Copyright is owned by the Author of the thesis. Permission is given for a copy to be downloaded by an individual for the purpose of research and private study only. The thesis may not be reproduced elsewhere without the permission of the Author. HOUSING, THE STATE AND URBAN 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 study 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 particu 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 mother, Roselyn, has g iven me support throughout my student 'career' . To a l l othe r friends and 'professional ' students 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 not for your i nteresting 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 TABLE 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: New Polemics 1 8 THE U RBAN POOR, HOUS ING , AND THE THIRD WORLD STATE 23 The Neopatrimon ia l State 26 Neopatrimon ia l ism at the Grassroots: The U rban Poor, Local Level Po l it ics and Resource A l location 33 I mp l icat ions of the Model for the Urban Poor 36 Summary 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 Urban Poor Organisations 46 iv The 'M issing Lin k' : I NGOs, UPOs and the Bu ilding of U rban Social M ovements 54 The I NGO-UPO Nexus: Rethinking Utopianism 61 Summary 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 Urbanisatio n , Poverty and Housing 89 Contin uity and Change: Housing and the U rban Poor 1 05 Summary 107 CHAPTER FOUR: THE RESPONSE OF CIVIL SOCIETY: NGOs, U POs AND THE URBAN SOCIAL MOVEMENT IN METRO MANILA 1 09 I nt roduct 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 Role o f I ntermed iary N GOs i n U rban Poor Organisations in the Philippines 116 Summary 1 23 CHAPTER FIVE: METHODOLOGY AND FIELDWORK 1 26 I ntroduction 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 Cultu 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 FOUNDATION FOR DEVELOPMENT ALTERNATIVES I n troduct ion FDA: F ramework 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 NOVA ALLIANCE I nt roduct ion Area H isto ry Organisat ion H istory Organisat ion Structure Organisation Objectives and Methods Po l it ical Part ic ipation Summary Postscript CHAPTER N INE: CONCLUSION 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 NOVA 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 NOVA and Local Organ isations 2 16 8.2 Levels of Organ isation and L inkages 231 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. 1 18 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 GLOSSARY OF FILIPINO 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 IKTIMA BLISS C-5 CIA CO COM ELEC CPP DPWH DSWD EDSA FDA GRO HUDCC ICS I IMF I NGO KPML LGC LOI MHS NACUPO NCR NGDO NGO N HA N HMFC N IC NSP 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 Organ isation Kongreso ng Pagkakaisa ng Maralita Lunsod Local Government Code Letter of Instruct ion M in istry of Human Sett lements Nat ional Congress of U rban Poor Organ isations Nat ional Capital Region Non Government Development Organisation Non Government Organisation Nat ional Housing Authority Nat ional Home Mo rtgage Finance Corporation Newly 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 PHILIPPINE 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