chief
Executive (LCE) is to ensure that resettlement areas are close to the communities originated by the
affected families, as this minimizes disruption of the social fabric. The LCE also recognizes the
importance of expropriating properties close to the riverbanks where the informal settlement families
have been staying for years. In addition, the Chief Executive desires that the new affordable housing
developments be strategically located along transport network nodes like the proposed monorail
system.
The City’s housing projects are within the oversight of the Committee in Infrastructure and Housing,
with the City’s DEPW as the implementing arm for the actual construction of the structures. Over the
years, several housing projects for the relocation of the informal settlements in danger zones and those
with pending orders for demolition have been crafted but most never came into fruition due to various
issues (J. Reston, personal communication, 13 June 2022).
The Office of the City Architect (OCA) has delivered designs for the relocation of households in the
barangays of Pahina Central, San Nicolas, Mambaling, and Duljo. These plans are requested on an “as
needed basis” such as in an event of fire in February 2022 which affected informal settlements in
Barangay Mambaling (E. Cuizon and E. Lipang, personal communication, 18 May 2022).
Barangay San Nicolas is an ongoing development which is in a mangrove area within a titled property
that is owned by the City. Its beneficiaries are dependent on the fishing industry which requires an area
for this livelihood. The City has provided a Reblocking Plan, accommodating 4 storey residential building
that is structurally designed for an additional 5th storey expansion.
The plan for Mambaling intends to accommodate over 600 families that were affected by a recent fire.
The plan has 228 subdivided lots which are intended to be built with “shell only” homes. It will be using
the half-house concept with user-based designs (E. Cuizon, personal communication, May 18, 2022).
Another development is situated in Barangay Duljo which is for three to six storey Medium Rise
Residential Building, with a budget allocation of PhP117,000,000 (E. Lipang, personal communication, 18
May 2022). This project will benefit families that are displaced by the ongoing DPWH Flood Control and
Mitigation Projects along Kinalumsan River.
A portion of informal settlements living along the coasts of Brgy Mambaling and Brgy Duljo might be
displaced further as the Phase 1 of the Construction of By-pass and diversion roads in Mambaling South
Boulevard is ongoing. In an interview with DEPW (J. Reston, personal communication, 13 June 2022), a
70-meter waterway easement from the edge of the SRP embankment is to be achieved as originally
planned for this reclamation project, to help ensure that water outfalls can properly drain out from the
City. These infrastructure developments in the pipeline might further displace additional informal
settlement families in the future.
In the port areas, informal settlers in Sitio Silangan in Brgy Tejero are living within a publicly owned lot
along Arellano Street, which is entirely highly susceptible to storm surge (Advisory 3 & 4). A proposed
housing project for this community could not be built on the existing site as the City does not have yet
available units to temporarily house the affected families. The proposed resettlement MRB will be built
on site within the property that is publicly owned (J. Reston, personal communication, 13 June 2022).
Figure 12 a Figure 12 b
Figure 12 c
Figure 12.
a) A photo of a street view of the informal settlement community which encroach a major logistics road (Arellano St.)
along the Port Area
b) A simulation of the susceptibility of storm surge (Advisory 3 only) along Arellano Street in Port Area.
c) An architectural rendering of a Proposed Design for a 4-storey with Roof deck MRB Housing for the ISFs located along
Arellano St. in Brgy Tejero. Source: Office of the City Architect (June 2022)
Figure 13. Architect's rendering of a Proposed MRB in Brgy San Nicolas. Source: Office of the City Architect (June 2022)
Figure 14. Typical Floor Plans for a Proposed MRB for Brgy Pahina Central. Source: Office of the City
Architect (June 2022)
Figure 15. Proposed Typical Floor Plans and Site Development Sketch Plan for the Mambaling ISFs
beneficiaries who were affected by a recent fire in February 2022. Source: Plan retrieved from the
Office of the City Architect (May 2022).
Existing Institutional Arrangements and Legal Basis for Socialized Housing
Batas Pambansa (BP) 220 and its Implementing Rules and Regulations (IRR) define the minimum design
standards and requirements for economic and socialized housing projects. The Republic Act (RA) 7279,
or more known as the Urban Development and Housing Act (UDHA) of 1992, provides for the
mechanisms in the implementation of housing programs, making decent housing available and
affordable for the underprivileged and homeless citizens in urban and resettlement areas.
The Department of Interior and Local Government (DILG), through its Memorandum Circular 2008-143
entitled "Creation of Local Housing Boards", requires the creation and devolution of the functions and
powers to a Local Housing Board (LHB) as the sole clearing house for eviction and demolition activities
concerning informal settlers in danger areas, public places, and government projects. The Mayor is the
Chairperson of the LHB (See Figure 4).
Cebu City’s Ordinance No. 1969 established the guidelines on beneficiary selection for the Socialized
Housing Program of the City (9th City Council – Cebu City, 2003). This ordinance also defines further the
implementation of the local socialized housing program by the City through the Division for the Welfare
of the Urban Poor (DWUP) and the Local Housing Board (LHB). As defined in Section 2 of this Ordinance,
"Areas for priority development" refers to those areas declared as such by the Cebu City Local Housing
Board (LHB). "Resettlement areas" refers to areas identified by the LHB which shall be used for the
relocation of the underprivileged and homeless citizens.
The LHB is the approving body for all applications of project proponents for a “Certificate of Compliance
for Administrative Demolition and Eviction” (See Figure 5 for the Checklist of requirements). Among the
requirements include a certification of availability of resettlement/relocation and development plan of
relocation site (DILG, 2008).
Figure 16. Composition of the Local Housing Board. Source: Department of Interior and Local Government (DILG), through
Memorandum Circular (MC) 2008-143 (Accessible online: https://dilg.gov.ph/PDF_File/issuances/memo_circulars/MC2008-143.pdf)
Figure 17. Checklist of Requirements for A Project Proponent’s Application for Certificate of Compliance for Administrative
Demolition and Eviction. Source: Department of Interior and Local Government (DILG), through its Memorandum Circular (MC)
2008-143. Accessible online: https://dilg.gov.ph/PDF_File/issuances/memo_circulars/MC2008-143.pdf
Identified Issues & Proposed Mitigation Measures
Table 1 shows the Risk Management Plan, with the following seen as possible issues and risks during the
duration of this project’s delivery:
The entire duration of this project is still within the era of the CoVid19 pandemic, with the volatility of
government restrictions still present and clear. On that premise, the Cebu Delivery Team (CDT) ensures
with satisfactory levels of effort the continuity of the program amidst these uncertainties. As of this
writing, Cebu City is still under IATF CoVid19 Alert Level 1, the most unrestrictive category for all
establishments and institutions. However, both the beneficiary LGU and CDT do not discount the
possibility of the restrictions to become tighter in the coming months.
The current Local Chief Executive will assume office as the Mayor of Cebu City from July 1, 2022 until
June 30, 2025. Within that three-year term, there might be changes in the leadership and composition of
the City’s Departments and Divisions, respectively. There is also a possibility of shifts of leadership in
both the Legislative and Executive Offices of the City. These changes might affect the delivery of the
recommendations which shall transpire in the output/s of this project.
Project implementation in the Local Government Units is governed by the Government Procurement
Reform Act (RA9184). Large scale to mega projects are usually taken on through RA6957 as amended
by RA7718 (Philippine Build-Operate-and-Transfer (BOT) law), allowing LGUs to enter into contract with
the private sector through Build-Operate-and-Transfer (BOT) and Build-Transfer-and-Operate (BTO).
RA7718 and its Implementing Rules and Regulations (IRR) broadened proposal options for the Private
Public Partnerships (PPP). The process of budgeting and procurement however takes at least a couple
of years, which in turn bring consequences to the relevance of the data and recommendations as outputs
of this study.
In addition, as land is a scarce resource, especially for the case of Cebu City’s limited buildable lowland
areas, there could be a high rate of conflict in land use among the City’s stakeholders. The role of the
beneficiary LGU is to harmonize such conflicts through consistent consultations, dialogue, and vision
setting with the goal of attaining common objectives for the best use of the City’s lands. While this study
is limited to giving evidence-based recommendations in terms of disaster safe and climate resilient
infrastructure and housing for Cebu City, part of the sustainability of the recommended interventions will
be dependent on the executability of such primarily at the community level.
Finally, Cebu City is geographically located in a Tropical Cyclone Track during northeast monsoon
season annually. Its uplands are also critical to the threats of landslides due to its continuous
degradation. The City being an ecologically sensitive location, along with the entire Metro Cebu, where
the densest population reside, it is highly vulnerable to natural and man-made disasters. The delivery
team and the beneficiary LGU need to work together in buffering contingencies which may arise due to
these possible emergencies brought by man-made disasters and natural hazards.
Table 1. Risk Management Plan for the Cebu Delivery Team - Future Cities (Duration: April 01, 2022 until December 31, 2022)
RISKS Likelihood of Impact of the Severity Owner Mitigating Action Contingent Action
ID #
occurrence Risk
Category Description (Based on Impact (Person who manages (Actions to mitigate the risk eg. reducing (Action to be taken if the risk happens)
Low Low Low
Medium Medium Medium
High High High
001 COVID19: Pandemic Related Restrictions Restrictions in face to face meetings due to higher Team Lead Mitigation is limited to consistent 1. Deploy alternate meeting and data collection
002 TWG: Change of Leaderships in LGU 1. Change of Local Executive Functions FCDO / Team Lead Mitigation is limited to consistent 1. Realignment of relationships
1.1. Change of Department Heards monitoring of leaderships/plantilla as 2. Re-briefing of the incoming TWG/leaders
1.2. Change of Division Heads foresight for next steps.
003 COOPERATION: Silos in Inter-agency/LGU Approval and implementation of Team Lead Consistent communication with Realignment of scopes of the CDT intervention/s.
project implementations projects/programs that are not properly stakeholders on updates of plans and
communicated among stakeholders programs.
004 DATA: Inaccessible data 1. Highly classified data Deputy Team Lead Setting parameters of qualifying data Realignment of scopes based on accessible data
2. Data with security implications Data Management based on outputs
3. Internal data which is yet premature to share
005 EMERGENCY RELATED: Natural or man Occurrence of any natural or man-made disasters FCDO / Team Lead Mitigation is limited to consistent 1. Deploy alternate meeting and data collection
made disasters which places the City or province in a state of monitoring as foresight for next steps. options
emergency 2. Secure health and safety protection of personnel
deployed in the field
006 DELAYED IMPLEMENTATION OF Gap of time from the recommnendations of CDT FCDO / Team Lead / Clarity in the delivery that the Levelling of expectations from the outputs with the
RECOMMENDATIONS: Data becomes until the actual implementation phase makes LGU recommendation principles are time project/program aspirations of the LGU within
obsolete some of the data / evidence irrelevant and/or bound. timeframes.
inacurate.
007 CONFLICTING LAND USE: Land Use Plan vs Unharmonized objectives in the best use of the LGU 1. Timely public hearing by LGU on Land This risk can only be managed within the duration
Common Objectives land. Use Plans. of the CDT's delivery. Beyong this timeframe, the
2. Timely and relevation Legislation by LGU can ensure conflict resolution by consistent
LGU to secure the proposed Land Use dialogue and updating the necessary Ordinances.
Plans.
References:
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Philippine Planning Journal, Vol XII, No 1, page 1.
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