Bonifacio Global City (BGC) and Taguig City: An Assessment of the

Integration of Transportation Planning between a Mixed-Use Development and

an Emerging Metro City
Submitted by Ryan Randle Rivera, Julius Michael Dagdag and Rachel Habana
Plan 210 B - Planning Process

I. Background

Taguig City: Economy and Territory

Taguig is among the highly urbanized cities in Metro Manila, which is formerly
spelled as “Tagig”. Taguig City was a former thriving fishing community along the
shores of Laguna de Bay with a land area of 47.88 km comprising of population of
644,473 in 2010, this number is expected to double in the coming years.

According to Taguig City officials, to date, the estimate commuters passing through
Taguig City is around 80,000 per day. The most number of commuters comes from
its busiest stretch, which is the Gen. Santos Avenue. It connects Circumferential
Road 6 (C-6), M.L. Quezon Street and the South Luzon Expressway (SLEX).

Taguig has a very long history prior being one of the highly urbanized cities it is now.
Through General Order No. 4 on March 29, 1900, Taguig was proclaimed as an
independent municipality, and considered as part of the Rizal province on June 11,
1901. By Virtue of the Philippine Commission Act No. 942, Taguig, together with
Muntinlupa and Pateros were merged hosting the seat of the municipal government.
For several years there were separation and mergers among these municipalities.
Then finally in January 1, 1918, these three municipalities were declared
independent municipalities through the Executive Order No. 20.

On December 8, 1998, through Republic Act No. 8487, Taguig was converted from
Municipality into a Highly Urbanized City. However, it became an official City on
December 8, 2004.

Taguig ranked 7th on the top 10 richest cities based on the 2015 Annual Financial
Report of Commission of Audit. The city houses one of the country’s biggest financial
district, the Bonifacio Global City.

II. Rationale for Choosing the Case

The continuous development of Bonifacio Global City helped propelled the economy
of Taguig City. The significant increase in the population also translates to a growing
transport sub-sector in urban and sub-urban areas. Taguig City is currently in its take
off stage, economically booming and will soon rival other metropolitan cities.

The authors also want to zoom in on the implementation of the transportation plans
since there is an upcoming township development by a private developer within the
city. Lastly, BGC is a highly sought after territory with two cities and 1 municipality
claiming ownership of it.
Bonifacio Global City: In Context

The Bonifacio Global City is a 240-hectare tract of land which was formerly a part of
a military reserve and was turned over to the Bases Conversion Development
Authority (BCDA) by virtue of R.A. No. 7227 1. Since, the BCDA’s mandate is to
develop its properties in collaboration with the private sector, the BCDA is currently
in a partnership with two (2) private companies, namely, the Ayala Land Inc. (ALI)
and the Evergreen Holdings Inc. Currently, the BGC is managed by the ALI and
BCDA through the Fort Bonifacio Development Corporation (FBDC) and is
maintained by a private provider, the Bonifacio Estate Services Corporation (BESC).

The 1996 Approved Master Development Plan of BGC provided for a mixed-use
development that is centered on the provision of convenience, stimulation of
commercial synergy and generation of street activity (MDP Bonifacio Global City,
1996). This is achieved by combining an urban retail and commercial core with
medium to high density residential development distributed along different districts of
the BGC, namely: North Bonifacio, University Park, Bonifacio Triangle, North Central
Business District, Station Square East, Bonifacio Triangle and Bonifacio South. It
also integrates professional spaces and open space systems with the commercial
and residential core.

The jurisdictional control over the Fort Bonifacio Military Reservation, which
encompasses the Bonifacio Global City (BGC) and other Enlisted Men’s Barangays
(Cembo, South Cembo, West Rembo, East Rembo, Comembo, Pembo and Pitogo),
has been in contention for over two decades as of date.

By virtue of Presidential Proclamations 2475 s. 1986 and 518 s. 1990, respectively,

the said properties were rendered to be within the jurisdiction of Makati. In 1993, the
[then] municipality of Taguig filed a complaint against Makati with the Regional Trial
Court of Pasig, with a prayer to confirm their jurisdiction over the contested areas
and to declare the above proclamations as violative of the 1987 Constitution
prescription of altering territorial boundaries. The RTC ruled favorably towards
Taguig in 2011. The City of Makati, then, exhausted all possible legal remedies,
which culminated to a 2013 decision of the Court of Appeals that ordered Taguig to
“immediately cease and desist from exercising jurisdiction within the disputed area
and return the same to Makati2.”

With Taguig’s filing of a Motion for Reconsideration, the execution of the 2013
decision was put on limbo as of date. After another round of petitions from both
parties, with the City of Taguig arguing that the City of Makati committed forum
shopping, the issue was, for the second time, elevated to the Supreme Court (SC).
In June 2016, the SC ruled that, indeed, the City of Makati committed forum
shopping but the territorial issue has yet to be resolved.
III. Objectives of the Study

1. To assess the transportation plan provided in Taguig City’s approved

Comprehensive Land Use Plan (CLUP) in terms of its integration with BGC’s

1 The Bases Conversion and Development Authority.

2 City of Taguig v. City of Makati.

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 Approved Transportation Plan and its mitigation of the transportation impacts
brought about by BGC’s intensive development;

2. To identify possible faults and best practices in Taguig City’s transportation

planning process, particularly in addressing the impacts of BGC’s
development on the city; and

3. To come up with recommendations on the CLUP and the Taguig City

Planning Process in terms of policies, activities and strategies in dealing with
and maximizing the effects of BGC’s development on the City.

IV. Review of Related Literature

Mixed-Use Developments

Definition

Mixed-use developments, whether small scale or large scale, must have at least
three or more components integrated physically and functionally as a source of
revenue within a certain piece of land. Moreover, each component within the
development also needs to support each other in its functions in order to create a
pedestrian-friendly environment (Thrall, 2002). Seamless blending of the different
components like commercial, office, residential, hotel, and institutional is of utmost
importance to ensure that the goal of being a livable and workable place is achieved.

The rise of mixed-use developments

In recent years, Philippines has seen continuous growth in the number of mixed-use
developments or as what property developers call “townships”. Townships are
master planned communities that promises to provide a live-work-play lifestyle to its
people (Maclang, 2015). It highlights the proposition of living conveniently as
everything that you need are all within reach. Moreover, these townships will have
distinct character depending on how it was designed which will contribute to the
vibrancy of the urban life.

Townships, according to real estate consultant Claro Cordero, Jr. of Jones

LangLasalle, are “borne out of necessity—lack of viable and alternative
transportation system and heavy traffic in urban centers” (Alegado, 2013). People
are now starting to appreciate the idea of living within the urban center and having a
lifestyle that allows you to live comfortably without the hassle of being stuck in heavy
traffic and still having time to enjoy with your family and friends.

Accessibility in mixed used developments

Accessibility to both pedestrians and vehicles is a crucial factor in designing a

township. In the city of Mumbai in India, the residential zone is located far from the
business zone wherein people have to travel for almost an hour and contributed to
the use of car purchase and usage. Meanwhile, each block in New York City is

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composed of restaurants, offices, and residential spaces which makes it easier for
the public to go from one place to another (Zamorano & Kulpa, 2014).

As seen in the case of New York City, mixed-use developments create connectivity
within the community. Being connected would contribute to the lower usage of
vehicles and lighter flow of traffic; and a healthier environment due to lower carbon
emission.

Indicators for Evaluating the Effectiveness of Comprehensive Land Use Plans

Measuring the effectiveness of a plan will require several criteria, considerations,

benefits gained and returns on investment (ROI) on top of the type of plan prepared.
According to Peter Hall, plans are blueprints prepared to deliberately achieve several
objectives and consists of several actions to be taken. The degree or depth of a plan
is also a consideration in evaluating the effectiveness of the plan. By nature plans
are comprehensive, cyclic, continuous, dynamic, and multi-disciplinary. Thus,
making it more difficult to assess the plan’s effectiveness.

In this study, the Comprehensive Land Use Plan (CLUP) of Taguig City will be
reviewed and assessed. However, the authors are yet to identify the different
parameters, criteria, models and approaches. In this section of the review of related
literature, this component will be discussed based from previous studies evaluation
on regional and municipal land use plans.

CLUPs are not only limited to land use optimization to maximize the productivity of
the land, it is also the basis in forecasting population, employment opportunities in
the future, minimizing environmental impacts and minimizing the cost of community
facilities (Deepak and Dalip, 1979). Specifically minimizing environmental impacts
can be related to the type of industry would be allowed. For example, if the land is
identified as an area suited for mining activities, though it would be allowed, certain
precautions to minimize the effects of mining are to be incorporated in the CLUP.

According to Meligrana, et.al. (2008), comprehensive land use plans are widely used
to guide infrastructure developments, map the land use and zones, craft a common
vision on local ideas and basic foundation for the national policy direction. However,
how effective are these plans to the national development and future growth of the
city is yet to be measured.

Neuberger (1971) claimed that user benefit is a critical factor in the evaluation of the
land use plan and transport. In his study three methods of measuring user benefits
were depending on the complexity of the transportation network and using
disaggregated valuations. These valuations are focused on the vehicle operating
cost, journey times and accessibility and comfort and convenience.

In the first method, user benefit is defined as a function of trips from zone 1 to zone 2
and the unit cost of the journey from one zone to another. However, this method of
measuring the user benefit ignores the effects of improved accessibility and the
possibility of altering commuters travel patterns. Thus, in method II, the introduction
of cheapest routes with quick travel times as a function of user benefits was made.

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However, method II is directly linear in function, thus Method III introduced the factor
of zone attributes.

In the end, Neuberger argues that land use plans can be evaluated based on the
effectiveness of its transport system, in terms of its ability to provide a comfortable,
accessible and convenient mode of transport to ensure people and services are
moved efficiently in a timelier manner.

The Comprehensive Land Use Plans (CLUP) increases the attractiveness of cities to
house buyers (Ihlandfledt, 2009). The US local communities have started investing in
the preparation of their respective CLUP, particularly Florida, thus Ihlandfledt
showed that communities in Florida that invested in CLUP has higher housing
values, land property, size and location, and land use type thus increasing the
community welfare value. In his study, he used Ordinary Least Squares (OLS) and
Two stage least squares (TSLS) models to estimate the land value and its structural
characteristics and neighborhood characteristics. Land use types used in his study
though includes only Single family residential, multiple family low density, multiple
family high density, Local commercial, Regional Commercial and Open Space.

There are indeed various indicators or parameters to measure the effectiveness of a

CLUP and numerous approaches to measure the effectiveness of the CLUP.
However, these indicators, though simulated using different models will not generate
a perfect method of evaluating the effectiveness of a CLUP. According to Deepak
and Dalip, in developing a land use plan, the major consideration is the numerous
objectives of the citizens as well as the constraints on desired growth patterns
imposed due to population, economics, natural environment and existing land use
patterns. No matter the method used, the review on the CLUP is an important aspect
since communities since it is the need of the citizens that it tries to address and
entails a monetary allocation from the government, which will have to be audited.

Meligrana, et.al (2008) provided a detailed evaluation of the Shanghai’s Municipal

Land-Use Plan (SMLUP). According to them, Shanghai neglected to evaluate the
city’s municipal plan despite its urban growth and economic restructuring. The
approach used by Meligrana, et.al is more on the comparison of the SMLUP to the
Over-all Land Use Plan of China and assessment as against the objectives of the
SMLUP.

Below are the major findings of Meligrana, et. al. in their paper, Planning a mega
city’s future: An evaluation of Shanghai’s municipal land use plan.

1. SMLUP is narrowly conceived in terms of technical land use allocation and

balancing the supply of agricultural and development land.
2. SMLUP barely contains any information on the new towns that will be created
to absorb new urban growth.
3. Infrastructure projects set up to improve the transportation connectivity within
Shanghai, between Shanghai and other destinations in the larger part of
Pudong district.

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 4. There is a different conception between the SMLUP and the Over-all Land
Use Plan of China in terms of central urban areas.
5. The SMLUP underestimates the interconnections and impacts of the various
land uses.

V. Methodology

Conceptual Framework

In this paper, it is assumed that the Taguig City CLUP and the BGC Transport Plan
are harmoniously in line in terms of its Transport Facility. The figure below shows
that the Taguig City CLUP and the BGC Transport Plan are directly in sync in
providing the transport facility. This is based on the ground that transport increases
the user benefits of its community as Neuberger’s indicator for a successful land use
plan.

According to Roso et. al there are six (6) criteria in determining the type of
transportation system it will provide for the community. These six criteria are the
Legislative, environment, spatial, goods flow, organization and technology. In this
conceptual framework, the criteria in determining the differences and gaps of the two
plans, Taguig City CLUP and BGC Transportation Plan affects the transport facility
being provided in the Bonifacio Global City.

The definition of Roso, et.al will be used for the six criteria in determining the gaps
and differences in the transport facility. However, instead of the Legislative Criteria,
the Policies and Guidelines governing the two will be used as the sixth criteria.

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 1. Environment Criteria – impact to the environment of the plans
2. Goods flow – availability of a catchment area of the terminals (for the industry)
3. Spatial criteria – distance from main industrial zones, river ports, sea ports
and other road networks
4. Technology – connection of the terminal with roads significant for international
traffic, availability of railways, communication systems, etc.
5. Organizational Criteria – Administrative, operations, and finances
6. Legislative Criteria – Acts/Laws on physical planning and construction,
strategy of physical arrangement, physical plan

The Transport Facility is defined as the transportation network/system provided by

the Taguig City as stipulated in the CLUP and the BGC Transportation Plan. The
Transport Facility can be measured in terms of: (1) available networks, zones
classifications and land types; (2) Transfer point, connectivity; (3) Walkability, parks,
pedestrian crossings, etc; (4) routes, networks and roads; and (5) Frequency of
Service. These measures are in line with each component of the CLUP and the
Approved Transportation Plan of BGC: Land use, Integration, Demographics,
Accessibility, and Efficiency.

Land use is determined based on general model of land use decision, in terms of its
physical characteristics, social, economical and concerns of the stakeholder as
stated in the CLUP.

Integration is defined as the inter-connectivity of different transport modes that will

lead a person from point A to point B, examples of this will include public transport
terminals that has different public transport modes like jeepneys, buses, UV express,
etc.

Demographics will cover the population and socio-economic background of the

inhabitants of Taguig City. The different transport infrastructures established should
be based on the demographics, for example if majority of the inhabitants in Taguig
are working class, there should be an open space for their free time and be able to
walk free from road accidents.

Accessibility is the availability of road networks and routes going to the city, within
the city or out of the city.

While the Efficiency covers the frequency of services of the transport system, for
example the availability of jeeps during peak hours, real time traffic updates, etc.

Research Methods

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The study will be using secondary data from Taguig City and BGC, which will be in
the form of the CLUP, BGC’s Approved Transportation Plan, City Ordinances and
Issuances and Statistical data like available transport modes and population.

A comparative analysis between the Taguig City CLUP and BGC’s approved
Transportation Plan will be done through an evaluation of the different transport
policies implemented.
Data Requirements

The study is set to be heavily reliant on secondary data that will come from the
Taguig City Government, the Bases Conversion and Development Authority (BCDA),
the Fort Bonifacio Development Corporation (FBDC) and the Bonifacio Estate
Services Corporation (BESC). It will require the ff. documents:

a. Approved Comprehensive Land Use Plan and Zoning Ordinances;

b. Pertinent Taguig City Ordinances/Issuances;
c. Transportation Network Thematic Maps;
d. BGC Master Development Plan;
e. BGC Design Guidelines; and
f. BGC Annual Transport Plans.

Moreover, the study will refer to Taguig City’s demographic, institutional and
economic data, such as housing requirements, general transportation behavior,
priority industries and policy thrusts.

Reference List:

Alegado, S. 2013. Filipino Property Buyers Now Go for Mixed-Use Development. GMA
News. Retrieved from:
http://www.gmanetwork.com/news/story/294437/money/companies/filipino-property-
buyers-now-go-for-mixed-use-development

Deepak, B and Dalip, B. 1979. Development of a Comprehensive Land Use Plan by Means
of a Multiple Objective Mathematical Programming Model. Interfaces. Vol. 9, No. 2,
Part 2. Special Practice Issue. (Feb, 1979) pp. 50 – 63. INFORMS. Retrieved from:
http://www.jstor.org/stable/25059755

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Ihlanfeldt, K.R. 2009. Does Comprehensive Land-Use Planning improve Cities? Land
Economics. Vol. 85, No. 1 (Feb 2009) pp. 74 – 86. University of Wisconsin Press.
Retrieved from: http://www.jstor.org/stagle/27647866

Maclang, A. 2015. The rise of the township: Mixed-use development as the new
norm. Business Mirror. Retrieved from:
http://www.businessmirror.com.ph/the-rise-of-the-township-mixed-use-development-
as-the-new-norm/

Meligrana, J., Ren, W., Zhang, Z., & Anderson, B. (2008). Planning a mega-city's future: An
evaluation of Shanghai's municipal land-use plan. The Town Planning Review,
79(2), 267-293. Retrieved from https://search.proquest.com/docview/ 232854023?
accountid=173015

Neuberger, H. 1971. User Benefit in the Evaluation of Transport and Land Use Plans.
Journal of Transport Economics and Policy, Vol 5. No. 1 (Jan 1981) pp 52 – 75.
University of Bath and the London School of Economics and Political Science.
Retrieved from: http://www/jstor.org/stable/20052213

Roso, V., Bjrnac, N., Abramovie, B. 2015. Inland Intermodal Terminals Location Criteria
Evaluation: The Case of Croatia. Transportation Journal. Vol. 54, No. 4 pp. 496-
515. Penn State University Press. Retrieved from https://search.proquest.com/
docview/232854023?accountid=173015

Thrall, G. 2002. Business Geography and New Real Estate Market Analysis. Retrieved from
https://books.google.com.ph/books?
id=iB_ALDYrWMUC&pg=PA216&redir_esc=y#v=onepage&q&f=false

Zamorano, L., Kulpa, E. 2014. People-oriented Cities: Mixed-use Developments

Create Social and Economic Benefits