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HOUSING, THE STATE AND U R BAN POOR ORGANISATIONS I N METRO MANILA.

A thesis presented in fulfilment of the

requirements for the degree of

Doctor of Philosophy in Development Studies at

Massey University

Donovan Storey

1996

ABSTRACT

This study has sought to place housing into social and political contexts

of analysis. It suggests that the failure to house the urban poor is a

result of particular political systems in operation throughout the Third

World. In particular, the system of neopatrimonialism is forwarded to

explain the logic of many Third World regimes and to describe the nature

of their relationship with society. Civil society is neither passive nor

stagnant however. The proliferation of community organisations and Non

Government Organisations in the South is testimony to this. Many feel

that these actors may create enough pressure to challenge current

development directions. Whilst this study supports this argument it is

qualified support, as the nature and direction of this change is not clearly

understood nor apparent. In examining these processes research was

conducted in Metro Manila during 1994. There is strong evidence to

confirm the endurance of neopatrimonialism in the Phifippines and its

effect on the logic of politics and the character of state-society relations.

There are also clear connections between the historical development of

the Filipino state and the housing crisis. In looking at the response of

social actors, two urban poor organisations are studied in a comparative

context, as is the role of an intermediary NGO. This study finds some

support for the argument that NGO/UPO alliances are more progressive

and impactive than 'traditional' UPOs, though there is evidence to

suggest there are as many similarities as contrasts. UPOs that operate

within urban or national social movements may be involved in change,

though it is still unclear whether this is progressive or will be at the

forefront of social and political transformation. While UPOs play an

important role in civil society, expectations of their place in an 'alternative

society' should still be circumspect and cognizant of the adversities

these groups confront.

ii

ACKNOWLEDGEMENTS

This work is the result of a n umber of people who have supported me over the past several years . I n part icu lar, those friends in the Ph i l ippines that offered thei r homes, food, hospital ity and warmth made th is a l l possib le. The l ife opportunity to l ive with these wonderfu l people (herewith unfortunately referred to as 'the u rban poor' ) , was a rare opportunity and l i fe changing experience. To Pon ing and fam i ly , A lb i and fami ly and the residents of the two commun ities I had contact with , salamat, I am forever i n you r debt.

I also derived a great deal of support on othe r levels. To C roz Walsh who fi rst insp i red me on these issues, to J eff S luka who offered great advice and frank thoughts throughout, and to John Overton whose support and patience was end less (though I th i n k I got close at t imes) I a lso offer thanks. I can't wait to be able to talk to you without asking for something!

I n the Ph i l i pp ines I benefited from open ing doors of opportunity made possib le by two very ab le people , 'J ing' Karaos and Ann ie de Leon. Thank you both. You offered refuge to an otherwise f labbergasted visitor and helped define the d i rect ion this stu dy has taken. The work you do is an inspiration to me and I hope this effort offers some cont ribut ion to the struggle.

Helen M itche l l has stood by me, racked with concern and a h int of d ismay as I have enro l led i n course after course, degree after degree over the years . He len was partic u larly i ndustrious over the last weeks with offers of help as she sought a mention in the acknowledgments. You were always there He len , but thanks for the he lp anyway! This study is as much a reflection of her hard work and commitment to the cause as any other persons . A lso , my m other, Roselyn, h as g iven me support throughout my student 'career' . To a l l othe r friends and 'professional ' stu dents whose fri en dsh ip and ideas helped insp ire my own , perhaps this wou ld have f in ished earl i e r i f i t was n ot for your i nterestin g company. To a l l those who have ' lo itered with i ntent' in the G raduate room (you know who you a re!) , I ' l l m iss you r company.

This work is dedicated to Kate M itche l l , who died whi l e I was completing f ie ldwork in Man i la .

i i i

TAB LE OF CONTENTS

Title Page

Abstract i i

Acknowledgements i i i

Tab le o f Contents i v

L ist of F igures v i i i

L ist of M aps i x

List o f Tab les x

List of P lates x i

G lossary of F i l ip ino Words and Terms x i i i

Abbreviations x iv

I NTRODUCTION 1

CHAPTER ONE: THE THIRD WORLD HOUSING CRISIS 7

I ntroduction 7

Housing D i rect ions: From Lerner to Turner 9

The Hous ing Debate and the Showdown that Wasn't 1 4

Beyond the Theoretical Impasse: The Pol icy Impasse 1 7

Out of the I mpasse: N ew Polemics 1 8

THE U RBAN POOR, HOUS I N G , AND THE THI R D WORLD STATE 23

The N eopatrimon ia l State 26

Neopatrimon ia l ism at the G rassroots: The U rban Poor, Local Level Po l it ics and Resource A l location 33

I mp l icat ions of the M odel for the Urban Poor 36

S ummary 38

CHAPTER TWO: BALANCING STATE HEGEMONY: NGOs AND THE RESPONSE OF CIVIL SOCIETY 40

I ntroduct ion 40

The P ro liferation of C iv i l Society Organisations: Non G overnment Development Organisations 42

U rban Poor Organisations 46

iv

The 'M issin g Lin k' : I NGOs, U POs and the Bu ilding of U rban Social M ovements 54

The I N G O-UPO Nexus: Rethinking Utopianism 61

Summa ry 65

CHAPTER THREE: STATE, POLITICS AND HOUSING IN THE PHILIPPINES 67

I ntroduct ion 67

The Ph il ippine State and Phil ipp ine Style Democracy 68

U rbanisatio n , Poverty and Housing 89

Contin uity and Change: H ousing and the U rban Poor 1 05

Summary 107

CHAPTER FOUR: THE RESPONSE OF CIVIL SOCIETY: N GOs, U POs AND THE U RBAN SOCIAL MOVEMENT IN METRO MANILA 1 09

I nt rodu ct ion 109

Non G overn ment Organisations in the Phil ippines 1 09

The Response of the G rassroots: Peoples Organisat ions and the U rban Poor 1 1 2

The R ole o f I ntermed iary N GOs i n U rban Poor Organisations in the Philippines 116

Summa ry 1 23

CHAPTER FIVE: METHODOLOGY AND FIELDWORK 1 26

I ntrodu ction 1 26

Research Procedures: The Discovery and Adaptation of M ethodology 128

Research P ractise 131

Use of Journals 134

Research Experience: I ntroduction to Manila 1 37

C ultu re Shock and Orientation 1 39

Gain ing Access and Choosing Sites 147

Legitimacy and Role 150

Summary 153

v

CHAPTER S IX: SAMAHANG B IYA YANG TUBIG

I nt roduct ion

Sett lement H istory

The Emergence of Local Organisat ions

Samahang B iyayang Tubig

Organist ion Objectives and Methods

Po l it ical Partic ipat ion of SBT

Summary

CHAPTER SEVEN: TOWARDS AN ALTERNATIVE SOCIETY? THE FOU N DATION FOR DEVELOPMENT ALTERNATIVES

I n troduct ion

FDA: F ra mework and Evolut ion

FDA and Commun ity O rganisat ions

FDA and Commun ity Organis ing

Widen ing the I mpact

E lectoral Empowerment Strategies

UPO Viabi l ity and Susta inabi l ity

Summary

CHAPTER EIGHT: THE ALMA N OVA ALLIANCE

I nt roduct ion

Area H isto ry

Organisat ion H istory

Organisat ion Structure

Organisation Objectives and M ethods

Po l it ical Part ic ipation

Summary

Postscript

CHAPTER N INE: CONCLU SION

I ntrod uct ion

Mani la 's U rban Poor Organisat ions: Comparative Evidence

1 54

1 54

1 56

1 6 1

1 64

1 70

1 78

1 88

1 9 1

1 9 1

1 93

1 94

1 97

201

202

204

205

207

207

208

2 1 2

2 1 8

223

234

242

243

244

244

245

v i

The Role and Impact of I ntermediary NGOs

Areas for Future Research

Re-Th inking Housing

P rospects and Myths of 'Empowerment'

H igh l ighting and Reth inking the Th i rd World State

Where to From Here? Some Future Directions for Research

APPENDICES

1 . Detai ls of I nterviews

2. Constitution and By-Laws of SBT

3. Constitution and BY-Laws of ALMA N OVA

BIBLIOGRAPHY

249

25 1

252

254

257

258

260

260

263

266

268

vi

v i i i

LIST OF FIGURES

1 . 1 Th i rd World State Typologies 26

1 .2 Patron-Cl ient Systems 28

1.3 The Context of Pol icy Implementation 35

3. 1 Agencies I nvolved in the National Shelter P rogramme 99

6.1 Election Flyers 1 84

7. 1 FDA and the Stages of Commun ity Organ ising 196

8 .1 ALMA N OVA and Local Organ isations 2 1 6

8.2 Levels of Organ isation and L inkages 23 1

LIST OF MAPS

5. 1 Metro Mani la with Fie ldwork S ites

6. 1 Penci l Sketch of Fie ldwork Area in Muntin lupa

8 . 1 Penci l Sketch of Sauyo

1 27

155

209

ix

LIST OF TABLES

6. 1 Popu lat ion Characteristics of Putatan

x

1 61

xi

LIST OF PLATES

1 Barangay politics is very personal in nature. 85

2 Patronage sign in Muntinlupa school, Metro Manila. 85

3/4 Contrast in housing: Pasig River Squatters and Forbes Park. 92

5 The urban poor as represented in the press. 95

6 Demolition at dawn to make way for a shopping mall. 95

7 NGOs/UPOs public education display. 118

8 Demonstration over the implementation of UDHA. 1 18

9 Some of Manila's icons; jeepneys, traffic and religion. 138

10 The local sari-sari store with Susan, the owner. 138

11 Learning to wash clothes under the watchful eye of experts. 142

12 Family banyo. 142

13 I was always offered the best sleeping conditions available. 144

14 Washing day in Muntinlupa. 144

15/16 Reciprocity could be extended through donations to projects around the home. 146

17/18 Host families and friends. 152

19 Bustling early morning scene. 159

20 Train lines looking north toward Manila. 159

21 Crowded housing adjoining the riles. 160

22 The area also includes more impressive housing and white collar workers. 160

23/24 Muntinlupa housing and local sari-sari store. 162

25 Informal sector business, and electricity meter. 163

26 Housing pride. 163

27 Tenure arrangements are not often clear. 166

28 With no garbage collection, rubbish is either burned or dumped in a communal area. 166

29 One of the water outlets accrued by SBT. 172

30 Laguna 'lake' front. 172

3 1/32 Building of pathways. 175

33/34 Induction night of SBT leaders. 181

35/36 Barangay election materials placed near the community. 185

xi

37 An established high quality house. 210

38 Local sari-sari store. 210

39 Bakery established by recent migrants to Metro Manila. 211

40 One of the original houses of the area. 211

41/42 Flooding during rainy season. 213

43 Common problems of stagnant water and garbage disposal. 214

45 Water supply to a house. 217

46 Electricity is often 'tapped'. 217

47/48 Out in Force! 236

49 Poning on her once infamous 'rice cake run'. 239

50 NGOs and UPO activists meet at a ULR-TF conference. 239

G LOSSARY OF FILI PINO WORDS AND TERMS

Anak 8ayang Pi!ipino

Anak 8ayang Tondo

8alik Probinsya

banyo

barangay

burgis

compadre

datu

hiya

ilustrado

kagawad

kamote

katipunan

kato!

pakikisama

personalismo

principalia

Punong

riles

sambayanan

Santa Cruz

sari-sari

tagalog

tag/ish

utang na loob

Children of the Philippines

Children of Tondo·

'Back to the Provinces' policy

bathroom

pre-colonial community and now the smallest political unit

colloquial for bourgeoisie

chosen sponsors of children in baptism and confirmation

leader of traditional barangays

shame

university (usually foreign) educated leaders of nationalist movements in 19th Century

barangay councillor

tubular starch plant eaten by rural and urban poor

name given to group of revolutionaries in late 19th Century

slow burning insect repellent

smooth interpersonal relations

the social and political elevation of the individual

Spanish-created local elite

barangay captain

railway lines

community, or community spirit

a festival

small community stores

official language of the Philippines

language which combines taga/og and english

debt of gratitude

xiii

ALMA NOVA

ASEAN

B I KTIMA

BLISS

C-5

CIA

CO

COM ELEC

CPP

DPWH

DSWD

EDSA

FDA

G RO

H U DCC

ICS I

I M F

I NGO

KPML

LGC

LOI

M H S

NAC U PO

NCR

N G DO

NGO

N HA

N HMFC

N I C

N S P

ABBREVIATIONS USED I N TEXT

Alyansa Ng Mga Maralita Sa Novaliches

Associat ion of South East Asian Nat ions

Bighis Tinig Maralita

Bagong Lipunan Sites and Services

C i rc umferential Road N umber Five

Centra l I nte l l igence Agency

Commun ity Organisation

Commission for E lections

Commun ist Party of the Ph i l ippines

Department of Publ ic Works and H ighways

Department of Social Welfare and Development

Epifanio de los Santos Avenue

Foundat ion for Development Alternatives

Grassroots Organisation

Hous ing and U rban Development Coord inating Counci l

I nstitute on Church and Social Issues

I nternational Monetary Fund

I ntermediary Non Government O rgan isation

Kongreso ng Pagkakaisa ng Maralita Lunsod

Local Government Code

Letter of Instruct ion

M in istry of H uman Sett lements

Nat ional Congress of U rban Poor Organ isations

Nat ional Capital Region

Non Government Development Organisation

Non G overnment Organisation

Nat ional Housing Authority

Nat ional Home M o rtgage Finance Corporation

N ewly Industria l is ing Country

National Shelter P rogramme

xiv

NTMOC

NUPCC

PACO

PAKSA LUPA

PCUP

PO

PECCO

PHHC

PHILSHA

PnB

PNR

PO

OC3

SEC

SOCO

TRAPO

ULR-TF

UPO

USM

VAT

ZIP

ZOTO

Ngakakaisang Tinig ng Maralita sa Ouezon City

National Urban Poor Coordinating Council

Putatan Athletic Community Organisation

Pambansang Kaisahan ng mga Maralita Para sa Repormang

Presidential Commission for the Urban Poor

Presidential Decree

Philippine Ecumenical Centre for Community Organising

People's Homesite and Housing Corporation

Private Sector Low Income Housing Association

Partido ng 8ayan

Philippine National Railways

People's Organisation

Ouezon City Coordinating Council

Securities and Exchange Commission

Self-Organised Community Organisation

Traditional Politician

Urban Land Reform Task Force

Urban Poor Organisation

Urban Social Movement

Value Added Tax

Zonal Improvement Programme

Zone One Tondo Organisation

PHI LI PPINE CURRENCY

During the period of fieldwork one American Do"ar was equivalent to 27 Pesos (P)

and one New Zealand Do"ar was equivalent to 1 5 Pesos ( 1 00 Centavos make one

Peso) .

XI