CHAPTER 3 DEVELOPMENT CONSTRAINTS AND OPPORTUNITIES

In order to achieve the desired urban form of the Municipality of Capas, the local leadership
and its people will have to overcome the constraints to the Municipality’s growth while
taking advantage of the opportunities presented.

3.1 Development Constraints

The following discussions on the factors that hinder the development of Capas are derived
mainly from the Strengths-Weaknesses-Opportunities-Threats workshop, sectoral and inter-
sectoral workshops, and other relevant documents.

3.1.1 Inherent Constraints

a. Terrain/geographical characteristics – The rolling hills of Capas, which make up 46.24%

of the terrain make it difficult for travel, especially for school children who have to travel
far to go to school.The road networks are sufficient in terms of access to each barangay
but there are still insufficient barangay roads and side roads in most barangays.

Table 1. Slope Classification of Capas

Slope Range (%) Description Area (Hectares) Percentage (%)

0-3 Level to very gently sloping 6,875 20.67
3-8 Gently sloping to undulating 3,502 10.52
8-18 Undulating to rolling 4,752 14.28
18-30 Rolling to hilly 15,375 46.24
30-45 Steep hills and mountains 2,503 7.54
>45 Very Steep hills and mountains 250 0.75
Total 66,257 100
Source: Socio-Economic and Physical Profile of Capas, Tarlac

b. Proximity to Mt. Pinatubo – In 1991, the proximity of Capas to Mt. Pinatubo has resulted
not just in physical destruction to the towns surrounding Mt. Pinatubo.It also led to the
displacement of over 1,000 families, particularly IPs affected by the eruption of Mt.
Pinatubo.This displacement then resulted in an increase in informal settlers.

c. Natural hazards – Lahar flow from Mt. Pinatubo also resulted in heavy siltation in Bangut
River in Sta. Lucia and O’Donnell River in O’Donnell.Both river systems are now
unproductive.

This heavy siltation also results in floods in 15 of the 20 barangays because the silt has
made the rivers shallower.

Table 2. List of Flood Prone Barangays, 2011

Barangay
 Bueno Sto. Domingo I
Cubcub (Pob.) Sto. Rosario
Estrada Sta. Lucia
Lawy Sta. Juliana
Manga
Source: MPDO

Seasonal flooding perennially causes damage to public infrastructure, private property,

agricultural crops, and other economic activities.

Landslides have also occurred in the Municipality.In 2009, a landslide in Sta. Juliana
resulted to the death of foreigner tourists.Coupled with flooding, this safety issue will
negatively impact the town’s potential as a tourist attraction unless steps are taken to
mitigate the occurrences of such events and reduce risks to residents and tourists.

3.1.2 Derived Constraints

a. Displacement of Indigenous People – After being displaced by the eruption of Mt.

Pinatubo in 1991, more than 1,000 families of IPs became informal settlers in the
flatlands of Capas.This problem will most likely be aggravated with future road
developments, particularly with the construction of the Capas-Botolan Road project that
cuts across the Military Reservation Area.

b. Military Reservation Area – The presence of the military reservation, which covers more
than half of the entire land area of Capas owned and managed by military and the LGU
of Capas has no role in its management and development, resulting in the loss of
potential revenue and production.

Exclusive control of the Military Reservation Area also hampers the delivery of basic and
social services.Management of activities such as illegal logging and illegal selling of land
titles/rights that may affect the Municipality as a whole, are beyond the LGUs
control.This lack of control by the LGU also affects construction of government
infrastructures inside the Military Reservation Area that would be beneficial to the
residents of Capas.

Residents are also wary of potential attacks on the military base inside the military
reservation area by insurgents or terrorist groups.

c. High dependency on Internal Revenue Allotment (IRA ) – At present, 79% of the budget of
the Municipality of Capas comes from the national budget allocation.Normally, towns try
to achieve a low dependency rate on its IRA as a measure of its self-reliance by
maximizing its income and thus, reduce the town’s reliance on the National
Government.

Table 3. IRA Dependency Level, Municipality of Capas

In PhP Millions
2005 2006 2007 2008 2009
Particulars
 Local Sources 21.249 32.243 23.593 23.069 37.018
External Sources 75.501 102.400 91.097 120.275 140.299
Shares from National Tax
75.501 87.507 91.907 120.275 140.299
Collections
Loans and Borrowings 14.893
114.69
Total Income/Receipts 96.751 134.643 143.344 177.318
0

Share of IRA to Total Income/IRA

78.04% 64.99% 79.43% 83.91% 79.12%
Dependency
Share of Local Sources to Total Income/Self
21.96% 23.95% 20.57% 16.09% 20.88%
Reliance
Share of Debt/Grants/Aids to Total Income 0.00% 11.06% 0.00% 0.00% 0.00%
Source: Municipality of Capas, Statement of Income and Expenditures, 2005-2009

d. Weak institutional capability – The local government staffing is dominated by

administrative personnel and very few technical personnel.In addition, there is no
plantilla item/structure for local tourism, internal audit, and information units.

Furthermore, there is also poor participation of POs/NGOs in the development planning

and policy formulation as evidenced by ELA for 2010-2013 which was crafted with no
representation from POs/NGOs.

IPs are also not represented.This is partially due to the lack of awareness on their rights
as IPs of both the IP communities and the government.IPs were also not properly
documented before due to difficulties by the census teams in reaching some IP areas.

e. Inadequate legal infrastructure – Given several opportunities for the tourism industry,
there is still lack of legal infrastructure in terms of tax incentives and policies on
environmental regulation and tourism.

f. Low compliance with environmental laws/policies – The Municipality is not effectively

implementing national and local laws, policies, and programs on the environment.

Not all barangays have MRFs in violation of Republic Act No. 9003, also known as the
Ecological Waste Management Act of 2000. Municipal Ordinance 009-95 and Zero Waste
Management Program of Capas are also not fully implemented and monitored.

The Kalangitan Sanitary Landfill in Barangay Cut-cut II is owned and operated by a

German Consortium and the LGU of Capas has very little control over the facility.At
present, the sanitary landfill also takes in wastes from Manila and Baguio.This would
make the Kalangitan Sanitary Landfill reach its maximum capacity faster.

Air quality is also an issue in and around the sanitary landfill.Residents near the sanitary
landfill complain of foul odor coming from the facility.

The presence of piggery, poultry, and livestock industries in Barangays Aranguren, Cut-
cut I, Cut-cut II, Lawy, and Sto. Rosario is also poorly monitored which results to poor
compliance with the Department of Environment and Natural Resources (DENR)
standards by said industries potentially leading to more environmental issues.

Illegal logging, primarily in the form of slash-and-burn farming is still practiced in

Capas.Often blamed on the IPs, this practice can leave large tracts of forests denuded in
a matter of minutes.Lack of effective implementation of forestry laws allows this
practice to continue in the hills and mountains of Capas.

Compliance with Integrated Forest Management Agreements (IFMA) and Community-

Based Forest Management Agreements (CBFMA) resource management plans are not
effectively monitored and may lead to improper management of the IFMAs/CBFMAs and
further degradation of forest resources.

Water resources are also at risk of degradation, especially, sources of potable water due
to inadequate sewerage systems.Run-offs and other liquid wastes are flushed directly
into rivers and streams due to the lack of Sewage Treatment Plants (STPs) in Capas.This
includes the lack of effective drainage systems, particularly in-and-around the Poblacion
area.This situation is aggravated by poor maintenance of the already existing drainage
networks, particularly along the North Manila Road.All these waste waters go untreated
into the waterways of Capas and, eventually, out to sea.

Around 21.7% of households in 2008 were not equipped with toilet facilities.There was
an increase from 16% in 1990. This may lead to further contamination of ground water
resources.Directly linked with water-borne diseases, this could be a major factor in the
inadequacy of clean drinking water, particularly outside of the Poblacion where diarrhea
is one of the main health issues.
 Table 4. Households without Sanitary Toilet: 2008

Households Population
Magnitude Proportion
Barangay Magnitud
Proportion Total Male Femal Tota
e Male Female
e l
Aranguren 75 6.1 362 184 177 6.4 6.4 6.4
Talaga 41 4 188 94 94 3.9 3.9 4
Sto. Rosario 16 1.2 74 41 33 1.2 1.4 1.1
Sto. Domingo II 25 2.3 96 45 51 2.1 2 2.1
Sto. Domingo I 7 1.4 25 10 15 1.1 0.9 ?
Sta. Rita 20 5.9 88 46 42 5.1 5.2 4.9
Sta. Juliana 677 68.7 3,174 1,614 1,560 68.2 67.9 68.5
O' Donnell 228 9.3 959 504 455 8.5 8.6 8.4
Maruglu 185 67 918 478 440 67.5 67.7 67.4
Manga 20 6.2 97 57 40 6.2 7 5.4
Manlapig 7 1.8 27 15 12 1.5 1.6 ?
Lawy 81 6.7 339 177 162 6.1 6.3 5.9
Estrada
3 0.6 14 5 9 0.6 0.4 0.7
(Calingcuan)
Dolores 36 3.4 143 75 68 2.9 3 2.8
Cut-cut II 109 9 533 282 251 9.7 10.3 9.1
Cut-cut I 26 1.5 115 56 59 1.4 1.4 1.5
Cubcub 9 1.3 32 17 15 1 1.1 1
Cristo Rey 23 0.5 102 52 50 0.5 0.5 0.5
Bueno 122 48.2 598 309 289 47.8 47.8 47.7
Total 1,710 7,884 4,061 3,822

Source: CBMS, 2008

Small-scale mining activities in Barangay Bueno may also be in violation of several

environmental laws on pollution as well as the Philippine mining laws because the said
activities are practically unregulated by any government body.

g. Poor socio-economic condition of families – As of 2009, the unemployment rate of Capas

is at 52%.Malnutrition prevalence is at 7.02%.Moreover, there is low completion rate in
both elementary and high school.

h. Inadequate public transport system – No integrated public transport system or

centralized public transport terminal is in place which is a necessary support service for a
blooming tourism industry in Capas.Traffic congestion is also common along the Manila
North Road, since this road serves as the primary route to travelers going to Tarlac City,
Baguio City, and other prime destinations north of Manila, especially during the holidays.

i. Inadequate health services and health providers – Despite having barangay health
centers in almost all of the barangays, all health indicators for Capas are unimpressive,
except for very low maternal deaths because of good prenatal care.Health services are
 already in place but the number of health workers is not enough to accommodate the
needs of the entire population of Capas.One of the major concerns of the Municipality is
the prevalence of malnutrition which is at 7.02%.Though the figure is not that high of
the provincial or national level, for a first class municipality like Capas, this is already a
concern.Other primary concerns of the Municipality are poor knowledge among
residents on proper nutrition and low proportion of families with PhilHealth insurance.

j. Inadequate post-harvest facilities – Despite having vast areas of prime agricultural lands,
post-harvest facilities in Capas are still inadequate.The rice thresher is considered as the
most common and primary utility in Capas, followed by rice mill and warehouse or
storage facility, respectively.As of 1995, there are 15 warehouses situated in seven (7)
barangays namely, O'Donnell with six (6) storage facility, Lawy, Sta. Lucia and Sto.
Domingo II with two (2) each, Aranguren, Sto. Domingo, and Talaga with one (1) each.All
of the barangays except Maruglu have multi-purpose playgrounds being used for palay
drying.

k. Weak institutional support for the rights of IPs – The influx of IPs after the eruption of
Mt. Pinatubo in 1991 led to a dramatic increase in the IP population of Capas.Prior to the
eruption, very little concern was given to the rights of IPs.Now, this lack of social and
legal infrastructure within the Local Government of Capas deprives the IPs of some of
their rights enshrined in IPRA.

3.2 Development Opportunities

Constraints can sometimes be viewed as challenges to be overcome or a source of

opportunities.In Capas, some of the constraints which arise from its geophysical
characteristics and location as described above, such as being near Mt. Pinatubo and
presence of Lahar presents Capas with several opportunities for residents of Capas.

a. Proximity to Mt. Pinatubo – Primarily considered a constraint, Mt. Pinatubo also

presents opportunities, especially for the tourism sector.Capas is considered as the
“gateway” to Mt. Pinatubo tourism.Ideally located at the foot of Mt. Pinatubo, the
Pinatubo Spa Town also provides pampering of tourists after a long trek up to the crater
and back.Patrons of the spa can avail of the “Pina-thai-tsu,” (combination of Thai,
Shiatsu massage with Filipino Massage techniques), volcanic ash spa or a mud pool and
other services.

b. Mineral resources – Two (2) mining companies have determined that there are at least
190,000 metric tons of metallic Manganese ore within the Military Reservation Area.

Placer gold deposits have also been reported in Cabatuan Creek in Barangay Bueno.No
mining claims and permits have been granted in the area, despite on-going gold panning
and sluicing activities in the area.Pumice can also be found in Barangay Bueno.
 Sandstones with fine quartz and powdery rock chip, as well as shale are present in the
low relief hills of Barangay Cut-cut II.Sand and gravel are also abundant.

c. Availability of open spaces – There is an abundance of available open spaces which could
be developed into schools and other social infrastructures.

Vast tracks of fertile agricultural lands are also present in Capas located all around the
eastern portion of town.

d. Accessibility and infrastructure – Capas is very accessible through SCTEX and NLEX.The
town is also directly traversed by one of the country’s major arterial road, Manila North
Road.

Capas is also located in close proximity to the DMIA providing easy access to local and
foreign tourists.The proposed Capas-Botolan Road will further improve the town’s
accessibility, particularly to North-Western Luzon.

Public transportation requirements are sufficient.All barangays are also accessible

through all-weather roads, except for Barangay Bueno, which involves traversing the
Cabatuan Creek.A bridge would need to be constructed to ensure access during the
monsoon season when the creek swells.

All barangays in Capas are fully energized.

e. Proximity to development centers – Capas is located strategically in close proximity to

Subic-Clark Economic Development Zone that would create more employment
opportunities to Capas residents in the form of BPO, manufacturing, hotel, and casino.
The emerging piggery, poultry, and livestock industries are also worth noting.

Being adjacent to Tarlac City also provides an opportunity for Capas to tap the post-
harvest services demands of Tarlac.Particularly Barangay Estrada, near the border of
Capas and Tarlac City, can be developed into an agro-industrial development node.

f. Opportunity to increase generation of local revenue – Several income generating

opportunities are present in Capas.The emergence of medical tourism (health spa),
ecotourism, and military tourism provides additional sources of taxable income for
Capas.

Military exercises conducted inside the Military Reservation Area increase the demand
for support facilities, which would also lead to additional taxable income, as well as
increased potential for employment.

g. Open-minded leadership – The initiative to update the CLUP is a manifestation that the
local leadership is open and willing to optimize all avenues for the acceleration of
development in Capas.The legislative and executive branches of local government are
united to formulate policies and implement programs and projects that will address
inherent and derived constraints.
h. Indigenous People – The influx of IPs has led to an increase in recorded population in
Capas.This increase may also lead to the increase of new partners in
development.Especially, since the IPs are willing to participate in local governance.

i. Solid Waste Management Plan formulated – Capas has formulated a Solid Waste
Management Plan which thoroughly outlines their plans for Solid Waste Management in
the Municipality.The plan covers all the requirements of Republic Act No. 9003.As long
as the Plan is funded, implemented, and monitored effectively, Capas will be able to
manage their projected wastes for the next 15 years.
CHAPTER 4 Generation & Selection of Alternative Spatial Strategies

This Chapter is concerned with the generation of spatial strategies suitable for the local
government of Capas in light of the updated vision (Chapter 2) as well as the identified
development constraints and potentials (Chapter 3) of the Municipality.In addition, this
chapter details the process of evaluating present land uses, projection of urban land
requirements, generation and description of alternative spatial strategies, and evaluation
and selection of the preferred strategy that will capture the aspirations of the people of
Capas in the next 10 years.

4.1 Present Land Use and Land Use Shifts

Capas is a first class Municipality located in the Province of Tarlac.It is politically subdivided
into 20 barangays, with Barangay Cristo Rey (derived from Barangay Aranguren in 2007) as
the newest barangay.The Poblacion area, composed of Barangays Cubcub, Cut-cut I, Cut-cut
II, Sto. Domingo I, Sto. Domingo II and Sto. Rosario is considered as the urban center of the
Municipality.

For basis of comparison, the general land use distribution as contained in the 2003-2008
CLUP of Capas, as well as the existing land uses of the Municipality as provided by the
Municipal Planning and Development Office (MPDO) and Municipal Assessor’s Office, and
verified through Google Earth Imagery and GIS Analyses, is summarized in Table 5.
 Table 5. 2008 & 2011 General Land Use Distribution of Capas, Tarlac

2008 General Land Use 2011 General Land Use

Area Area
Land Use Land Use
Hectares % Hectares %
1,977.75 5.25
Residential 788.72 2.35 Residential
BUILT-UP

BUILT-UP
Commercial 27.61 0.08 Commercial 77.85 0.21
Institutional 39.00 0.12 Institutional 165.10 0.44
27.6 6,051.33 16.08
Agricultural 9,308.59 Agricultural
8
162.53 0.43
Industrial 88.66 0.26 Agro-Industrial
5,767.43 15.32
Forest 2,619.31 7.79 Forest
MILITARY RESERVATION

MILITARY RESERVATION
O'Donnell Transmitter O'Donnell Transmitter 370.0
370.0
Station Station
59.3
O'Donnell Excepted Area 1,755.00 O'Donnell Excepted Area 1,755.00 53.06
8
Crow Valley Watershed 17,847.00 Crow Valley Watershed 17,847.00

2,867.11 7.62
Open Space/Parks/Roads 192.61 0.57 Open Space/Parks/Roads
597.91 1.59
Lahar areas/Rivers & Creeks 594.00 1.77 Lahar areas/Rivers & Creeks
TOTAL 33,630.50 100% TOTAL 37,639.00 100%

Source: MPDC, Municipal Assessor’s Office

Based on the comparative figures, the following land use shifts can be deduced:

a. The total land area increased from 33,603.50 hectares to 37,639 hectares.This was
based on the approved cadastral survey of the Municipality, as verified from the Land
Management Bureau (LMB).The bigger land area is also the basis of the Department of
Budget and Management (DBM) for the IRA of the Municipality;

b. The Military Reservation Area, comprising of the O’Donnell Transmitter Station,

O’Donnell Excepted Area, and the Crow Valley Watershed remains the biggest land use
classification in the Municipality, accounting to 53.06% of the total land area;

c. As verified from Google Earth Imagery and GIS Analysis, residential areas occupy
1,977.75 hectares or 5.25% of the total land area.This is more than twice larger as
compared to the Municipality’s residential areas indicated in the 2003-2008 CLUP;

d. Identified forestlands in the Municipality, as verified from the 2007 National Mapping
and Resource Information Authority (NAMRIA) Topographic Map, more than doubled its
size, accounting to 5,767.43 or 15.32% of the total land area;

e. From 27.68% of the total land area in 2008, agricultural lands in the Municipality
currently accounts for 6,051.33 or 16.08% of the total land area.However, the figure
does not include agricultural lands within the Military Reservation; and
f. Commercial areas in the Municipality increased from 27.61 hectares (based on 2003-
2008 CLUP) to 77.85 hectares.A factor for this is the conversion of agricultural lands 50
meters on each side of the Manila North Road, traversing barangays Cut-cut I, Cut-cut II,
Cubcub, Sto. Domingo I, Sto. Domingo II, Dolores, Talaga, and Estrada, to commercial
uses.

Furthermore, the increase in the Municipality’s total land area brought about considerable
adjustments in the land use distribution within the Municipality (refer toFigure 1).The above-
mentioned methodology also afforded a more thorough identification of the Municipality’s
land uses.

As such, the four (4) generalized land use policy areas in the Municipality --- settlement
areas, production areas, infrastructure areas, and protected areas --- were identified in Table
6 and are subsequently discussed.It is important to note that areas within the Military
Reservation, regardless of its actual and/or existing use, are classified as a reservation area
in order to avoid double-counting of land areas in the Municipality.
Figure 1. Existing General Land Use Map of Capas
 Table 6. Existing General Land Use, 2011

Area
Land Use
Hectares %

SETTLEMENT
Residential 1,977.75 5.25

INFRASTRUCTURE PRODUCTION
Commercial 77.85 0.21
Agricultural 2,831.83 7.52
Agro-Industrial 162.53 0.43
Roads 18.89 0.05
Institutional 33.73 0.09
Slaughterhouse 1.32 0.003
Sanitary Land Fill 100.00 0.27
Cemetery 10.87 0.03
Prime Agricultural Lands 3,219.50 8.55
Forest 5,767.43 15.32
PROTECTED AREAS

Historical Site 19.18 0.05

Military Reservation 19,972.0 53.06
0
River 292.24 0.78
Open Space 2,848.22 7.57
Sand and Lahar Areas 305.67 0.81
Tota 37,639 100
l
Source: MPDO, Assessor’s Office, GIS Analysis

4.1.1 Settlement Areas

Settlement areas constitute locations in the Municipality where the population is

concentrated such as the Poblacion, urban barangays, rural settlements, or as the case may
be, settlements of IPs.In its literal sense, these are the spaces for living and where the
population resides.

The Municipality’s residential area is approximately 1,977.75 hectares or about 5.25% of the
total land area.Settlement areas follow a strip or linear pattern along major thoroughfares
and are concentrated in the Poblacion area and barangay centers.Residential subdivisions,
socialized housing projects, and resettlement areas such as the Navy Resettlement Area in
Barangay Cristo Rey, are also included in this land use.The average lot area per household is
714.28 square meters, while the average municipal residential density is 71 persons per
hectare.

4.1.2 Production Areas

Production areas are the space for making a living.This is where productive activities are
undertaken by the population to achieve economic development.Commercial, industrial,
and agricultural lands are some examples that constitute this policy area.
4.1.2.1 Commercial Land Use

Commercial land use in Capas consists of lands allocated for different business enterprises
including sari-sari stores, restaurants, fast food chains, beauty parlors, commercial banks,
hardwares, agricultural supply stores, and the productivity center in Barangay Cristo Rey
which is currently being managed by the National Housing Authority (NHA).These are
concentrated in the Poblacion area and different barangay centers.The public market,
located in Barangay Cubcub, is considered the largest single commercial area in the
Municipality with an approximate land area of 6,112 square meters.Similarly, 50 meters on
each side of the Manila North Road, traversing Barangays Cut-cut I, Cut-cut II, Cubcub, Sto.
Domingo I, Sto. Domingo II, Dolores, Talaga, and Estrada, is designated as commercial land
use.Overall, the commercial land use of the Municipality is approximately 77.85 hectares or
0.21% of the total land area.

4.1.2.2 Agricultural Land Use

Agricultural land use is approximately 2,831.83 hectares or 7.52 % of the Municipality’s total
land area.The figure, however, does not include prime agricultural lands, as well as
agricultural areas inside the Military Reservation.High-value commercial crops produced
include corn, taro (gabi), sweet potato, and other vegetables, while 1,908 hectares are rain-
fed rice lands.The biggest mango plantations are found in Barangays O’Donnell, Aranguren,
and Cut-cut II while banana plantation is found in Barangay Talaga and Sta. Juliana.On the
other hand, fishponds are present in Barangays Dolores, Lawy, Manlapig, and Sta. Lucia.

4.1.2.3 Agro-industrial Land Use

Agro-industrial land uses in Capas account for 162.53 hectares or 0.43% of the total land
area.Existing agro-industrial activities include poultry, piggery, livestock, a smoked fish
(tinapa) factory in Barangay Talaga, and a crocodile farm in Barangay Estrada.
4.1.3 Infrastructure Support Areas

Areas in the Municipality taken up by infrastructure to connect and support the settlement
and production areas are known as infrastructure support areas.In Capas, this policy area is
made-up of its existing road network, institutional facilities, and social service facilities.

4.1.3.1 Roads

The existing road network of the Municipality covers 18.89 hectares or 0.05% of the total
land area.The total road length is 181.87 kilometers, with the following breakdown: 28.34
kilometers or 15.58% account for national roads; 17.60 kilometers or 9.68% for provincial
roads; 1.40 kilometers or 0.77% for municipal roads; and 134.53 kilometers or 73.97% for
barangay roads.

4.1.3.2 Institutional Land Use

Institutional lands in Capas cover approximately 33.73 hectares or 0.09% of the total land
area.This includes lands allocated for government offices, schools, health centers, and
different civic and religious centers.As such, there are 31 public elementary schools covering
21.13 hectares; eight (8) public high schools accounting to 9.61 hectares; and 14 health
centers covering 0.49 hectares.In addition, there are 38 day care centers, four (4) police
stations, three (3) fire stations and one (1) public hospital in Capas.Government offices and
barangay complexes cover approximately three (3) hectares in the entire Municipality.

4.1.3.3 Slaughter House, Sanitary Land Fill, and Cemetery

The slaughterhouse in Barangay Cut-cut I, along the Manila North Road is approximately
1.32 hectares. Within this compound are the Municipal Agriculture Office, Capas Food
Terminal, and Livestock Auction Center.On the other hand, the Kalangitan Sanitary Land Fill
in Sitio Kalangitan, Barangay Cut-cut II spans approximately 100 hectares or 0.27% of the
total land area.It is where some wastes from Metro Manila and Baguio City are being
disposed.It is being managed by a German consortium.

There are seven (7) cemeteries in Capas: two (2) in Barangay O’Donnell, one (1) in Barangay
Cristo Rey, one (1) in Barangay Sto. Rosario, one (1) in Barangay Sta. Lucia, one (1) in
Barangay Sta. Juliana, and one (1) in Barangay Bueno. This accounts for 10.83 hectares or
0.03% of the total land area.
4.1.4 Protected Areas

Open spaces and protected areas are also known as life support systems.They are not built
over, but as much as possible, left in their current situation because they can be best utilized
in that condition.Moreover, these areas can serve as sources of food and clean air and
water.The ensuing discussion details the existing protected areas in Capas.

4.1.4.1 Prime Agricultural Lands

Irrigated rice lands in the Municipality are considered prime agricultural lands.These are
found in every barangay and cover approximately 3,219.50 hectares or 8.55% of the total
land area.

4.1.4.2 Forest Land Use

Forested area in Capas is concentrated in the upper north-western section of the

Municipality, in Barangays Bueno, Sta. Juliana, Maruglu, and portion of Sta. Lucia.This spans
an approximate area of 5,870.95 hectares or 15.60% of the total land area.

4.1.4.3 Historical Site

Historical sites serve as eco-tourism destination in the Municipality.This includes the Capas
National Shrine in Barangay Aranguren and the People’s Park in Barangay Cut-cut I.Other
tourism area includes the Tambo Lake and the gateway to Mt. Pinatubo which also doubles
as a one-of-a-kind wellness spa in Barangay Sta. Juliana.Historical sites account for 19.18
hectares or 0.05% of the total land area.

4.1.4.4 Military Reservation

By virtue of the 1947 Military Base Agreement and Republic Act No. 7227, otherwise known
as The Bases Conversion and Development Act of 1992, a military reservation was
established in Capas covering an area of 19,972 hectares or about 53.06% of the total land
area.Included in the Military Reservation Area are: O'Donnell Transmitter Station with 370
hectares; O'Donnell Excepted Area with a land area of 1,755 hectares; and the Crow Valley
Watershed which covers 17,847 hectares.In addition, the Military Reservation Area covers
portions of Barangays Aranguren, O'Donnell, Maruglu, Sta. Lucia, Bueno, and Sta. Juliana for
the establishment of Armed Forces of the Philippines (AFP) facilities and utilities.

4.1.4.5 River and Other Tributaries

The O’Donnell or Capatian River, with its tributaries and corresponding easements, take up
292.24 hectares or 0.78% of the total land area.

4.1.4.6 Open Space

Open spaces include grasslands and scrublands where large portions are located in
Barangays Aranguren, Sta. Lucia and Sta. Juliana.Altogether, these areas cover
approximately 3,429.45 hectares or 9.11% of the Municipality’s total land area.
 4.1.4.7 Sand and Lahar Areas

Lahar-affected areas in Barangays Lawy and Sta. Juliana, and significant sand deposits along
riverbanks in Barangays Sta. Juliana, O’Donnell, and Sta. Lucia are considered as
environmentally-constrained areas in the Municipality and take up approximately 305.67
hectares or 0.81% of the total land area.

4.1.4.8 Ancestral Domain1

The western section of the Municipality is considered as the ancestral domain of the
Aetas.This includes forest areas in Barangays Sta. Juliana and Maruglu, as well as a
considerable portion of the Military Reservation.According to the National Commission on
Indigenous Peoples (NCIP), ancestral domains in Capas total to about 15,036 hectares.

4.2 Projection of Future Demand

Identifying the amount of land needed for future urban development is determined by the
anticipated demand of the projected population.The baseline data used for calculating the projected
population of Capas for 2020 was based from the NSO Census in 2000 and in 2007.Using geometric
growth, the Municipality’s growth rate is computed to be around 3.6%.At this rate, it would take the
Municipality approximately 19 years to double its current population.The projected population of
the Municipality from 2000 to 2020 is summarized in Table 7.

1
Ancestral Domains were not included in the existing land uses to avoid double counting since the area they occupy overlaps with the
other identified land uses in Capas.
Table 7. Projected Population of Capas, Tarlac, 2000-2020

2007* 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020
CAPAS
122,084 126,419 130,907 135,555 140,367 145,351 150,512 155,855 161,389 167,119 173,052 179,197 185,559 192,147
Aranguren 7,394 7,657 7,928 8,210 8,501 8,803 9,116 9,439 9,775 10,122 10,481 10,853 11,238 11,637
Bueno 1,255 1,300 1,346 1,393 1,443 1,494 1,547 1,602 1,659 1,718 1,779 1,842 1,908 1,975
Cristo Rey 24,623 25,497 26,402 27,340 28,311 29,316 30,357 31,434 32,550 33,706 34,903 36,142 37,425 38,754
Cubcub (Pob.) 3,865 4,002 4,144 4,291 4,444 4,602 4,765 4,934 5,109 5,291 5,479 5,673 5,875 6,083
Cut-cut I 9,397 9,731 10,076 10,434 10,804 11,188 11,585 11,996 12,422 12,863 13,320 13,793 14,283 14,790
Cut-cut II 6,361 6,587 6,821 7,063 7,314 7,573 7,842 8,121 8,409 8,707 9,017 9,337 9,668 10,012
Dolores 5,690 5,892 6,101 6,318 6,542 6,774 7,015 7,264 7,522 7,789 8,065 8,352 8,648 8,955
Estrada (Calingcuan) 3,008 3,115 3,225 3,340 3,458 3,581 3,708 3,840 3,976 4,118 4,264 4,415 4,572 4,734
Lawy 6,160 6,379 6,605 6,840 7,083 7,334 7,594 7,864 8,143 8,432 8,732 9,042 9,363 9,695
Manga 1,517 1,571 1,627 1,684 1,744 1,806 1,870 1,937 2,005 2,077 2,150 2,227 2,306 2,388
Manlapig 2,155 2,232 2,311 2,393 2,478 2,566 2,657 2,751 2,849 2,950 3,055 3,163 3,275 3,392
O'Donnell 13,378 13,853 14,345 14,854 15,382 15,928 16,493 17,079 17,685 18,313 18,963 19,636 20,334 21,056
Santa Lucia 9,360 9,692 10,036 10,393 10,762 11,144 11,540 11,949 12,373 12,813 13,268 13,739 14,227 14,732
Santa Rita 1,683 1,743 1,805 1,869 1,935 2,004 2,075 2,149 2,225 2,304 2,386 2,470 2,558 2,649
Santo Domingo I 2,493 2,582 2,673 2,768 2,866 2,968 3,074 3,183 3,296 3,413 3,534 3,659 3,789 3,924
Santo Domingo II 6,340 6,565 6,798 7,040 7,289 7,548 7,816 8,094 8,381 8,679 8,987 9,306 9,636 9,978
Santo Rosario 6,897 7,142 7,395 7,658 7,930 8,211 8,503 8,805 9,117 9,441 9,776 10,124 10,483 10,855
Talaga 4,958 5,134 5,316 5,505 5,701 5,903 6,112 6,330 6,554 6,787 7,028 7,277 7,536 7,803
Maruglu 1,524 1,578 1,634 1,692 1,752 1,814 1,879 1,946 2,015 2,086 2,160 2,237 2,316 2,399
Santa Juliana 4,026 4,169 4,317 4,470 4,629 4,793 4,963 5,140 5,322 5,511 5,707 5,909 6,119 6,336
Table 8. Estimated Housing Needs and Land Area Requirement, 2007-2020

Land Area Requirement*

Year Population Household size Housing Needs Estimated Housing Stock Housing Backlog
(in ha)
2007 122,084 5.2 23,478 15,937 7,541 1,676.96
2008 126,419 5.2 24,311 16,376 7,935 1,736.50
2009 130,907 5.2 25,174 16,828 8,346 1,798.16
2010 135,555 5.2 26,068 17,292 8,776 1,862.00
2011 140,367 5.2 26,994 17,769 9,224 1,928.11
2012 145,351 5.2 27,952 18,260 9,692 1,996.56
2013 150,512 5.2 28,945 18,764 10,181 2,067.45
2014 155,855 5.2 29,972 19,281 10,691 2,140.85
2015 161,389 5.2 31,036 19,813 11,223 2,216.86
2016 167,119 5.2 32,138 20,360 11,778 2,295.57
2017 173,052 5.2 33,279 20,922 12,358 2,377.07
2018 179,197 5.2 34,461 21,499 12,962 2,461.47
2019 185,559 5.2 35,684 22,092 13,592 2,548.86
2020 192,147 5.2 36,951 22,702 14,250 2,639.36
Note: Baseline data (1990 and 2000 census)
*Considering the current area per housing unit of 714.28 square meters
4.2.1 Projected Required Land per Land Use

The basis for computing the Municipality’s projected land area requirements per land use
were the projected population of the Municipality, the standards set by the Housing and
Land Use Regulatory Board (HLURB), Food and Agriculture Organization (FAO), and
prescribed legal mandates such as BP 220 and PD 957.

4.2.1.1 Residential

The existing population density of the Municipality is 71 persons per hectare, which is
classified as low-density residential area under the HLURB standard.Subsequently, the
average existing area per housing unit is 714.28 square meters, or about 14 housing units
per hectare based on the existing residential area of 1,977.75 hectares.By the end of the
planning period in the year 2020, Capas is expected to have a total population of
192,147.With an assumed average household size of 5.2, the Municipality’s projected total
number of households is 36,951.Considering the current area per housing unit and assuming
further that there should be one (1) household per housing unit, the projected required
residential area for the year 2020 is 2,639.34 hectares.This means that an additional 661.49
hectares is needed by 2020.

4.2.1.2 Commercial

The HLURB Sectoral Standards and the FAO Urban Land Distribution were considered in
projecting the land requirements for commercial areas in the Municipality.As per HLURB
standards, 1.5% to 3% of the total built-up area should be allotted for commercial
uses.Considering that the existing built-up area is 2,089.33 hectares and is estimated to be
2,112.23 hectares in 2020, the existing commercial area in Capas should range from 31.34
hectares to 62.68 hectares.In 2020, the minimum and maximum commercial lands should be
31.68 hectares and 63.37 hectares, respectively.

On the other hand, the FAO Urban Land Distribution Standard prescribes 0.2 hectare to 0.5
hectare for every 1,000 urban population to be assigned for commercial land uses.The
projected urban population of Capas (combined projected population of Barangays Cubcub,
Cut-cut I, Cut-cut II, Sto. Domingo I, Sto. Domingo II, and Sto. Rosario) for the year 2011 is
41,492, and 59,489 for the year 2020.As such, the required minimum and maximum
commercial areas should be 8.30 hectares and 20.75 hectares, respectively, for 2011 and
11.90 hectares and 29.74 hectares, respectively, for 2020.

4.2.1.3 Institutional/Social Infrastructures

a. Schools/Classrooms.To determine the land requirement for public elementary and high
schools, the 2007 and 2008 enrollment data, as well as the standard teacher/classroom
to student ratio set by the Department of Education (DepEd) was used.

In the case of public elementary schools, the enrollment for 2008 was 16,582, with 400
teachers and 402 classrooms.Thus, the teacher/classroom to pupil ratio is 1:41.This is
 below the DepEd standard of 1:35.By 2020, the projected enrolment is 18,903 pupils.To
meet the standards, 140 additional teachers and 138 additional classrooms are
needed.Considering the standard classroom size per pupil of 1.4 square meters, the land
area required for the additional classrooms is 0.68 hectares.

For public high schools, there were 9,090 enrollees, 194 teachers, and 97 classrooms in
2007, yielding a 1:47 teacher to pupil ratio, and 1:94 classroom to student ratio.This is
below the DepEd standard of 1:40.The projected high school enrolment for 2020 is
12,531.Given this, 119 additional teachers and 216 additional classrooms are needed to
meet the standards.Using the standard classroom size per pupil of 1.4 square meters,
1.21 hectares is needed for the required classrooms in 2020.

Table 9. Estimated Elementary School Needs and Land Area Requirement, 2007-2020

ELEMENTARY SCHOOL
Classroom to Land
Projected Classroom Existing
Year Student Ratio Backlog Requirement
Enrollment requirement Classroom**
(DepEd Standard) (in ha)***
2006-2007* 16,222 1:35 463 402 61 0.30128
2007-2008* 16,582 1:35 474 402 72 0.35168
2008-2009 16,764 1:35 479 402 77 0.37716
2009-2010 16,948 1:35 484 402 82 0.40291
2010-2011 17,134 1:35 490 402 88 0.42895
2011-2012 17,322 1:35 495 402 93 0.45528
2012-2013 17,512 1:35 500 402 98 0.48189
2013-2014 17,704 1:35 506 402 104 0.50880
2014-2015 17,899 1:35 511 402 109 0.53600
2015-2016 18,095 1:35 517 402 115 0.56350
2016-2017 18,294 1:35 523 402 121 0.59131
2017-2018 18,494 1:35 528 402 126 0.61941
2018-2019 18,697 1:35 534 402 132 0.64783
2019-2020 18,903 1:35 540 402 138 0.67656
*Baseline data
**Assuming that no additional classrooms have been constructed during the planning period
***Standard Classroom size is 1.4 sqm per student
Table 10. Estimated High School Needs and Land Area Requirement, 2007-2020

HIGH SCHOOL
Classroom to Land
Projected Classroom Existing
Year Student Ratio Backlog Requirement
Enrollment requirement Classroom**
(DepED Standard) (in ha)***
2005-2006* 8,645 1:40 216 97 119 0.66710
2006-2007* 9,090 1:40 227 97 130 0.72940
2007-2008 9,318 1:40 233 97 136 0.76134
2008-2009 9,552 1:40 239 97 142 0.79408
2009-2010 9,792 1:40 245 97 148 0.82764
2010-2011 10,037 1:40 251 97 154 0.86204
2011-2012 10,289 1:40 257 97 160 0.89731
2012-2013 10,548 1:40 264 97 167 0.93346
2013-2014 10,812 1:40 270 97 173 0.97052
2014-2015 11,084 1:40 277 97 180 1.00851
2015-2016 11,362 1:40 284 97 187 1.04746
2016-2017 11,647 1:40 291 97 194 1.08738
2017-2018 11,939 1:40 298 97 201 1.12830
2018-2019 12,239 1:40 306 97 209 1.17025
2019-2020 12,531 1:40 313 97 216 1.21114
*Baseline data
**Assuming that no additional classrooms have been constructed during the planning period
***Standard Classroom size is 1.4 sqm per student

In summary, approximately 1.88 hectares is needed for the required public elementary
and high school classrooms in 2020.

b. Health Facilities.There are 14 existing health centers in the Municipality with an average
area of 350 square meters.Following the ideal situation of one (1) health center for
every barangay, 0.21 hectare is needed for the construction of six (6) additional health
facilities by 2020.

c. Social Welfare Facilities.The existing day care centers, police and fire stations, Barangay
Halls, and Senior Citizen’s Center are enough to meet the standards even after the
planning period.As such, no additional land requirement is needed for these facilities.

4.2.1.4 Industrial Areas

In accordance with the FAO Urban Land Distribution Standards, the total industrial area
should range from 0.4 hectares to 1.5 hectares per 1,000 urban population.With a projected
urban population of 59,489 in the year 2020, Capas should have a minimum and maximum
land area of 23.80 hectares and 89.23 hectares for industrial uses, respectively.

4.2.1.5 Roads

Following the HLURB Sectoral Standards of at least one (1) kilometer length of road per 100
hectares of land area, the minimum road length for Capas should be 376.39 kilometers.
4.2.2 Land Demand and Supply

Land demand and supply analysis was undertaken to assess the availability of land for the
projected population of Capas in 2020.Unless a co-management agreement is drafted, the
19,972 hectares of Military Reservation is closed from any form of development intervention
by Capas.In addition, approximately, 12,529 hectares are also included in the open space
and protection policy area, which ideally should be kept at its existing condition to optimize
the efficiency of such land uses.This means further that about 86% of the municipal land
area is limited from most forms of development projects, unless otherwise
legislated.Because of the identified requirements for additional land uses, it is inevitable to
convert portions of agricultural lands to other uses.In order to minimize this, densification of
existing land uses such as residential, commercial, and institutional land areas, will be
employed to meet the additional land requirements of the projected population.

4.2.3 GIS Mapping and Analysis

GIS mapping and analysis were done to supplement the results of land accounting by
spatially locating specific areas in the Municipality that ought not to be developed due to
various types of constraints.A more modern way of doing sieve analysis, GIS mapping
involved overlaying different thematic maps in order to identify areas which can be utilized
for urban development.The process also helped to delineate the proper barangay
boundaries, verify land uses, and estimate the land area of the identified land uses.

Figure 2. GIS Mapping

The NAMRIA 2007 Topographic Map of Tarlac, as shown inFigure 3, was used to create the
base map for Capas and helped to identify legal constraints and critical areas particularly in
terms of elevation.To augment this, 2011 Google Earth Image of Capas, shown in Figure 4,
was used to verify specific land uses and the extent they occupy.Once identified, other
information including population density and concentration, key geographic features
including rivers and tributaries, and infrastructure areas were added to make the existing
general land use of the Municipality.This served as basis for developing the alternative
spatial strategies and the proposed land distribution considering the vision and the
projected population of the Municipality by the end of the planning period.

Figure 3. NAMRIA Topographic Map of Tarlac, 2007

 Figure 4. Google Earth Image of Capas, 2011

4.3 Alternative Spatial Strategies

This section shows and examines the four (4) possible spatial strategies or urban forms for
the Municipality of Capas.In general, the term ‘urban form’ generally refers to the physical
arrangement and design of the built and unbuilt environment over a particular territory.All
else considered, the following four (4) alternative strategies were identified for Capas: a) Do-
Nothing-Scenario; b) Linear or Ribbon Development; c) Multi-Nodal Development without
Co-Management of the Military Reservation; and d) Multi-Nodal Development with Co-
Management of the Military Reservation.

In generating these four (4) alternative spatial strategies as well as in choosing the most
desirable alternative for the Municipality, the approved regional and provincial spatial
strategies of Central Luzon and Tarlac Province were taken into consideration.Other than
these, the TWG with the help of the consultants also defined and examined the existing
pattern of urban development of Capas through ocular surveys and thematic map overlays
to identify what is the likely pattern or direction of growth of the Municipality in the near
future.More importantly, a question culled out from Capas’ vision statement served as one
of the evaluation criteria that guided the TWG and the team/consultants in designing the
spatial strategies.It reads as follows:

What is the most desired urban form for Capas which will define and
strengthen its unique role and significant contribution to its region, while
maintaining a desirable condition for living and a place for making a living?
Lastly, several stereotype urban forms of Kevin Lynch (i.e. concentrated form, dispersed
form, combination of both, etc.) aided the team/consultants in planning and devising
different alternative growth schemes and strategies for Capas.Of the four (4) alternatives,
the selected strategy will serve as the framework for the Municipality in detailing the
allocation of economic, social, environmental, physical activities, and infrastructure for the
next 10 years.
4.3.1 Do Nothing Scenario
The Do-Nothing Scenario is a result of following the previous and existing trend of
development with limited or totally without intervention on the part of the local
government.This scenario assumes that developments in the Poblacion areas as well as in
environmentally critical areas will expand naturally with no attempts being made to regulate
the growth and/or impose restrictions.Figure 5shows a representation of this urban form.

4.3.1.1 General Description

The urban barangays namely Sto. Domingo I, Sto. Domingo II, Cut-cut I, Cut-cut II, Cubcub,
and Sto. Rosario will continue to house most of the residential, commercial, institutional,
and agricultural activities.Specifically, large areas occupied by private subdivisions in
Barangays Cut-cut I, Cut-cut II, Estrada, Sto. Rosario, Sta. Lucia, Sto. Domingo, Aranguren,
and Cubcub will possibly be improved into medium/high density residential areas.On the
other hand, other resettlement housing projects like those in O’Donnell and Kalangitan
Resettlement areas in Barangays Cristo Rey and Cut-cut IImay experience large-scale
expansion.

Rural settlements in sitios are expected to absorb the overflow population of the
Poblaciones in the urban barangays and will eventually create new urban centers.Also,
commercial and industrial activities from the main urban center will be devolved to sitios in
Western barangays however, waste will eventually become a problem since most of the
barangays located there are not serviced by the barangay mini dump trucks.

More settlements and industries are expected as well to cluster along riverbanks of Bulsa
Moriones, Sta. Lucia, and Cut-cut I and Cut-cut IIwhich will result to heavy siltation and
insufficient drainage systems.Agricultural lands within 60 meters on both sides of the Manila
North Road and other major roads of the Municipality will most likely be converted into
built-up areas to give way for the growing population.

Following the existing trend, Pascuala in Barangay Sto. Rosario will still be the site of most
poultries and piggeries which may then affect the air quality circulating within the
neighborhood of Villa de Sto. Rosario, Rosaryville, Small Tokyo, and Sitio Salangui.

If the local government and national entities do not interfere, the western and mountainous
barangays of Bueno, O’Donnell, Maruglu and Sta. Juliana will be massively developed into
private golf courses, ranches, retirement places, and other forms of recreational
estates.Hence, continuous encroachment and more pressure may be put on protected and
environmentally critical areas.
 Figure 5. Do Nothing Scenario

4.3.1.2 What it takes to realize the urban form

In consequence of the fact that there will be a minimal involvement from the government
under this scenario, investment required to realize this urban form will come from the
private sector.Investors and developers will likely focus on establishing businesses and
infrastructures in urban centers.Since only those infrastructure projects that are now being
planned and implemented include major investments, it is expected that there will be an
increase in traffic congestion in Barangay Cubcub where the public market is located.The
LGU has plans of constructing a public terminal although they still have to identify a site.

Massive construction and development will be sited on areas near the existing built-up and
major thoroughfares.Hence, shift from agricultural use to residential and commercial uses
are expected, which will result to a tremendous loss of farmlands since more than 10,000
hectares of the Municipality’s land are rice fields and cultivated lands.Land use shifts
specifically those parallel to waterways may increase sediment supply which may impair
water quality on river systems.Also, in giving way for such developments, alteration of river
channels is possible which may result to more flood hazard.At present, areas prone to
natural and human-induced disasters are not very well defined by the LGU.This is manifested
by the continuous presence of dwelling units in high risk areas.Without a clear disaster risk
reduction and management plan, residents within danger zones would not be capable of
responding to emergencies.

The Do Nothing Scenario assumes that in urban barangays, growth rates during the years
2000 to 2010 would continue until the year 2020.But for some portions such as in Barangays
Aranguren, O’Donnell, Maruglu, Sta. Lucia, Bueno and Sta. Juliana where AFP facilities and
utilities are presently located, population is expected to grow because of continuous
movement of military men with their families.

Aside from the minimal intervention of the LGU, public participation under the Do Nothing
Scenario is also passive.Marginalized sectors in Capas which consist of the women, children,
and the IPs remain powerless and uninvolved in policy-making processes.As a result, major
educational and medical facilities will continue to be inaccessible to families living in distant
barangays.This is evident in Aeta settlements located in Sitio Flora in Barangay Maruglu
where people can only access health services in Barangay O’Donnell which is about four (4)
hours away by foot from Sitio Flora.Although recently, a clinic was constructed in Sitio
Tarucan courtesy of the Good People International, a Korean organization.
4.3.1.3 Implications when the urban form is realized

Once this urban form is realized, more incompatible land uses will develop alongside
without any design and density restrictions.The urban form will also heighten the level of
social isolation of the IPs living in Barangays Sta. Juliana, Maruglu, and Bueno since major
development and community facilities are heavily concentrated in the urban barangays of
Sto. Domingo I, Sto. Domingo II, Cubcub, Cut-cut I, Cut-cut II, and Sto. Rosario.The
anticipated population growth and denser development may also worsen the condition of
the existing traffic circulation and air pollution on the said areas.

In terms of the effects to the natural environment, this particular urban form will drastically
deplete local resources.Large tracts of existing farmlands, scrublands, and other green
spaces near major roads may be transformed into developable lands without restriction to
accommodate future growth.In the absence of government policies and regulations
regarding the conservation of the natural environment, forest cover will shrink due to
massive resource extraction by private corporations as well as by the locals.Hence, flooding
and landslides will continue in Barangays Sta. Lucia, Bueno, O’Donnell, Sto. Domingo, and
Sta. Juliana.Aside from this, without provision for expansion, the sanitary landfill located at
Sitio Kalangitan in Barangay Cut-cut II will no longer be able to accommodate volume of
wastes from serviced areas.

In general, this urban form will be dangerous since there will be no local legislations to
address new problems and challenges on disaster risk reduction and management, access to
services, preservation of the environment, and investments’ inflow.
4.3.2 Linear Development
As a result of the linear urban form, also known as ribbon-like development, settlements and
other structures will be concentrated along both sides of the major corridors such as
highways, railways, and waterways (refer to Figure 6).

4.3.2.1 General Description

This development pattern will mostly apply along the Manila North Road traversing the
Municipality of Capas.The Manila North Road also serves as the main ingress and egress
route of the LGU to the Municipalities of Concepcion and Bamban, and the City of
Tarlac.Following this form, more built-up areas can be found in eastern barangays namely
Cut-cut I, Cut-cut II, Cubcub, Sto. Rosario, Sto. Domingo I, Sto. Domingo II, Manlapig,
Dolores, Manga, Talaga, and Estrada.Most of the allowable land uses in these areas will be
restricted to residential, commercial, institutional, and mixed-uses.

Another example of north-south roads which may possibly expand 50 meters both sides are
the Manga-Sta. Rita municipal road going to Tarlac City, and the Cristo Rey-Aranguren road
which exits the Municipality of Capas.Both sides of the provincial road which is the only east-
west road in Capas that serves as the major linkage of the urban barangays to the outskirt
barangays will also be filled out by economic activities and other developments.Riverbank
development is also a big possibility in this type of urban form.
Figure 6. Linear Development
4.3.2.2 What it takes to realize the urban form

High level of investments in infrastructure specifically located on both sides of the Manila
North Road is necessary to realize the linear urban form.One of the major investments is the
conversion of the remaining large tracts of agricultural lands along the Manila North Road to
give way for non-agricultural uses.The barangays that will be affected by this particular
investment are Estrada, Talaga, Dolores, Sto. Domingo II, Sto. Domingo I, Cubcub, Cut-cut I
and Cut-cut II.Another major investment is the construction of an inter-modal terminal right
beside the Manila North Road.This will improve the transfer and movement of goods and
people not only within the Province but also within the region.Finally, to fully connect the
Municipality to the eastern municipalities of the Province of Zambales, the construction of
proposed Capas-Botolan road that would pass through the woodlands of Sta. Juliana will
definitely increase Capas’ access.These investments may be an initiative of the local
government or may come from private entities.

Examples of the medium level of public investments are the replacement of old drainage
systems; maintenance and monitoring of new road drainage systems; expansion and
pavement of existing roads; construction of new roads to improve internal circulation;
construction of adequate parking spaces; and, installation of road lightings, traffic, and
warning signage along the provincial and municipal roads.Provision of power,
communication, water, sanitary, education, and health facilities along the roads and streets
in rural barangays is also necessary to realize this type of urban form.

Sufficient public investments on transport networks will have a positive effect on economic
growth and will surely entice private investments.New ventures will be in the form of putting
up commercial establishments, development of several gated residential subdivisions, and
construction of extensive recreational estates along the transport corridors.

In ensuring the implementation of the said projects and programs, there is a need to update
the Zoning Ordinance to encourage linear development.Aside from the updating, there
should be proper and strict enforcement of the Zoning Ordinance.Some tax incentives may
also be provided by the local government to businesses that will be locating along the major
road network.Unlike in the Do Nothing Scenario, the public should be receptive to realize
this urban form.Residents of Capas should be engaged in different capability-building
trainings and seminars to enhance their awareness and skills to eventually be equipped for
the involvement in the local government’s projects and programs.
4.3.2.3 Implications when the urban form is realized

When the linear development/urban form is realized, most of the public and private
investments as well as policy decisions will concentrate on the development of areas along
major road and water corridors.With projects like road construction, expansion, and
pavement, every activity in the Municipality will be dependent on automobile use.Hence an
increase of traffic volume, air and noise pollution in areas near the major routes may likely
to occur.On the other hand, growth of structures on both sides of the O’Donnell River and its
tributaries would possibly generate more wastes and increase the level of water pollution.In
a positive view, air and water quality will improve in and around the urban barangays since
developments are devolved.

Compared with the Do Nothing Scenario, the conversion of lands in this particular urban
form is minimal because only farmlands near the major corridors are affected. One of the
negative end results of this conversion is the displacement of farmers and shift of their
livelihood.Inequity is still a major issue of the IP communities because social infrastructures
like schools and health facilities are mainly situated along major road network thus they will
still remain inaccessible to residents and IPs living in interior sitios.Job opportunities are
more sparsely distributed in linear urban form than the previous scenario; however
opportunities are limited to those barangays traversed by major routes only.

In terms of environmental preservation and risk exposure, this type of urban form will locate
people and structures away from environmentally protected areas and hazard prone areas
hence, risk exposure is lessen.

With a linear spatial form, the Municipality could avoid an unorganized pattern of
development as people, services, and structures will only situate along the roads.This type of
town layout may attract more potential investors and tourists which will be an advantage to
the LGU.This pattern however may not aid the Municipality in achieving their desired role to
be the tourism and agro-industrial capital of Tarlac since bulk of the investments will be
earmarked for road infrastructures.
4.3.3 Multi-Nodal without Co-Management

4.3.3.1 General Description

Unlike the two (2) urban forms, the Multi-Nodal without Co-Management strategy is
deemed to be a more flexible spatial strategy for Capas as it would focus on various
development nodes.Several considerations are evaluated to identify the appropriate nodes
in the Municipality --- existing economic activities, existing available services, geographic
location, population trend for the past 10 years, existing access, and the nodes’
development potential.

This type of strategy also characterizes an urban form where the LGU does not have powers
and responsibilities over areas under the responsibility of the national government (i.e. the
military reservation areas on the western portion of Capas).

The development nodes are categorized into major/primary nodes and minor/secondary
nodes.The identified major nodes are: 1) the Agro-Industrial Node in Barangay Sto. Rosario
and 2) the Commercial/Institutional Node in Barangays Cubcub, Sto. Rosario and Sto.
Domingo II.Whereas, the minor node consists of the Agro-Industrial Node in Barangay
Estrada.

The commercial/institutional major node located at the Poblacion area would serve as the
“lifeline” of the other nodes.Situated within the Poblacion are the municipal offices, the
public market, transport terminals, and other facilities which are all essential in providing
the administrative, institutional, and financial services to other nodes.

The identified major and minor agro-industrial nodes in Sto. Rosario and Estrada would be
the main economic center where most of the agro-industrial activities take place.
Figure 7. Multi-Nodal without Co-management
 4.3.3.2 What it takes to realize the urban form

Massive investment from the government and from the private sector is needed to realize
this type of urban form.Like for instance, there would be supporting infrastructures such as
an integrated road network to provide easy access for people and goods in going to and
from the nodes.This would consist of the rehabilitation of existing highways, construction of
farm to market roads, expansion of streets in the Poblacion area, among others.Similarly,
the LGU would also acquire modern and efficient facilities to reinforce and promote the
agro-industrial activities.

To ensure that roads are linked to the major and minor nodes, there would be a massive
expropriation of government’s lands.Also, conversion and reclassification of agricultural
lands cannot be prevented to give way to other more profitable activities.This would lead to
the relocation of affected settlers to areas far from the development nodes.

In adopting this urban form, the LGU has to be actively involved in monitoring and
evaluating the activities of the nodes.Most of the policies and projects should lean towards
the expansion of the major and minor nodes.Examples are the provision of tax incentives to
new agro-industrial businesses, capability enhancement for the residents to prepare them
for possible agro-industrial employment, and establishment of new educational institutions
which specialize in agro-industry.

4.3.3.3 Implications when the urban form is realized

Under this spatial strategy, the LGU has no control over the areas inside the military reserve
thus; financial support and facilities will only concentrate on the areas covered by the
development nodes.Only the eastern and central barangays will benefit and other barangays
will be left out.

The main advantage of this form is that new development and new group of migrants would
not definitely invade the protected, preservation, and hazardous areas that are within the
domains of the military.With this, possible risk would also be prevented.

Without co-management by the military and the LGU, the development will be unevenly
distributed within the Municipality.There will be a wider economic and social gap between
the IPs and the non-IPs in terms of the access to basic social services, community facilities,
and infrastructure.Finally, if the military and the LGU do not agree to share the
responsibilities of managing the land and natural resources within the military reservation,
Capas’ role as the tourism center in Tarlac would not be achieved.

4.3.4 Multi-Nodal with Co-Management

4.3.4.1 General Description

The Multi-Nodal Development with Co-Management is almost the same with the Multi-
Nodal Development without Co-Management except for the additional major tourism node
in Sta. Juliana and minor tourism nodes in Barangays Bueno and Maruglu.In this spatial
strategy, the LGU is empowered to share with the national government the responsibility
and management of resources inside the military reserve.Hence, tourism nodes with
potential for development in western areas of Capas are identified.

This urban form consists of three (3) major nodes and three (3) minor nodes.The major
nodes are the Tourism Node in Sta. Juliana, the Commercial/Institutional Node in the
Poblacion area and the Agro-industrial Node in Sto. Rosario.The minor nodes are two (2)
tourism nodes in Bueno and Maruglu, and the agro-industrial node in Estrada.

Major or primary nodes contain most of the activities and services that would sustain
tourism and agro-industrial development; while, minor or secondary nodes include the
attractions, accommodation, and other recreation facilities to back up the major nodes.

Similar to the previous spatial strategy, the Commercial/Institutional Node would play as the
major support node for the other major and minor nodes.
Figure 8. Multi-Nodal with Co-Management
4.3.4.2 What it takes to realize the urban form

To have an integrated pattern of development and to have a mutual supporting system

between the nodes, certain support infrastructures should be improved or be put in
place.Examples are establishments of new utility lines and improvement of access by
providing new roads and bridges.This would entail heavy capital and non-capital investments
both from the LGU and the private sector.

Furthermore, to realize this urban form, certain agreements should be made with the
military to have a harmonious co-management of the military reservation.Certain land uses
and use of some existing built-up areas would also be converted to fit the desired urban
form although these conversions would be limited to specific places to cause minimal
disturbance to the overall landscape of the Municipality.

To ensure that the desired urban form is implemented properly, the LGU, the private sector,
and the local citizenry should play active roles.The LGU should implement strict enforcement
of laws and regulations.It should also establish an investment-friendly environment for the
private sector.The private sector and the local citizenry’s role would be the compliance with
the laws and regulations set by the LGU.They should also take advantage of the incentives
given by the LGU to establish new businesses and to improve one’s capabilities to suit the
needs and demands of the new developments.

4.3.4.3 Implications when the urban form is realized

As with any development, pollution levels are expected to increase, especially with the
increase of people and traffic, and the intensity of commercial and industrial
development.However, with proper mitigation and regulation by the government and citizen
groups, the negative effects can be mitigated.Moreover, the creation of multiple growth
centers negates the need to travel much, since almost all of the services are already
available within each growth center.This thus reduces pollution levels brought about by
vehicular travel.Many resources from the Municipality would be utilized, but these would be
used efficiently since it is done according to the specific needs of the particular growth
center.

With the creation of the different nodes, the benefits of the development would be
distributed more equitably to the entire population, which include, among others, the
creation of many job and business opportunities.This can then translate into potentially
huge revenues for the LGU especially more commercial and industrial establishments will be
located within military reservation.

Furthermore, the creation of the different nodes would allow people to also have better
access to social services.Local circulation is improved and traffic problems are minimized
with the creation of new roads and the improvement of the capacity of the existing roads.
 With a more coherent and integrated pattern of development, the image of the Municipality
would be strongly enhanced.This enhanced image, coupled with the improved
infrastructure, would make it very attractive to investors and tourists.This would fulfill the
envisioned role of Capas as the Tourism Capital and Agro-industrial Center of Tarlac.

The characteristics of each spatial strategy were consolidated in a comparative matrix to aid
in the evaluation and selection of which is the Municipality’s best option to achieve its
vision.Table 11summarizes the comparative performance of the above-discussed alternative
spatial strategies for Capas.
Table 11. Comparative Performance of Alternative Spatial Strategies

Characteristics Strategy 1 Strategy 2 Strategy 3 Strategy 4

What it takes to realize the urban form?

a) amount of public Alternative roads

Low High Moderate Moderate
investment in
transport New bridges to construct
infrastructure Low Moderate High High

Water and sewerage Low High High High

b) provision of urban Communication Low Moderate High High
utilities and services Power Low Moderate Moderate High
Solid waste management Low High High High
c) infrastructure for disaster mitigation/ prevention Low High High High
d) amount of agricultural (crop-fishpond) lands to be
Low High Moderate Moderate
reclassified/ converted
e) the degree of public control of land and water use Low Moderate Moderate High
e) incentives to private investments in preferred
Low Low High High
areas
Implications when the urban form is realized

Open space and wildlife

High High High Moderate
habitats preserved
a) The natural High quality of surface
environment Low Low Moderate High
waters preserved
Clean air maintained Low Low Moderate High
b) theimage of the municipality (landmarks, nodes,
districts, edges, networks) and its general Low Low Moderate High
attractiveness
c) movement of people and goods Low High High High
d) access of people to services Moderate Low High High
e) relative safety of inhabitants from natural and
Low Low Moderate High
man-made disasters
f) increase in household income Low Moderate Moderate High
g)increase in government revenues Low Moderate Moderate High
h) the LGU’s contribution to higher-level goals and
Low Moderate Moderate High
strategies
Note:
STRATEGY 1 – Do Nothing Scenario STRATEGY 3 – Multi-nodal development without co-management
STRATEGY 2 – Linear Development STRATEGY 4 – Multi-nodal development with co-management

4.4 Selecting the Preferred Spatial Strategy

A second public consultation/multi-sectoral workshop was conducted to identify the

preferred spatial strategy which would be undertaken by the Municipality to achieve its
vision by the end of the specified planning period in 2020.Considering Capas’ vision, the
sectoral objectives and their corresponding success indicators were presented to aid in the
evaluation of the different spatial strategies.A more detailed discussion of the vision
elements, its descriptors, and success indicators is covered in Chapter 2 and tabulated in
Annex A.

The Goal Achievement Matrix (GAM) was used in order to evaluate and select the preferred
spatial strategy for the Municipality.Compared to different assessment methodologies, the
GAM capitalizes on its participatory nature as it allows various sectors of the community to
convey their preference on certain objectives according to its relative importance on the
sector they represent.Furthermore, GAM allows the evaluator to rate each of the four (4)
alternative spatial strategies based on their perceived contribution to the realization of the
vision set for the Municipality.

Through the GAM, it was identified that Alternative Strategy 4 or the Multi-Nodal
Development with Co-Management of the Military Reservation, was the preferred spatial
strategy for Capas.The result was generated from the combined rating of the eight (8)
sectoral groups formed during the second public consultation held.This included
representatives from the Provincial Planning and Development Office (PPDO), Armed Forces
of the Philippines (AFP) for the Military Reservation, Department of Education (DepEd), Local
Government of Capas, National Commission for Indigenous People (NCIP), Philippine
National Police (PNP), Sangguniang Bayan (SB), and representatives from the different social
utilities sector.The result of the GAM is summarized inTable 12.
Table 12. Goal Achievement Matrix (GAM) Workshop Summary

Alternative Spatial Strategies

Multi-Nodal Multi-Nodal
Sector Linear
Do Nothing without Co- with Co-
Development
Management Management
1. PPDO 1.00 1.00 1.70 3.00
2. Military Reservation -3.00 1.00 2.00 3.00
3. Education -0.50 0.47 0.90 3.00
4. Capas LGU 0.00 1.17 2.33 2.50
5. NCIP 0.00 1.00 2.17 2.83
6. PNP 0.00 1.28 1.64 2.04
7. Sangguniang Bayan -0.23 1.07 3.00 2.00
8. Social Utilities -3.00 1.00 2.00 3.00
TOTAL -5.73 7.98 15.74 21.38
RANK 4TH 3RD 2ND 1ST