NATURE AND TYPES OF PLANNING

1
 PLANNING

JOHN FRIEDMANN

Planning is primarily a way of thinking about socio-

economic problems, oriented predominantly toward the
future, is deeply concerned with the relation of goals to
collective decisions and strives for comprehensiveness
in policy and program

2
 PLANNING

PETER HALL
The making of an orderly sequence of action that
will lead to the achievement of stated goals or goals

DIANA CONYERS AND PETER HILLS

A continuous process which involves decisions,
or choices, about alternative ways of using available
resources, with the aim of achieving particular goals at
some time in the future.

3
 PLANNING
JOHN RATCLIFFE
(a) Allocation of resources, particularly land, in such a
manner as to obtain maximum efficiency, while paying heed
to the nature of the built environment and the welfare of the
community;
(b) Act of anticipating change, and arbitrating between the
economic, social, physical and environmental forces that
determine the location, form, and effect of urban
development;
(c) Concerned with providing the right site, at the right time,
in the right place, for the right people

4
 Concept of Planning
Fundamentals

- Planning as a universal skill involves outcomes before

choices among alternatives (risk and uncertainty).

- Central element of planning is the desire to direct change

to produce beneficial consequence at some point in the
future (as a “vision”)

- Planning take place along a time continuum (future-

oriented activity)

5
 Need for Planning

• The justification for the need for planning may be

provided on both scientific and normative grounds.

- Self-direction is the objective of planning which is …

“an activity by which man in society endeavors to gain
mastery over himself and to shape his collective future
consciously by his power of reason.”

6
 Distinction between
Policy Planning and Comprehensive Planning

SCOPE:
Policy planning is directed to a particular issue, while
comprehensive planning considers all aspects of a
system simultaneously, whether or not any specific
problem or opportunity relating to that aspect has been
identified.

7
 Distinction between
Policy Planning and Comprehensive Planning

PRODUCT:
Comprehensive planners usually develop a plan. The
product of policy planning include memoranda,
position papers, draft legislations, and even letters or
phone calls.

8
 Typologies of Planning

Instrumental classification
1 – As a means or premise for decision-making,
planning is a method for arriving at decisions.

Prescriptive classification
2 – Based on the prescription on how planning
ought to be conducted.

9
 Instrumental Classification

Rationale-Comprehensive Planning – Has a

scientific basis. It proceeds from the enunciation of a
goal, and techniques are used to achieve goal.

10
 Sir Patrick
Rational-Adaptive-Comprehensive Geddes and
Lewis Mumford
or Synoptic Planning

• Uses Reason more intensively - „rational‟ or scientific

tools

• Adjusts or „Adapts‟ to Local Demands, Limitations &

Peculiarities; “adaptive” element was influenced by the
tenet of Systems Theory that “the only thing permanent is
change”

• Has roots in Geddes „Survey-Analysis-Plan‟ (SAP) -

theoretically benefits the whole of society and the larger
natural environment
11
 Sir Patrick
Rational-Adaptive-Comprehensive Geddes and
Lewis Mumford
or Synoptic Planning

• „Comprehensive‟ because it tends to „cover all bases‟,

all aspects, all sectors, hence – overwhelming in terms
of information quantity

• Data overload – massive, extensive, voluminous -

neophytes can get lost in the maze. Challenge is not to
miss the trees as you walk through the forest

• Process is long and tedious, realistically not less than

four months– it can not make quick decisions

12
 Sir Patrick
Rational-Adaptive-Comprehensive Geddes and
Lewis Mumford
or Synoptic Planning

• Has a window for participation, allows many people

from all walks of life to contribute.

• Tends to be “static” within its own time-frame; needs to

be constantly updated after each planning period (e.g.
every three years)

• Planner can be likened to an Expert-Scientist,

Technical Specialist, Forecaster who is making a
prognosis, educating the public on future scenarios.

13
 Instrumental Classification

Remedial Planning – The salient characteristic is that

it is initiated in response to a dissatisfaction or a painful
situation. The aim is to move away from the
dissatisfaction or pain rather than toward some goal or
end state.

14
 Instrumental Classification

Strategic planning – a form of planning that rejects

the principle of comprehensiveness but accepts the
premise of planning as a rational process. It begins
with the procedure of identifying issues in planning,
after which strategies are designed to solve a problem
or take advantage and promote opportunities.

15
 Dr. Henry
Strategic Planning Mintzberg

• Strategic Planning is interwoven into Management. It is

not separate and distinct from the process of Strategic
Management

• It is an aggressive pursuit of “change” through a potent

strategy that can bring optimal results

• Ensures that all options are explored and that most

appropriate option is selected

16
 Dr. Henry
Strategic Planning Mintzberg

• Does not need comprehensive or voluminous data but

only manageable data relevant to strategic issues

• Can be used in conjunction with broader forms of

planning

• Tends to focus more on economic, physical,

infrastructural, institutional solutions that often benefit the
enthusiastic lead actors and lead sectors who carry it
out;
17
18
Strategic Planning Model

19
 Instrumental Classification

Allocative planning – distribution of resources among

a number of competing users.

Issue-focused planning – used primarily to achieve

acceptance and implementation of goals and
objectives. Emphasis is on designing strategies that
will overcome resistance to a plan or issue.

20
 Instrumental Classification

Incremental Planning - Policy-makers come to a

decision by weighing the marginal disadvantages of a
limited number of alternatives. Rather than working on
long-term objectives, they move ahead through
successive approximations. The mechanism of
„partisan mutual adjustment‟- working out of different
claims through compromise, adherence to procedural
rules.

21
Incremental Planning
– also called “Disjointed Incrementalism”

• Charles Lindbloom - "the science of muddling through."

also called "disjointed incrementalism” or “partisan
mutual adjustment”

• Unified public interest can not be defined; instead it is

determined through negotiation and political
compromises. „push and tug‟ of decentralized bargaining
processes best suited to a free market.

• Plan is determined through politics; Planner acts as

mediator to determine common interest.
22
Incremental Planning
– also called “Disjointed Incrementalism”

• At times, planning becomes a practice of what is

feasible politically instead of what is technically
efficient and effective.
(Campbell & Fainstein 1997:1)

• Hence, Decision-making is a succession of

approximations.

23
Incremental Planning
– also called “Disjointed Incrementalism”

• CRITIQUE: When there is no overall theory or

general principle that guide inquiry, actions tend to
become…
– Disjointed, segmented, incoherent, and un-integrated
– Actions are Causistic – “case-to-case” basis –
– Over time, decisions will tend to negate or nullify
each other amidst changing circumstances and
evolving conditions of the landscape.

24
 Instrumental Classification
Indicative planning -Relies on power of:
• the persuasion of solid information and analysis of well-
based projections of trends and projections of future
conditions;
• of appealing future scenarios and alternative strategies;
and
• evaluation criteria with which the people who review the
plan, and who are called upon to adopt its proposals, can
identify.

25
 Prescriptive Classification

Advocacy planning – The means to carrying out the

process including an informed citizenry. Working on
behalf of community groups, advocate planners act as
proponents of specific substantive planning solutions.

26
 Prescriptive Classification

Radical planning – Begins with the assertion that

modern planning – the rational-comprehensive
model and modified variation of that model – are
elitist, centralizing and change resistant. It is a
concept of planning based on system change
and a decentralized means for making
decisions, facilitation of human development,
and consideration of ecology.

27
 Prescriptive Classification

Normative/Functional
– Concentrates on means. Goals or ends are assumed
given. The function of planning is to devise methods
and procedures for achieving goals, irrespective of how
goals are defined. Better information leads to better
policy decisions.

28
 Prescriptive Classification

Participatory planning
– Planning results will tend to reflect more accurately
the needs of a community or constituency than if the
planner tried to determine the needs. Another
orientation is that citizen should participate in
planning regardless of any practical results.

29
 Daniel Burnham

Traditional Planning Approach

The Master Plan Approach or Imperative Planning -

a grand one-shot attempt, its end-product is long
range (20–40 years) affecting one whole
generation, but can be massively disastrous when
in error

Tends to be „top-down‟ or implementing only the

dominant vision of an authoritative leader or clique;

30
 Daniel Burnham

Traditional Planning Approach

Strong on physical planning; comprehensive in

terms of physical design (architecture, engineering,
etc) but inadequate in terms of social & other forms
of analysis

Seems to be more applicable in planning tabula rasa

– planning from scratch, where there is empty land
and no people occupying it, but not when cities are
already settled; wherein public consent has to be
solicited.

31
 Systems View of Planning

Concept of a system

- A set of objects together with relationships between

the objects and their attributes
(Lein, 1997)

- A set of interrelated elements together with relations

between the elements and among their states that
functions in a complementary manner
(Hall and Fagen, 1959)

32
Systems Theory to Planning

Norbert Wiener

“Cybernetics” (Norbert Wiener,1948;Ashby,1956) –

interdisciplinary science dealing with communication and control
systems in living organisms, machines, and organizations
“System is a set or group of interconnected components
interacting to form a unity or integrated whole.” “Relationships”
tie the system together
33
Systems Approach to Planning
systems view of planning represents a systematic attempt to use reason and logic to
reduce confusion and increase man‟s control over his social, economic and physical
environment.
34
 Systems Planning Approach by
George Chadwick
Problem Finding

Goal Formulation System Description

FEEDBACK
FEEDBACK

Projection of goals System Modelling

Evaluation of projection System projection

Evaluation of alternatives System Synthesis

Evaluation of
performance System Control

35
THE CUBE DIAGRAM OF PLANNING

36
 Spatial Dimensions
of Comprehensive Planning
Spatial
Levels Scope of Planning Activities
• Establishes the context within which all lesser order plans
can be formulated.
NATIONAL PLANNING

• Resolution of conflicts among long- and short- objectives

and establishment of priorities among action programs.
• Overall development of natural resources as national
wealth or total resource base.
• Brings together, at the more practical level , policies
covering economic and resource development with
national urbanization plans.
• Confront the problems of improving the standards of living
and environmental conditions.
37
 Spatial Dimensions
of Comprehensive Planning
• Sets out the necessary framework for the practical solution
of regional problems within the context of national policies.
REGIONAL PLANNING

• Links broad government policies through vertical policy

action system within the spatial and territorial dimensions.
• Optimal balance between the natural environment and the
allocation of development resources.
• Most suitable implementation of policies and programs and
for coordination of activities.
• Resolves interrelationships among settlements including
roles and functions within the network of settlement system
within the region.

38
 Spatial Dimensions
of Comprehensive Planning

• Designs staged program of spatially distributed investments

which specify nature of activities to be performed and kind of
structure to house them.
LOCAL PLANNING

• Transcends the functional allocation of activities in space in

planning of settlements, including proposals covering the
various social mechanisms, laws, regulation, policies and
forms of governmental organizations.
• Establishes harmonious relationships among the many
different components of the settlements so as not to produce
undesirable effects on the other.

39
18 regions

40
Levels of Planning by Planning Area

• National-covers the geographic boundaries of the entire

Philippine territory
• Regional- a planning area that is sub-national and
supra-urban
– Super region
– Administrative region
– Autonomous region (i.e. ARMM)
– Economic region
– Metropolitan area (e.g. MMDA, Metro Cebu, Metro Naga)
– Natural resource-based (Bicol river basin, Laguna Lake,
Pasig River)
41
 PLANNING AREA

• Local Government Unit - a planning area that is

within political subdivisions of the country

• Region - A sub-national administrative unit

comprising of several provinces having more or less
homogenous characteristics, such as ethnic origin of
inhabitants, dialect spoken, agricultural produce, etc.

42
 PLANNING AREA

• Province - The largest unit in the political structure

of the Philippines. It consists, in varying numbers, of
municipalities and, in some cases, of component
cities. Its functions and duties in relation to its
component cities and municipalities are generally
coordinative and supervisory.

43
 PLANNING AREA

• City - There are three classes of cities in the

Philippines: the highly urbanized, the independent
component cities which are independent of the
province, and the component cities which are part
of the provinces where they are located and subject
to their administrative supervision.

44
 PLANNING AREA

• Municipality - Is a political corporate body which is

endowed with the facilities of a municipal
corporation, exercised by and through the municipal
government in conformity with law. It is a subsidiary
of the province which consists of a number of
barangays within its territorial boundaries, one of
which is the seat of government found at the town
proper (poblacion).

45
 PLANNING AREA

• Barangay - The smallest political unit into which

cities and municipalities in the Philippines are
divided. It is the basic unit of the Philippine political
system. It consists of less than 1,000 inhabitants
residing within the territorial limit of a city or
municipality and administered by a set of elective
officials, headed by a barangay chairman (punong
barangay).

Source: Philippine Statistics Authority

46
 Levels of Planning
• TIMEFRAME/DURATION OF PLAN

Short Term 1-3 years e.g. expenditure plan

Medium Term 5-7 years e.g. development plan
Long Range 10-30 years e.g. CLUP
20-50 years e.g. Masterplan

• Time-horizon of the envisaged future varies

according to the type and level of planning
47
 National Level Plans

National Framework for Physical Plan

- A long-term (2001-2030) physical framework plan
specifying land use policy guidelines on settlements
development, production and protection land uses,
and infrastructure development; based on sustainable
development and growth with social equity principles.

48
 National Level Plans

Medium-Term Philippine Development Plan

(MTPDP)
– Development blue print that is co-terminus with the 6-
year term of the office of the president
– Provides the overall strategy to spur economic growth
and development

Medium-Term Philippine Investment Plan (MTPIP)

– Addresses the investment requirements of MTPDP

49
 Provincial Plans

• Provincial Physical Framework Plan (PPFP)

• Provincial Development Plan (PDP)
• Provincial Development and Physical Framework
Plan (PDPFP)
• Provincial Development Investment Program
(PDIP)

50
 Provincial Plans

Provincial Development and

Physical Framework Plan (PDPFP)

Provincial Physical Framework Plan and Provincial

Development Plan to address the disconnect between spatial
and sectoral factors and between medium and long term
concerns. It contains the long-term vision of the province, and
identifies development goals, Strategies, objectives/targets and
corresponding PPAs which serve as primary inputs to provincial
investment programming and subsequent budgeting and plan
implementation.

51
 Municipal Plans
• Comprehensive Development Plan (CDP)
– Represented by the sectoral development plans (social,
economic, infrastructure, environmental management,
institutional)
• Comprehensive Land Use Plan (CLUP)
– Land use policies
– Land allocation for general and urban land uses
(residential, commercial, industrial, institutional)
• Local Development Investment Program (LDIP)
– Prioritized list of Programs, Projects, and Activities (PPAs)
in the medium-term that could be funded by the local
government and other possible sources of funds
52
Hierarchy and Linkages of Plans

53
 Hierarchy of Planning Institutions
Level Preparing Adopting Body Reviewing Approving
Body Agency Agency
National NLUC National Land NEDA Board President
Technical. Use Committee
Comm
Regional RLUC and Regional Dev‟t. NLUC NEDA Board
NEDA Staff Council

Provincial PLUC and Sangguniang RLUC HLURB

Staff Panlalawigan

Metro City Devt Sangguniang RLUC or HLURB

HCC / ICC Council and Panglungsod MMDA
Staff
City/ Devt Council Sanggunian PLUC Sangguniang
Municipal Panlalawigan
 REMEMBER

• CLUP/Physical Framework – Policies

• CDP – Programs

• ELA – Political agreement

• LDIP – Projects (specific)

• AIP – Pesos

55
Source: DILG
56
 Municipal Plans

Comprehensive Land Use Plan

• Refers to a document embodying specific proposals
for guiding and regulating growth and development
of a city or municipality. It is comprehensive
because it considers all sectors significant in the
development process, i.e., demography, socio-
economic, infrastructure and utilities, land use and
local administration, within the territorial jurisdiction.

57
 Municipal Plans

Comprehensive Development Plan (CDP)

• The document that pertains to the multi-sectoral plan
formulated at the city/municipal level, which
embodies the vision, sectoral goals, objectives,
development strategies and policies within the term
of LGU officials and the medium-term.

Short Course on Environmental Planning 58

DCERP & HUMEIN Phils. Inc.
Source: D59ILG
 PROTECTED AREAS
THE FOUR (4) POLICY AREAS
▪ NIPAS
▪ Non- NIPAS
LIFE SUPPORT SYSTEM ▪ Protected Agricultural
SPACE FOR LIVING ▪ Environmentally constrained

SETTLEMENT AREAS
▪ Urban (Town Centers)
▪ Rural (Upland, coastal, lowland) C
▪ IP settlements
L
EXCHANGE
INFRASTRUCTURE AREAS
U
▪ Transport Network
SPACE
▪ Social Infrastructure P
▪ Economic infrastructure
▪ Administrative support

PRODUCTION AREAS
▪ Agricultural (Croplands, fishery,
livestock, poultry)
SPACE FOR MAKING A ▪ Industrial
LIVING ▪ Commercial
Source: DILG ▪ Tourism 60
Comprehensive Development Plan
The Five Development Sectors

Economic
Sector

Institutional
Social Sector
Sector

Environment Infrastructure
Sector Sector

61
62
63
 COMPREHENSIVE LAND USE PLAN (CLUP)(w/DRR/CCA)
LONG– TERM
FRAMEWORK PLAN SETTLEMENT PROTECTION PRODUCTION INFRASTRUCTURE
POLICIES LAND LAND POLICIES
POLICIES POLICIES
IMPLEMENTATION
INSTRUMENTS ZONING ORDINANCE OTHERREGULATORYMEASURES

MULTI-YEAR (6 YRS.) MULTI- COMPREHENSIVE DEVELOPMENT PLAN (CDP)

SECTORALDEVELOPMENT SOCIAL ECONOMIC INFRA ENVI. MGT. INSTITUTIONAL
PLAN
(w/DRR/CCA)

LOCAL DEVELOPMENT LEGISLATIVE CAPACITY

IMPLEMENTATION
INSTRUMENTS
INVESTMENTPROGRAM REQUIREMENTS DEVELOPMENT
PROGRAM

TERM– BASEDAGENDA CDP/EXECUTIVE &LEGISLATIVEAGENDA(ELA)

IMPLEMENTATION ANNUAL 3-YEAR CAPACITY 3-YEAR LEGISLATIVE

INSTRUMENTS INVESTMENT DEVELOPMENT AGENDA
PROGRAM PROGRAM

The Planning Model ANNUAL BUDGET 64

Source: DILG
LOCAL DEVELOPMENT INVESTMENT PLAN

• LDIP is the principal instrument for implementing the CDP

• LDIP links the plan to the budget (RA 7160 sec. 305)
• LDIP has a time frame of 3 years

Simplified LDIP Process

1. Producing a ranked list of programs and project with costs
2. Available future fund for investment
3. Matching fund requirements with projected funds available
and consider financing options

Important Note: Development Fund= 20% of IRA + non-office

MOOE + Capital Outlay
65
LOCAL DEVELOPMENT INVESTMENT PLAN

a document that serves as the link between the

plan and the budget, thus putting into effect the
directive of the Local Government Code that says:
“local budgets shall operationalize approved local
development plans” (Sec. 305i, RA 7160).

66
 COMPREHENSIVE DEVELOPMENT PLAN
(CDP)
Practical Vision / Strategic Directions
(5-10 years)

LOCAL DEVELOPMENT INVESTMENT

PROGRAM (LDIP)
PLAN TO BUDGET Programs / Projects/ Activities (PPAs)
(3 Years)
FLOW
ANNUAL INVESTMENT PROGRAM (AIP)
Priority PPAs; Major Final Output;
Performance Indicators / Targets (1 year)

ANNUAL / SUPPLEMENTAL BUDGET

One (1) year

67
 Comprehensive Plans
CDP CLUP
Implementation Instruments Detailed/ Master Plans
LDIP/ AIP Area / System/ Thematic

REGULATORY PROGRAMS / NON-PROJECTS /

MEASURES PROJECTS SERVICES
• Zoning • LGU Dept. /
• Other Local • LGU Funded
Offices
Ordinances • NGA Funded
• Adm. Issuances • NGA Field Offices
• National Laws • Joint Funding
• Inter- • Private Sector • Special Bodies
Jurisdictional
Agreements Investments

LGU Family of Plans 68

Source: DILG
 Examples of Thematic Plans

• Local Poverty Reduction Action Plan

• Disaster Risk Reduction and Management Plan and
Local Climate Change Action Plan
• Gender and Development Plan
• Local Entrepreneurship Development Plan
• Local Tourism Development Plan

69
 Examples of Area Plans

• Forest Management Plan

• Heritage Conservation Plan
• Coastal Resource Management Plan
• Ancestral Domain Sustainable Development and
Protection Plan
• Watershed Management Plan

70
 Examples of System Plans

• Solid Waste Management Plan

• Rapid Transit System Plan
• Sewerage Master Plan
• Integrated Communication Technology Plan
• Open Space Network Plan

71
 Philippine Agenda 21

PA 21 provides the policy framework of the country‟s

strategy for sustainable development

PA 21 has five goal elements, as follows:

– Poverty Reduction
– Social Equity
– Empowerment and Good Governance
– Peace and Solidarity
– Ecological Integrity

72
 THANK YOU!

Short Course on Environmental Planning 73

DCERP & HUMEIN Phils. Inc.