PHILIPPINE PLANNING JOURNAL I~ <1&~'V ..." z (/) ~ SCHOOL OF URBAN AND REGIONAL PLANNING • VOL. XVII, NO.1, OCTOBER 1985 •
THE METRORAIL SYSTEM PHILIPPINE PLANNING JOURNAL VOL. XVII, No.1, Oct. 1985
Board of Editors Dolores A. Endriga Tito C. Firmalino Jaime U. Nierras
Managing Editor Production Manager Carmelita R. E. U. Liwag Delia R. Alcalde
Circulation & Business Manager Emily M. Mateo
The Philippine Planning Journal is published in October and April by the School of Urban and Regional Planning, University of the Philippines. Views and opinions expressed in signed articles are those of the authors and do not necessarily reflect those of the School of Urban and Regional Planning. All communications should be addressed to the Business Manager, Philippine Planning Journal, School of Urban & Regional Planning, University of the Philippines, Diliman, Quezon City, Philippines 1101.
Annual Subscription Rate: Domestic, fl40.00; Foreiqn, $12.00. Single copies: Domestic, "20.00; Foreign, $6.00. Back issues: Domestic, fl10.00/issue; Foreign, $6.00Iissue. TABLE OF CONTENTS
Urban Tansportation in Metropolitan Manila Selected Officials of the Ministry of Trans portation and Communications
20 Pedestrianization of a City Core and the Light Rail Transit Victoria Aureus-Eugenio
33 The LRT as a Component of Metro Manila's Trans port Systems - Ministry of Transport and Communications
46 Urban Land Management Study: Urban Redevelop ment in Connection with Metrorail Office of the Commissioner for Planning, Metro Manila Commission
57 Philippine Planning Journal Index
61 About the Contributors SAN
j I I I ( 1 / SAN MATEO
MANILA BAY
N CD
Figure 1.1. MAP OF METRO MANILA URBAN TRANSPORTATION IN METROPOLITAN MANILA*
by Selected Officials of the Ministry of Transportation & Communications
BACKGROUND Traditionally the center of the country's activities, Manila and its immediate periphery The urban mass transportation in the Philip exerts a profound influence and a commanding pine setting is best appreciated and analyzed in role over its outlying areas and for that matter, the context of Metro Manila. The choice is sig the Philippines as a whole. Metro Manila is nificant as Metro Manila, the primary city of home to the highly centralized national govern the Philippines, is also the seat of the govern ment. It has most of the institutions of higher ment and the center of culture, education, learning and research, the major medical cen finance, trade and commerce. It is the port city ters and, the major share of national cultural and the site of the country's principal interna activities. tional airport. Major transport and traffic pro It is also emerging as an international con blems in Urban Philippines are found in Metro ference center. As the seat of the national gov Manila wherein government efforts in terms of ernment, Metro Manila attracts the head offi resources have been concentrated. ces of major local and international companies. It is the financial capital of the Philippines and Metropolitan Manila has aspirations of becoming a major financial center for South-East Asia. Metro Manila is the Metro Manila, also called the National Capi dominant center for consumption, processinq tal Region, is an area, comprised of four (4) and distribution of imports and having the main cities, namely: Manila, Quezon, Pasay and international port of the Philippines, it handles Caloocan, and thirteen (13) municipalities, the bulk of incoming trade. It is also the center namely; Mandaluyong, Makati, Malabon, San of air traffic, Manila International Airport, to Juan, Pasig, Pateros, Taguig, Muntinlupa, the south of the city, plays a pivotal role as a Marikina, Navotas, Las Pinas and Parafiaque, connecting point for international flights to all all in the province of Rizal and Valenzuela in other parts of the country. the province of Bulacan. Metro Manila has a population of about seven million people Historical Development of Transportation which is rapidly expanding at a growth rate of 3.6 percent per annum. Its area extends 25 The first form of public transport system in kilometers from north to south and 12 kilo Manila, and the Philippines, for that matter, is meters west to east, covering an area of 636 the horsedrawn streetcars introduced by the square kilometers. Figure 1.1 shows Metro "Compania de los Tranvias de Filipinas" in Manila's composition and Figure 1.2 indicates 1881 until 1902. Prior to this, journeys were the population densities in the different cities/ made mostly by foot or by horsedrawn calesa municipalities. and carromatas. The horsedrawn streetcar, which was confined to the old city of Manila, brought a big change in the Filipino lifestyle "Paper prepared for the Workshop and Seminar on and commerce. Urban Mass Transport, organized by the Ministry of Before the turn of the century, the company Transportation and Communications, Manila, 1985. added a subsidiary 4.3-mile tramway with 1 PHILIPPINE PLANNING JOURNAL
Figure 1.2 POPULATION DENSITIES IN METRO MANILA
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2 PHILIPPINE PLANNING JOURNAL steam-powered locomotives which was aban the Luzon provinces by highways and express doned at the start of the American regime in ways and to the rest of the Philippines, by air 1900. In 1903, an American firm establ ished and water transport. It has the biggest domestic the Manila Electric. and Railway Company airport in the country and local port, as well. (MERALCO), which was franchised for fifty To ease traffic congestion and provide acces (50) years, to operate an electric railways sibility and linkage to outlying areas and the streetcar service in Manila. rest of the Luzon mainland, several major ex In 1927, twenty (20) motor buses were ini pressways and by-passes were constructed as tially put on the road as supplementary service shown in Figure 2.1. to the MERALCO tramcars. From this small To the south, the South Superhighway pro beginning, bus routes radiated from the Manila vides access to residential and industrial areas CBD to provide crosstown public transporta adjoining Metro Manila while the South Ex tion linking the different districts and fringe pressway Extension, which was completed in towns adjoining Manila. At the end of 1930, 1978, provides linkage to the southeastern pro MERALCO has eighty five (85) buses in Manila vinces. The newly opened Manila-Cavite Coastal and it was at this point that Manila saw the Road is a by-pass of Radial Road # 1 for growing importance and usage of motorized Cavite Coastal area-bound passengers. transport called automobiles. To the north, the Manila North Diversion By 1936, the switch from trams to buses Road provides a relief for the over-saturated began and by 1942, passenger traffic was McArthur Highway leading to the Central and equally divided between streetcars and buses. Northern Luzon provinces. World War II, however, left most of the high To the east, the Marikina by-pass and the ways surfaces or pavements and railways severe Manila East Road, which is undergoing comple ly damaged. Tranvias, however, were rendered tion, provide access to outlying areas and relief inoperable, they had to be replaced by buses. to roads crossing the Marikina Valley, as well Damaged roads and railways were rehabilitated as, linkage to the eastern provinces of Luzon. later with reparation funds from Japan. On the other hand, Radial Road # 10, when Another post-war transport development completed, will serve as a by-pass going to the was the "jeepnev" which represented the des northwestern provinces. perate and ingenious response of a totally Furthermore, there is also a railway line for devastated city to its urgent transportation commuter services running from Malolos, Bula needs. Surplus army jeeps or the so-called can in the north to Carmona, Cavite in the McArthur type vehicles used during the war south. were hastily transformed into little buses with entrance at the rear, (later called auto calesas) Land Use Pattern to seat 8 passengers and made to ply Manila's half-bombed streets and tiighways. Since that The present EDSA was constructed (1955 time on, Filipino ingenuity transformed these 1965) in such a way that it surrounded the ur vehicles into highly decorated and vibrantly ban areas. This helped intensify the develop hand-painted "jeepnevs" which became the ment of existing areas and at the same time country's most popular and dominant public accelerate the new development along and out transport mode. side EDSA, such as business and commercial centers in Makati and Cubao and subdivision developments in Las Pifias, Marikina Valley, OVER-ALL URBAN TRANSPORT etc. The urban area is growing in all directions: SITUATION government-led reclamation to the west, popu lation-forced expansion to the northwest, and Metro Manila, situated at the southwestern private sector - led expansion to the north, portion of Luzon mainland, is made up of low south and east. The growth of Metro Manila lands from the coastal side towards the center, has resulted in a complex pattern of conti a valley (Marikina Valley) at the easternmost nually changing relationships and movements. side and, relatively high grounds (Guadalupe pla Makati has developed as a major business center teau) running north to south between the low and Quezon City as a government center. Major lands and the valley. Because of its strategic education areas are the university belt in Manila location, it is conveniently linked to the rest of and the Dillman area in Quezon City. Indus- 3 PHILIPPINE PLANNING JOURNAL
Figure 2.1 METRO MANILA ROAD NETWORK
LEdEND:
PRIMARX ROADS SECONDARY ROADS ~~~ER
SOURCE: MMUTSTRAP
4 PHILIPPINE PLANNING JOURNAL
Figure 2.2 CONCEPTUAL HIGHWAY NETWORK IN THE METRO MANILA AREA
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t y, ! -tp-. 'I" ;;~:'~ ",} \- LEGENO'· \> ~.~ EXISTING MAJOR '" THClAQlJ3HFARE ---'-•• PROPOSED MAJOff Tl-lOROUGHFARE 5 PHILIPPINE PLANNING JOURNAL trial areas include those along the Pasig and National roads 790 krns. Marikina River banks. Residential areas are Provincial roads 164 krns, concentrated in the northern and southern City roads 1,118 kms. parts of Metro Manila and fairly disbributed at Municipal roads 533 krns. the center and eastern portions of Metro Barangay roads 197 kms. Manila. Total 2,802 krns. Road Network System This administrative classification, however, The Metro Manila road network totalling does not necessarily match with the actual some 2,800 kms. basically or partially deve functional classification of roads as shown in loped ring and radial roads and a multiple the preceeding table. minor roads running through densely popu Existing Travel Demand lated and developed areas inside the Metro polis. Figure 2.2 shows the existing and pro Based on recent studies, the total public posed Metro Manila road network. transport demand is estimated to be 10,633 trips for 16 hours or approximately 11 million At present, 10 radial roads are already ex trips per day, exclusive of walking trips or an isting. The extension of R-10 or the Manila average of 63 million passenger-kilometers per Bataan Coastal Road, however, is not yet day. Eighty seven (87) percent of the total de completed while the extension of R-1 (Roxas mand are intra-city movement and the rest is Boulevard) which is the Manila-Cavite Coastal contributed by inter-city bus and jeepney trans Road, has just been opened to traffic very re port between Metro Manila and peripheral cently. areas. The jeepneys carry 77 percent of the Of the ring or circumferential roads, C-1, total passenger demand or approximately 8.4 C-2 and C-4 already existed. C-1, however, is million/day. Buses service the remaining 23 not a circumferential road in the real sense as it percent on approximately 5.6 million/day. has inadequate alignment and it only links seve The average passenger trip length varies consi ral busy streets. C-2 and C-4 are more circum derably between inter-city or intra-city bus or ferential and perform very important roles in jeepney movements as shown below: the Metro Manila traffic system. C-3, on the other hand, is still undergoing completion Intra-City Inter-City while C-5 and C-6 exist only in concept Jeepneys 3.8 kms. 8.8 kms. although some sections of which have already Buses 8.5 kms. 15.6 kms. been identified. The plans for C-5 and C-O, however, have been abandoned temporarily The trip rate for Metro Manila is set at 2.2 and plans to merge the two, is being considered. trips/day/person. The public transport demand Metro Manila roads are administratively distribution by purpose and mode is clearly in classified as follows: dicated in the following figures. Overall Transport Demand Overall Transport Demand by Trip Purpose by Transport Mode 6 FUNCTIONAL CLASSIFICATION OF ROADS (GENERALIZED CRITERIA) TRAFFIC THROUGH PUBLIC TRANSPORT PRIVATE PEDESTRIAN CAR PARKING CLASSIFICA TION FUNCTION CONDITIONS TRAFFIC BUS JPY. TRI- PEAK OFF- CROSSING CYCLE PERIOD PEAK CONTROL - Primary Roads Freeways/Expressways High volume Yes Yes Some No No No Signals or Primary Arterials: and access grade sepa- Principal arterial control rated Ii.e., routes for inter- bridges or suburban traffic movements underpass) ...... Secondary Roads Secondary Arterials Medium Some Some Yes No No Maybe Signals or Collectors: Volume and Zebra eros- Non-primary roads some access sing which distribute traffic control between the primary roads and local roads Local Roads 1 Streets, not being primary Low volume No No Some Yes Yes Yes None ~ or secondary roads, whose without ;::: main function is to provide access ~ access to abutting property control ~ ~ l:> Source: MMUTSTRAP Part A: Final Report ~ 1"Local" here relates to function rather than administrative responsibility Figure 2.3 below, indicates the person trip flows in Metro Manila. Public Mode Private Mode Total ... Inter Block Flow Intra Block o Traffic volume Source: J ~80 HiS Unit : 000 trips/doy 8 PHILIPPINE PLANNING JOURNAL URBAN MASS TRANSPORT SITUATION majority of these units are now being operated by the MMTC. The only difference is in rates Public transport in Metro Manila is predomi as Love Buses charge higher than Pag-ibig buses. nantly road based. The inter-city mass transit system consists largely of jeepneys, a form of Jeepneys "paratranslt", standard buses (ordinary and pre mium), mini-buses, taxis, tricycles or pedi cabs World War II left the Philippines with a de and a few horse-drawn carriage called "calesas" vastated road network and transport system. while the inter-city services between Manila and Pressed by the urgent need for transportation, adjoining areas are provided by standard and the Filipinos transformed surplus American mini-buses, provincial buses, and some jeep army general-purpose vehicles into open-air neys. Buses provide services for the arterials vehicles that looked like little buses. With en while jeepneys serve both the trunk and second trance at the rear, it is capable of seating and ary systems. In some cases, jeepneys serve as transporting 8 passengers. These, later on, feeders to buses. Tricycles provide feeder servi evolved to be the vibrantly painted and highly ces to both trunk and secondary systems. decorated small vehicles known as "jeepney". On the rail system, the Philippine National At present, these 8 passenger capacity jeep Railway (PNR) provides services within Metro neys can only be seen in cities or provinces Manila on a very limited scale. Most of the outside Metro Manila. On the other hand, the PNR's lines are long distance providing services 41,000 jeepneys operating in the city are to the provinces north and south of Metro longer with an average seating capacity of 16 Manila. persons. These are powered by either gasoline The latest addition to the Metro Manila mass or diesel fuel. transit system is the newly constructed Light Rail Transit (LRT) which started operation in PNR 1984. It is on an elevated track running north to south from Monumento to Baclaran via Rizal The PNR commuter trains were introduced and Taft Avenues. The line is approximately 15 in 1972 and have become part of the mass kms. long and interspersed with 18 stations. transit system of Metro Manila, serving prima rily, the working population of the commercial Physical Features and industrial establishments in the outlying areas of Metro Manila. Buses There are nine (9) sets of trains being uti There are different types of buses currently lized for Metro Manila Commuter Services, six in operation in Metro Manila. Among these are (6) sets of which are diesel railcars (DRC's) the ordinary or standard buses, double-deckers, having a seating capacity of 80/car or standing limited buses, love and Pag-ibig buses, and mini capacity of 156 persons/car and three (3) sets buses. of Diesel-Electric Locomotive (DE L) - hauled As provided by law, standard buses measures passenger coaches, each with a seating capacity 11 meters- in length and 2% meters il1 width with of 115/coach or standing capacity of 200/ a minimum height of 3 meters. The minimum coach. Each train consists of 3 to 4 cars or seating capacity for it to be considered a stand coaches. Trains consisting of DRC's differ from ard bus is 45 passenger-seats. Buses falling short DEL-hauled trains in that each of the DRC's is of these specifications fall under the category powered with individual engines while DEL of mini-buses. Double-deckers, on the other hauled train are sets of coaches (not powered) hand have seating capacities of 100 passenger having a single motive power which is the seats. Limited buses are also standard buses but locomotive or the engine. All tracks run at they differ in that the former follow the "no grade. standing" system and, like the double-deckers have limited stops thus, having a fare scale LRT slightly higher than ordinary buses. Love and Pag-ibig buses are both air-conditioned buses The latest addition to the Metro Manila mass owned and operated by MMTC while the latter transit system is the newly constructed Light is part of the MMTC bus leasing program ex Rail Transit or LRT system. Constructed 7 tended to private bus companies although meters above road level, the LRT line has a 9 PHILIPPINE PLANNING JOURNAL length of about 15 kms. running from south bus stops ahead of the others. Another adverse west of the Metropolis towards the norhtwest effect resulting from this practice is longer cutting across downtown Manila parallel to the standing time of buses trying to get more bay. There are 64 articulated cars provided as passengers in bus stops which increases travel initial fleet. Although stations could accom time of passengers. modate three (3) cars, each train is composed of only two (2) cars with capacity of 374 pas sengers each (81 seating and 293 standing). Jeepneys Maximum design speed is about 60 kms. while commercial speed is 18 kph. Maximum capacity The jeepney is the dominant form of public is 18,000 passengers per hour or 324,000 pas transport in Metro Manila. It accommodates sengers per day. At present, there is an average 77% of the total public transport demand in the of about 245,000 passengers daily. metropolis. It would be interesting to note that all jeepneys in Metro Manila are privately Tricycles owned. They are either federation or transport cooperative members. However, those who Another mode of public transportation in joined the transport cooperative, which is a Metro Manil!l which can not be considered a government-instituted body, shall abide by all mass transportation but has been playing a sig the constitution and by-laws of cooperatives nificant roles in the local mass transit system is thus, giving the latter the authority to manage the tricycle. It is, generally, a motorcycle (and the operation of their jeepney units. in some instances, a bicycle) attached to a side car with a seating capacity of two (2) persons. Only a few are driver-operators. Most of They provide services to inner areas not ser them hire drivers to operate their jeepneys on viced by buses or jeepneys. "boundary" basis. By boundary system, the driver agrees to remit to the operator at the end of the day, a fixed amount ranging from P100.00-P180.00 per day as prescribed by the Operational Characteristics operator based on the route length and fuel used for the jeepney. Buses Generally, jeepney operators own less than 5 At present, there are eleven (11) bus con units. A jeepney unit, on the other hand, is sortia or corporations existing in Metro Manila operated at maximum. capacity for a period of namely; DM Consortium, DMTC, FIl TRANS, thirteen (13) hours per day on the average, for MCl, MCBC, JD Transit, GMTC, CERT, 6 days in a week. The 7th day is usually alloted EMBC, PASVll and MMTC. All, except the for engine/brakes tune-up, servicing and other MMTC or Metro Manila Transit Corporation maintenance work. are privately owned. The MMTC is a govern ment-subsidized corporation and the sole cor The daily income of an average operator is poration where bus drivers and conductors are P83.00 excluding the direct expenses totalling given basic monthly pays. In addition to this, approximately P30.00 which will go to the oil, they get a percentage or the so-called "com tires, repairs and maintenance of the vehicle mission" from the revenues exceeding the and P17.00 that goes to miscellaneous annual daily quota. The private operators, on the other expenses. hand, follow the "commission basis." They receive a certain percentage of the daily reve From the driver's point of view, jeepney nue plus additional percentage of the revenue operation, despite the economic crises, still ap in excess of the daily quota. pears to be profitable. Based on recent sur veys, the drivers take-home pay average P90.88 This practice however, is unfavorable as it per day which makes jeepney operation a viable has a negative effect on road safety. Drivers, undertaking. in their desire to get more passengers so as to attain a higher revenue for the day, tend to The table below depicts the financial condi overspeed and get reckless with their driving tion of an operator in terms of revenues and ex and race with co-drivers in order to reach the penses before depreciation: 10 PHILIPPINE PLANNING JOURNAL Route Expenses Length Daily Net (kms.) Revenue Daily Semi-annual Annual Total Income 0-5 111.29 18.78 9.98 7.44 35.20 76.09 5.1 - 10 117.64 23.13 8.86 7.63 39.62 78.02 10.1 - 15 140.00 31.68 8.82 8.30 48.80 91.20 15 -up 142.16 41.14 9.30 8.36 58.80 83.36 Average (P/day) 127.77 28.69 8.99 7.93 46.60 82.17 (Pzkrn.) (0.77) (0.17) (0.05) (0.05) (0.27) Light Rail Transit (LRT) Routes/Areas Served by Different Modes Train operation starts from 0500 HRS till There are 744 routes, at present, operated in 2300 HRS. Trains operate on a three minute Metro Manila by jeepneys and 184 by buses as headway during peak hours and five minutes shown below: for off-peak hours, including Saturdays and Sundays. The average travel time per turn Number of Existing Jeepneys and Bus Routes around trip is one hour. Dwell time ranges from in Metro Manila 20 to 30 seconds per station. Maximum capa city is about 18,000 passengers per hour or Mode Intra-City Inter-City Total 500,000 passengers per day. At present, there is an average of about 245,000 passengers per day Jeepney: 640 104 744 and about 330,000 passengers per day during Bus: 150 34 184 Wednesday. Single-fare system and token-ope - Standard Bus 106 13 119 rated turnstiles are used. Fare is P2.50. - Double-Decker 3 o 3 - Limited Bus 5 o 5 PNR Commuter Trains - Love Bus 27 1 28 - Mini-bus 9 20 29 The Commuter trains account for 26.5 per cent of the total revenue train-kilometers for combined passenger, freight and commuter train services in CY 1984. In general, jeepney routes are short and con As of August 1985, there are nine (9) train centrated in most radial roads and inner or routes moving some 13,000 commuters daily. secondary streets while buses, generally, are Daily run is at 38 trains/day. These routes are long and dominate the most important circum provided with thirty one (31) station outlets, ferential road, C-4 or EDSA. 24 of which have ticket dispensers while the Among the major roads dominated by jeep rest are operated by franchised agents. Five (5) neys are Rizal Taft Avenues, Quezon Avenue, of the 31 stations cater to long distance pas C.M. Recto Avenue, Espana and Aurora Boule sengers and freight services. Ticketing is done vard. by zone. Fare computation is Pl.50 for the Bus routes, on the other hand, dominate first zone and Pl.40 for every zone thereafter. EDSA, Ayala and Buendia Avenues and South For southbound routes, train operation superhighway. The routes they ply also vary by starts at 4:30 a.m. up to 7:00 p.m. at an ave service type. Most of the ordinary and premium rage of one (1) train per hour, for both direct bus routes are concentrated in EDSA, Buendia ions. In contrast, northbound routes are sche and Ayala Avenues and portions of Taft and duled depending on the peak flow of pas Quezon Avenues. sengers, thus having only one (1) train bound Minibus routes are mainly inter-city and ope for Manila in the morning and one train that rating on the North Diversion Road, South goes back in the afternoon. Superhighway, Sumulong Highway and Quirino 11 PHILIPPINE PLANNING JOURNAL Avenue. However, there are nine (9) intra-city On the average,intra-eity jeepney routes routes still operated by mini-buses. are 10.4 kilometers long while inter-city routes As previously mentioned, the only LRT line have an average of 24.6 kms. Bus routes are existing is Line No. 1 servicing the Taft and twice as long as jeepney routes, both for intra Rizal Avenue corridors while the PNR Com city and inter-city routes. Load factors of jeep muter Trains provide services from Malolos, neys is 54 percent while buses have 56 per Bulacan from the north up to Carmona, Cavite cent based on seating capacity alone. Intra-city in the south, crossing the CBD's of Metro routes have higher load factor than inter-city Manila. routes. Travel speed is generally low in the inner Figures 3.1 and 3.2 show the different route areas of Metro Manila especially within C-2 structure by mode. where jeepneys travel at a rate of 10 kph. or lower. As it is commonly observed, travel speed Complementarity of Modes of bus is generally faster than jeepneys but it should also be noted that it is not only by the Jeepney and bus routes seem complement overall traffic situation that travel speed is ary to each other but in most cases where determined but also by driving attitudes and jeepneys operate on the same line with buses, operating practices of getting passengers. they directly or indirectly compete with each other. More often, buses are at the losing end since riders prefer the door to door service jeep OPERATIONAL VIABILITY OF MASS neys offer. It is only in cases where roads are TRANSPORT MODES dominated by buses, as in EDSA, that comple mentation of modes is clearly seen. In this Operational viability for any public trans case, jeepneys provide feeder services to buses. portation mode depends on several factors. The LRT and PN R trains, on the other hand, Most significant of these factors are: a) type of complement with the jeepney and bus routes as route, its length and physical characteristics, provided for in the route rationalization scheme b) level of competition from other units or for Metro Manila. modes, c) demand on the route, and d) fare structure. Route Characteristics of Different Modes The length of the route to some extent affects the viability of operations considering Under the route rationalization scheme, long that buses may be more viable for longer routes routes passing arterials, with high passenger than in short routes. Likewise the physical demand shall be operated on by buses and short characteristic of the road surface, whether it routes and these servicing the secondary streets is well paved or not affects the degree of wear are assigned to [eepnevs. On the other hand, and tear on the unit. where the route is long and passenger demand The level of competition whether from same is not considerably high or not viable for stand modes or from other modes definitely dictates ard bus operations, minibuses are assigned. This the income of a mass .transport unit. The pre is the reason behind the diversion of minibuses sence of jeepneys in a route also operated on by from intra-city to inter-city services. Moreover, buses have been shown to be detrimental to the there is a standing policy limiting the route buses. Several bus routes have been known to length of Metro Manila jeepneys to 15 kms. As cease as bus routes because of competition with such, Metro jeepnevs are limited to the peri jeepneys. phery of Metro Manila only. Similarly, provin Demand on the route likewise directly dic cial jeepneys bound for the city are curtailed or tates the viability of the unit. Even with very allowed to enter a little past the metropolitan few competition from others, a route will not Manila boundaries. be viable if there is not enough demand in it. This policy would bring about some increase The fare structure is of prime importance in transfers since commuters have been used to also in the viability of a route. No operator direct door to door services but this is only one would venture into the business if the fare against the many benefits which can be derived structure is not that favorable. from the overall route rationalization of Metro All these factors affect the four modes Manila. considered in this paper differently. 12 PHILIPPINE PLANNING JOURNAL Figure 3.1 ROUTE STRUCTURE OF BUSES Ma 1i nta o if Sdngangdaan~~~~!!~~ ORDINARY BUS (FREQUENCY 30 and more/HRl ORDINARY BUS {FREQUENCY 30 OR LESS/HRI LIMITED BUS (FREQUENCY 30 AND I) AND MORE IHRI LIMITED BUS (FREQUENCY 30 OR LESS/HR.l ------LOVE BUS {FREQUENCY 30 AND MORE/HR.) ---.-- LOVE BUS (FREQUENCY 30 AND LESS/HR.I ---.--- MINI BUS (FREQUENCY 30 AND MRDE/HR') ~_. - MINI BUS (FREQUENCY 30 AN 0 LESS{H R.I 13 PHILIPPINE PLANNING JOURNAL Figure 3.2 ROUTE STRUCTURE OF JEEPNEYS F,}i r, i e....,' .-_-:../ "\dr i kina r I II.I II I Pasig INTRACTIY ROUTES (FREQUENCY 150 AND MORE/HR.) INTRACITY ROUTES (FREQUENCY: 150 OR LESS/HR.) INTERCITY ROUTES (FREQUENCY: 150 AND MOREIHR,) INTERCITY ROUTES (FREQUENCY: 150 OR LESS/HR,) 14 PHILIPPINE PLANNING JOURNAL Buses Jeepneys The viabilitv of the Metro Manila bus firms For the same fare structure, the jeepneys en maybe looked at in two ways. Firstly, it may be joy a profit compared to the buses. Reasons for seen from the point of view of the unit this are the following: acquired under the bus-leasing program of the government. Such unit is owned and operated a. Jeepneys operate on shorter routes where by the corporation. There are twelve bus cor demand is relatively high compared to long porations formed in 1981 through the volun bus routes passing to thinly populated areas. tary incorporation of the approximately 120 b. Jeepneys, because of their size easily out small bus companies prior to 1981. Secondly, maneuver buses to pick-up passengers. viability of a unit may be seen from the point c. Passengers prefer jeepneys for inter-city rides of view of the old unit owned by the former because of thei r short waiting time. Buses small company whose franchise and route is take long to wait passengers. now transferred to the new corporation, one d. Jeepney operators seldom if ever they pay of whose incorporator is the owner of the unit. income taxes. Such unit is not owned by the new corpora e. Jeepneys can easily earn extra money by deli tion but is leased or run by the corporation vering passengers to destinations slightly out in one of its franchised routes. The owner of of their route. the unit only pays a management fee to the new corporation. Daily operational expendi A recent study conducted by the MOTC tures and maintenance for this unit is handled showed that the average jeepney driver who by the owner. drives his borrowed jeepney for 8 hours earns around P90.00 after deducting from his earning For the first unit (the unit owned by the the P130 he pays to the operator or owner of new corporation), the income goes to the usual the unit and the day's expenses covering diesel, direct and indirect expenses. In addition, the fuel and oil including his meal and cigarettes. new corporation pays for the amortization of the unit to MMTC who administers the govern Light Rail Transit ment's bus leasing program and also for its maintenance by either of two government The Light Rail Transit has lived up to ex designated companies who maintain these new pectation as far as its patronage and income units under the program. Their maintenance generating capability is concerned. Since it charge is considerably higher than what the old opened its total length to commercial opera operators use to spend for their own units. For tion in May 1985, it has attained its projected the second unit, the owner pays a minimal patronage of approximately 240,000 passengers management fee to the new corporation on top per day for a daily income of approximately of his usual direct and indirect expenses which P700,000. are relatively lower in most cases than those of At this level of income it can be said that the new buses. the system can maintain its operations without external subsidy. However, if we include its Taking all things equal, these two units loan amortizations it cannot be similarly said would be earning just about equal amounts per that the system can operate without subsidy. day. Yet, in most cases the old unit .would be The relatively high level of patronage of the making money while the new one owned by the LRT stems from the fact that it offers fast, safe corporation does not make a profit. Thus, ma and efficient service compared to the bus and jority of the Metro Manila bus corporations say jeepneys which are subject to traffic con they are losing. gestions. Other factors that make Metro Manila opera tions unprofitable as some operators say is the PNR Commuter Train low-demand route they operate on and the high indirect expenses they incur. Some are request PNR's Commuter Service in the north goes ing LTC for changing and/or lengthening of up to Malolos in the province of Bulacan (see thei r routes. map). Prior to LRTs operation, the PNR Com- 15 PHILIPPINE PLANNING JOURNAL Figure 4.1 PHILIPPINE NATIONAL RAILWAY LINES LEGEND , , LINES II, OPERATION 'O~Q'"oqO :" POSSIBLE NEW LINES ,I / !& ...... o"Sar,llag<,t // ... ".. > / ? ij \ I ,I I I" 16 PHILIPPINE PLANNING JOURNAL muter Service from Malolos in the north to b) the kind of discipline and mentality that both Manila and Makati and Carmona in the south to the drivers and riders of the mass transport Manila and Makati, was a big help to com tion system have as well as that of the pedes muters in these areas even with the good roads trians; running parallel full of buses and jeepneys. This c) the relatively weak enforcement of traffic is because the fare is cheaper and has less rules and requtations:and transfer points. With the opening of LRT, the d) the inadequacy of the road infrastructure situation ischanged. Commuters from the north in the Metropolis. take the bus or jeepney up to the north station of LRT at Monumento and then take the LRT southward to their destination. Travel time is Unhealthy Inter-and-Intra-Modal Competition lessen with the 2-3 minute headway of the LRT. Fare is cheaper at P2.40 flat rate whereas Competition among the various mass trans for PNR's Gommuter Service this would cost port modes in Metro Manila especially between P2.90. the buses and jeepneys, not to mention the Whether the PNR commuter service, espe competition between bus units of different cially in the north, was viable or not before companies and between jeepney units of differ LRT, the fact is that it has suffered a reduction ent operators, has long been recognized as a in patronage roughly estimated at 21% from major contributor to traffic congestion and 8,669 weekly average to 6,789. accidents in the thoroughfares of the Metro Like the PNR Commuter Service, the LRT polis. This intense competition among trans cut in heavily from the bus and jeepney pat portation units is a natural phenomenon in ronages. Majority of bus and jeepney riding business where everyone hopes to make a commuters from the northern terminals of the higher income than the rest. This is however LRT going south to Makati or Baclaran now aggravated by the way most public transport take the LRT. drivers (bus and jeepney and even tricycle drivers) earn their daily wage. They earn their MAJOR MASS TRANSPORT PROBLEMS daily wages as the net amount after they deduct the rent of the vehicle, cost of fuel and oil, and Like any urban mass transportation system cost of minor repairs from his days income. in a developing country, Metro Manila's mass This system is called the "boundary" system. transportation system has its fair share of Under this set-up, it is expected that the driver problems. For one, Metro Manila continues to has to exert all efforts to get a better share of face its perennial transportation problems the market than his competitors. This impels characterized by: a) the long waiting time of him to disregard some courtesies on the road commuters especially during rush hours when and at times safety precautions. passengers have to wait for as long as 30 How do we eliminate this problem? While minutes to more than an hour to get a ride, the solution may depend to a large extent on b) the slow movement of traffic during rush the agreement between operator and driver, the hours, c) the heavy traffic congestion at road operator finds this arrangement convenient for intersections, and d) the unruly driving habits him since he only receives daily his "boundary" of mass transportation drivers. These are mani without bothering about fuel, oil and other festations of problems that need to be ad daily operational needs. It becomes imperative dressed not only by the government agencies therefore for government to study other means concerned, but by the riding public and public which can be proposed to the operator for transportation operators and drivers as well. adoption. Among the problem areas that can be cited In the case of inter-modal competition as major causes or contributors to the pre (between buses and jeepneys), it is an accepted vailing problems plaguing the public mass fact that several traditional bus routes (most transport system in Metro Manila are: major thorou\tlfares) have now become jeep ney routes. Buses have been displaced from these a) the current state of inter-modal competi routes because they are "crowded out" by the tion and complementation of the various jeepneys in the daily competition for the next modes of mass transportation in the metro passenger. If this goes on without proper govern polis; ment control, the buses are bound to be eased 17 PHILIPPINE PLANNING JOURNAL out of operation in Metro Manila by the jeep is a major component of any efficient mass neys. transportation system. One may have good To remedy this situation government has traffic rules/regulations but if enforcement is banned jeepneys and mini-buses from operating weak it will not be of much help. along the major circumferential route, C-4 (or In the country in general and Metro Manila E. delos Santos Avenue). Current transport in particular, we are not wanting in good traffic ation rationalization moves by government in rules and regulations. In fact some say we have Metro Manila is geared towards minimizing this more than what we can enforce. This may be unfavorable competition between buses and true since there are some rules that have not jeepneys in the same route. Rather, comple been enforced for sometime already. But most mentation of service is the guiding concept in traffic rules/regulations enforced have not rationalizing public transport system in the been effectively enforced and in a sustained Metropolis. manner. Various enforcement groups enforce laws on specific offenses. Some of them over Poor Discipline of Drivers, Riders and lap. This has lead to confusion on the part of Pedestrians drivers as to what agency enforces what type of laws. Closely linked with the unhealthy competi Reports of traffic enforcement personnel be tion of modes is the problem of poor discipline ing bribed by drivers/operators sometimes among both the drivers of public transportation occur in the Metropolis. This has lead to the units, the passengers and the pedestrians. We weak enforcement of laws. Rather than strickly believe that while the wage system contributes follow the rules, the drivers would rather break to the behavior of drivers, there is a need to them and if found guilty, they pay the fine or discipline the drivers and the riding public as bribe the enforcement officer. well. Low educational attainment of jeepney A solution to this problem does not lie drivers and their economic status should be solely on the enforcement officers but on both considered. Another thing that pushes drivers the driver/operator and the lawman. If there are to disregard rules and regulations is their no bribers there would be no bribees or vice knowledge that if they commit an offense versa This is a "chicken and egg" situation. their firm will bail them out of the predicament Currently an inter-agency team composeo of without much trouble for them. the various traffic law enforcement groups in Towards minimizing this problem, the bus cluding the Metro Manila Commission (MMC) companies and jeepney operators should make and the Land Transportation Commission the drivers feel that they are responsible for (LTC) is studying the possiblity of coming up their wrong doing hence they should be made with only one traffic violation ticket to be used to pay for it. Also transport companies should by all traffic enforcement groups enforcing dif have a program for training and improving not ferent rules/regulations. This will lessen con only skills but discipline of its drivers and con fusion among transportation operators/drivers ductors. It is one thing to have on paper a com and will also complement the efforts of LTC pany program/policy that provides for all these to computerize violations by drivers. and another to implement effectively such pro grams. Metro Manila Commission and the Land Inadequate Road Capacities Transportation Commission provide for semi nars of drivers as part of their penalties for Most of the roads in Metro Manila were built driving violations. before the advent of motorized transportation. For the passengers and pedestrians, the Land This holds true particularly for the cities of Transportation Commission has been coordi Manila, Pasay and Caloocan. It is therefore ex nating with the Education Ministry to incorpo pected that capacities of major roads in these rate in the primary grade curriculum the basis cities are inadequate to cater for the traffic of traffic rules, regulation and courtesies. demand today. Expansion of road widths have become prohibitive because of the heavy build Weak Enforcement of Traffic up of business and residential building along Rules/Regulations these streets. To remedy this problem of inadequate road Enforcement of traffic rules and regulations space, mass transport along the major thorough- 18 PHILIPPINE PLANNING JOURNAL fares through these three cities have to be reme family incomes. Even with perfect forecasts of died by larger capacity and faster mass transit these variables, conversion into estimates of modes. This had to be balanced by the presence future transport demand is no simple matter of jeepneys in these main thoroughfares. Thus and is all the more risky in view of the uncer the decision to build a light rail transit system tains of today. to traverse these three cities on elevated rail Past studies have shown that Metro Manila's above the jeepneys and buses at the road level. population will reach about 1.6 times the 1980 This has proven to be a right decision as shown levels of 5.9 million people, or almost 10 by the current patronage of the LRT. million by the 2000. This is on the conservative assumption of a declining urban growth from Other Problems 3.1 in 1980-85 to 2.0% in the 1990s. Motorized person trips/day in Metro Manila estimated in Another problem that has contributed to the 1980 to be around 10.7 million is projected to current state of traffic congestion in Metro be near the 20 million mark by the year 2000. Manila is the ease of flooding in portions of Motorized trips/person/day will likely rise from major streets in Manila with the slightest down 1.8 in 1980 to 2.2 at the turn of the century. pour of rain or even the rise of the tides at the No new transport technologies are fore bay. seeable in Metro Manila for the next 15 years This problem of flooding is currently ad up to year 2000. The public mass transit sys dressed to by the Metro Manila Flood Control tem is expected to consist of the same modes, program of the Ministry of Public Works and but their future roles should be examined Highways. closely. The current economic slump in the country FUTURE OF URBAN MASS may have a profound effect on the unusually TRANSPORTATION high growth rate of car ownership in the early eighties. This should support the hope that pub The future of urban travel is closely related lic mass transit ridership would at least retain to population size, economic growth, and or improve its share of the total trips. 19 PEDESTRIANIZATION OF A CITY CORE AND THE LIGHT RAIL TRANSIT Victoria Aureus-Eugenio Instructor, School of Urban & Regional Planning University of the Philippines I. INTRODUCTION creased economic activities in the area. 3 It is perhaps this realization which has led many Pedestrianization of streets, at least in the cities to set off pedestrian streets or pedestrian city core, seems to have been revived in at least zones on a temporary or permanent basis. a few instances, and it has taken several forms. Such realization is not surprising when one In Italy, for instance, an increasing number of considers the fact, as discussed in The City of towns, from the capital to the smallest provin Adelaide Plan that "the prosperity of a city cial outposts, have banned motor traffic from core depends on the speed and ease with which the town centers, thereby reclaiming streets for people can move about within the core." The their original use. The same holds true for a few quickest and cheapest form of movement with American towns.' In other cities, the use of in the central area of the city is of course on automobile in certain streets at certain times foot. have been restricted, as in the case of Ginza in This paper involves a proposed pedestria Tokyo as well as in Fifth and Madison Avenues nization concept to ease movement and to re in New York. In still other cities, attempts have vitalize the city core of Manilao It tries to relate been made to create localized peaceful coexist pedestrian's behavioral pattern demands and ence by placing people in higher or lower levels needs with the physical environment of a city as in the case of the elevated sidewalks and core as the setting for their activities. While this bridges 2 (e.g., the Bridge Approach for pedes study analyzes the wide range of human acti trians in Minneapolis) orof underpasses (e.g., the vity occurring within a city core, it looks into underpass in Montreal, Canada and the Lacson the development of such a core, not only in underpass in Ouiapo, Manila). relation to pedestrian needs, but also as a signi City administrators and planners are real ficant locus of change resulting from the intro izing that freeing urban spaces from traffic and duction of a new transport system, such as the rededicatin g them to pedestrians is not only Light Rail Transit. The intention is not only to popular with the public, it also helps boost the make the conditions better for the pedestrians urban economy. Seattle's Pioneer Square, but also to recommend ways by which the Boston's Quincy Market and San Antonio's blighted city core may be improved. River walk are examples of how improved In general, this study seeks to formulate a pedestrian environment has contributed to in- set of design criteria and to present a design concept fer the pedestrianization of the core of the City of Manila specifically the Ouiapo-Sta. 1Rudofsky Bernard, Streets for People: A Primer for Americans, (New York: Doubleday, 1969), 2Victor Gruen, Centers for the Urban Environ 3Kenneth C. Orski, "Transportation Planning as if ment: Survival of the Cities, (New York: Van Nos People Mattered," Practicing Planner, March, 1979, trand Reinhold Company, 1973) p. 664. p.24. 20 PHILIPPINE PLANNING JOURNAL Cruz area. This area serves both as a religious ret commemorating Christian and Muslim Fili and commercial center, thus people have tend pino brotherhood dominates the neighborhood ed to concentrate there, resulting in a high at Globo de Oro and Elizondo. About three pedestrian population density. With the opera blocks away at Basan St. is the new Zambo tion of the LRT, sti II more people are expected anga Traders Flea Market housed in one big to converge there since its 11th station is structure across the Balikbayan Handicrafts Ex located in Carriedo. This, in turn, is expected to port Wholesale-Retail. In the northwestern area seriously hamper movement of both pedestrians lies the Binondo and San Nicolas area where and motor vehicles, which, even without the Chinatown is located, With all these landmarks LRT station, is already a problem. around, not to mention those located within, This study therefore is necessary since the the site seems to be the crossroads of the Re blight and continued decay of the Ouiapo-Sta, gion. Thus, it is always teeming with humanity. Cruz area has long been a matter of deep con cern for city administrators and planners. Fear III. METHODOLOGY has been expressed that "the LRT may merely further blight downtown Manila, unless this Direct observation and interviews were the area is transformed into something more than a primary methods of gathering relevant in-depth transit oolnt.':" It is precisely with the trans information. Photo'graphy was extensively used formation of the area that the study is con but the principiiI tools were pads of paper, a cerned. pencil and a place. to observe, following Whyte's methodology in his study of crowding in New II. STUDY AREA York and Tokyo, (1976). Collection of other data was done by means of a Physical/Environ The study covers the area bounded by Gon ment Study and a Pedestrian Study. zalo Puyat (formerly Raon) to the north, the The Physical Environment Study included a Pasig River.to the south, Quezon Blvd. to the land use survey, visual surveys and a photo east and Plaza Sta. Cruz and Plaza Goiti to the image study of street scape, (analysis of photo west. It occupies a strategic location in relation graphs to measure the physical form content of to the entire Manila Central Business District the street scene were used to ascertain personal (CBD). North of the study area winding from preferences). The Pedestrian Study included Sta. Cruz District, G. Puyat St. intersects Estero actual counting of pedestrians within the study de Quiapo just before the waterway disappears area, random interview of pedestrians and re off Quezon Blvd. Passing the small bridge over cording of pedestrian behavioral characteristics. the estero, one could not possibly miss one of Various situations were also recorded with the Ouiapo's landmark, the Ocampo Pagoda. Fur camera and video tape to enable one to see de ther north are downtown universities, movie tails that may have been missed out which houses and commercial establishments. There could be valuable. To discover whether, during is also a full blown university which is tucked the course of the day any pattern of activity away on R. Hidalgo, the same street where the could be recognized, tracking studies (i.e., once-imposing houses of the rich stand de following a pedestrian which are picketed by caying. random) were conducted. These studies were In the southeastern side beyond the Quezon supplemented by interviews. Blvd. is a Muslim mosque, the first in Manila since Sulavman's.f The Muslim dome and mina- IV. FINDINGS Some of the relevant physical and environ 4Nick Joaquin, "Glorifying the Inner City," Times mental characteristics of the study area based Journal, (Monday Special), 3 October, 1983. on the surveys and observations conducted are S"A Patch of Splendor," The Sunday Times shown in Table 1. It is noteworthy that the Magazine, August 25, 1968, pp. 44-45. roads, parking and open spaces comprise only 21 PHILIPPINE PLANNING JOURNAL Table 1 SPACE UTlLlZA T10N* Net Area (hectares) % of Study Area 1. Religious 1.7 6.6 2. Department stores/bazaars 6.44 25.1 3. Shoe stores 1.21 4.8 4. Shops (pawnshop, repair shop, press, etc.) 0.67 2.6 5. Jewelry and watch store 0.49 1.9 6. Drug store 0.14 0.5 7. Bank, school, offices 2.80 10.9 8. Optical 0.70 2.7 9. Restaurant and bakery 1.56 6.1 10. Hotel lodging and condominium 0.45 1.8 11. Private house 0.84 3.3 12. Moviehouse 0.72 2.8 13. Under construction 0.56 2.2 14. Roads, parking and open space 7.34 28.7 Total 25.62 100.0 *Space utilization refers only to the ground floors of the buildings. The upper floors are utilized as offices. schools and residential except for some buildings of hotels and condominiums. 28.7% of the total land area. This partly ex According to the barangay captain who resides plains the perennial crowding and congestion in in the area, this open court was supposed to be the area. Space utilization of major and impor the site of a movie house but it was never built. tant streets have specific uses. For example: The court is also used by some students from FEATI for their group meetings. Carriedo, the main artery of Manila's pedes trian, flowing to and from Plaza Miranda, is a Avenida Rizal, the main street of Sta. Cruz Dis whole row of stores selling shoes of all sizes and trict and also Manila's longest street is a chain styles. of shops, bazaars, movie houses and restaurants. Evangelista is where most of the jewelry stores Villalobos Street is where fabric, cheap or ex are located although textile and electronic pensive, coarse or fine, can be seen just as every shops can also be seen. conceivable thing to eat can be bought in the Quinta Market just below the bridge. Palma had been a ready-to-wear market long be fore Manila's couturiers discovered the term All these merchandizes available plus the RTW and made it expensive. establishment of popular eateries like McDo nald's, Tropical Hut, Dunkin Donuts, Shakey's, C. Palanca, (Formerly Echague) one of Quia Jollibee and Big Daddy's contribute to the po's busiest streets, is a row of plates and crowd-drawing power of the area, in addition to glasses stores on one side and textile, hopia and the two churches within the study area. tikoy factory on the other. An interior open Major landmarks, pedestrian and vendor con court is located along the street which is used centration, crowd-drawing establishments and as multi-purpose area by tenants and residents. points of conflict/problem areas were mapped. 22 PHILIPPINE PLANNING JOURNAL The vertical image of the area is dominated record time of two months, the whole of it was by three-to-six-storey structures. Royal Hotel removed. The removal was a good decision be is the only towering building in the area which cause the permanent structures put up didn't can be seen framed by the rows of structures seem to blend with the existing environment. from several streets. The view of the hotel Besides, the project was not that successful from the streets like Hidalgo and P. Gomez is both for the buying public and the vendors. magnificent, however, the view from the west A major reason was that the stalls were built S( seemed to dwarf the human scale because the close to one another that there were not whole structure is seen. However, the LRT enough space for people to move about. station at Carriedo gives a horizontal balance Activities of hawkers are still regulated by a to this vertical structure. Surprisingly, the LRT city/MMC ordinance designating areas where carriage-way seems to blend with the city's hawkers can ply their trade and regulating fur urban form. ther the size of hawkers' stalls. It also provides Not to be overlooked besides the pedestrians that stalls should measure one meter by one are the other users of streets and sidewalks who meter and piles of wares must not be more than always been a part of the physical setting of the one meter. With the P5.00 per day fee, the area. Randolf David6 identified them as the Hawker's Office was able to collect hawkers/sidewalk vendors, money changers, P5,838,624.40 in 1983. scavengers, metro-aides, beggars, watch your According to the head of the Manila car boys, magicians and fortune tellers. From Hawkers, an ocular survey showed that there the actual survey of these users, the most domi are actually about 20,000 vendors. If they nant, as expected, are the sidewalk vendors (ex could only legalize just 50% of these vendors, cluding the pedestrians) comprising 78% of the the government would be getting about P30 total users. million per annum in fees. The hawkers seen in the study area can be The survey of pedestrians on each location classified into three types: revealed that highest pedestrian volumes are • Itinerant peddlers7 and sidewalk vendors still at Carriedo and Avenida (see Table 2) who carry their wares around inspite of the on-going LRT construction at the • Hawkers in semi-fixed location (on pave time of the survey. ments/sidewalks near department stores or Observations were also made at three loca churches) with wares often clipped on the tions to determine the direction of pedestrians. walls These are at Plaza Miranda, Quiapo underpass • Hawkers in more or less permanent location and at corner Escolta/Plaza Sta. Cruz. It is inte (in kiosks around market places, sidewalks and resting to note that most of the pedestrians vacant lots in commercial areas) used Carriedo as thorough path to get to their These vendors became such a problem to destination either to Sta. Cruz/Avenida or police enforcement that in late 1979, the Ouiapo public transportation stop. This pat government launched the Kabalikat ng Bagong tern, however, was altered towards noontime Lipunan - a project to legalize vending activity and late in the afternoon when people were in the Quiapo area. Unfortunately, just as fast seen dropping at some establishments or restau as the project was conceived and put up in a rants. An observation of people coming from Plaza Miranda beyond the Quiapo Church re vealed that their direction are distributed as follows: 35.5% to Carriedo, 31% to Villalobos, 6Randolf David, "Manila's Street Life: A Visual 20.5% to Evangelista and 13% to Hidalgo. On Ethnography:' A Comparative Study of Street Life, the other hand, the observation of people Occasional Paper NO.5 (Tokyo: Research Institute for Oriental Cultures, Gokushuin University, 1978). coming from the Ouiapo underpass on the Plaza ?Itinerant peddlers are probably the least obstruct Miranda side revealed that 49.5% goes to ive because they normally walk with their potential Carriedo, 28.8% to Evangelista, 11.5% to Villa customers instead of obstructing their path. lobos and 10.2% to Hidalgo. The same obser- 23 PHILIPPINE PLANNING JOURNAL Table 2 HIGHEST PEDESTRIAN VOLUME PER HOUR* BY STREET AT A GIVEN TIME AND DAY Street Pedestrian Volume Day, Time 1. Avenida 3,735 Sunday 10:00-11 :00 a.m. 2. Carriedo 3,216 Friday 5:00- 6:00 p.rn. 3. Plaza Miranda 2,940 Friday 9:00-10:00 a.m. 4. Villalobos 2,850 Friday 9:00-10:00 a.m. 5. Quinta Market 2,745 Friday 9:00-10:00 a.m. 6. Evangelista 2,056 Friday 9:00-10:00 a.m. 7. Hidalgo 1,968 Friday 4:00- 5:00 p.m. 8. P. Gomez 1,179 Friday 5:00- 6:00 p.m. 9. Ronquillo 1,170 Sunday 4:00- 5:00 p.rn. 10. Raon 1,028 Sunday 10:00-11 :00 a.m. 11. Escolta 922 Monday 5:00- 6:00 p.m. 12. Bustos 826 Sunday 9:00-10:00 a.m. 13. Palanca/Plaza Lacson 628 Monday 4:00- 5:00 p.m, 14. Estero Cegado 538 Saturday 4:00- 5:00 p.m. *The number of pedestrians were counted for a period of ten minutes. This was repeated every hour and the survey was conducted for three days on weekdays, for three Fridays, and for three weekends, to get the day and time of highest pedestrian volume. SOU RCE: From actual counts of pedestrians vation was done of people coming from Escolta normal free walking speed increases as more and their travel directions were distributed as area becomes available. follows: 49% to Carriedo/Avenida, 36% to With regard to pedestrian accidents, a study Echague and 15% towards the bridge. of Minoru Kobayashi on "Pedestrian Accidents It seems that insplte all the hindrance to in the City of Manila" revealed that almost 80% walking, the pedestrians in the city core have of traffic accident fatalities were pedestrians. become experts in it. The study showed that a This is an extremely high rate when compared comfortable walking pace in the city as ob with urban areas in other developed countries. served, recorded, and compared is about 247 The MMETROPLAN 8 reports stated that feet per minute or 74 meter per minute even al the absolute number of death and severity in lowing for delays at street crossings. At this Metro Manila is similar to that in Greater pace, a study area map was drawn to walk time London which had 25% more people and was scale (see Table 3). The physical dimensions of seven times bigger in area so something could the site/study area are approximately 550 be done to reduce accidents. meters from North to South, 480 meters from A check on the accident records at the East to West plus about 280 meter stretch of Western Police District showed that in the Escolta Street. study area, the intersection of Sta. Cruz as well Considering that the maximum walking time is only about 7 minutes, the whole study area 8MMETAOPLAN is an acronym for Metro Manila can be easily pedestrianized. In fact, a wider Transport, Land Use and Development Planning Pro walking area can be made. Studies show that ject. 24 PHILIPPINE PLANNING JOURNAL Table 3 WALK TIME SCALE EAST-WEST WALK TIME (Minutes) DISTANCE (Meters) Plaza Miranda to Avenida (LRT Station) 4.4 330 Plaza Miranda to Escolta 7.0 520 Plaza Miranda to FEATI 6.0 450 Royal Hotel to Escolta 5.4 400 NORTH-SOUTH WALK TIME (Minutes) DISTANCE (Meters) Raon corner Evangelista to Quinta 6.8 500 Ronquillo to Plaza Goiti 4.2 350 Ronquillo corner Avenida to Escolta 6.1 450 Sta. Cruz to Quezon Blvd. Public Transport Terminal 6.2 460 SOURCE: From actual survey conducted Table 4 TRAFFIC ACCIDENTS Manila Type ofAccident 1982 1983 Jan. to Dec. Jan. to Dec. Killed 86 72 Serious '136 118 Less serious 315 127 Slight 2233 1277 TOTAL 2770 1594 SOURCE: Record Section, Western Police Traffic Division as the intersection at Raon/Quezon Blvd. re crimes. Theft and robbery have the biggest gistered the most number of accidents. share at 34.8% and 30.3% respectively (see It is important to note however that physical Table 5). These thefts mostly involve pick injury from accidents comprise only 7.6% of pockets and bag snatchers. the total crimes registered within Manila Dis Study findings showed that the movement trict. The study area which is under Station systems in the whole study area are directed to Number 3 has the biggest share of reported three major areas: the Quiapo/Plaza Miranda 25 PHILIPPINE PLANNING JOURNAL Table 5 FREQUENCY OF CRIMES (1983) Manila Percentage Number (%) Theft 1000 34.8 Robbery 870 30.3 Physical Injuries/accidents 220 7.6 Murder 350 12.2 Homicide 400 13.9 Rape 35 1.2 SOURCE: Records Section, Western Police Traffic Division area, Sta. Cruz area and the Quinta Market. The The results of the analysis of pedestrian and common denominator of these three areas is vehicular movement, identification and pre their being directly adjacent to public transport diction of conflict points, pedestrian site lines, routes. All the streets between them serve as appropriate location for sidewalk vendors and linkages where heavy pedestrian traffic flows alternative convenient routes form the basis for in both directions. The pedestrian volume study the proposed design concepts. The pedestriani shows that the heaviest flow is at Carriedo and zation of streets, on the other hand, are de Avenida. Density of pedestrian is obviously in signed to conform to a set of design criteria fluenced by factors such as: location of modes formulated with the pedestrian's needs in mind, of major traffic route; presence of major land along with other relevant factors such as servic marks such as Quiapo Church or major estab ing of establishments. lishments such as Shoe Mart; the presence of The pedestrianization of the area is therefore road intersections that hinder the continuous a design concept that could provide a means by movement of pedestrians; and, of course, the which the needs for freedom of movement as presence of sidewalk vendors occupying a big well as the safety of the pedestrians in the area portion of sidewalks and therefore slowing may be achieved. It should be noted, however, down movement of pedestrians. that pedestrianization as proposed in this study, It is noteworthy that the highest concentra does not mean total exclusion of vehicles, but tion or clustering of vendors are also where in creating a condition where there is less con pedestrian concentrations are. In fact, the flict between pedestrian and vehicular move vendors practically occupy the sidewalks, ment. leaving barely a meter's effective width left for Avenida Rizal could be another ideal pedes the pedestrians. Thus, pedestrians spill out to trian-oriented area, but to completely close the the streets where the vehicles are, resulting in street to vehicular traffic does not seem feasible traffic conflict congestion. because there are not enough North-to-South There is no one easy and complete solution roadways. However, the sidewalk width on to this problem posed by the traffic conflict both sides of the Avenue from Carriedo to Ron between man and vehicle, considering that quillo is increased substantially. Helios Street, there is also the problem of sidewalk vendors with the construction of the new Isetann, be which cannot be taken for granted. They have comes a major pedestrian area. Plaza Sta. Cruz become part of the character of the area that has the potential for redevelopment as an im their presence should be considered in any portant area for pedestrian activity but because design concept for the area. Sta. Cruz Church already has a plaza, it will be 26 PHILIPPINE PLANNING JOURNAL retained and complimented with a car parking The Quinta Market/Oulapo underpass area area and a loading/unloading zone for jeepney (Design Concept for Quinta Market) if integ passengers. rated with the New Zamboanga Flea Market and the Balikbayan Handicraft establishment The existing network of shopping arcades can be a potential tourist attraction. The devel and sidewalks shall be closely and continuously opment of the area can be further enhanced linked, extended and enhanced. Continuous pe by the rerouting of private, service and neces destrian shelter through linked system of sary vehicles from Echague to P. Ducos passing awnings, colonades and arcades shall be pro through the back of Quinta Market, then under vided to connect places of interest. the bridge, then out to Echague through Basan Pedestrian space, particularly the Plaza Mi Street. This proposed scheme will make the randa area, shall be enlivened with trees, flower area accessible to both pedestrians and vehicles, beds and shruberries. Greeneries shall serve as thereby heightening commercial growth (see focal point and buffer between traffic and peo Proposed Development Plan). ple, as well as control and guide for pedestrian. The LRT station at the Carriedo/Avenida The sidewalk vendors/hawkers, being part of Rizal junction and the rerouting of public trans the overall character of the study area, will be port to the Plaza Lacson area have tremendous provided with common toilet facilities and uti ly increased the number of pedestrians in the lities in appropriate areas. For instance, co area. Thus, an elevated plaza, enlivened with vered flower stalls along the sidewalk of Hidal trees and pedestrian amenities featuring: a co go street could be further enhance the view of vered pedestrian walk, integrated with LRT Royal Hotel, as one walks through this street station and commercial establishments seems (please refer to Hidalgo St. Design Concept) to be the best solution for the area. This ele This is now designated as a pedestrian area. vated plaza will have access points from the proposed parking area near FEATI University. At the Carriedo area, awnings and umbrella If extended to the proposed modern Flea Mar· type canopies will be provided for the vendors ket project at the west side of McArthur Bridge, selling ready-to-wear clothes and accessories. two elevated plaza will perhaps boost the pro The P. Gomez/Carriedo corner has been a favo ject which has been temporarily stopped due to rite hangout for chess enthusiasts since the lack of takers (Design Concept for Plaza closure of the bazaar occupying the adjacent Lacson). areas. The queuing of players at this small cano Except for this elevated plaza, all the pro pied area is a good indication to develop the posed design concepts are not ,very expensive. now unused bazaar area into a possible re Furthermore, development can be phased. In creation center (refer to design concept for as far as the proposal of this study with respect Carriedo Area). to sidewalk vendors/hawkers is concerned, Vendors of religious articles will be retained funding would not be a problem. According to at the Carriedo side of Ouiapo Church while the City of Manila Hawker's Office, collection the front area, which is the Plaza Miranda, will fees amount to more than a million pesos be developed into a real plaza, complete with monthly from the almost 4,000 vendors with fountain, benches and trees. Covered food hawker's permit. This being only about 20% of kiosks can be located in strategic areas was the hawkers actually plying their trade in the observed during a Quaipo fiesta that the under area, the proposed organization of stalls will pass roof can carry a large number of people. realize more income in additional permit fees It is therefore recommended that instead of that could be charged from actual stall holders. putting up a stage during rallies and other acti According to the head of the Manila Hawker's vities in the area, this underpass roof can Office there are actually about 20,000 vendors. double as stage if leveled and provided with If they can only legalize just 50% of these vsn stairs (Design Concept for Ouiapo/Plaza Miran dors the government will be getting about 30 da area). million per annum in fees. 27 PHILIPPINE PLANNING JOURNAL ------j '- 28 PHILIPPINE PLANNING JOURNAL DESIGN CONl:EPT QUINTA MARKET 29 PHILIPPINE PLANNING JOURNAL .••.~.~ ~····i' ,,-"""';e:'=_ . .. '~'~~~DESIGN CONCEPT. PLAZA lACSON VIEW FROM ESCOLTA - .:>-_::_~~------ CON~EPr'. PLAZA 30 •~ PROPOSED DEVELOPMENT -;, CONCEPT PLAN ~ o--______-1lO 100Il 11lO METERS LEGEND: 1>::::::::::::::1 PEOESTRIAN AREA ~ ...Co) PARKING AREA ~ ELEVATEO PLAZA ~~~ JEEPNEY ROUTES ~ BUS ROUTES +++ NECESSARY VEHICLE ROUTES (oeUVERY TRUCKS) •L RT POSTS ~ • TREES" GREENERIES r::: ~ - ~ ~ I 1 . ~ ~ l:> ~ C'l c::C5 ~ r- PHILIPPINE PLANNING JOURNAL With regard to the proposed elevated plaza, (e.g. for Avenida Rizal). the Manila Citizen's Businessmen Council (MC • Spaces between buildings should be uti BC) and commercial establishments adjacent to lized as pedestrian linkages it can jointly fund this project with perhaps • Commercial establishments should be in some assistance from the government. An inter tegrated with LRT stations view with Mr. Juan Miguel Vasquez, 1983 Presi • Mezzanine floor like the station at dent of MCBC, disclosed that the group has Carriedo should be developed into pedes been seriously considering undertaking deve trian malls and linked to developments at lopment projects with the government that will the side like the proposed elevated plaza improve and enhance Manila's business environ concept for Plaza Lacson ment. • Spaces underneath the LRT structure To strengthen the relationship of new deve should be utilized as pedestrian space, lopments with existing ones, Urban Design vending space for small stalls or as traffic Guidelines should also be established such as: lanes • Little plazas enlivened by greeneries, ben • Floor area bonuses-additional floor for ches and other street furniture should be new structure providing for urban open encouraged. space • Residual space, a narrow area adjoining In short, one should aim at an ecologically the public sidewalk use to enhance the harmonious environment for man at which building and the surrounding should be efficient use of the vehicle plays a crucial part. developed as a usable space or purely It is believed that the realization of this devel visual amenity opment concept will defintely open great • Continuous sheltered pedestrian move opportunities for the revitalization of Metro ment should be provided through linked Manila's city core. 0 system of awnings, colonades and arcades 32 THE LRT AS A COMPONENT OF METRO MANILA'S TRANSPORT SYSTEMS* Ministry of Transport and Communications INTRODUCTION AND GENERAL old and above). Buses and jeepneys carry the CHARACTERISTICS majority of public transport trips catering for 93 percent or approximately 7.5 million trips Over the recent years a considerable amount per day. of transport data collection has been under Today, year 1985, it is estimated that appro taken in studies for the Ministry of Transporta ximately four percent of daily public transport tion and Communications (MOTC). This trips is made on the newly opened Metrorail section presents a brief description of the more Taft-Rizal Line. The MetroraiJ market share is important aspects of these data. The reader is not shown in Figure 1 as that figure represents referred to the reports of the Metro Manila Ur ban Transport Improvement Project (MMUTIPj, the 1980 situation only. Traffic Engineering and Management Office (TEAM), JICA Update of Manila Studies on Urban Transport (JUMSUTj, and Metro Manila Fig. 1: Overall Transport Demand by Transport Urban Transportation Strategy Planning Pro Mode in 1980 ject (MMUTSTRAP) Parts A, B1 and B2 studies for a fuller in-depth treatment of Metro Mani- la's transport system. . The total population of Metro Manila in 1980 was 5.9 million of which 4.8 million were above 7 years of age. According to the JUMSUT 1980 household interview survey results,' there were approxi mately 10.6 million person trips per day in Metro Manila in 1980. Of these trips approxi mately 24 percent are made by private means (car, jeep, van, and truck) and 76 percent by public transport (taxi, bus, [eepnev, tricycle, and train); (see Figure 1). This represents a trip rate of 2.2 trips per day per person (seven years 1JUMSUT, Main Text, Part I, Summary and Re commendation, page 2·3; excluding walk trips (esti mated to be about 30% of all trips) and population under 7 years of age. 33 PHILIPPINE PLANNING JOURNAL HIGHWAY SYSTEM PRIVATE TRANSPORT SYSTEM The existing highway network of Metro Current statistics from the Bureau of Land Manila is characterized by a combination of Transportation (BLT) show that there are some radial and circumferential arterials which en 265,000 private passenger motor vehicles (cars compass usually narrow and disconnected and jeeps) registered in Metro Manila. (see streets of residential, industrial, and commercial Table 1) areas. In addition, there are two major toll ex Assuming a total population of 6 million, pressway links between Manila and provincial this means that there is one private passenger areas, one to the North and the other to the vehicle for every 23 persons in Metro Manila. South. (see Figure 2). Private passenger vehicles cater for some 1.7 In total there are some 2,800 kilometers of million trips per day. primary and secondary roadways within Metro Truck and trailer registrations in Metro Ma Manila. The existing network has several major nila account for approximately 30 percent of discontinuities which result in indirect routing the total motor vehicle registration. of trips and creation of several "bottlenecks." ROAD BASED PUBLIC TRANSPORT Proposals for elimination of many of these dis SYSTEM (JEEPNEY, BUS, AND continuities are presently being evaluated as TRICYCLE) part of a systems approach to transport plan ning and policy.2 Whilst many of these propo According to the latest JUMSUT studies sals are likely to be undertaken and completed there are 29,261 jeepneys plying 640 intra-city in the near future (for example, RIO Coastal routes and 4,368 buses (standard, double Road and associated access roads), others, be decker, limited, love bus and minibus) plying cause of major acquisition problems are unlike 150 intra-city routes. In addition vehicles from ly to be realized in the foreseeable future (for the provinces enter and service Metro Manila. example the southern leg of C3 especially Jeepney routes cover approximately 610 between Aurora Boulevard and Gil Puyat). kilometers of the metropolitan primary and Table 1 Number of Registered Vehicles 3 Vehicle Type 1975 1976 1977 1978 1979 1980 1983 % 1. Car 166,743 169,248 188,264 219,726 227,726 227,726 218,130 50.5 2. Jeep 41,280 41,861 39,495 44,636 50,703 36,770 46,892 10.8 3. Taxi 8,512 11,460 14,666 11,870 7,513 10,125 6,149 1.4 4. PUJ 13,359 14,640 23,763 27,752 19,067 28,174 27,886 6.5 5. Bus. 5,725 6,205 4,640 4,703 2,437 3,578 4,381 1.0 ·PUB 4,940 5,030 4,136 3,839 1,811 2,890 3,591 ·Others 785 1,175 504 864 626 688 790 6. Truck/Trailers 73,364 81,393 93,715 113,035 128,267 100,966 128,761 29.8 7. Others 5,818 8,393 7,269 4,219 6,933 6,651 unknown TOTAL 317,801 333,200 371,812 426,046 442,016 404,521 432,199 100.0 8. Motorcycle 14,701 41,438 42,987 50,607 47,883 41,621 38,609 2MMUTSTRAP, Part A, Bl and B2. 3JUMSUT, Main Text, Part II, MetroManila PublicTransportation,Table4-9, page4-13. 34 PHILIPPINE PLANNING JOURNAL Fig.2: ,Metrorail Taft-Rizal Line NORTH TERMINAL 5TH AVENUE STATiON R PAPA STATiON J ABAD SANTOS STATION BLUMENTRITT STATiON TAYUMAN STATION BAMBANG STATiON D JOSE STATION CARRIEDO STATION CENTRAL TERMINAL U N AVENUE STATION PEDRO GIL STATION PRESIDENT QUIRINO STATION VITO CRUZ STATION GIL PUYAT STATION LI8ERTAD STATION EllS A STATION SOUTH TERMINAL DEPOT WORKSHOP 35 PHILIPPINE PLANNING JOURNAL Fig. 3: Metro Manila Road Network .. .o o o o o o.. .o o o o o o o o o o o ...-..o o o. ..• 00 .. •... 0 o A N LEGEND: - PRIMARY ROADS SECONDARY ROADS ...... PROPOSED I UNDER CONSTRUCTION 36 PHILIPPINE PLANNING JOURNAL Table 2 Estimated Number of Routes and Units by Public Transport Mode Intra-city Inter-City Total Routes Units Routes Units Routes Units Jeepneys 640 29,261 104 6,266 744 35,527 Buses ·Standard Bus 106 3,750 13 346 119 4,096 -Double Decker 3 25 3 25 -Limited Bus 5 87 5 87 -Love Bus 27 299 1 15 28 314 -Mini Bus 9 207 20 933 29 1,140 ·ProviRcial Bus 13 249 13 249 TOTAL 150 4,368 47 1,543 197 5,911 secondary road network whilst buses cover City to Monumento in Caloocan City came into approximately 330 kilometers. Direct competi service on 13th May 1985. This line which tion between buses and jeepneys occurs on 290 forms the first part of a possible Metro Manila kilometers of the road network. Metrorail network is about 15 km. in length Within Metro Manila jeepney services carry and runs entirely on an elevated structure sup approximately 5.8 million passengers per day ported by columns located in the center of the (about 72 percent of total public transport roadway below. passenger demand) and buses carry most of the The alignment generally follows the right of remaining demand." way of Taft and Rizal Avenues (see Figure 6). Other road-based publ ic transport modes The 8 m wide viaduct rises about 8 m above (e.g. taxis, motorized tricycles and horse-drawn street level, with the two standard gauge (1,435 calesas), complement the main bus and jeepney mm) tracks embedded in ballast. services. Taxis cover the entire metropolitan Some 18 elevated stations have been erected area. Tricycles and horse-drawn calesas being along the line. Each station is a simple addition generally prohibited from main thoroughfares of two platforms on each side of the track with tend to serve localized transport needs but also covered stairs leading to the street level. Very provide an important feeder function between economical and utilitarian treatment is given to residential areas and the city bus and jeepney station design. To facilitate heavy boarding routes. Hence, an almost door to door public and alighting passenger volumes, special pedes transport system is provided in the majority trian mezzanines have been constructed at some of the urbanized area within Epifanio delos stations. Santos Avenue (EDSA). Existing jeepney and bus route structures are The terminals and the central station. are presented in Figures 4 and 5. equipped with special turnback facilities and sidings, permitting turnaround and storage of METRORAI L SYSTEM non-operational vehicles. The maintenance facilities and station yard Description are located in Andrews Avenue, Baclaran, close to the Domestic Airport Terminal. The admi The Taft section of the Metrorail com nistration and welfare buildings are also located menced operation on 1st December 1984 and on this site. This depot and workshop area is the full Taft-Rizal line from Baclaran in Pasay linked via a short spur line to the South Termi nal. The Taft-Rizal line receives its power supply via special rectifier substations (9 in total) fed from the public network. These sub 40 p cit, Table 6-5, page 6-9. stations provide 750 volt direct current for the 37 PHILIPPINE PLANNING JOURNAL Fig. 4: Existing Jeepney Route Structure j LEGEND: /" Intrscltv Routes (Frequency: 150 or less/hr.) --- Intercity Routes (Frequency: 150 lind more/hr.) Intercity Routes (Frequency: 150 or less/hr.) 38 PHILIPPINE PLA ______~~N~NV"INVGJOURNAL Fig.5: Existing Bus Ro ut e Structure MALINTA PASIG LEGEND: -- Ordinary Bus (Fr __ and more/hr.) equencv 30 -- Ordinary Bus [Fr- _ or less/hr') equencv 30 - -- Limited Bus (Frequ ______and more/hr) ency 30 • Limited Bus (Fr _ or less/hr 1 equency 30 • - Love Bus {Fr _ and more/hr ~uency 30 -- LoveBus(F" y __ a~d less/hr./equenc 30 -Mmi Bus (Frequenc __ ll~d more/hr,) Y 30 -Mmi Bus (Fr lind less/hr.) ecoencv 30 39 PHILIPPINE PLANNING JOURNAL trains as well as low voltage for signalization, Ridership levels show a distinct day of the lighting, and other auxiliary installations. The week pattern with Wednesdays being the peak power is carried along the line with two over day due to demands generated by Baclaran head copper contact wires. Church and Market. Rolling stock consists of 8-axle double arti culated vehicles of the following main dimen PHILIPPINE NATIONAL RAILWAYS (PNR) sions: • Body length: 29.28 m. In addition to the road-based public trans • Total width: 2.50 m. port services and Metrorail, the PNR com The vehicles run in married couples with a muter rail system which comprises a northern crush capacity of 750 passengers per train. The line between Tutuban and Caloocan and a presently supplied equipment (64 vehicles in southern line between Tutuban and Carmona cluding spares) allows for a two-car train service (see Figure 8) services public transport de at a two-minutes 30 seconds headway. This mands. is equivalent to a flow capacity of 18,000 The PNR route from the South closely paral- passenger per hour. lels the South Super Highway and the latter's The system includes further the auxiliary extension to President Ouirlno (C2). Then it equipment such as signalling with automatic diverts North-East to cross the Pasig River to train stop and speed control, loud speakers in Sta. Mesa and then back North-West to bypass stations and trains, telecommunication between north of the CBD crossing Aizal Avenue at trains and control, and fare handling equip Blumentritt. It then joins the North Luzon line ment. A flat fare structure using tokens has and connects to Tutuban Railway Station. been adopted. The selling and collection of PNR commuter services carry less than one tokens take place at stations only. percent of all public transport passenger de Photographs of the important features of the mand. The potential of the system, a narrow Taft-Rizal line are presented in Figure 6. gauge railway, is severely restricted by poor track and signalling systems and by lack of Experience with Initial Operation Phase grade-separated road crossings. In terms of travel demand, only the South line has signifi The Metrorail system has been well accepted cant potential at present and in the near future. by the public. Average ridership for the first Although in this study no specific investiga months of full line operation period is shown tions were conducted to indicate the type and in Table 3. scale of necessary improvements and the ex Table 3: Taft-Rizal Metrorail Line: tensions of the existing PNR network, a tenta Average Ridershipfor the tive improvement program has been established. Period May 13 to November For the analyses of Metrorail extensions, it was 25, 1985 assumed that the PNR network would maintain Average the following characteristics: Ridership • Maximum travel speed: 18 kph; .'Maximum train capacity: 1,500 passengers; Monday, Tuesday, Thursday, • Minimum headway: 10 minutes Friday 238,989 Further, the influence of provincial and Wednesday 307,804 outer suburban demands was not considered. Saturday 201,568 Sunday 194,764 THE NEED FOR RAI L TRANSIT The daily ridership pattern since the com An examination of the present traffic condi mencement of the Metrorail service is presented tions as reported in the JUMSUT I Study and in Figure 7. This figure shows daily ridership surnmarlzed in Figure 9 reveals that there exists for the half line operation Baclaran to Arroce severe capacity restraint along most major corri ros from 1st December 1984 to 13th April dors within EDSA. In terms of the theoretical 1985, Baclaran to Carriedo from 14th April volume to capacity ratios indicated, it is clear 1985 to 12th May 1985, and full line operation that the radial corridors Taft Avenue (R21, J.P. commencing 13th May 1985. Rizal-Imelda Avenue (R4), Shaw Boulevard 40 Fig. 6: The Existing Taft-Rizal Metrorail System 1. Metrorail Train 2. line Station 3. Elevated Structure 4. M·amtenance Facilities and Stabling Yard 5. Central Terminal I I I PHILIPPINE PLANNING JOURNAL I I Fig. 7: Taft·Rizal Line Ridership Pattern I I I I I ;>ASS.'0OAl" 0 ,- lI'INP£PENOEIlC£ DAY - -, 0 I '"0 ] _." ~ I I 400.000+------1------1 I ,. START OF CLASS S I ~OO.OOO+------I-I,....",..., I I 200.000+------.-- GOOD FRIDAY", fcO SERVICE I I 100.000 I I o I I FULL LINE SERVICES ~I "'1 .. '" BACLARAN TO CARRIEoo SERVicE I I I I I I 42 I PHILIPPINE PLANNING JOURNAL Fig.8: PNR Commuter Network in Metro Manila »<:...... ,."/ LA UNION --_.-.,., I \. "'. ! I I i / <...... ~ I ~. sAN LAZARO ./'·--.·.....1 AON& LAAN ESPAJiA "--, SAMMLOC I STA. MESA i i ><{J~PACO(} ( ~VlTO cAblII~- tlBUENDlA \ ~ PIO DEL PILAR ; eEDSA ~ A ':0 N ':0 ~ ':0 FOOD ':! TERMINAL~ JUNCTION ~ BICUTAN\.j • i •: • \ :.." , =Ui/; ..... e '\ .U.AT~'li '\ ~WM;e@L .\ ",·r Y.??> \ /' : 'v' • 43 PHILIPPINE PLANNING JOURNAL Fig.9: Vehicular Traffic Flow and Volume-Capacity Ratios on Maior Roads .. N LEGEND: VOL-eAPACITY RA110 1 1.07 '_L. vEHICLES [ BUS/JEEPNEY 100.000 50.000 (VEH./DAYj 44 PHILIPPINE PLANNING JOURNAL· (R5), Aurora Boulevard (R6), Quezon Boule Road widening along Ramon Magsaysay, vard (R7), Rizal Avenue (R9), and EDSA (C4) Shaw, and Aurora Boulevards is difficult due to have capacity limitations along most of their high land acquisition costs and the need for length. relocation of a large number of residents and Current and proposed road works for the businesses. Quezon Boulevard/Espana will have region will tend to add capacity to the outer some spare capacity and potential exists (in the areas and the circumferential corridors. The short term) for the introduction of transport construction of C5 and C3 will help carry system management measures to provide addi traffic which is presently forced to use the tional throughput of passengers. EDSA (C4) corridor. Moreover, failure to In terms of improving system capacity, rail construct either C3 or C5 will place serious systems have greatest potential in corridors pressures on EDSA, which will result in a where public transport demand is high and deterioration of the level of service offered by roadway capacities limited with no practical this facility: potential for improvement. The Taft-Rizal The recently opened Taft-Rizal Metrorail Metrorail line is a good example of how a rail line adds considerable public transport capa system can readily improve capacity in a city in that corridor. The completion of the restricted high demand corridor. The need for R10 road project will add capacity to the rail system solutions would appear to exist northern coastal corridor. Together, these faci along most radial corridors and if proposed lities will improve capacity for north-south roadworks are not undertaken the need will movement in the region. arise for such solutions in the circumferential Of the remaining radial corridors little im corridors. This conclusion has been reached by provement in road capacity is proposed apart several previous studies including MMETRO from some new links in the J.P. Rizal-Imelda PLAN and more recently completed JUMSUT Avenue (R4) corridor. Because of this, severe II Study which identified the Aurora corridor pressure will continue to be placed on the radial as one in need of a rail solution to the problem corridors particularly those with high public of capacity constraint and high public trans transport volumes. port demand. 45 URBAN LAND MANAGEMENT STUDY: Urban Redevelopment in Connection with Metrorail* Metro Manila Commission Office of the Commissioner for Planning URBAN LAND MANAGEMENT STUDY With the recognition that mass transit sys AND THE LIGHT RAIL TRANSIT tems exercise a strong influence on urban devel opment, an initial step towards the formulation The Urban Land Management Study (ULMS) of a comprehensive urban land policy in a me is one of the components of the Third Urban trowide context is then taken. Two pilot sites Development Project Loan Package granted by around two LRT stations have been identified the World Bank to the Metropolitan Manila and assessed as to their redevelopment pro Commission (MMC) for purposes of providing blems and potential. technical assistance in the formulation of a comprehensive urban land policy for the entire OBJECTIVES OF THE STUDY Metropolitan Manila Area. The Metropolitan Manila Area has under With the main objective of formulating a gone several urban transformations over the comprehensive urban land policy for the entire decade which saw the further growth of urban Metropolitan Manila Area in mind, specific centers such as Cubao, Greenhills, and Makati. objectives that are deemed to go hand in hand In the eighties, the most significant urban with the main objective, have been formulated. development to take place is the introduction They are as follows: of the Light Rail Transit (LRTl. otherwise known as the METRORAIL. The ongoing 1. To promote the development of idle, construction of its UQe 1 which is traversing under-utilized and blighted properties in a major radial route in the transport network Metro Manila. of Metropolitan Manila coincides with the pro gram of the Third Urban Development Project 2. To enhance the commercial potential Loan Package. generated by the LRT especially in the It is anticipated that traditional centers of immediate vicinity of Doroteo Jose and commercial activity such as the Carriedo Area, Blumentritt stations. Binondo (Escolta) and the Recto Area can 3. To be able to encourage the undertaking regain their importance with improved accessi of pilot projects that will help improve bility. At the same time, it is expected that the the administrative and technical capabi absorptive capabilities of these old districts will lity of the Metro Manila Commission. be strained by the imminent redevelopment and the consequential introduction of more 4. To be able to delineate the roles and urban activities. functions of government agencies or insti tutions and private groups which may be involved in the redevelopment of key • Excerpted from a report of the same title & areas in the LRT Corridor, specifically in edited for publication with permission from the the Doroteo Jose/C.M. Recto/Bilibid Metropolitan Manila Commission. Area and in Blumentritt. 46 PHILIPPINE PLANNING JOURNAL PREVIOUS AND ON·GOING RELATED into transport-planning issues in the entire STUDIES Metropolitan Manila Area. Recently, infor mation has been received that the next pro Various studies are related to ULMS; they ject phase is considering to look into trans have either been recently concluded or are still port-planning aspects of the Recto Area on-going. These are the following: (also one of the two selected areas of this study). 1. "Urban Consequences of the LRT" The involvement of JUMSUT in detailing transportation aspects. in the Recto Area This study analyzed prevailing conditions would be most welcome, especially because along the LRT corridor and presented tenta transport interchange is one of the most tive approximations of how such conditions important elements of the planning and will change as influenced by LRT. It also design concept for the Recto area. identified five (5) major planning areas which can be studied by MMC, namely: 4. The Recto Central Park Project (RCPP) • The Northern Terminal Area. On February 14, 1979, the Human • The Rizal/C.M. Recto/Doroteo Jose Settlements Development Corporation areas including the Old Bilibid Prison (HSDC) was designated to control and ad area. minister the Old Bilibid Compound in a • The Rizal/Carriedo junction including contract issued in their favor by the Ministry FEATI Building and the Pasig River of General Services (MGS). In this respect, shore. the Recto Central Park Project (RCPP) was • The Central Terminal including the put up leading to the conception of the de area bounded by Arroceros and Pasig velopment plan for the area. HSDC, then, River. initiated the relocation of facilities utilized by other government offices in the area, • The Southern Terminal area along Taft namely: Bureau of Telecommunications, Ave. Ext. Bureau of Records Management and Bureau 2. The MMUTSTRAPP Study of Prisons in preparation for the implemen tation of Phase I of the approved develop This study which is called Metro Manila ment plan. Urban Transportation Strategy Planning Pro When HSDC has started the implementa ject (MMUTSTRAPP) is mainly concerned tion of the development plan, it caught the with transport terminals and has identified interest of the private developers represent Blumentritt (one ofthe two selected areas of ing anchor commercial establishments such this study) as one particular critical area, as Gotesco and Shoemart. This interest was where a railway, a large number of jeepney concretized when a Contract of Lease was routes and the LRT will intersect. This study executed between HSDC and Consolidated was initiated by the Ministry of Transporta Ventures, Inc. (Gotesco) last December tion and Communications (MOTC) in 1982 1979 for the use of 9,036 square meters in and is now on its second phase. the area. However, the intended use of the Joint meetings between the MMUTS area did not materialize because issues for TRAPP and the ULMS groups have been the provision of access/frontage to the area conducted enabling the ULMS group to have not been resolved. Meanwhile, another proposal was submitted by Shoemart and develop and adapt the MMUTSTRAPP re Gotesco for a joint undertaking in the area commendations to fit the specific objectives and is still awaiting the decision of the of the ULMS. HSDC Management. 3. The JUMSUT Study In undertaking the development plan, HSDC was faced with various constraints This study known as JICA Update of that have impeded the implementation of Manila Studies on Urban Transport (JUM the project, mostly pertaining to the follow SUT), also undertaken by MOTC, has looked ing: 47 PHILIPPINE PLANNING JOURNAL • Funding for the relocation of the lock ping complexwhlch will connect to the eastside up jail passenger handling area and at the intermediate • Issues on illegal occupants landing of the terminal. Buendia and Libertad are two urban nodes • Issues on occupants with pending cases that are very proximate to each other, as such, in court were treated as one study area. Note that this • Issues on how to provide accessl area is not in the list of the planning areas re frontage to the area commended in the "Urban Consequences of the LRT". The Study group, however, consi PRE-SELECTION dered this area on the basis of its high pedes trian density, particularly in the vicinity of With the formation of a study group consist Libertad Public Market and Buendia's poten ing of consultants from the Electrowatt Engi tial to develop as a transfer point in the future. neering Services, Ltd. and the Technical Staff Among on-line stations, Carriedo is expected of the Metropolitan Manila Commission, a dis to have one of the highest passenger volumes cussion of the general urban characteristics and as it lies in the core of Manila's Cental Business the development potentials of each of the District. The Importance of the area will further eighteen (18) stations was conducted. The be boosted by the proposed redevelopment of study group then agreed to shortlist the number the former site of Isetann and President's Hotel, of priority areas to seven (7) (see Table 1). The the buildings that gave way to the construction list is as follows: ofthe LRT. Like the Buendia/Libertad area, the Doroteo • South Terminal Jose/Old Bilibid area was considered because of • Buendia/Libertad its possibility as an interchange. At the same • Central Terminal time, the proximity of an available land for • Carriedo redevelopment, the Old Bilibid Prison area, occupying 6.5 hectares of land which has been • Doroteo Jose IOld Bilibid lying idle for years, makes land consolidation • Blumentritt prior to urban redevelopment less of a problem. • North Terminal Blumentritt was especially considered for its unusually high pedestrian density and business The three (3) terminals function as points intensity occurring in a heavily blighted physi of interchange and will surely generate related cal setting. urban activities. As such, they offer greater The North Terminal is very near a major oppoutunities for urban development. This transport node - EDSA and Rizal Ave. In its potential is further reinforced by the avail immediate vicinity is the Victory Liner Com ability of sizeable plots either privately or pound, one of the largest bus terminals in publicly owned in the area. The locational Metro Manila. The urban redevelopment advantages of the areas around the terminals momentum of the area is expected to accele are too apparent to be overlooked by leading rate with the purchase of the Cecilio Apostol urban developers. In fact, for each. of the three Elementary School site by the owners of the terminals, there is at least one major shopping Gotesco chain of moviehouses and Ever Empo complex integrated with the LRT station and rium. is ready for implementation. At the South Terminal, Galleria Baclaran Shopping complex FINAL SELECTION will be constructed above the LRT layover area and will connect to the mezzanine level of the The seven (7) study areas in the shortlist terminal. At the westside of the terminal, two were further subjected to evaluation in terms of other property owners have plans to develop. the following criteria to which weights were At the Central Terminal, Rustan's shopping assigned by the group: COmplex will occupy the entire Mehan Garden and will likewise integrate with the terminal • Intensity of Land Use at the mezzanine level. At the North Terminal, This is normally measured in terms of the Cecilio Apostol Elementary School will total floor area to lot area ratio. The concen give way to the construction of Gotesco shop- tration of tall buildings around a particular 48 Table 1 - Evaluation of LRT Stations/Terminals 28 24 20 16 12 8 4 EXPECTED IMPACT ON STRUCTURAL ANTICIPATED INTENSITY EXISTENCE OF ECONOMIC URBAN LAND- COMMUNITY CHANGE CHANGE TOTAL OF YIELD RESTRUC- OWNERSHIP ACTIVITIES IN THE PAST AFTER LRT POINTS LAND USE TURING ------1------>------28 18 20 16 12 2 4 96 RECTO/BILIBID High Med. to High One large Gov't. University Very low Few private high property belt close individual rest private by markets together with fragmented Bilibid, high condition- frontage ------1------21 18 15 12 6 8 4 84 NORTH TERMINAL Med. Med. to High large priv. Band J High self High high no public term dev. force ------28 24 5 4 12 4 4 81 CARRIEDO High High Low mostly priv, Market Structure Yes, high but fragmented Churches med. ontv on indo plots ~ ------1------.....,. ------7 18 20 16 6 2 3 72 ex. low large public city hall high, depends CENTRAL Low frnt-high high no private Met. Theater low on dev. TERMINAL under Intramuros plans condo ------_____ 4 7 12 10 12 6 2 4 53 Baclaran SOUTH v.low med, med. 4 large priv, Church low high, 4 big TERMINAL Public market plots (2E,2W) ~ B & J term ------r:: 14 12 5 4 3 4 2 44 ~ Mostly priv. ~ BUENDIAI med-Iow rned- low fragmented Market Med-Iow Med. F11 L1BERTAD one large ~ public market, ),. newly built ~ ------~ 7 12 5 4 6 2 1 37 ~ fragmented railway, small indi- C'l BLUMENTRITT low moo. low small plots jeepney Very low vidual only Cs private Terminal interchange c: Bus with PNR, ~ prob.low ~ L______------effect r------PHILIPPINE PLANNING JOURNAL station would, therefore, yield a high land the rate of urban change map which shows both use intensity. A reiiable tool for an lysis is the functional changes and the physical changes the plot size and building height map. Gene that have transpired in the area. In the absence rally, pedestrian density is expected to be of vacant properties in what are considered high whenever the land use intensity is high. "soft" areas where the existing structures are In exceptional cases, however, as in Libertad low and/or dilapidated, demolition is a likely and Blumentritt areas, pedestrian density is alternative. In "hard" areas occupied by tall extermely high in spite of the proliferation buildings made of more permanent materials, of low structures. This can be attributed to the possibility of urban restructuring will be the presence of public markets whose func little. This criterion has a weight of twenty tions are limited to a neighborhood level and (20) points. to the dominance of sidewalk/street vending activity. This criterion was given the highest • Land Ownership weight of twenty-eight (28) points. Single ownership of a sizeable plot is an ad • Expected Economic Yield vantage for urban development. A consolidated land allows more urban design flexibility in This is determined by the floor space terms of introducing primary and secondary demand, the types of business or activities activities or uses and providing an efficient occupying floor space, the land's and rental linkage between such activities. Consequently, values that prevail in relation to building a large scale development will have a strong cost. catalyzing effect on its surroundings. On the Conservative developers would therefore other hand, fragmented lots under various safely expect a higher economic yield in an ownerships will have a constraining effect on area where land use intensity is already high urban redevelopment. The weight assigned to instead of pioneering investments in a rela- land ownership is sixteen (16) points. tively underdeveloped but already built-up urban area like Blumentritt. Likewise, areas where a rapid urban change is occuring are • Existence of Community Activities expected to have a high economic yield. The study group conducted a land use The existence of community activities survey, interviews of shop owners and exerts a strong influence on the urban growth vendors, and researched on the current of a particular area. The University Belt, for rental rates and land values from the City instance, has spawned several bookstores and Assessors and from realtors. Classified as dormitory houses. In the same way, the line of second in the ranking, expected economic moviehouses along Rizal Avenue and the con yield as criterion has a weight of 24. centration of large department stores are the major magnets that have drawn further an • Impact of Urban Restructuring cillary activities in downtown Manila. In Li bertad and in Blumentritt, the presence of This is dependent on the following public markets has resulted into an intense factors: pedestrian activity. An efficient linkage with these community facilities/activities will help i) availabil ity of vacant lots (not com- pletely built-up) insure the success of any redevelopment pro ject. This criterion has twelve (12) points. ii) consolidation of land ownership (either private or public) iii) extent of dilapidation of buildings • Structural Change in the Past iv) land use intensity v) rate of urban change This can be determined through interviews with realtors, developers, residents and local The actual conditions of the above factors planners who are familiar with the urban are clearly documented in the land use maps, growth of Metro Manila. It has been observed cadastral maps, structural quality or building in the Monumento area, for instance, that once conditions maps and building height maps arid new major projects are started, redevelopment 50 PHILIPPINE PLANNING JOURNAL NTENSITY OF CHANGE Fig.l URBAN CONSEQUENCES OF THE LRT. This study done in 1981, projected the intensity of development along the first METRORAIL Line. A strong correlation between station capacity and expected development is noticeable. 51 PHILIPPINE PLANNING JOURNAL tends to accelerate further. In contrast, blighted areas, where underutilization and decay con areas such as Blumentritt and Baclaran tend to trast with strong potentials for redevelopment. stagnate further because most of the building Blumentritt has been specially singled out as owners are not interested to make the first a study area because of the following reasons: move towards rehabilitation. In some areas, • Blumentritt is unique from the rest of the changes occur but in a very limited scope mak study area in the sense that it is a traditio ing redevelopment unable to gain momentum. nal residential neighborhood transforming The building age and building condition slowly into an urban sub-center. The high maps graphically show how much urban pedestrian density and the concentration changes have occurred in the past. of ten (10) major banks attest to this. Eight (8) points is assigned to this criterion. • With the highly fragmented land owner ship structure and the uncoordinated • Anticipated Change Brought by LRT efforts of property owners, on one hand, and the various government agencies This criterion is directly related to the pre concerned with public facility improve viously mentioned criterion and will, admitted ments, on the other hand, Blumentritt tv. demand a highly subjective judgment. This will continue to decay, if left without criterion, therefore, requires a knowledge of government intervention in the form of existing and proposed projects of both the urban land management. private developers and the government agencies and a study of other sites with the the biggest • With the selection of both the highest potentials for development. A clear identifica ranked and the lowest ranked areas for tion and description of all factors affecting redevelopment, the proposals and ap urban growth can then be made for a closer proaches, being varied for the two sites, approximation of what is most likely to occur will yield a contrast of effects and conse in the future. The study group assigned four quences. Such extreme diversity will pro (4) points to this criterion. vide good bases from which proposals for varied types of development/rede EVALUATION RESULT velopment related to LRT can be drawn. • The availability and integrability of the The application of the seven (7) criteria des development of the PNR airspace with cribed above has established the following the LRT station makes the Blumentritt priority rankings: (See table 1) area a more attractive development. • Blumentritt may not have the greatest • Dorotea Jose/Old Bilibid 96 points potential, for commercial redevelopment • North Terminal 84 points but it will definitely serve as an interest • Carriedo 81 points ing test case for land consolidation, insti • Central Terminal 72 points tutional coordination and development • South Terminal 53 points syndication which could help develop • Buendia/Libertad 44 points the in-house capability of MMC's Urban • Blumentritt 37 points Land Management Team in these fields. The evaluation result is tabulated hereunder in Table 1. In order to obtain some interesting COMPARISON BETWEEN THE RECTO/BILI results, the study team has made a fairly un BID AREA AND THE BLUMENTRITT AREA orthodox choice: instead of selecting the two highest ranked areas, it has selected the highest The Recto/Bilibid Area and the Blumentritt and the lowest ranked. The reader of this report Area have constrasting urban characteristics will find that one important proposition but both are in need of and have the potential (namely, the creation of a development fund) for redevelopment. is entirely due to this choice. Both areas enjoy locational advantages in These sites serve as realistic case studies to terms of transport interchange development: test critical issues of land management. They Blumentritt being in an important urban june are typical examples of the many other urban tion traversed by about seventeen (17) jeepney 52 PHILIPPINE PLANNING JOURNAL routes and RectolBilibid being very proximate In a sale arrangement the Project Owner/ to the Doroteo Jose LRT station with 6.5 Manager cedes the title of the land. The sale hectares of iand available for redevelopment. may be either in cash or installment. RectolBilibid has undergone both functional In a lease arrangement, the one who will and physical changes while Blumentritt has not make use of the land obtains the right to use shed- off its residential character inspire of the the property through periodic payments for intense commercial activity. Both areas are now the entire duration of the contract. The land showing signs of decav with Blumentritt in user or lessee as part of the arrangement, may a more advanced stage. obtain the right or option to subsequently Both areas are heavily built-up. Land utiliza purchase the land, usually, at a pre-agreed tion is not considered rational and optimal. In price. Some or all of the rentals paid up to the Blumentritt, the PNR track cuts through prime time the option is exercised may be considered commercial land and its airspace is not utilized. as part of the purchase price. In RectolBilibid the large Old Bilibid Prison In a joint venture arrangement, the land site has oecome incompatible with the other owner and the one who constructs a building land uses. thereon become joint owners of both the land Land ownership is highly fragmented in and the building. Blumentritt _whereas large landholdings, aside from the Bilibid site, exist in RectolBilibid. Party to Construct the Building In both areas, there are no significant urban developments, if at all, these are limited to a The building in the development project stall by stall refurbishings. may be constructed and, initially, (at least) Pedestrian density and business activity in owned by the government agency, or by a Blumentritt are almost as high as in Rectol developer who constructs the building for sale Bilibid indicating that building height is not the or lease to others, or by an anchor enterprise only measure of the intensity of economic which will use all or big part of the building or activities. by several small enterprises. In the case of government projects, the most ALTERNATIVE CONCEPTS FOR preferred parties to develop the projects are the IMPLEMENTATION anchor enterprises because they are the ones who can handle big building projects due to The different stages of a realty develop their ability to sell, lease, or use huge building ment project may take different arrangements. spaces. Thus, options are available on the disposition of land, on the occupancy rights of the pre Occupancy Rights of Premises mises and on the parties concerned to construct and own the buildings, to finance the construc The occupant of a building or a building tion of the buildings, to implement the develop unit may be the owner or just a lessee, with or ment and to manage the premises upon comple without an option to buy. tion of the construction works. If the building is constructed by an anchor enterprise, then most of the spaces shall be Disposition of Land owned and occupied by that enterprise. If the building is put up by a developer, the spaces There are different ways of disposing land can either be owned or leased by tenants, such as sale, lease, a combination of sale and depending upon the developer. lease,and joint venture arrangements. In a general situation, sale and lease gives the Financing Project Owner/Manager (the government agency in this case) flexibility in the financial opera The party constructing and initially owning tions. the building may resort to any of the following Some portions of the property can be sold, financing sources or any combination of them: others leased, depending upon the present and projected cash flow of the project, its land • Self-financing or equity financing ownership policy and marketability of the sites. • Rental rights with advance payment 53 PHILIPPINE PLANNING JOURNAL • Sales deposits as part of the total selling ALTERNATIVE CONCEPTS FOR THE price IMPLEMENTATION OF THE • Loan RECTO/BI L1BID PROJECT If the construction is to be financed one Since the recommendation in this section is hundred percent (100%) by a loan and the for a private party to construct the building, building is to be rented out, the receipts from alternative concepts on occupancy rights of rentals during the initial years are usually not premises, financing and management are no enough to pay for the loan interest and amorti· longer discussed since these will be decided by zation and they are unreliable, being dependent the private party. on the response of the tenants, hence, a subs tantial part of the financing has to come from Disposition of Land the equity capital. It is recommended that the government Sales deposits can be required if the devel acquire the access road and private areas, clear oper is reputable and the project is deemed the-rand of occupants, subdivide the land into highly viable by the investors. These can help raise the capital. a number of parcels and sell for cash. If the agency encounters difficulties in selling for cash, it may sell on an installment basis or lease some of them, initially. If the agency does not Project Management need much cash for the first few years, it may sell the initial sites to provide the funds for If the Project Owner IS In the business of development. Subsequently, land may be dis project development, he usually handles the posed on a lease basis. project management, otherwise, it is better done by a professional project management A variation of the above-stated system can group under contract with the Project Owner. also take any of the following forms, provided, The other possible parties who may handle the the necessary clearing and acquisition of the job are: a firm newly organized by the Project access road and private properties are accom Owner or a group jointly organized by future plished: owners/tenants. The first is advisable if the • The government agency shall form a Project Owner plans to undertake several land joint venture with other parties, with the development projects. The latter is usually not government agency contributing the land recommended due to the lack of cohesiveness and the other parties putting up the im of the members and their inability to cope with provements. The joint venture shall then the complexities of a project mangement job. sell and/or lease the buildings or the spaces therein. The disadvantage of this set-up is the conflicting interests of the Operations Management joint venture participants in subsequent decision on composition of management, The different groups who may handle the declaration of cash dividends, expansion operations management are: an association of programs, use of funds, and other major the owners/tenants,a private group engaged matters. in project operations management business or • The government agency shall put up the the government's implementing agency. The improvements on the land, and sell/lease first option seems to be the most practical the buildings or the spaces therein. This if this is acceptable to the owners/tenants. alternative requires heavy funding and The second option shall be resorted to only if may be resorted to only if the agency can the owners/tenants cannot agree on the man source the funds and get commitments agement structure of the association. The last from others to buy the building. one is not advisable since the agency will be tied down to a purely housekeeping job. Its From the viewpoint of the developer, an efforst should be directed to the development outright purchase gives them the biggest leeway of the rest of the project area. in project management, thus enabling them to 54 PHILIPPINE PLANNING JOURNAL have an efficiently developed and operated possible. Two of these are as follows: business. • The present owners retain ownership of • Outright purchase gives them higher their properties but these shall be subject leverage in obtaining financing. to the rules of the project. • Outright purchase gives them a conti • The application of the land readjustment nuous and uninterrupted use of pro concept wherein the present owners con perty. tribute their land to the pool. The entire area is then resurveyed and resubdivided One possible disadvantage of sale, from the with the present owners ending up to developer's perspective, is that it requires so own a portion of the resubdivided pro much initial cash. Therefore, the area has to pertv which may not be the same as their be sub-divided and its sale and developments original holdings in terms of actual loca be phased. tion. Adjustments in value area done and If no firm is willing to purchase the lots for the difference that arises between the cash, specially the ones in the first phase, they value of the original holdings and the can either be sold on an installment basis or value in the readjusted site is settled in leased. The government agency has to clear the cash. land prior to disposal because the private sector is hesitant to undertake the clearing due to the legal complications involved which may in ALTERNATIVE CONCEPTS FOR THE IM crease their risk and delay their implementation PLEMENTATION OF THE BLUMENTRITT time table. PROJECT Construction of Buildings Construction of Buildings If a developer constructs the buildings for The PNR airspace is more suitable for small lease, the rental income for the initial years is stalls than big establishments due to its limited not enough to service the loan even at a low area. Since it will be subdivided into several interest rate of 24%. Hence, it is necessary that small spaces, it is likely to be leased to various the developer has an adequate equity capital store owners by the investors. to substantially, if not fully finance the project. Maximum participation of other parties in This condition (low initial return) also precludes this development should be encouraged so that the government agency from being the owner the implementing agency can reserve its resour of the building for the first few phases due to ces to other critical projects wherein private the cash capital requirement. Pre-selling a big participation is not likely. part of the building can .augment the capital needed to construct the building. Institutional Arrangement An investment of P205,OOO,OOO on Site A (land for P62,OOO,OOO.OO) and buildings for The developer shall deal directly with the P143,OOO,OOO.OO) will yield a net profit, before PNR as the owner of the air rights, and with interest and income tax, equivalent to only 8% the LRT Authority and PGH (Philippine Ge neral Hospital) Foundation for the LRT station of the investment in its first year. Thus, for the link-up. initial years, the net profit is not even enough The mangement agency shall only be con to cover the interest of the investment, if fully cerned with the formulation and compliance financed by a loan. monitoring of general development guidelines. It may also serve as adviser to the PNR in the Alternative Strategies latter's dealings with the developers. A number of alternative methods of integrat ing the project area prior to development is 55 PHILIPPINE PLANNING JOURNAL Fig. 1 Map showing in detail the location of LRT Line 1 sta tions and terminals. 56 INDEX TO ARTICLES IN THE PPJ 1980·1985 Carmelita R.E.U. Liwag Research Assistant School of Urban & Regional Planning University of the Philippines INTRODUCTION Calabia, Gerardo S. & Humberto U. Amoranto. The PASTORA Planning Project: Lesson of The Philippine Planning Journal during the past Experience in Local Development Planning. 20 years has been publishing articles within the 12 (2): 10-22 Apr 81 field of urban and regional planning. As the Cholerton, Christopher A. (co-author) & Primi official journal of the School, it has provided tivo C. Cal. The Metro Cebu Land Use and planners and decision-makers alike with con Transport Study (MCLUTS). 13 (1): 5-32 cepts and issues pertaining to Philippine devel Oct 81 opment. Concepcion, Rogelio N. Identification and This is the third in the series of indexes. It Evaluation of Prime Agricultural Lands for includes articles appearing from 1980 to 1985. Land Use Policy Formulation: A Philippine Perspective. 14 (1): 48-62 Oct 82 Construction and Development Corporation of the Philippines. Financial Center Project. AUTHOR INDEX 12 (1). 26-56 Oct 80 Cordero, Patricia V. (co-author) & Evangeline Alabanza, Joseph M. The Regional Develop T. Lopez. Citizen Participation in Urban ment Investment Program (RDIP) of the Renewal Projects: Case Studies of the Zonal /locos Region. 15 (2): 1-15 Apr 84 Improvement Program Areas. 12 (2): 35-50 Amoranto, Humberto U., (co-author) & Gerar Apr 81 do S. Calabia. The PASTORA Planning Pro Dichoso, Rebecca D. The Planning of Baguio ject: Lesson of Experience in Local Devel City: A Historical Perspective. 16 (2): 21-34 opment Planning. 12 (2): 10-22 Apr 81 Apr 85 Afio, Daisy Elena F. The Key Development Endriqa, Dolores A. Achieving National Integra Program Approach to Regional Develop tion Through Education in the Philippines. ment Planning Process in the Philippines. 11 (2): 21-42 Apr 80 16 (2). 35-43 Apr 85 Endriga, Dolores A. (co-author) & Leandro A. Bancom Realty Corporation. Urban Expansion Viloria. A Study of Poverty Redressal Pro Through Reclamation: The Case of Cebu grams in Metro Manila. 16 (1): 38-60 Oct 84 City. 12 (2): 1-13 Oct 80 Endriga, Dolores A. & Jaime U. Nierras. The Bruce, Romeo C. Eco-Engineering Analysis for Development of Planning Education in the Land-Use Planning. 13 (2): 53-64 Apr 82 Philippines. 14 (2) - 15( 1): 28-37 Apr-Oct Cal, Primitivo C. & Christopher A. Cholerton. 83 The Metro-Cebu Land Use & Transport Emphasis, Billy E. (co-author) & Daniel J. Study (MCLUTS). 13 (1): 5-32 Oct 81 Graham. Traffic Engineering Action Pro Cal, Primitivo C., Daniel J. Graham, & Robert grams. 13 (1): 47-63 Oct 81 J. Nairn. Land Use-Transportation Inter Fernandez, Antonio L. Issues in Urban Sewer active Analysis. 13 (1): 33-46 Oct 81 age Planning in the Laguna Lake Region: A Calabia, Gerardo S. A Spetio-Economic Study Case Study of San Pedro, Laguna. 16 (1): of the Laguna Provincial Growth and Devel 1-15 Oct 84 opment. 14 (1): 1-24 Oct 82 Firmalino, Tito C. Strengthening the Capability 57 PHILIPPINE PLANNING JOURNAL of Cities for Development Planning: The Under the lriter-Aqencv Local Planning As MLGCD Experience. 12 (2): 1-9 Apr 81 sistance Program. 16 (2): 1-20 Apr 85 ------. Plan Implementation: A Case Ng, Kam Sim Yen. American Influence on Plan Study ofAngeles City. 11 (2): 1-7 Apr 80 ning in the Philippines. 12 (2): 23-34 Apr 81 Gonzalez, Eduardo T. Reconstituting the Nairn, Robert J. (co-author), Primitivo C. Cal, Wedge Model: A Structuralist Perspective. & Daniel J. Graham. Land Use - Transport 13 (2): 1-34. Apr 82 ation Interactive Analysis. 13 (1): 33-46 Graham, Daniel J. & , Billy E. Emphasis. Traffic Oct 81 Engineering Action Programs. 13 (1): 47-63 Nierras, Jaime U. (co-author) & Dolores A. En Oct 81 driga. The Development of Planning Educa Graham, Daniel J. (co-author), Primitivo C. Cal, tion in the Philippines. 14 (2) - 15 (1): 28 & Robert J. Nairn. Land Use - Transport 37 Apr-Oct 83 ation Interactive Analysis. 13 (1): 33-46 Oct Phillips, David R. Social Services Planning in 81 New Communities: Theoretical Aspects and Juanico, Meliton B. Agricultural Land Use Plan Some Empirical Observations from the ning in Abra: An Application of the Eco Hongkong Experience. 16 (1): 16-27 Oct 84 Engineering Analysis of Land. 14 (1): 25 Ragragio, Junio M. The Design and Application 47 Oct 82 of a Manual Scalogram Method for Spatial Jucaban, Apolo C. Planning Practice in the Phil Analysis in the Bicol lAD Area. 13 (2): 35 ippines: The Government Sector. 14 (2) 52 Apr 82 15( 1): 39-56. Apr-Oct 83 Roschlau, Michael W. Mass Transit in Provincial ------Planning for the Management Areas: History, Policy, Reality. 15 (2): 24 and Implementation of Foreign-Assisted Pro 29 Apr 84 jects: The Metro-Manila Urban Development Sajise, Percy E. The Management ofNatural Re - World Bank Experience. 11 (2): 8-20 sources in the Philippines: Goals, Policies Apr 80 and Strategies. 15 (2): 24-29 Apr 84 Kemp, Roger L. Economic Development: Santiago, Asteya M. Evolution of the National Raising Local Government Revenues With Planning Organization in the Philippines: A out Increasing Taxes. 16 (2).44-47 Apr 85 Legislative Perspective. 14 (2) - 15 (1): 1-27 Limcaoco, J. Andres A. The Integrated Area Apr-Oct 83 Development Approach 'to Regional Devel Serote, Ernesto M. Self-Reliance in Local Infra opment. 15 (2): 16-23 Apr 84 structure Development: The Case of Lapu Lopez, Evangeline T. (co-author) & Patricia V. Lapu City Hall. 16 (1): 28-37 Oct 84 Cordero. Citizen Participation in Urban Re Uybengkee, Susan B. The Cebu Port Centre newal Projects: Case Studies of Two Zonal Deed Restrictions in Relation to the Cebu Improvement Program Areas. 12 (2): 35-50 City Zoning Ordinance: A Critical Analysis. Apr 81 12 (1): 14-25 Oct 80 Manalo, Zenaida A. Economic Valuation of the Viloria, Leandro A. & Dolores A. Endriga. A Environmental Quality Effects of Develop Study of Poverty Redressal Programs in ment. 17 (2): 38-47 Apr 86 Metro Manila. 16 (1): 38-60 Oct 84 Ministry of Human Settlements. Town Planning 58 PHILIPPINE PLANNING JOURNAL TITLE INDEX Identification and Evaluation of Prime Agricul tural Lands for Land Use Policy Formula Achieving National Integration through Educa tion: a Philippine Perspective. Rogelio N. tion in the Philippines. Dolores A. Endriga. Concepcion. 14 (1): 48-62 Oct 82 11 (21): 21-42 Apr 80 The Integrated Area Development Approach to Agricultural Land Use Planning in Abra: An Regional Development. J. Andres A. Lim Application of the Eco-Engineering Analysis caoco. 15 (2): 16-23 Apr 84 of Land. Meliton B. Juanico. 14 (1): 25-47 Infrastructure. Self Reliance in Local Infra Oct 82 structure Development: The Case of Lapu American Influence on Planning in the Philip Lapu City Hall. 16 (1): 28-37 Oct 84 pines. Kam Sim Yen Ng. 12 (2): 23-34 Apr Issues in Urban Sewerage Planning in the 81 Laguna Lake Region: A Case Study of San Angeles Cltv. Plan Implementation: A Case Pedro, Laguna. Antonio L. Fernandez. 16 Study of Angeles City. Tito C. Firmalino. (1): 1·15 Oct 84 11 (2): 1-7 Apr 80 The Key Development Programs Approach to The Design and Application of Manual Scalo Regional Development Planning Process in gram Method for Spatial Analysis in the the Philippines. Daisy Elena F. Ano. 16 (2): Bicol lAD Area. Junio M. Ragragio. 13 (2): 35-43 Apr 85 35-52 Apr 82 Land Use - Transportation Interactive Analy The Cebu Port Centre Deed Restrictions in Re sis. Primitivo C. Cal, Daniel J. Graham, & lation to the Cebu City Zoning Ordinance: Robert J. Nairn. 13 (1) 33-40 Oct 81 A Critical Analysis. 12 (1): 14-25 Oct 80 The Management of Natural Resources in the Citizen Participation in Urban Renewal Pro Philippines: Goals, Policies and Strategies. jects: Case Studies of the Zonal Improve Percy E. Sajise. 15 (2): 24-29 Apr 84 ment Program Areas. Evangeline T. Lopez The Metro Cebu Land Use & Transport Study and Patricia V. Cordero. 12 (2): 35-50 Apr (MCLUTS). Primitivo C. Cal & Christopher 81 A. Cholerton. 13 (1): 5-32 Oct 81 The Design and Application of a Manual Scalo Metro Cebu Land Use and Transport Study gram Method for Spatial Analysis in the (MCLUTS). Primitivo C. Cal & Christopher Bicol lAD Area. Junio M. Ragragio. 13 (2). A. Cholerton. 13 (1): 5-32 Oct 81 35-52 The 1984 Land Use Plan for UP Diliman Cam The Development of Planning Education in the pus. 14 (2) - 15 (1): L62-87 Apr-Oct 83 Philippines. Dolores A. Endriga & Jaime U. The PASTORA Planning Project: Lesson of Ex Nierrss. 14 (2) - 15 (1): 28-37 Apr-Oct 83 perience in Local Development Planning. Economic Development: Raising Local Govern Gerardo S. Calabia and Humberto U. Amo ment Revenues Without Increasing Taxes. ranto , 12 (2): 10-22 Apr 81 Roger L. Kemp. 16 (2): 44-47 Apr 85 Plan Implementation: A Case Study ofAngeles Eco-Engineering Analysis for Land Use Plan- City. Tito C. Firmalino. 11 (2): 1-7 Apr 80 ning. Romeo C. Bruce. 13 (2): 53-64 Apr 82 Planning for the Management and Implement Evolution of the National Planning Organiza ation of Foreign-Assisted Projects: The tion in the Philippines: A Legislative Pers Metro Manila Urban Development - World pective. Asteya M. Santiago. 14 (2) - 15 Bank Experience. Apolo C. Jucaban. 11 (2): (1): 1-27 Apr-Oct 83 8-20 Apr 80 Financial Center Project. Construction and Planning Practice in the Philippines: The Gov Development Corporation of the Philippines. ernment Sector. Apolo C. Jucaban. 14 (2) 12 (1): 26-56 Oct 80 - 15 (1): 39-56 Apr-Oct 83 Forum on the State of the Art of Planning: Pri The Planning of Baguio City: A Historical Pers vate Practice. 14 (2) - 15 15 (1): 57-61 pective. Rebecca D. Dichoso. 16 (2): 21-34 Apr-Oct 83 Apr 85 59 PHILIPPINE PLANNING JOURNAL Reconstituting the Wedge Model: A Structural Strengthening the Capability of Cities for Deve ist Perspective. Eduardo T. Gonzalez. 13 (2): lopment Planning: The MLGCD Experience. 1-34 Apr 82 Tito C. Firmalino. 12 (2): 1-9 Apr 81 The Regional Development Investment Program A Study of Poverty Redressal Programs in (RDIP) of the /locos Region. Joseph M. AI Metro Manila. Leandro A. Viloria & Dolores banza, 15 (2): 1-15 Apr 84 A. Endriga. 16 (1): 38-60 Oct 84 Self-reliance in Local Infrastructure Develop Town Planning Under the Inter-agency Local ment: The Case of l.epu-Lepu City Hal!. Planning Assistance Program. MHS. 16 (2): Ernesto M. Serote. 16 (1): 28-37 Oct 84 1-20 Apr 85 Social Services Plannin.g in New Communities: Traffic Engineering Action Programs. Daniel J. Theoretical Aspects and Some Empirical Graham & Billy E. Emphasis. 13 (1): 47-63 Observation from the Hongkong Experience. Oct 81 David R. Phillips, 16 (1): 16-27 Oct 84 Urban Expansion Through Reclamation: The A Spetio-Economic Study of the Laguna Pro Case of Cebu City. Bancom Realty Corpora vincial Growth and Development. Gerardo tion. 12 (2): 1-13 Oct 80 S. Calabia. 14 (1): 1-24 Oct 82 60 PHILIPPINE PLANNING JOURNAL ABOUT THE CONTRIBUTORS VICTORIA A. EUGENIO is Instructor of the School of Urban and Re gional Planning and Lecturer at the College of Architecture, Univer sity of the Philippines. Ms. Eugenio obtained her MS in Community Architecture and BS (Architecture) at U.P. in 1984 and 1969 respect ively. At present, she is attending a 10·month course in Survey Integ ration for Resource Development at the lTC, The Hague, Netherlands under the Dutch Bilateral Fellowship Grant. Office of the Commissioner for Planning, MMC provides technical assist ance in the formulation of a comprehensive urban land policy for the entire Metro Manila area. The ULMS (Urban Land Management Stu dy) is one of the components being undertaken through the Third Urban Development Project Loan package granted by the World Bank. Ministry of Transportation and Communications' "Urban Transportation in Metropolitan Manila" was prepared for the Workshop and Seminar on Urban Mass Transport, Manila, 1985. "The LRT as a Component of Metro-Manila's Transport System" uses the data/reports of the following projects: Metro Manila Urban Trans port Improvement Project (MMUTIPl, JICA Update of Urban Trans portation Strategy Planning Project (MMUSTRAP) and Traffic En gineering and Management Office (TEAM) for an indepth treatment of the primate city's transport system. 61 Advisory Council Chairman: EDGARDO J. ANGARA Members RAMON B. CARDENAS SIXTO K. ROXAS RUr:EN A. GARCIA ANTONIO VARIAS GABRIEL U. IGLESIAS Administration LEANDRO A. VILORIA. A.B. (Pol. Sci.l. M.P.A .. M.A. Community and Regional Planning. D.P.A .• Dean MARl LYN G. MARQUEZ. B.S.B.E .. MURP. M.A.U.P.• College Secretary BENJAMIN V. CARII'iIO. B.A. (PA). M.A. (Pol. se.). Ph.D. {Pol. se.i. Director of Graduate Studies ERNESTO M. SEROTE. A.B. (Enqlishl. Dip. in Integrated Surveys. M.U.R.P.. Director of Research and Publications ALEX Q. CABANILLA. A.B. (Pol. Sc.l , Dip. in Integrated Surveys. M.U.R.P.• Director of Training NICOLAS R. CUEVO. B.S. (Commerce}, Ll.B.• Administrative Offic/N Faculty LLENA P. BUENVENIDA, B.S.E.• ZENAIDA A. MANALO, A.B. (Econ,), M.E.P., Certificate in Comprehensive M.A. (Econ.I, Spl. Program In Urban Regional Development, Assistant Pro and Regional Studies (SPURS), M.A. fessor (U.R.P.), Assistant Professor ALEX Q. CABANILLA, A.B. (Pol. se.i. CESAR O. MARQUEZ, B.S. (Arch,). Dip. In Integrated Surveys, M.U.R.P., Dip. in Urban Planning, Assistant Assistant Professor Proiessor" PRIMITIVO C. CAL, B.S.C.E.• M. Eng. MARILYN G. MARQUEZ, B.S.B.E., (Transportation Engineering). Ph.D. M.U.R.P., M.A.U.P., Assistant Pro· (Transportation Planning), Associate fessor Professor JAIME U. NIERRAS, B.S. (Arch.l, GERARDO S. CALABIA, B.S. (Agricul· M.S. (Urban Planning), M.S. (Trans ture). M.A. (Community and Region portation Planning), Assistant Pro al Planning). Professor"" fessor BENJAMIN V. CARII'iIO, B.A. (PA), ASTEYA M. SANTIAGO, Ll.B. (Cum M.A. (Pol. sc.l, Ph.D. (Pol. Sc.}, Laude). M.T.C.P., Certificate in Gov Professor ernment Management, Professor DONATO C. ENDENCIA. B.S.C.D., EflNESTO M. SEROTE, A.B., (Englishl. M.C.D .• Assistant Professor Dip. in Integrated Surveys, M.U.R.P., DOLORES A. ENDRIGA, A.B. (Psych.). Assistant Professor M.A. [Sccio.l , M.R.P., Associate FEDERICO B. 51 LAO. A.B. (Pol. se.i. Professor M.P.A .• Professor VICTORIA A. EUGENIO. B.S. (Arch.) CYNTHIA D. TURIIi!GAN, B.A. (PAL M.S. [Arch.}, Instructor Dip. io Comprehensive Regona' P'an· TITO C. FIRMALINO. B.S.E., M.P.A .• ning, Associate Profenor" " M.A. (Community and Regional JOSE R. VALDECAiilAS, B.S. (C.E.!. Planning), Professor M.T.C.P .• Associete Professor" ROSARIO D. JIMENEZ, A.B. (History), L1TA S. VELMONTE, B.S. (Social Dip. in Comprehensive Regional Work). Dip. in Urban Studies, Ano' Planningi, Assistant Professor ciata Professor LEANDRO A. VILORIA, A.B. (Pol. ROQUE A. MAGNO. B.S. (G.E.). tse.r. M.P.A., M,A. (Community and M.T.C.P .. Associate Professor Regional Planning), O.P.A., Professor Research Staff DELIA R. ALCALDE. A.B. (Sociology). CARMELITA R.E.U. L1WAG. A.B. (Po Researcher litical Sc.] , Research Assistant NATALIA M. DELA VEGA, B.S.E. EMILY M. MATEO. B.S. (Foreign Research Assistant Service). Research Associate REMEDIOS R. SORIANO. A.B. (Econ.) Research Assistant Training Staff ATHENA F. AZARCON, B.S. (Business Administration), M.U.R.P., Training Associate Lectur.r WILFRIDO C. PALARCA. A.B. ISociology-Anthropology). M.E.P. " on special detail "" on Sabbatical leave