BLISS
BLISS
BLISS
Citations:
Please note: citations are provided as a general guideline. Users should consult their preferred
citation format's style manual for proper citation formatting.
-- Your use of this HeinOnline PDF indicates your acceptance of HeinOnline's Terms and
Conditions of the license agreement available at
https://heinonline.org/HOL/License
-- The search text of this PDF is generated from uncorrected OCR text.
-- To obtain permission to use this article beyond the scope of your license, please use:
Copyright Information
PhilippineJournal of Public Administration, Vol. XLV, No. 3 (July 2001)
Introduction
The Bagong Lipunan Sites and Services Program, more popularly known
as BLISS, is a government program which attempted to address not only the
material but the abstract goals of social development as well. Launched in 1979
as a nationwide program to respond to the desperate housing needs of the
country, it sought to provide more than just a roof over one's head. It was
envisioned to develop productive, self-reliant communities in an environment
that would effect a "full physical, intellectual and spiritual development" of
Filipinos (MHS n.d.b). To achieve these objectives the program received full
administrative and financial support from no less than fifteen government
agencies led by the Ministry of Human Settlements (MHS).
Decades after its launching, and after millions of pesos spent on it and the
publicity it generated, one wonders whether the vision of the BLISS program
has been realized. The Program is an interesting subject of study in social
This study describes the BLISS concept within the context of the
government's shelter program. It starts with a description of the main features
of the BLISS concept and subsequently focuses on one major component-the
Urban BLISS level. The experience in one Urban BLISS site, the U.P. BLISS
San Vicente project, is presented as a case study to provide a clearer
understanding of the concepts, issues, and strategies applied and the dynamics
involved. This project site was the first Urban BLISS undertaking and was
projected as the showcase for all other Urban BLISS projects.
This study addresses these intriguing questions and draws lessons from
the BLISS program. From the point of view of the government as well as the
beneficiaries, was the BLISS program a blissful or a blistering experience?
2001
188 PHILIPPINE JOURNAL OF PUBLIC ADMINISTRATION
d). The Multi-Year Human Settlements Plan was for 23 years spanning the
period 1978 to 2000. It was anchored on the "humanist ideology which places
man at the center of all development efforts, as the primary resource and the
primary beneficiary" (MHS 1984: 30). Part of this broad plan was a National
Shelter Program which aimed to produce a total of one million homes in a
period of ten years through increased government involvement and active
private sector participation. This housing program extended beyond physical
structures. It regarded housing as "the venue for human development, social
renewal and mass-based economic development" (MHS 1984: 24).
The Shelter Development Group (SDG) within the MHS served as the
central coordinating body for the government agencies, private companies, and
civic groups involved in the housing program. In addition to the HSRC, NHC,
HSDC, NHMFC, HDMF, and HFC, the other government agencies included the
Ministry of Justice, Ministry of Public Works and Highways, Ministry of
Natural Resources, National Electrification Administration, Local Water
Utilities Administration, Manila Electric Company, 8 and the Metropolitan
Waterworks and Sewerage System (MHS 1982b: 52).
July
BLISS HOUSING PROGRAM
of the values of cooperation and self-reliance (MHS 1982a: 55). BLISS was not
only intended to ease the serious shortage of housing for low- and middle-
income families. It also aimed to provide amenities that would catalyze the
delivery of the "eleven basic needs of man." Presidential Decree (P.D.) No. 1396
identifies these eleven basic needs as: water, power, food, clothing, shelter,
medical services, education (later expanded to include culture and technology),
sports and recreation, economic base (livelihood), mobility, and ecological
balance.
The BLISS program was planned to run for five years from 1979 to 1983.
Two main kinds of BLISS communities were envisioned: Rural BLISS and
Urban BLISS.
Under Level II, the material resources of each province are identified together
with their potential for the development of an agro-industrial community.
Composed of 100-500 families, the community was planned to live productively on
50-200 hectares of a developed estate. This is usually situated near an agricultural
or vocational school which could serve as training center for livelihood projects.
The BLISS projects in Tarlac and Bamban, Tarlac are Level II sites (Benitez 1980:
54; Maramag 1979: 53; MHS 1982a: 57; Focus 1983: 25).
The approach applied in the rural areas was simulated in the Urban BLISS
sites. This involved the construction of clusters of medium-sized walk-up
apartments in each of the four cities and 13 municipalities then comprising
2001
190 PHILIPPINE JOURNAL OF PUBLIC ADMINISTRATION
Metro Manila. Contrary to common perception, Urban BLISS units are not fully-
subsidized, low-priced government housing projects. Emphasis is on
affordability. The affordability level set by the MHS for each unit was a
maximum of 30 percent of gross family earnings. Families were supposed to be
able to augment their income through livelihood projects in the site itself.
Similar to the Rural BLISS sites, the livelihood component was an essential facet
in Urban BLISS areas (Benitez 1980: 54; Maramag 1979: 53; MHS 1982a: 57).
Policies and guidelines governing the BLISS program emanated from the
Cabinet Coordinating Committee for BLISS (CCC) which considered project
proposals. Once a project was approved, the CCC endorsed the same to the
HSDC for funding and appropriate action. Chaired by the Minister of Human
Settlements, the CCC was composed of the heads of the National Economic and
Development Authority (NEDA) and the following Ministries: Agriculture;
Budget; Education and Culture; Energy; Health; Industry; Labor; Local
Government and Community Development; National Defense; Trade; and Public
Works, Transportation, and Communications. The CCC was assisted by a
National Secretariat and the Deputy Ministry of Human Settlements served as
Secretary General. The MHS was likewise responsible for reporting,
monitoring, and fund disbursements of the BLISS program (MHS 1982a: 59).
July
BLISS HOUSING PROGRAM 191
Phase 2 normally lasted from nine to twelve months. During this phase,
feasibility studies for community projects were drawn up. Residents were
trained in managing the community's facilities and services. The Rural BLISS
seed capital of R1 million for each site was provided by the national
government, and local governments had to match this with counterpart funds.
Construction then began. Qualified beneficiaries were awarded their units and
started moving in as soon as the structures were completed.
The main features of the BLISS program (MHS 1982a: 56-57) are:
2001
192 PHILIPPINE JOURNAL OF PUBLIC ADMINISTRATION
July
BLISS HOUSING PROGRAM 193
2001
194 PHILIPPINE JOURNAL OF PUBLIC ADMINISTRATION
In addition to the loan agreement for the housing units, BLCAs could also
enter into other loan agreements for livelihood projects. Again, the BLCA
officers signed for and in behalf of the beneficiaries who were held jointly
accountable for this liability.
Urban BLISS
Main Features
The Urban BLISS Program (UBP) was intended not only to ease the
housing shortage in Metro Manila but "to create model urban communities
which are self-reliant, self-managing, and free from want of man's eleven basic
needs" (MHS n.d.d: 1). It was envisioned to provide a complete package of
services to the BLISS community such as water, electricity, health, education,
recreation, and livelihood. The benefits were expected to spill over to
neighboring communities and to the nation as a whole.
July
BLISS HOUSING PROGRAM 195
other approach was the creation of new communities, e.g., the U.P. BLISS I
(San Vicente) in Quezon City.
Unlike Rural BLISS which was provided seed money of P1 million per site
by the national government, with counterpart funds from local governments, a
different financing scheme was adopted for Urban BLISS. First, the MHS,
through the NHMFC, identified a suitable site for housing and assured its
availability for the project. When the site was secured, the MHS negotiated a
materials loan from DBP using the site as collateral. As construction went on,
prospective beneficiaries were simultaneously being screened and chosen based
on their demonstrated ability to pay, among other criteria. Qualified
beneficiaries were made to undergo orientation seminars on BLCA membership.
As soon as the site was developed, the NHMFC, backed by the HFC, would
"take out" the loan from DBP in the form of a secondary mortgage (see Endnote
6). This dissolved the obligation of the MHS to the DBP. The BLCA, in turn,
assumed the loan and amortized it out of the monthly occupancy dues of its
members.
While the Rural BLISS structures are low-level, single or duplex units, the
UBPs shelter component are medium-sized, i.e., four-storey buildings usually
consisting of 16 to 32 units each.
2001
196 PHILIPPINE JOURNAL OF PUBLIC ADMINISTRATION
* Family size must not be less than three and not more than six, and
total household size must not exceed eight;
* The gross family income per month must not be less than P500 or
more than P5,000;
• The applicant or any member of his family must not have a pending
application in any other housing project;
July
BLISS HOUSING PROGRAM 197
The land is owned by the U.P. which granted usufruct rights to the MHS to
45,957 square meters on 23 September 1980. The usufruct agreement between
the U.P. and MHS is for 50 years with a token cost of one peso a year. In
return, the MHS agreed to allocate 30 percent of the dwelling units (or 150
units) to the faculty and staff of the University, provided the beneficiaries met
MHS requirements and screening.
Part of the land where U.P. BLISS now stands used to be occupied by
squatters. To clear the area for development, the squatters had to be relocated.
A survey and screening process was undertaken to determine who among the
squatters could afford to pay for housing units on a socialized scheme. Those
who qualified were counted among the U.P. BLISS awardees; the rest were
relocated elsewhere.
Except for the qualified squatter families and the U.P. faculty and
employees who qualified for the U.P. quota, awardees for most of the units at
2001
198 PHILIPPINE JOURNAL OF PUBLIC ADMINISTRATION
the U.P. BLISS San Vicente site were chosen from among the thousands who
filed applications. Awardees received a certificate of occupancy for a designated
unit. Assignment of units was done by drawing of lots. Majority of the units
were awarded in this manner. Many other units, however, mostly found in
choice buildings and floors, were excluded from the lot. These were reserved for
special awards to government officials or their relatives and protdg6s who were
practically exempted from procedural and even documentary requirements as
well as deadlines.
Level 2 units were priced at initial rate of F275 monthly. These were
mostly on the third floor. Level 3 units were mostly on the first and second
floors although a few were located on upper floors. Improvements such as
divisions and cabinets were part of Level 3 units. These units were more
expensive and awardees were chosen mainly on the basis of their ability to pay.
The initial monthly rate was P550. This socialized scheme was a societal
redistribution process: those with more resources subsidize those with less
means. Leases for Levels 2 and 3 ran for 25 years, renewable for another 25
years free of charge. The escalation rate of ten percent annually is until the
14th year after which the occupancy rate levels off. The payment scheme for
the various levels in Phase 1 are summarized below:
July
BLISS HOUSING PROGRAM 199
Phase 1 beneficiaries started moving in during the latter part of 1979. By the
following year, all units were occupied. An initial payment consisting of one month
deposit and one month advance rental was imposed on the beneficiaries.
All four 16-unit buildings were classified as Level 3 units regardless of floor.
These were slightly bigger than the rest and were thus more expensive. Level 1
units were those on the third and fourth floors of 32-unit buildings, while those on
the first and second floors were classified as Level 2. The monthly occupancy rates
for Phase 2 are as follows:
2001
200 PHILIPPINE JOURNAL OF PUBLIC ADMINISTRATION
The rates reflect an escalation of ten percent annually based on the first
year occupancy rate. The paying period is for 25 years but the lease is
renewable for another 25 years without charge.
Phase 2 beneficiaries started to fix up their units and move in 1981. They
were levied an entry fee of -P3,900 for Level I, P3,930 for Level 2, and P4,000 for
Level 3. In addition to this, they had to pay for their respective electric and
water meters.
This Contract of Lease between the MHS as lessor and the UBLCA as
lessee, was later to bear the date of 9 September 1981, a day after the UBLCA
received its legal recognition as a community association from the HFC. The
Contract provided for the lease of the land, including the improvements thereon
valued at F14,338,165.81, by the MHS to the UBLCA. The same Contract
authorized the MHS to secure a loan and apply the proceeds in full payment of
this amount.
Also on the same date, the UBLCA (again represented by its first
President) as "Borrower" entered into a Loan and Mortgage Agreement with
DBP as "Originating Bank." In this agreement, the DBP agreed to extend an
"MHS BLISS Housing Loan" in the amount of P14,338,165.81 to the UBLCA.
The interest on the loan was nine percent annually. The agreement included a
provision which indicated the intention of subsequently assigning/transferring
all of the DBP's rights and title to as well as its interest in the loan and its
July
BLISS HOUSING PROGRAM 201
The BLCA by-laws prepared by the MHS provided that the Building
Administrators and Building Representatives of the different buildings in an
Urban BLISS Project (UBP) site were the officers and members of the Board of
BLCA. At the San Vicente site, residents of 16-unit buildings elect a Building
Administrator among themselves while the 32-unit buildings elect a Building
Administrator and a Building Representative. BLCA officers are elected by and
from among the members of the Board. All these leaders have a term of one
year.
The registration of BLCAs with the HFC normally takes place many
months after the beneficiaries move in. It also takes time for beneficiaries to
get to know one another and thus be able to identify leaders of their choice,
2001
202 PHILIPPINE JOURNAL OF PUBLIC ADMINISTRATION
those who could effectively represent them and safeguard their interests. The
BLISS strategy of making beneficiaries collectively accountable for the financial
requirements of their housing needs, however, did not allow the luxury of time.
Financing for the cost of site development and building construction had to be
secured and loan agreements had to be entered into as soon as possible. There
was then an urgency in designating BLCA officers who would be signatories to
such agreements, even before the BLCA was officially registered and despite
the absence of consultation and consensus of the affected parties. This is what
happened at the San Vicente site.
To facilitate the signing of the loan agreements, the MHS simply assumed
the responsibility of designating Building Administrators and Representatives
and other officers for the Ad Interim BLCA of newly-established UBPs. Basis of
selection was purely subjective or by stroke of fate. This was how the first
officers of the Phase 1 UBLCA were chosen.
July
BLISS HOUSING PROGRAM 203
asked the MHS and were granted a moratorium on payments which lasted for
almost a year. It was later discovered that the fund mess was not confined to
the U.P. BLISS San Vicente site but was also happening in other sites. There
were many telltale signs that the BLISS program was a milking cow for
unscrupulous public officials and employees. A number of MHS officials also
fled the country at this time fueling more serious doubts not only about the
integrity of those responsible for the BLISS program but whether the program
itself was going to survive and prosper.
Instead of working out a way to fulfill their joint obligation to the DBP,
there was a strong campaign among the beneficiaries to withhold further
payments. This was a situation where the recovery of the investments of one
government institution, the DBP, was held in jeopardy because of the lapses of
another government institution, the MHS and its subsidiaries.
Despite these reforms, collection of dues was never the same again. The
MHS instituted various schemes to make beneficiaries pay. But the cloud of
doubt was difficult to erase. Scarred by their unfortunate experience,
beneficiaries became suspicious of other schemes and were reluctant to try
2001
204 PHILIPPINE JOURNAL OF PUBLIC ADMINISTRATION
them. The beneficiaries lost confidence not only in officials but worse, in the
institutions themselves.
It was during this time that the BLCAs of both phases began to be more
active and assertive. The existence of two BLCAs posed serious problems and
difficulties in the community. It was necessary to integrate the Phase 1 and
Phase 2 BLCAs into a common community association. Amidst the resistance
posted by some quarters, mostly from the UBLCA, the HIGC ordered the
conduct of a referendum-plebiscite to determine which BLCA would be allowed
to remain. The UBLCA contested this order. The Supreme Court, however,
upheld the HIGC order paving the way for the referendum-plebiscite which was
held in the middle of 1988. The results indicated that majority preferred the
UPBCA. Consequently, the HIGC issued an order granting recognition to the
UPBCA and ordered the UBLCA to cease existence. Unfortunately, the HIGC
did not exercise any further initiative to implement its decision.
July
BLISS HOUSING PROGRAM 205
The Urban BLISS BLCAs have organized themselves into a Metro Manila
BLISS Federation to address their common problems, most of which have to do
with individualization of accounts, payment of occupancy dues and arrearages,
and related issues. The Federation as well as the individual BLCAs have been
knocking on the doors of various government institutions to ventilate their
concerns. Foremost among their concerns are: (1) conferment of proprietary
right and ownership of housing units and (2) a realistic scheme to settle their
financial obligations. Executive support and legislative assistance have also
been attempted. In 1988, Senator Jose Lina filed Bill No. 627 providing for an
amortization scheme for arrearages. All beneficiaries would have to resume
immediate payment of current dues and then pay their arrears in equal
installments within two years. Penalties, fines, and surcharges would be
waived. Another bill was filed by Senator Wigberto Tafiada in 1989. Bill No.
1004 provided for a liberal amortization scheme for arrearages. Beneficiaries
had to pay only ten percent of their arrears, without any penalties, then
restructure the balance. Neither bill was passed into law. Nonetheless, a loan
restructuring scheme was introduced by the BDC and NHMFC along the
Tafiada proposal. Quite a number restructured their loans. For most, however,
raising the amount equivalent to ten percent of their arrears is a major setback.
The preceding parts of this study are purely descriptive of facts and events
that transpired. The approach to the BLISS program and the implementation
process are presented in as objective manner as possible to provide the bases for
making an assessment of the program.
2001
206 PHILIPPINE JOURNAL OF PUBLIC ADMINISTRATION
The questions raised at the beginning of this article are tackled in this
section. Two levels of analysis will be undertaken. The first will deal with the
approaches/strategies per se adopted for the BLISS program. Were these
effective and appropriate? The second level will touch upon implementation
issues.
The basic needs theory is also incorporated in the BLISS program. The
theory of basic needs identifies certain basic human requirements necessary for
survival and development. These may be classified into three categories.
Deficiency needs refer to those which have to be satisfied to make a human
being reach a defined level of adequacy, e.g. physiological needs. Sufficiency
needs are those which will allow the attainment of a desired standard. Growth
needs extend beyond material sufficiency to the broader social goals that will
July
BLISS HOUSING PROGRAM 207
allow the individual to develop (McHale and McHale 1977: 223). The BLISS
program aimed to address these three categories of needs. This is reflected in
the efforts to deliver the "eleven basic needs of man" which are repeatedly
hammered into all phases of the program.
These appear to be the main concepts, approaches, and strategies that are
idealized in the BLISS program. These are summarized in Table 1.
2001
208 PHILIPPINE JOURNAL OF PUBLIC ADMINISTRATION
Approach Indicators
Objectives 1. Total human - all dimensions of development
development are present
a. people-centered - man as primary
resource/primary beneficiary
2. Social empowerment - actively involved beneficiaries
in BLCA and other community
programs
3. Economic uplift - better homes; livelihood
projects; increased income
Features 1. Community-based - initiatives/decisionmaking by
beneficiaries
a. Participatory - beneficiaries are involved from
planning to evaluation; BLCA
as focal point for harnessing
people's participation
2. Self-reliant communities - use of own resources and efforts
after initial MHS support
3. Coordination of efforts - Cabinet Coordinating
Committee; the MHS
4. Socialized Financing - Subsidy to low- and middle-
groups; income joint liability for BLCA
loan
Strategies 1. Focused targets - BLISS beneficiaries
2. Social mobilization
a. capability-building - Management training and
skills improvement of
3. Multilateral/multi- beneficiaries
sectoral - Various agencies of government
4. Convergence of efforts participating
- Joint and sequential delivery of
5. Provision of Basic Needs services
- Delivery of "eleven basic needs
of man"
July
BLISS HOUSING PROGRAM 209
The experience of U.P. BLISS San Vicente reveals that the leaders were in
fact designated not by the beneficiaries themselves but by the MHS officials.
Hence, the early BLCA officers were not really representatives of the
beneficiaries nor even known or acceptable to a majority of them. Nevertheless,
all MHS policies and decisions were channeled through these officers. This did
not augur well for developing a sense of unity and oneness. The legal issues
that would arise later can be traced to this.
2001
210 PHILIPPINE JOURNAL OF PUBLIC ADMINISTRATION
Since there is joint liability among all the members of the BLCA, those
who pay their dues are equally liable as those who do not if the loan is not paid.
There is therefore no incentive on the part of beneficiaries to fulfill their
financial obligations. This is a fertile source of tension that serves as further
deterrent in forging unity among the beneficiaries.
Soon after the U.P. BLISS project was implemented, beneficiaries were
already demanding individualization of accounts. Those who religiously paid
their dues did not want to be jointly responsible for the delinquency of others.
Moreover, since it was a joint liability, they had no protection against
foreclosure proceedings. This is a clear indication that BLCA strategy with this
joint-liability feature is defective.
July
BLISS HOUSING PROGRAM
their units because it does not have the power and the capability to effectively
do so. The BLCA is thus nothing more than a paper tiger. It is required to
secure a loan, collect occupancy dues, remit payments, and enforce rules. Yet it
does not have the effective means to make the members toe the line. To this
writer's knowledge, through all the twenty-five years since the launching of the
UBP, there has not been a single case of a successful ejection. The HIGC, BDC,
or NHMFC could not simply eject delinquent beneficiaries as the latter have
2
contracts with the BLCA and not with these agencies.
The very mechanism by which the objectives of the BLISS program were
supposed to be attained, actually backfired. The hands of the implementors
were tied by legal complexities which the planners did not foresee.
The University of the Philippines, as owner of the land, has likewise been
lax in enforcing the Usufruct Agreement which provides that no vertical
structures other than those put up by the MHS shall be allowed. In recent
years, however, the University Anti-Squatting Task Force has included the U.P.
BLISS San Vicente site in its regular monitoring. The Task Force has been able
to stop a few unauthorized constructions but the effort is not regular nor
sustained.
2001
PHILIPPINE JOURNAL OF PUBLIC ADMINISTRATION
improvements in Phase 2 regardless of income level; (2) entry fees for Phase 2
were almost 300 percent more than for Phase 1; (3) the occupancy rates for
Phase 2 are much higher despite the absence of finishing touches and
improvements on the units.
Too many variations were introduced in this single community in the area
of financing alone. This reflects a project plan that is not properly designed nor
well-thought out.
The BLISS Program was implemented on a massive scale all over the
country within a brief period of time. It did not have the benefit of pilot-testing
which could have avoided many of the problems encountered during
implementation. Refinements and adjustments of major strategies could have
been effected. It would also have given lead time for the agencies responsible
for implementation to develop coping mechanisms and creative procedures for
quick response. It may be argued that an effective monitoring and evaluation
system is the answer. The fact is that there were too many BLISS sites to
monitor such that the institution of immediate corrective measures was
realistically impossible.
The MHS was simply swamped with a variety of problems in very many
sites. It had more than it could properly handle. The Estate Manager was
practically helpless without the necessary institutional support. There was a
host of unforeseen variables, mostly stemming from the deficiency in the
approaches and strategies adopted.
July
BLISS HOUSING PROGRAM 213
a dummy of the MHS. It could not be viewed as an organization of, by, and for
the beneficiaries. Having been treated initially as an MHS rubber stamp by
the MHS itself, the BLCA could not command respect from its members. The
BLCAs would eventually rise up against the MHS and its implementing
agencies.
The U.P. BLISS San Vicente case also shows that the collection mess
triggered a series of other problems which continue to plague most UBPs today.
Regardless of the collection scheme adopted, the officials involved, or the
agency concerned, confidence in the system has not been fully restored. Most of
the beneficiaries withheld payments resulting in arrearages which they now
find difficult to pay even if they wanted to.
2001
214 PHILIPPINE JOURNAL OF PUBLIC ADMINISTRATION
nose despite the collection anomalies, government funds would have been
dissipated by unscrupulous individuals. Therefore, since government is mainly
responsible for the problem, the beneficiaries should not be penalized for it.
Beneficiaries in most UBPs admit that it is impossible for them to raise the full
amount of their arrears or even the ten percent downpayment required for
restructuring. However, if the terms are more liberal, they will be able to
resume payment of their dues.
There are 496 units for shelter in the U.P. BLISS San Vicente site.
Basketball, volleyball, and tennis courts were put up to satisfy sports and
recreationneeds. A park was also provided. Medical services were supposed to
be available at the BLISSMART which was intended for a grocery, office space,
library, conference hall, and a Multipurpose Hall attached to it. A big water
tank was installed to provide water for domestic use as well as for the fishpond
which was going to be a livelihood project.
The fishpond, together with the orchard and vegetable gardens were to be
sources of food for the community. Food would also be available from the
grocery at the BLISSMART. Power was provided through a direct hook-up
with the MERALCO. Clothing needs were to be addressed by a mini-garment
industry. A private plant nursery was envisioned in the site to provide seedlings
and cuttings to be planted around the area. This was supposed to respond to
the need for ecological balance. Mobility needs were addressed through the
provision of clean and well-paved roads, a waiting shed along the highway, and
open parking spaces around the community. The Multipurpose Hall was to be
the venue for training programs and other education and technology efforts.
Pre-schools for children aged 3-6 were to be established too. The operation of
the BLISSMART, orchard, vegetable gardens, ornamental plants gardens, and
home industries would be the economic base of the community (MHS n.d.b).
The MHS as developer was to initiate these efforts which would eventually
be taken over by the BLCA.
July
BLISS HOUSING PROGRAM 215
Except for housing, water, power, and sports and recreation, the delivery
of "the eleven basic needs of man" was, however, superficial.
Constrained by lack of funds, the BLCA could not repair the buildings.
The beneficiaries just had to live with what they got. Maintenance work had to
be done by the residents themselves. Many buildings are in a state of disrepair
either because of financial difficulties or simply due to the indifference of
building residents.
The strategic location of U.P. BLISS San Vicente has increased the market
value of the units. This has resulted in a lot of turnover of residents who "sell"
their rights to others. New residents do not easily get assimilated into the
community. This makes it all the more difficult to integrate and forge unity in
the community.
U.P. BLISS residents are fortunate because they live near the Balara
Filter Station. Water pressure is strong and supply is adequate even to fourth
floor residents. But problems arise during interruptions in water service
because the water tank which was supposed to provide an alternative supply
source was diverted to another BLISS site. There used to be only one artesian
well in the community. Today, there are almost ten of them provided by the
Barangay Council through the efforts of the UPBCA.
Being connected to the MERALCO power service, U.P. BLISS San Vicente
also has adequate power supply. But the streets and pathways are now dark
and dangerous. Pathways were lighted through the efforts of the UPBCA, but
MERALCO discovered illegal tapping and cut off power supply.
As regards the BLISSMART Building, the residents never got to use it for
their own purposes. The BDC preempted the beneficiaries and the BLCA from
operating a cooperative to supply the food and other needs of the community.
The BDC leased the premises to a private group which operated a grocery.
Rental rates collected by the BDC were not remitted to the DBP to amortize the
loan despite the fact that the cost of the building was part of the loan. Neither
did the grocery satisfy the food needs of the residents. Variety, quality, and
2001
216 PHILIPPINE JOURNAL OF PUBLIC ADMINISTRATION
'quantity of stocks were so limited. This led to its bankruptcy. Even after the
grocery ceased to operate, the building was not turned over to the BLCA.
Meanwhile, its electric bills soared to over P100,000.00 which the BDC did not
pay. The structure has since deteriorated and is practically useless. The
adjacent Multipurpose Hall is still serviceable but is in bad shape. A hefty sum
would be needed to rehabilitate it. Thus, when the BDC offered to turn over the
building to the UPBCA in 1990, the latter demurred. In addition to the huge
MERALCO bill and the state of the building, there were legal issues raised by
the UBLCA that had to be cleared first.
The front part of U.P. BLISS San Vicente was also leased by the BDC to
private garden operators. The area wasenvisioned to respond to the need for
ecological balance in the community. The gardens did make the area green but
some operators subsequently extended their area beyond their leased space and
encroached upon common grounds. This became another irritant in the
relations of the residents with the BDC.
Residents still enjoy the use of the sports and recreation facilities although
these have since deteriorated due to lack of proper maintenance. After the
University took back the front portion of the site for commercial development,
the playground where children used to ride bikes or frolic disappeared.
The roads have not been maintained. When repairs are undertaken by the
telephone and water companies, they do not pave back the spot where diggings
are made.. Despite representations with the Quezon City Government,
maintenance and repair work is difficult to secure.
July
BLISS HOUSING PROGRAM 217
The orchards and gardens did not become the economic base as planned.
The UBLCA did receive a livelihood loan for a goat raising project somewhere in
San Mateo, Rizal. Whether or not the goats were acquired and what eventually
happened to them, the beneficiaries never found out for sure.
Conclusion
The issues revolving around the BLISS program are too complex to cover in
this article. And although the study focuses mainly on the Urban BLISS
program and cites one specific case, the issues do not get less complicated. The
study attempted to highlight just the essential features of the program - the
vision, the strategies adopted to realize the vision, and the implementation
process.
2001
218 PHILIPPINE JOURNAL OF PUBLIC ADMINISTRATION
July
BLISS HOUSING PROGRAM 219
assessment of whether these strategies were the right ones to achieve program
vision. Second was an assessment of the implementation process using the
strategies chosen.
The article shows that the major strategy used, the community association
concept with the added feature of joint financial obligation of members, is faulty
and defective. Most of the problems encountered in the implementation process
stemmed from the adoption of such strategies which were not effective,
appropriate, and feasible. This is particularly true when applied to urban areas.
The study reveals that the strategies were sophisticated formulations that
failed to consider realities in implementation. The planners must have
proceeded on the assumption that the BLCAs could always be counted upon to
comply with the requirements of the implementing agency. This will explain
why the BLCAs were made signatories to -vital loan and mortgage agreements
and were given certain control over the rights of beneficiaries to occupy units.
The planners did not consider a scenario where the BLCAs would in fact make
certain demands on the implementing agency and be able to successfully resist
the latter's efforts. The efforts of government have been effectively stymied by
the very same mechanism it created to realize the goals of the program. This is
a classic case where the best laid plans of mice and men did go awry.
2001
220 PHILIPPINE JOURNAL OF PUBLIC ADMINISTRATION
vision slowly fade. It was a painful and costly experiment on the part of
government. To this day government continues to seek ways of recovering its
investment and to resolve the legal issues it got itself into. The beneficiaries,
on the other hand, are saddled with organizational, financial, structural, and
other community problems which the program has not responded to or may not
even have foreseen.
The government, through the BLISS program, was able to respond to the
need for housing only to a limited extent. Likewise, it did not achieve the social
goals it set forth for the program. Furthermore, in undertaking the program, it
got severely burned. This sprang from major flaws in the strategies adopted,
from the planning to the implementation stage.
Endnotes
2The HSRC was created as the regulatory arm of the MHS by virtue of P.D. 1396, out of the
renamed Human Settlements Commission. It was further renamed as the Housing and Land Use
Regulatory Board (HLURB) by Executive Order No. 90 issued by President Corazon C. Aquino on
17 December 1986. The HLURB is charged with "encouraging private sector participation in low-
cost housing through liberalization of development standards, simplification of regulations and
decentralization of approvals for permits and licenses" (E.O. 90, Sec. 1 [c]).
'Lack of time prevented the writer from making a positive determination whether the NHC
is one and the same as the present National Housing Authority (NHA). Despite the lack of
confirmatory documents, there is a strong reason to believe they are one and the same agency
because at one time, the NHA used to be called the Philippine Homesite and Housing Corporation
(PHHC) which may have been the precursor of the NHC.
4P.D. 1396 established the HSDC as the corporate arm of the MHS especially in the latter's
discharge of its functions relative to urban renewal and New Town and estate development in
Bagong Lipunan sites. Section 6 of the decree states the purposes of the HSDC, thus: 1) the
"development of new communities that are economically viable and environmentally sound,
through innovative urban land mechanisms and self-financing arrangements;" and 2) the
July
BLISS HOUSING PROGRAM 221
.renewal of urban communities or parts thereof, through housing and other urban improvement
projects" (MHS 1984: 27).
'The HFC was established in 1956 by Republic Act No. 580. It has the mandate to operate
a mortgage insurance program and to "encourage, aid or initiate the organization or incorporation
of building and loan associations" (Valen 1993: 39). Its powers were enlarged through various
laws and issuances such as Executive Order No. 535 issued in 1979 which granted it the power to
register, regulate, and supervise homeowners associations. Thus, homeowners associations are no
longer encouraged to register with the Securities and Exchange Commission, although they still
may, but with the HFC. Executive Order No. 90 issued in 1986 renamed the HFC as the Home
Insurance and Guaranty Corporation (HIGC). In 1988 HIGC was tasked to identify and dispose of
the properties of the BLISS Development Corporation (BDC). It is the only government agency
authorized to issue mortgage guarantees and credit insurance to lending institutions. As of 1993,
there were over 4,000 homeowners associations registered with the HIGC. The HIGC is a
member of a closed group of government housing finance institutions in the Asia-Pacific, and is
recognized for its excellence in the field of housing finance (PhilippinesFree Press 1994: 40). In
2000, the HIGC became the Home Guaranty Corporation (HGC) and the function of registering
community and homeowners associations was transferred to the Housing and Land Use
Regulatory Board (HLURB).
6
Established on 21 December 1977, the NHMFC is a government non-bank financial
institution created to increase the availability of home financing loans. This is done through the
development of an active secondary market for home mortgages (Focus 1983: 12). The NHMFC
administers the savings generated for shelter and serves as the principal resource center for the
shelter program (MHS 1978 c: 57). The operation of a secondary market system is simply the
buying and selling of home mortgages. The cycle begins with the grant of a housing loan to a
borrower by an 'originator" or lending institution. This is referred to as the "origination of
mortgage" which constitutes the primary mortgage. The mortgage may then be purchased or
"taken out" by another institution, such as the NHMFC, to secure the originator's investment.
This is done through the issuance of government securities, e.g. the Bahayan Mortgage
Participation Certificates. Lending institutions are assured that the funds they lend to
homeowners are liquidated or replaced so they can accommodate other borrowers. The liquidity
level of the originator is thus maintained and it is able to rollover its funds for subsequent loans.
The purchase of the primary mortgage is referred to as the secondary mortgage (Focus 1983: 24;
MHS 1984: 29). Secondary mortgages bought by the NHMFC are guaranteed by the HIGC.
'The HDMF is essentially a provident fund for housing. Created by P.D. 1530 in June 1978,
and later amended by P.D. 1752 in December 1980, it is more popularly known as the Pag-IBIG
Fund which stands for Pagtutulungan - Ikaw, Bangko, Industriya at Gobyerno. It is a long-term
mass savings program with housing loan features. It is a nationwide savings program for both
private and government workers. The Pag-IBIG Fund is generated through the employees'
contribution of a fixed percentage of their salaries and the equal contribution of their respective
employers.
8
The Manila Electric Company or MERALCO, was taken over by the government during
martial law and operated under the supervision of appointed military personnel. Before then, the
MERALCO was owned by the Meralco Securities Corporation (MSC) whose majority shares were
in turn owned by the Lopez family.
9
These included the following (MHS 1978c: 2-3):
2001
222 PHILIPPINE JOURNAL OF PUBLIC ADMINISTRATION
222 PHILIPPINE JOURNAL OF PUBLIC ADMINISTRATION
10 The following are the first Urban BLISS projects of BDC (classified as Folio 1), which
were "taken out" by the NHMFC:
Valle Verde 1
Valle Verde 2
U.P. San Vicente 1
U.P. San Vicente 2
Mandaluyong 1 and 2
Pasig
Paco
Muntinlupa
Makati
PNR
Guadalupe
Sikatuna 1
Teheros
"A survey conducted by the Social Weather Stations reveals, however, that rural Filipinos
have no predilection for joining organizations (Arroyo 1992: 3).
2
The beneficiaries entered into an Occupancy Agreement with the BLCA. They signed the
contract forms but have no copies of the perfected Agreement to this day. A few beneficiaries
have photocopies of their contracts but these are not notarized.
DAn interesting study conducted in a community of high-rise buildings in the United States
found out that there is a certain correlation between the level (floor) of the unit and the degree of
participation in community activities. It revealed that the higher the unit, the less likely does an
occupant participate in community activities; that there is a tendency to be more individualistic
as one's unit level rises. This may partly explain the apparent lack of interest of U.P. BLISS
beneficiaries in getting involved with BLCA activities.
July
BLISS HOUSING PROGRAM 223
References
Afionuevo, Roberto T.
1993 May Pabahay Ba Ang Pamahalaan? FilipinoMagazine. (5 July): 12-13.
Arroyo, Dennis M.
1992 The SWS 1990 Survey of Rural Welfare. Social Weather Bulletin 92-9/10. May.
Bautista, Victoria A.
1994 Strategizing for the Integrated Approach to Local Development Management.
Selected Readings for Trainers on the IALDM (SRT-IALDM). Center for Policy
and Administrative Development, College of Public Administration, University
of the Philippines.
Dube, S.C.
1988 Modernization and Development: The Search for Alternative Paradigms.
Tokyo: The United Nations University.
FOCUSPhilippines
1983 Developing the Secondary Mortgage Market. (30 April): 12, 24-25.
Llanto, Daniel E.
1983 Wider Home Ownership Through Home Financing. FOCUS Philippines. (30
April): 9-11.
Macpherson, Stewart
1989 Social Welfare Delivery Systems and Delivery Mechanisms. Regional
Development Dialogue. X, 2 (Summer).
Maramag, Ileana
1979 BLISS. The Fookien Times Philippines Yearbook: 52-53.
1982a The BLISS Program. In Philippine Shelter System and Human Settlements.
Human Settlements Monograph Series No. 1/1983. Manila: Ministry of Human
Settlements: 55-60.
2001
224 PHILIPPINE JOURNAL OF PUBLIC ADMINISTRATION
1982b The National Shelter Program. In Philippine Shelter System and Human
Settlements. Human Settlements Monograph Series No. 1/1983. Manila:
Ministry of Human Settlements: 47-53.
1978a Bagong Lipunan Sites and Services. Vol. 1: Program Proposals. Manila:
Ministry of Human Settlements, December.
1978b Bagong Lipunan Sites and Services. Vol 2: Multi Level Communities
Development Concepts. Manila: Ministry of Human Settlements, December.
1978c Bagong Lipunan Sites and Services. Vol. 4: Program Implementation Plan.
Manila: Ministry of Human Settlements, December.
n.d. b The Shelter Cum Livelihood Experience of U.P. San Vicente BLISS. Ministry of
Human Settlements (Brochure).
Official Gazette
1987 Executive Order No. 85. Abolishing the Office of Media Affairs and the Ministry
of Human Settlements and For Other Purposes. 83: 6: 467-468.
Philippine Development
1979 Creating BLISS Communities. Philippine Development. 6 (21). (31 March):
22-29.
PhilippinesFree Press
1994 HIGC: Testing Corporate Limits. (10 April): 40-41.
Valen, Edmund
1993 HIGC Continues to Address People's Shelter Needs. Philippine Graphic. (26
November): 38-39.
July