Chapter 1: THE PLANNING ENVIRONMENT

Chapter

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THE PLANNING ENVIRONMENT

This opening chapter touches on the planning environments the
external (regional & sub-regional) and the internal (Angeles City/ Local). The
aim is to analyze the emerging patterns and urban development snapshots at
the regional level in general, and to explain the urbanization trends at the
local level, that of Angeles City in particular. Such analyses will serve as
inputs in preparing the comprehensive land use plan and the local zoning
ordinance.

1.1 Hierarchy of Urban Centers in Central Luzon

The Asian Development Bank (ADB)-funded NEDA planning manual for
LGUs entitled Guidelines on Provincial/ Local Planning and Expenditure
Management,

Volume

published

in

2007

suggested

the

following

hierarchy, largely in terms of population, for towns, cities, and urban centers,
as follows:
a)

< 100,000

b)

100,000 400,000 =

Large Town/City

c)

400,000-1 million =

Regional Metropolitan Center

d)

> 1 million

Large Metropolitan Center

The hierarchy implies

population, offers

Small and Medium Town

that those on the top, by virtue of their

more advanced urban services (e.g. banks, cinema,

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hospital, shopping center) and thereby acts

as central place not only for

trade and commerce but for industrial and manufacturing activities as well.
Shown in Figure 1-1 is a population histogram of cities and towns in
Central Luzon based on the year 2007 census. The histogram depicts three
(3) levels of hierarchy: Large Town/City, Medium Town, and Small Town.
Twenty one (21%) or 27 out of 130 towns and cities in the region
large

town/city

category.

represents 48 percent of the

Their

combined

population

of

are in the

4.73

million

total regional population.

San Jose Del Monte City (1st) in Bulacan topped the list at 439,090
population. It was immediately followed by Angeles City (2nd), Tarlac City
(3rd), San Fernando City, Pampanga (4th), and Cabanatuan City (5th).
Moreover, most of the towns and cities under this category were from
Bulacan (39%), followed by Pampanga (32%) percent, Tarlac (12%), Nueva
Ecija (10%), Zambales (5%), and Bataan (2%). This trend may have been
triggered by Bulacans proximity to Manila which makes it a
urban destination

natural sub-

in the North. But note that Pampanga has a respectable

share of 32 percent indicative that it is a significant force in accommodating

population in the fringes of Metro Manila.

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1.1.1

1- 4

Scalogram Technique

Another method of analyzing the centrality of the roles and functions of

towns relative to each other is through the use of scalogram technique. In
this method, towns and cities are

sorted according to population size, and

opposite their name is a checklist of higher level urban functions. In his

study, Mendoza (2007) considered the following urban central functions:
a)

Public Market

b)

Jollibee Fast Food

c)

McDonalds Fast Food

d)

Medical Center (Government or Private Hospital with advanced

facilities and man-power complement)

e)

University (Government or private university with accreditation

from the Commission on Higher Education)

f)

Shoemart (SM) Mall

g)

Robinsons Mall

h)

Other Malls (e.g. NE Mall, MAKRO, Nepo Mall, Metro Town Mall)

i)

Economic Zone (Clark, Subic, Luisita Industrial Park)

j)

International Airport

k)

3-star Hotel

l)

5-star Hotel

These proxy indicators cover manufacturing and industrial activities as

well as trade, commerce, and services. We cannot expect a small town with a
population of less than 50,000 people to support a five-star hotel. Moreover,
if an area could sustain either or both Jollibee and McDonalds, then this is an

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indication that the said place has a relatively advanced state of economic
development and thus, performs a central function.
Shown in Table 1-1 (Mendoza, 2007) is a scalogram of functions of
town and cities in Central Luzon having a population of at least 50,000. Iba
and Palayan City, even though they did not make it to the population
threshold level, were included in the scalogram listing since they are the
capital of Zambales and Nueva Ecija, respectively.

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It can be observed that Angeles City, while only a distant second to

San Jose Del Monte City as regards population level, has 11 out of 12 proxy
indicators or measures of central functions. Angeles City has: i) three (3)
public markets; several 3-star and 5-star hotels; a number of gigantic
shopping malls ( Shoemart Clark, Robinsons Angeles, the home grown
Nepomuceno and Jenra Malls);

dozens of

fast food outlets ( Jollibee,

McDonalds, Pizza Hut, etc.); two large private universities (Holy Angel
University & Angeles University Foundation) with an
population ranging from 25,000 to 30,000;
Medical Center) and a number of hospitals and

aggregate student

a medical center (Angeles

clinics; and an economic

zone. Technically, Mabalacat hosts DMIA. But due to proximity and access,
Angeles City functionally hosts the international airport because the main
roads leading to the airport are situated in the City.
In contrast, San Jose Del Monte City, despite having a massive
population

only managed to have a public market. This is way too simple

relative to the complexity of services provided by Angeles City.

Another LGU that parallels the central functions provided by Angeles
City is the City of San Fernando, the capital of the province of Pampanga and
the designated regional administrative capital.
Like Angeles City, it

has the major central functions other than airport

and an economic zone. But this may have been compensated by the location
of SM Pampanga, probably the biggest of the SM malls in the country after
the Mall of Asia.

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Another important urban center is Tarlac City. It has an economic zone

(Luisita Industrial Park), medical center, university, 3-star hotel, medium
sized malls, fast-foods, among others, but does not have yet SM and
Robinsons.

As of the writing of this document, however, SM mall

construction is on-going.
Olongapo City has been enjoying the complementation provided by the
former US Naval Base now popularly called the Subic Bay Freeport Zone long
before it was converted into civilian use. While significant portion of the
Freeport belongs to Bataan and Zambales,
advantage since it hosts the

Olongapo City has the location

main gate or entrance of the Freeport.

The Town of Mabalacat, Pampanga

hosts majority of the area of Clark

Freeport Zone and the Diosdado Macapagal International Airport (DMIA). It

has a bus stop complex in Barangay Dau where all

buses going North make

a stop before negotiating the final stretch of their respective destinations. It

does not host a university or a medical center but has medium-sized malls
(e.g. Jenra Mall) and the wholesale shop (Makro). Because of its huge
population, it has a significant number of fast-food shops.
The rest of the mid-size towns and capital towns and cities could only
manage 3-4

urban functions included in the scalogram probably because of

the size of the population, purchasing power of the people,

and the

state

of the local economy.

Based on the scalogram analysis, it can be inferred that most
advanced urban centers in the region

were the adjoining areas of Angeles

City, San Fernando City (P.), and Mabalacat, Pampanga which has something

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to do with their total population, location advantage, presence of advanced

infrastructure facilities, and hosting of a free port zone and an international
airport.

1.1.2

Inferred
Luzon

Hierarchy of Towns and Cities in Central

While the scalogram technique may have some advantages in giving

visualization of the hierarchy of urban centers as opposed to the population
histogram alone, it has some limitations of its own. It could hardly explain
the synergistic

effects

neighboring areas.

which may possibly exist between two or more

The effects of contiguity and agglomeration may be

visualized better on a map containing the subject cities and towns to

determine if the phenomenon of metropolitanization is already taking place or
not. Shown in Figure 1-2 is the inferred hierarchy of urban centers in Central
Luzon illustrating the spatial relationship of the different central places.
These urban centers are categorized

as a i) Regional urban center, ii)

Major urban center; and, iii) Service urban center. The hierarchy was
originally proposed by JICA and DTI under the Central Luzon Development
Program (CLDP) published in 1995 which was then correspondingly updated
by NEDA III in the succeeding plan formulations. As contained in the CLDP,
the hierarchical structure of urban centers in Central Luzon was analyzed and
determined based on distribution of population, distribution of manufacturing
and service establishments, existing infrastructure and urban facilities, land
capability, among others.

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Source: NEDA III RPFP (2006)

DTI III - CLDP (1995)
Mendoza (2007)

Not to Scale

Iba

Olongapo City

Mariveles

Balanga City

Dinalupihan

Angeles City

Mabalacat

Tarlac City

Malolos City

San Jose Del Monte City

Meycauayan

Baliuag

San Fernando City

Gapan City

Cabanatuan City

Palayan City

Muoz City

San Jose City

Baler

Figure 1-2. Inferred Hierarchy of Urban Centers in Central Luzon

SERVICE URBAN CENTER

MAJOR URBAN CENTER

REGIONAL CENTER

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The designation of a town or city as a provincial capital is usually

provided by its charter or through legislation or an Act by the Philippine
Congress. On new town, city or province creations,
Code (LGC)of 1991,

provides that

centers and political capitals,

the

the Local Government

in the selection of
following

should

areas government
be

considered:

i)

geographical centrality of the area, ii) accessibility, iii) availability of

transportation and communication facilities, iv) development and economic
progress of the area, among others.
It can be observed from the inferred hierarchy that the biggest
agglomeration of population lies exactly along the premises of MacArthur
Highway and the Gapan-San Fernando-Olongapo Road. This covers the cities
of San Fernando and Angeles including the towns of Mabalacat, Magalang,
Porac, Bacolor, Mexico, and Sto. Tomas. In 2007 census, these areas had an
aggregate population of 1,193,124 falling within the population range of a
regional metropolitan area.

1.2 Economic Zones & Major

Facilities in the Region

Infrastructure

Shown in Figure 1-3 are the key infrastructure facilities and major
economic zones located in Central Luzon. It can be noted that the major
urban centers are along major national roads and or host a major economic
zone. The province of Bataan has the Bataan Export Processing Zone located
in Mariveles. Tarlac Province has the Luisita Industrial Park Located in Tarlac
City. Zambales

has the Subic Bay Freeport located in Olongapo City. Nueva

Ecija has an economic zone located in Palayan City but it has no locator yet.

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Malolos City

City

Meycauayan City

Mariveles

Gapan City

Nueva Ecija

Cabanatuan City

Palayan City

Baler

Aurora

National
Capital Region

San Jose Del Monte City

Baliuag

San Fernando Bulacan

Angeles City

Balanga City

Bataan

Source: NEDA III RPFP (2006), DTI III

- CLDP (1995) , DPWH LISR Study
(2000), Mendoza (2007)

Not to Scale

Pampanga

Mabalacat

Dinalupihan
Olongapo City

Zambales

Iba

Tarlac City

Tarlac

Muoz City

San Jose City

Figure 1-3. Urban Centers, Key Transportation Infrastructure

Facilities, & Major Economic Zones in Central Luzon

Bataan Export Processing Zone (BEPZ)

Subic Bay Freeport & Special

Economic Zone (SBF-SEZ)

Clark Special Economic Zone (CSEZ)

Luisita Industrial Park (LIP)

Other Major Roads

Ports of Manila

Subic Port

Diosdado Macapagal
International Airport (DMIA)

Northrail (PNR Mainline North)

North Luzon Expressway (NLEX)

Subic-Clark-Tarlac Expressway

Gapan-San Fernando- Olongapo

(GSO) Road

Cagayan Valley Road (CVR)

MacArthur Highway

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For Pampanga, it has the Clark Freeport Zone (CFZ) and the Diosdado
Macapagal International Airport (DMIA). Bulacan has none of the bigger
economic zones but it has several numbers of agri-industrial estates and
huge concentration of small and medium enterprises (SMEs). Among other
provinces, Pampanga and Bulacan have the fastest link to Metro Manila
through the MacArthur Highway, North Luzon Expressway, or the soon to be
constructed railway system (North Rail).
It can be argued that the economic zones has limited forward and
backward linkages to the host area since most of the materials needed to
produce the final products, and to package the same are mostly imported.
The only link maybe is employment which may not come from the host area
but elsewhere depending upon the need of the locators and competence of
labor supply. But one thing is for sure, these zones will serve as population
magnets complementing the current population levels of the major urban
centers hosting them.

1.3 Metropolitan Clark Area

Pampanga is said to be at the crossroads of regional development by
virtue of its location advantage. Its major urban areas have rapidly grown
into a metropolitan area or central place serving not only the requirements of
Pampanga but of the region as well.

This is the result of a proper mix of

resource endowment, human capital stock, and proper infrastructure support.

For purposes of reiteration, shown in Figure 1-4 is the politico-administrative
map of Pampanga with overlay of key infrastructure facilities in rail, land, and
air transportation. Because of better access and improved economic

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opportunities, there is no stopping for the adjoining municipalities and cities

of Mabalacat, Angeles City, and San Fernando City to become a metropolitan
area.

Source: NEDA III RPFP (2006) DPWH

LISR Study (2000)

Figure 1-4. Politico-administrative map of Pampanga showing the major urban

centers and major transportation infrastructure facilities

Shown in Figure 1-5 is the schematic diagram of the Metropolitan Clark

Area. The urban core may start from Sto. Tomas all the way to Mabalacat
and to include the adjoining municipalities of Mexico, Bacolor, and Porac. The
urban fringe would be the rest of Pampanga and to include Bamban and
Concepcion, Tarlac. Due to access provided by the established road systems,
the Metro Clark Area could be easily accessed by the neighboring cities of
Gapan, Olongapo, Meycauayan, and Tarlac.

It goes without saying that by

virtue of CFZ, DMIA, SCTEx, NLEx, McArthur Highway, GSO Road, North Rail

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and the economic strength of the urban core (Mabalacat, Angeles City, and
San Fernando City) and the urban fringes (Magalang, Arayat, Bacolor,
Guagua, etc), the Metropolitan Clark Area in Pampanga will become the most
bullish growth center in Central Luzon and the strongest urban development
magnet in the country.

Source: NEDA III, BCDA, CSFP-SEP

Figure 1-5. The Metropolitan Clark Area, its Urban Core, Urban Fringe,
and Sphere of Influence

1.4 Comparative Land Use Intensity

The general land use trend in Angeles City follows same trend with the
rest of towns or cities in the country as they are transformed from an
agricultural economy to an urban community. The difference perhaps was on
the rate of transformation.

As population continuously grows over the finite

land resource, urban areas become more dense. Depending upon the level of

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urbanization, some areas are more or less concentrated than the others.
Angeles City is one of the densest

cities in Region III. But compared with

some areas in Metro Manila, one would realize that the City is still relatively
less dense or congested.
Shown in Table 1-2 is the comparative

gross population density

between Metro Manila as a whole, its key selected cities, including the City of
San Fernando and Angeles City.

Gross population density refers to total

population over the total land area (in square-kilometer) of a certain locality.

Table 1-2. Comparative Gross Population Density of Key Selected Cities in

Metro Manila Including Angeles City

City/ Region

Metro Manila
Manila
Quezon City
Navotas
San Fernando City (P.)
Angeles City

Land
Area
(Km2)

Density (No. persons per Km2

1980

1990

2000

2007

636.0

9,317

12,498

16,497

18,648

38.3

42,571

41,808

43,681

66,482

166.2

7,015

10,047

12,996

15,605

2.6

48,518

72,107

97,692

27,443

67.7

1,637

2,330

3,275

3,979

62.17

3,036

3,806

4,246

5,059

Source: Philippine Statistical Yearbook 2000 & 2008

In 2007, Manila City has an estimated population density of 66,482

persons per square kilometer. In contrast, Angeles City only had 5,059
persons per square kilometer on the same period. If population density is
used as an indicator of congestion, then Manila City is 13.14 times more
congested than Angeles City. Through proper planning and innovative land
use management, Angeles City could avoid the urban congestion and urban
blights being experienced at the moment by the big cities in the country.

Comprehensive Land Use Plan and Zoning Ordinance 2010-2020