CREATION OF AN INTEGRATED LOCAL ACTION PLAN FOR DISASTER RISK REDUCTION AND CLIMATE CHANGE ADAPTATION FOR THE MUNICIPALITY OF CAINTA
RAMON A. ILAGAN CODY R. CAVESTANY LESTER G. CAVESTANY
SUBMITTED TO THE FACULTY OF THE ATENEO SCHOOL OF GOVERNMENT IN PARTIAL FULFILLMENT OF THE REQUIREMENTS FOR THE DEGREE OF
MASTER IN PULIC MANAGEMENT
APRIL 2013
ii The Governance Innovation Report attached hereto, entitled "CREATION OF AN INTEGRATED LOCAL ACTION PLAN FOR DISASTER RISK REDUCTION AND CLIMATE CHANGE ADAPTATION FOR THE MUNICIPALITY OF CAINTA" prepared and submitted by RAMON A. ILAGAN, CODY R. CAVESTANY and LESTER G. CAVESTANY in partial fulfillment of the requirements for the degree of Master in Public Management, is hereby accepted.
DR. ANTONIO G.M. LA VIÑA, JSD Adviser
DR. MARY JEAN CALEDA Faculty Coordinator
__________________________ Date signed
____________________________ Date signed
Accepted as partial fulfillment of the requirements for the degree of Master in Public Management.
ANTONIO G.M. LA VIÑA, JSD Dean, School of Government Ateneo de Manila University
__________________ Date signed
iii ACKNOWLEDGEMENTS
We, RAMON A. ILAGAN, CODY R. CAVESTANY and LESTER G. CAVESTANY, would like to express our heartfelt gratitude to the following persons who have made the completion of this Governance Innovation Report (GIR) possible: Our esteemed adviser, Dean ANTONIO G.M. LA VINA, J.D., for inspiring us to work in the area of climate change and disaster preparedness and for his vital support in this Governance Innovation Report. Our faculty coordinator, Assistant Dean, MARY JEAN A. CALEDA, PH. D., for her constant reminders about deadlines and for the much needed motivation to graduate on time. Associate Dean MARIO C. VILLAVERDE, MD, for giving us permission to work on this GIR as a team. Our GIR readers, MS. JESSICA BERCILLA and MR. ANGELO APOSTOL, for helping us revise and improve the initial drafts of our GIR. MRS. VERON S. ILAGAN, for sharing with us your vision of creating a more progressive and flood-free Cainta. All the heads and staff of the various Offices and Departments of the Municipality of Cainta, for assisting us in the collection of valuable data and information. Since this GIR signifies the culmination and completion of our graduate studies at the Ateneo School of Government, we would like to also take this opportunity to express our indebtedness to all our Professors who have provided the necessary teachings and
iv learning experiences for us to achieve the completion of our Master in Public Management degree program. PROF. CYNTHIA G. CASTEL (Understanding the Bureaucracy) PROF. CORAZON ALMA G. DE LEON (Power, Ethics and Accountability) FR. PATRICK Z. FALGUERA, S.J. and PROF. MARIDES C. FERNANDO (Leadership in Public Service) PROF. EDNA ESTIFANIA A. CO (Public Policy Development and Analysis) PROF. ENRICO C. MINA (Applied Economics for the Public Sector) DEAN ANTONIO G. LA VIÑA (Climate Change and Sustainable Development) PROF. ALFREDO F. DIAZ, JR. (Organizational Development and Change Management) PROF. MILWIDA M. GUEVARA (Public Finance and Budgeting) PROF. GILBERT G. LOZADA (Local Planning and Development) PROF. VIRGINIO P. FULGENCIO (Local Investment and Enterprise Development) PROF. MARY JANE C. ORTEGA and PROF. AURMA M. MANLANGIT (Modern Management in Local Government) PROF. AMELIA C. ANCOG (Governance Innovation Seminar) Special thanks to the staff and “frontliners” of the Ateneo School of Government: MR. MANUEL “MANOLO” GREGORIO, MS. ANNA KARMELA ZABAT, MS. MARICEL “ISEL” V. DE GUZMAN, MRS. VENUS VINLUAN and MR. TOM SAWYER.
v To our families and parents for their invaluable support. Words will never be enough to express our gratitude to you for always being there for us, MRS. CRISTETA CAVESTANY and MRS. CORAZON S. RABE. To the next generation of Cainteños, especially to BERNICE, CHARICE, JONAH, NIKKI and LEX. LINDSAY JOY CAVESTANY, LEANDER CAVESTANY, and EDDIE RABE, JR. who kept on believing in us. Our batchmates, the MPM BATCH 2010, for all the wonderful memories, yummy merienda and food breaks, parties and get-togethers, hirits, loveteams, never-ending chain of recitations, and most importantly, the friendships forged that had led to family-like ties and lifelong bonds. Special thanks to our groupmates in TEAM M.I.: Atty. Ricardo “Oying” Angeles, Paolo Daleon, Dennis de la Torre, Mayor Angelito “Dondon” Dimacuha, Diana Lumauig, Peter “Tonypet” Mallari and Nette Reyes. Finally, we would like to praise and thank the Lord, our God, for making everything fall into place, in accordance with your Divine Will. All these we have done, and more we shall do, in the name of public service, and for your greater glory! Ad majorem Dei gloriam!
vi TABLE OF CONTENTS PAGE i ii iii vi viii xiii xv xviii xix
Title Page Approval Page Acknowledgements Table of Contents List of Acronyms List of Tables List of Figures List of Appendices Abstract CHAPTER I
II
III
IV
INTRODUCTION
1
Background of the Study Rationale of the Study Statement of the Problem Objectives of the Study Significance of the Study Scope and Limitations of the Study
1 1 4 5 6 7
REVIEW OF RELATED LITERATURE
10
The Natural Hazards in the Philippines Disaster Risks and Effects in the Philippines and in the Municipality of Cainta The Legal Mandate of the Local Government
10 21
RESEARCH FRAMEWORK
27
Conceptual Framework Theoretical Framework Operational Framework Operational Definition of Terms
27 36 37 40
RESEARCH METHODOLOGY
47
Research Design Locale of the Study Data Collection Methods and Analysis
47 58 71
25
vii V
VI
RESULTS AND DISCUSSION
80
Plans, Policies and Programs Hazard and Climate Change Impacts Vulnerability and Capacity Assessment Disaster Resilient Cainta
80 92 106 121
SUMMARY OF FINDINGS, CONCLUSIONS AND RECOMMENDATIONS
130
Summary of Findings Conclusions Lessons Learned and Recommendations
130 135 140
REFERENCES
148
APPENDICES
154
viii LIST OF ACRONYMS ACRONYMS ADB
Asian Development Bank
AIP
Annual Investment Plan
ASoG
Ateneo School of Government
BDPW
Barangay Disaster Planning Workshop
BFP
Bureau of Fire Protection
BPO
Business Process Outsourcing
CBDRRMP
Community-based Disaster Risk Reduction and Management Program
CBFEWS
Community-based Flood Early Warning Systems
CCA
Climate Change Adaptation
CCC
Climate Change Commission
CDP
Comprehensive Development Plan
CIDA
Canadian International Development Agency
CLUP
Comprehensive Land Use Plan
CMDRRMO
Cainta Municipal Disaster Risk Reduction Management Office
COP
Climate Conference
CRI
Climate Risk Index
CSO
Civil Society Organization
CY
Calendar Year
DENR
Department of Environment and Natural Resources
ix DepEd
Department of Education
DILG
Department of Interior and Local Government
DILG-MLGOO
Department of Interior and Local Government – Municipal Local Government Operations Officer
DOST
Department of Science and Technology
DR
Disaster Risk
DRA
Disaster Risk Assessment
DRM
Disaster Risk Management
DRR
Disaster Risk Reduction
DRRM
Disaster Risk Reduction Management
DRRMF
Disaster Risk Reduction Management Fund
DRRMP
Disaster Risk Reduction Management Plan
DTI
Department of Trade and Industry
ELA
Executive and Legislative Agenda
FGD
Focus Group Discussion
GAA
General Appropriations Act
GDP
Gross Domestic Product
GIR
Governance Innovation Report
GIS
Geographic Information System
HDI
Human Development Index
HFA
Hyogo Framework for Action
HOA
Homeowners Association
x IEC
Information and Education Campaign
IPCC
Intergovernmental Panel on Climate Change
ISDR
International Strategy for Disaster Reduction
LAP
Local Action Plan
LAP-DRR-CCA
Local Action Plan for Disaster Risk Reduction and Climate Change Adaptation
LCCAP
Local Climate Change Action Plans
LDRRM
Local Disaster Risk Reduction Management
LDRRMO
Local Disaster Risk Reduction Management Office
LDRRMP
Local Disaster Risk Reduction Management Plan
LG
Local Government
LGSAT
Local Government Self-Assessment Tool
LGU
Local Government Unit
LRT
Light Rail Transit
MCM
Management or Evacuation Center Management
MDCC
Municipal Disaster Coordinating Council
MDRRMC
Municipal Disaster Risk Reduction Management Council
MENRO
Municipal Environment and Natural Resources Office
MEO
Municipal Engineering Office
MOU
Memorandum of Understanding
MPSO
Municipal Public Safety Office
MSME
Micro, Small and Medium Enterprises
xi MSWDO
Municipal Social Welfare and Development Office
NCCAP
National Climate Change Action Plan
NDRRMC
National Disaster Risk Reduction and Management Council
NDRRMP
National Disaster Risk Reduction and Management Plan
NEDA
National Economic and Development Authority
NFSCC
National Framework Strategy on Climate Change
NGO
Non-Government Organization
OCD
Office of Civil Defense
OTOP
One Town, One Product
PAGASA
Philippine Atmospheric, Geophysical & Astronomical Services Administration
PAR
Philippine Area of Responsibility
PAR
Pressure and Release Model
PDRRMO
Philippine Disaster Risk Reduction and Management Organization
PEZA
Philippine Economic Zone Authority
PHIVOLCS
Philippines Institute of Volcanology and Seismology
PIDS
Philippine Institute for Development Studies
PPA
Programs, Projects and Activities
PWD
Persons with Disabilities
RA
Republic Act
REDAS
Rapid Earthquake Damage Assessment System
SCRM
Save Cainta River Movement
xii UN
United Nations
UNDP
United Nations Development Program
UNFCCC
United Nations Framework Convention on Climate Change
UNISDR
United Nations International Strategy for Disaster Reduction
V-ALERT
Versatile Alliance of Local Emergency Response Team
xiii LIST OF TABLES TABLE
PAGE
1
Total Damages by Top 5 recorded Natural Disaster Types in the Philippines (1901-2009)
22
2
GIR Timetable
48
3
Sectoral Representation of DRR CCA Summit
50
4
Population per Barangay
59
5
Land Areas of the Seven Barangays
61
6
Slope Category
63
7
Target Income and Annual Revenues (2004-2011)
65
8
Commission on Audit's 2009 Annual Financial Report For Rizal
66
9
Goal Achievement Matrix Scale
73
10 Sample Hazard Assessment Matrix
77
11 Scoring Scale - Level of Progress (Local Government Self-Assessment Tool for Disaster Resilience)
79
12 Excerpt from LGSAT
79
13 Hazard Assessment Summary
94
14 Flood Prone Areas and Number of Affected Families
95
15 Hazard Sensitivity of the Seven Barangays of the Municipality of Cainta
105
16 Agricultural Crops by Area, 2011
109
17 Livestock and Poultry Production, 2011
110
18 Evacuation Centers
115
xiv 19 Number of Respondents, by Age Group and Gender
118
xv LIST OF FIGURES FIGURE
PAGE
1
The Philippines
11
2
Philippines in the Pacific Typhoon Belt
12
3
Annual number of serious earthquakes, volcanic eruptions and typhoons between 1900-2002
13
4
Monthly Average Frequency of Occurrence of Tropical Cyclones
16
5
Frequency of Tropical Cyclone Passage Over Each Geographical Zones in the Philippines
17
6
Geographical Zones and Tropical Cyclone Paths
18
7
Distributions of Active Faults and Trenches in the Philippines
19
8
Philippine Natural Hazard Map
20
9
Pressure and Release Model (PAR)
32
10 The Access to Resource Model
33
11 Pelling's Human Vulnerability Framework
35
12 The LAP-DRR-CCA Planning Framework
36
13 Operational Framework for the Creation of Municipality of Cainta's LAPDRR-CCA
38
14 Operational Framework Toward a Disaster Resilient Municipality of Cainta
39
15 Milestone and Activity Timeline
48
16 Drafting the LDRRMP of the Municipality of Cainta
55
17 Geographic Location of Cainta
59
18 Seven Barangays of Cainta
60
xvi 19 Cainta River Network Map
62
20 Ground Shaking Map
64
21 Wealthiest Municipalities in the Philippines (2009 COA Report)
67
22 Expenditure Program (Distribution by Sector) 2011 Budget Year
67
23 Expenditure Program by Sector Comparative Trend, 2009-2011
68
24 DILG's Rationalized Local Planning System
75
25 Hyogo Framework for Action: 2005-2015 Building the Resilience of Nations and Communities to Disasters
84
26 Cash for Work in Cainta
86
27 Typhoon Incidence
92
28 Projected Rainfall Change (Dry Season)
93
29 Projected Rainfall Change (Wet Season)
93
30 Cainta Elevation Map
97
31 Hazard Map of the Province of Rizal
97
32 Flood Hazard Map
98
33 Earthquake Prone Areas in the Philippines
99
34 Cainta in the Distribution of Active Faults and Trenches in the Philippines
100
35 Cainta Valley Fault System
101
36 Valley Fault System Earthquake Scenario (Cainta)
103
37 Valley Fault System Earthquake Liquefaction Scenario (Cainta)
103
38 Liquefaction Map of Cainta (Wet Season)
104
39 Combined Risk to Climate Disasters
105
xvii 40 Vulnerability to Disasters of the Philippines
106
41 Land Use Map of the Municipality of Cainta
108
42 Human Development Index, 2000
111
43 Population Density, 2000
112
44 Populated Places
112
45 Settlement Areas
113
46 Aggregate Map of Informal Settlers in Metro Manila (2000)
114
47 Self-Assessment for Disaster Resilience Sectoral Representation
117
48 Gender Representation
117
49 Representation by Age Groups
118
xviii LIST OF APPENDICES APPENDIX 1
King Country Questionnaire for Preliminary Assessment of Climate Change Impacts and Adaptation Barriers
2
LAP-DRR-CCA (Program, Projects, Activities)
3
Local Government Self-Assessment Survey Tool
4
List of CBDRRM informants
5
Key Findings on the Municipality of Cainta's Self-Assessment for Disaster Resilience
xix ABSTRACT
Given its geographical location and geophysical characteristics, the Municipality of Cainta is vulnerable to the risks of natural hazards and the impacts of climate change which cause disasters that lead to loss of lives, disruptions in livelihoods and damage to properties. Thus, strategic local planning, anchored on international frameworks and national policies, is a critical first step to build safer and more climate and disaster-resilient communities through the efficient utilization of public resources and the effective implementation of a climate and disaster risk reduction program. This Governance Innovation Report created an integrated and multi-sectoral local action plan for disaster risk reduction and climate change adaptation mainstreamed into the Annual Investment Plan of the Municipality of Cainta. Using the four-fold themes of mitigation, preparedness, response and recovery, this local action plan addressed the Municipality’s vulnerabilities to natural hazards and climate change impacts. It also utilizes capacity-building strategies at the barangay level for disaster risk reduction and management and climate change adaptation. To strengthen the resilience of the entire Municipality, the proponents studied international, national and local policies, plans, practices and programs in disaster risk reduction and climate change adaptation; characterized natural hazards and climate change impacts; assessed vulnerability and capacity; and recommended programs, projects and activities to be funded and implemented in 2013.
CHAPTER I INTRODUCTION
Background of the Study
This study, referred to as the Governance Innovation Report (GIR), is the capstone achievement of the graduate students’ academic requirements in the Master in Public Management of the Ateneo School of Government. The Manual in the Preparation of Governance Innovation Report (Ateneo School of Government, 2011) described this form of GIR as an “Action Plan,” wherein the proponents analyzed the problems of natural disasters and climate change in areas where the residents of Cainta are vulnerable and formulated an integrated plan of action that would assist the local government to reduce disaster risks and enhance the climate change adaptive capacity in the Municipality of Cainta.
Rationale of the Study
The Ondoy Experience On the 26th of September 2009, Cainteños were awakened by the rush of floodwaters inside their homes caused by the nightlong rain of Tropical Depression Ketsana, more popularly known as “Super Typhoon Ondoy.” More than 90% of
2 Municipality of Cainta was flooded, causing the death of 15 people and inflicting damages worth over PHP100 million. But the tragedy in Cainta was just a tiny part of a much larger disaster. Ondoy’s record-breaking rainfall, which was greater than the average rainfall for the whole month of September, caused widespread flooding all over Metro Manila, Central and Southern Luzon, and some areas in the Visayas and Mindanao, directly affecting about 5 million people in 2,018 barangays, 172 municipalities, 16 cities of 26 provinces in 12 regions, including the National Capital Region. In the aftermath, the damage to infrastructure and agriculture was estimated at PhP11 Billion, 15,798 families had to evacuate their homes, 529 people were injured, 37 went missing, and 464 died. (National Disaster Coordinating Council, 2009) Through Ondoy, Mother Nature sent the leaders in the capital city of Manila and its surrounding areas a catastrophic wake-up call to the harsh realities of natural hazards, exacerbated by climate change. The Philippine government finally saw how vulnerable we were and the Filipino people started to become more aware of the findings and warnings of global warming scientists. And there was no choice but to respond and to prepare for future disasters.
Policy Response Less than a month after Ondoy, Republic Act 9729 or the “Philippine Climate Change Act of 2009” was signed into law, which recognized that the “State shall integrate disaster risk reduction into climate change programs and initiatives.” R.A. 9729 mandated the Climate Change Commission to formulate a National Climate Change Action Plan
3 (NCCAP), which would serve as a guide for local government units (LGUs) in writing their own Local Climate Change Action Plans. In addition, Republic Act 10121 or the Philippine Disaster Risk Reduction and Management Act was enacted in May 2010, affirming the State’s duty to “uphold the people's constitutional rights to life and property” by addressing the root causes of vulnerabilities to disasters, strengthening the country's institutional capacity for disaster risk reduction and management and building the resilience of local communities to disasters including climate change impacts. R.A. 10121 required the development and implementation of a comprehensive National Disaster Risk Reduction and Management Plan (NDRRMP) that would serve as a template for the LGUs in crafting their own Local Disaster Risk Reduction and Management Plan (LDRRMP). With President Benigno S. Aquino III’s signing of the first NCCAP on November 22, 2011 and with the finalization of the NDRRMP in September 2012, governors and mayors were expected to formulate and implement two separate local action plans, one for climate change and another for disaster risk reduction and management. However, seeing the linkages and commonalities between both policies and advocacies, it was the humble opinion of the proponents that both plans could be integrated into a single Local Action Plan for Disaster Risk Reduction and Climate Change Adaptation (LAP-DRR-CCA). This integrated plan of action is in line with the Memorandum of Understanding signed in February 2011 by National Disaster Risk Reduction and Management Council (NDRRMC) and Climate Change Commission (CCC) to “support the implementation of disaster and climate risk reduction measures
4 identified by local government units through joint disaster and climate risk information coordination and knowledge.” The formulation of the LAP-DRR-CCA for the Municipality of Cainta, which is what this Governance Innovation Report is all about, would be an effective tool for building safer and more resilient communities in Cainta.
Statement of the Problem
This study was conducted to provide answers to the following questions: 1) What were the international, national and local policies, plans, practices and programs in disaster risk reduction and climate change that had to be considered in the creation of the Local Action Plan for Disaster Risk Reduction and Climate Change Adaptation (LAP-DRR-CCA) of the Municipality of Cainta? 2) What were the natural hazards and climate change impacts which distressed the communities in the Municipality of Cainta and their vicinities that should be addressed in the LAP-DRR-CCA? 3) How did the local government officials assess the vulnerabilities of the exposed areas and the capacities of the communities in the Municipality of Cainta in terms of disaster risk reduction and climate change adaptation? 4) What were the programs, projects and activities that should be included in the LAP-DRR-CCA of the Municipality of Cainta to strengthen the resilience of the entire Municipality, in coordination with government and development agencies, the private sector, civil society organizations and other stakeholder?
5 Objectives of the Study
The main objective of this study was to create an integrated and multi-sectoral LAP-DRR-CCA that would be mainstreamed into the Annual Investment Plan of the Municipality of Cainta to help address the vulnerabilities to natural hazards and climate change impacts, to build the local capacity for disaster risk reduction and climate change adaptation, and to strengthen the resilience of the entire Municipality, in coordination with government and development agencies, the private sector, civil society organizations, marginalized groups and other stakeholders. To achieve this, the proponents used a 4-step approach: 1) Studied the international, national and local policies, plans, practices and programs in disaster risk reduction and climate change that had to be considered in the creation of the Local Action Plan for Disaster Risk Reduction and Adaptation (LAP-DRR-CCA) of the Municipality of Cainta; 2) Characterized the natural hazards and climate change impacts, which distressed the communities in the Municipality of Cainta and their vicinities and which should be addressed in the LAP-DRR-CCA; 3) Assessed the vulnerabilities of the exposed areas and the capacities of the communities in the Municipality of Cainta in terms of disaster risk reduction and climate change adaptation; and
6 4) Recommended programs, projects and activities in the LAP-DRR-CCA that should be included in the development and investment plans of the Municipality of Cainta.
Significance of the Study
Disasters happen when natural hazards, such as typhoons and earthquakes, affect places and communities that are not able to cope with the forces of nature, directly causing the loss of lives and damages to property. (United Nations International Strategy for Disaster Reduction, 2008) According to the 2011 World Disaster Report, disasters from 2001 to 2011 increased five times as there were 7,070 disasters across the continents, affecting 2.7 billion people, leaving 1.3 million dead. Not surprisingly, ninety percent of the disasters occurred in the Asia Pacific region, which is susceptible to earthquakes and weather-related catastrophes, exacerbated by climate change and the high incidence of poverty in the region. The Philippines, in particular, is classified as being at ‘extreme risk’ to the impacts of climate change and weather-related disasters since we ranked 10th in the world in the 2012 Climate Change Vulnerability Index and the Global Climate Risk Index. Our country’s average of 19 typhoons will not only increase in quantity, but also in severity. (International Federation of Red Cross and Red Crescent Societies, 2010) Eighty-five percent of our Gross Domestic Product (GDP) comes from areas that are experiencing the increasing frequency and intensity of heat waves, floods, droughts and typhoons. These
7 impacts of climate change affect our productivity in the agricultural and aquatic sectors, thus creating havoc in our food supply. These changes reduce the availability of water, making it harder to access clean water. These impacts increase the incidence of climatesensitive diseases, exposing our countrymen to a dengue epidemic. With the overwhelming evidence of climate change and the tragic experiences of natural disasters, local governments should focus on the translation of global problems and national concerns into local plans to be implemented by local government units toward more effective risk governance. If the Philipine government does not come up with a plan of action that would reduce our risks and vulnerabilities, then more deaths and losses will occur when natural disasters strike. Strategic planning is a critical first step to build safer and more disaster-resilient communities through the efficient utilization of public funds and resources and through the effective implementation of a climate and disaster risk reduction program. The age-old adage, “He who fails to plan, plans to fail,” holds true today as it always has.
Scope and Limitation
This Governance Innovation Report, in the form of an Action Plan, was an analytical study of an existing problem where the proponents provided management advice and professional support through a plan of action. (Ateneo School of Government, 2011). In the case of the Municipality of Cainta, the existing problem is two-fold:
8 1) The threats of natural hazards and climate change impacts that distress the Municipality of Cainta and its vicinity - This study limited itself to the threats of earthquakes, typhoons and floods and their corresponding impacts. 2) The vulnerabilities of the exposed areas and communities – The researchers included a Community-Based Disaster Risk Assessment to study the vulnerability to risks and the capacity of the communities to cope with the hazards. The professional support from the proponents was done through the design and facilitation of a participatory planning process in creating the LAP-DRR-CCA by conducting seminars, workshops and group discussions for the local stakeholders. The first draft of the LAP-DRR-CCA, containing the consolidated proposals and recommendations from the communities in the different barangays, also included management advice from the proponents which reflected their findings in their study of international, national and local policies, plans, practices and programs in disaster risk reduction and climate change adaptation. The draft of the LAP-DRR-CCA was submitted to local government officials who are involved in creating the Local Development Plan and the 2013 Annual Investment Plan (AIP) of the Municipality of Cainta. The inputs from the department heads and heads-of-office in the local government were used to revise and finalize the LAP-DRRCCA. The final output of this Governance Innovation Report served as the foundations of the Municipality of Cainta’s Local Climate Change Action Plan and the Local Disaster
9 Risk Reduction and Management Plan, which were both required under the law. The LAP-DRR-CCA could also serve as a supporting document of the Municipality of Cainta to be nominated for the Sasakawa Award of the United Nations’ 2010-2015 World Disaster Reduction Campaign “Making Cities Resilient: My City is Getting Ready.” The LAP-DRR-CCA was presented to the public on September 26, 2012, as a way of commemorating the third anniversary of the Ondoy Tragedy.
10 CHAPTER II REVIEW OF RELATED LITERATURE
This part of the study reviewed the various sources that relate to the objective of creating an integrated Local Action Plan for Disaster Risk Reduction and Climate Change Adaptation (LAP-DRR-CCA) for the Municipality of Cainta, in the following areas:
Understanding the natural hazards in the Philippines and in the vicinity of the Municipality of Cainta;
Recognizing the disaster risks in the Philippines and in the Municipality of Cainta; and
Describing the legal mandate of the local government.
The Natural Hazards in the Philippines
The first part of this review dealt with research on the natural hazards that affect the Philippines, with particular emphasis on earthquakes, typhoons and floods. This served as the background in our characterization of the hazards that distress the country. Here it is important to note an important distinction, as pointed out by Alcantara Ayala (2002), between “natural hazards” and “natural disasters.” “Natural hazards” are threatening events brought about by forces of nature, such as volcanic activity, earthquakes, cyclones, floods and others. On the other hand, “natural disasters” are tragic incidents that occur
11 when natural hazards have catastrophic consequences on human systems due to their economic, social, political and cultural vulnerabilities. Geographically speaking, the Philippine archipelago has 7,107 islands scattered across 1.3 million square kilometers of oceanic water between 116° 40' and 126° 34' East of Greenwich and 4° 40' and 21° 10' North of the Equator. It lies on the southwest of the Pacific Ocean and off the eastern coast of the Asian continent and is considered part of South Figure 1 The Philippines (in red) Source: http://www.wpmap.org/category/asia-maps/page/2/
East
Asia
with
such
neighbors as Vietnam to the east,
Indonesia and Malaysia to the south, and Taiwan in the north. The Philippine archipelago forms a sovereign nation officially known as the “Republic of the Philippines,” also called “home” by the 94 million inhabitants. Alongside the abundant natural resources of the Philippines, there are also natural hazards that have frequented the tropical islands since the ancient silk trade of the Malay sailors. Two primary reasons cause these natural hazards: the country is on the western
12 rim of the Pacific Ring of Fire, a region of active volcanoes and major earthquakes; and the Philippines in the Pacific typhoon belt which is often struck by tropical cyclones.1
Figure 2 Philippines in the Pacific Typhoon Belt
Bankoff (2003) presented a historical account of natural hazards in the Philippines written by chroniclers from the time of the Spanish colonization to the modern times describing the high exposure of the Philippines to geophysical hazards including earthquakes and volcanoes, meteorological hazards, specifically tropical cyclones, and hydrological events such as floods. The Philippine Development Plan 2011-2016 (2011) enumerated the natural hazards experienced by the country including 20 earthquakes per day, 22 active volcanoes out of 300, and the 20 tropical cyclones that enter the Philippine Area of Responsibility every year. The frequency of these natural phenomena in the Philippines is relatively 1
From pictures taken above the earth, a tropical cyclone resembles a huge whirlpool of white clouds. Tropical cyclone is the general term for all storm circulations that originate over tropical waters. It is called hurricane over the Atlantic Ocean, cyclone over the Indian Ocean and typhoon over the Pacific Ocean. Tropical cyclone signals: bracing for the wind, Economic Issue of the Day, PIDS, December 2005, Vol.5 No.4
13 stable, according to Gaillard, et. al. (2005 ). He showed that the annual average number of tropical cyclones, the number of earthquakes with a magnitude of 6 or higher, and the incidences of volcanic eruptions remained roughly the same in the 20th century. As shown in Figure 3, earthquakes with a magnitude of 6 or higher and volcanic eruptions also maintained a relatively stable number of occurrences. Also, tropical cyclones that cross the Philippine Area of Responsibility (PAR) have maintained an average of twenty to thirty per year, with about fifteen storms that cross the archipelago. However, the threats of cyclones and the flooding it may bring could possibly get worse for us.
Figure 3 Annual number of serious earthquakes, volcanic eruptions and typhoons between 1900-2002
Philippine Atmospheric, Geophysical & Astronomical Services Administration (PAGASA) (2005) as cited by Asian Development Bank (2009) noted the increase of 4.2 cyclones in the annual average of the frequency in cyclones entering the Philippine area
14 of responsibility during the period 1990–2003. The Philippines also had recent experiences with super typhoons. In September 2009, Tropical storm Ketsana, locally known as “Bagyong Ondoy” dumped 341 millimeters (mm) of rainfall in its first six hours over land, surpassing the highest 24-hour rainfall of 334 mm in Metro Manila recorded in 1967. (NASA, 2009) A few days later, Typhoon Pepeng, known internationally as “Parma,” brought winds of up to 230 kilometer per hour (km/hr) and rainfall of up to 1,000 mm in some areas. (2009) In August 2012, the weeklong monsoon rains known as “Habagat” resulted to another flooding disaster that hit the Municipality of Cainta and placed it under a State of Calamity. The International Federation of Red Cross and Red Crescent Societies warned that due to climate change, the Philippines’ average number of typhoons will not only increase in quantity, but also in severity. (2010) Senator Loren Legarda (2010), the principal sponsor and author of the Climate Change Act of 2009 cited a survey in October 2007 by the Nielsen Company and the Oxford University Institute of Climate Change in where respondents were asked, “How concerned are you about the following environmental issues? - Climate change / global warming?” Among the 54 countries surveyed, the Philippines topped the results with a 78% concern rating. Asian Development Bank (2009) discussed the actual and possible impacts of the observed and expected changes in extreme events and severe climate anomalies in Southeast Asia. The Manila Observatory (2010) discussed how climate change would increase the magnitude and frequency of weather hazards in the Philippines
15 caused by sea level rise, increase in average surface temperatures, and more intense rainfall. For climate change impacts, DOST-PAGASA (2011) projected seasonal temperature increase, seasonal rainfall change and frequency of extreme events in 2020 and 2050 under the medium-range emission scenario in Metro Manila and the Province of Rizal. Tropical cyclones that enter the Philippine Area of Responsibility are classified and described by PAGASA as follows:
Tropical Depression - maximum sustained winds is from 45 to 63 kilometers per hour (kph)
Tropical Storm - maximum sustained winds is from 64 to 117 kph
Typhoon – maximum sustained winds is 118 kph and higher
Gonzales (1994) as cited by Velasco and Cabanilla (2003), gave us an idea of the characteristics of the tropical cyclones that enter the PAR. Figure 4 shows the Monthly Average Frequency of Occurrence of Tropical Cyclones in the Philippine Area of Responsibility, depicting highest occurrences in the months of July, August and September, with three cyclones per month. October and November have about two per month and December has one. Cyclones from January to May are rare because this is considered the dry season. Things start to pick up again in June, which is officially the start of the cyclone/wet season.
16
Figure 4 Monthly Average Frequency of Occurrence of Tropical Cyclones
These cyclones make landfall in different parts of the country. As Figure 5 shows, the geographical zones of the country have different frequencies of tropical cyclone passage. The upper parts of northern Luzon has the most frequent passage of hydrological hazards with 5 tropical cyclones in 2 years while the Southern, Central and Western Mindanao regions have the least number of tropical cyclone passage, with an occurrence of 1 cyclone in 12 years. Our area of interest, the Municipality of Cainta lies in a zone where there are 5 cyclones in 3 years. Each island group in the Philippines is divided into regions and two regions were of particular importance to Cainta and to this study: the National Capital Region and Region VI-A, which covers the Province of Rizal.
17
Figure 5 Frequency of tropical cyclone passage over each geographical zone in the Philippines
18 In addition, Figure 6 illustrates the various paths taken by the tropical cyclones in the course of a year. It is apparent that the safest months for the Municipality of Cainta would be the during the summer months starting from January to April.
Figure 6 Geographical Zones and Tropical Cyclone Paths
Related to precipitation would be flooding. Zoleta-Nantes (2000) warned that the total flood prone area of Metro Manila, including the urbanized towns of Cainta and Taytay, is up to 103.6 square kilometers, directly affecting hundreds of thousands of residents in the area. Liongson (2010) discussed the dynamics of the system of river basins and waterways in Metro Manila and the nearby towns in their capacity to handle hydrological hazards.
19 On the topic of earthquakes, Figure 7 illustrates the Philippine Fault and other subsidiary faults and trenches that generate seismic activity in our country, causing an annual average of 887 earthquakes.
Figure 7 Distributions of Active Faults and Trenches in the Philippines
20 The Municipality of Cainta is exposed to the earthquake hazards mainly because of the Marikina Valley Fault System. Koo, et.al. (2009) reviewed the geological and tectonic setting for Central Manila and its surrounding area within 500 kilometers, including Cainta, and identified the Marikina Valley Fault system, Philippine Fault and the Manila Trench, formed by subduction of the Eurasian Plate under the Philippine Island arc, as the Figure 8 Philippine Natural Hazard Map
lead causes of seismic hazards in the National Capital Region and its nearby towns. And these tectonic factors contributed to the July 16, 1990 Luzon earthquake which had an epicenter magnitude of 7.8 on the Richter Scale, as discussed by Armillas, et.al. (1990). The Earthquake Impact Reduction Study for Metropolitan Manila (2004) cited studies of Valley Fault System, which poses the greatest threat to Metro Manila and its surrounding areas. The West Valley Fault is approaching its active phases, with estimated magnitudes of around 7 or higher. Given the above account of the literature about the natural hazards that pose threats to our country and to the Municipality of Cainta, the next part of this review described the disaster risks and impacts that these natural hazards pose.
21 Disaster Risks and Effects in the Philippines and in the Municipality of Cainta
A distinction was made earlier between natural hazards and natural disasters, emphasizing that the natural hazards combined, with the vulnerabilities of human systems, often result to great catastrophic losses and damages which then constitute the disaster. In other words, a disaster is defined in terms of how it impacts the populace and how it disrupts the social, economic, infrastructural, environmental and/or environmental sectors in the affected area. But what is a disaster? De Guzman (2003) asserted that a standard universal definition is yet to be accepted. Neil Britton supported this in the 396-page collection of articles entitled “What is a Disaster?” (Perry, 2005). But both de Guzman and Britton cited the Australian Emergency Manual’s definition as worthy of mention, stating that a disaster is a “serious disruption to community life which threatens or causes death or injury in community and/or damage to property which is beyond the day-to-day capacity of prescribed statutory authorities and which requires special mobilization and organization of resources other than those normally available to those authorities.” In a similar vein, the Philippine Disaster Risk Reduction and Management Act of 2010 defined disaster as a “serious disruption of the functioning of a community or a society involving widespread human, material, economic or environmental losses and impacts, which exceeds the ability of the affected community or society to cope using its own resources. Disasters are often described as a result of the combination of: the exposure to a hazard; the conditions of vulnerability that are present; and insufficient
22 capacity or measures to reduce or cope with the potential negative consequences. Disaster impacts may include loss of life, injury, disease and other negative effects on human, physical, mental and social well-being, together with damage to property, destruction of assets, loss of services, social and economic disruption and environmental degradation.” With these definitions in mind, this review delved into the literature about disasters in the Philippines and in particular, the Municipality of Cainta. The Global Climate Risk Index (CRI) measured by Germanwatch analyzed to what extent countries have been affected by the impacts of weather-related loss events (storms, floods, heat waves etc.). In the Long-Term Climate Risk Index for the 10-year period, from 1991 to 2010, the Philippines placed tenth in the world, with an average of 801 deaths and US$660 million in losses and damages per year. It is also worth noting that among the ten countries most affected, all of them are developing countries. These countries, including the Philippines, are often the ones least prepared to mitigate the risks of disasters. (Harmeling, 2011) Pacheco, et.al (2010), confirmed the impact of storms and floods in the Philippines, as shown in the table below where typhoons ranked as the worst disastercausing hazard, followed by floods. Typhoons and floods also account for the worst natural disasters in the Philippines, in terms of deaths and damages. Table 1 Total Damages by Top 5 Recorded Natural Disaster Types in the Philippines (1901-2009)
23 Bankoff (2003) related the pattern of tropical cyclones to the intensity of regularity of flooding in the Philippines, as cyclones bring 38 percent of the annual average rainfall in the country, especially between July and November. In addition, 56 percent of all flooding incidents were caused by typhoons, while the rest were brought about by heavy rainfall or monsoons. In Metropolitan Manila, floods affect at least 14 percent of the land area or 86.7 square kilometers, and if the towns of Cainta and Taytay are included, the total floodprone area would be 103.6 square kilometers, as noted by Zoleta-Nantes (2000), adding that the urbanization problems and political challenges were making matters worse. Ballesteros (2010) provided some staggering statistics on the slum population in the Philippines, estimating the number of slum dwellers in Metro Manila to be at 37 percent or 4 million as of 2010, and a third of them living below the poverty line. The slum areas are scattered across Metro Manila with 43 percent on government lands, 15 percent on private properties; and 15 percent in danger zones. The problem has gotten the attention of the Aquino Administration. In fact, the Philippine government, through the Philippine Information Agency has announced a P38 billion socialized housing program over the next 5 years, with an allocation of P10.55 billion in 2012 for informal settlers, prioritizing those whose homes are at-risk because they are very near rivers, creeks and other waterways. (2011) Muto (2009) supported this prioritization, stressing that the poorest among the urban poor are extremely vulnerable because they do not have enough resources to relocate from danger zones and they find it hard to cope with the consequences of frequent typhoons or floods.
24 The Annual Report Calendar Year 2010 (Department of Environment and Natural Resources Region IV-A) stated that Cainta is “no stranger to typhoons and floods.” All of the seven barangays in Cainta are vulnerable to floods since Cainta is a natural floodplain, experiencing frequent floods during strong rains. Barangay San Juan in Cainta even experienced a flood height of 5.0 meters during Typhoon Ondoy. During the Habagat Disaster in 2012, 80 percent of Cainta was submerged in rainwater with floods spanning from two feet to a high of ten feet. Six out of seven barangays were badly affected. Brgy. San Juan and Brgy. San Andres had the most number of evacuees because of the number of informal settlers in their area. Due to the geographic low-lying location of Cainta, there are about 14,000 families whose residences are prone to flooding. But the risk of disasters is greatly increased by the presence of informal settlements on the banks of rivers and waterways in and around the Municipality. An area of concern, in particular, is the Manggahan Floodway. Vicente, et.al. (2006) estimated that there are 1,153,726 informal settlers along the Manggahan Floodway that spans the localities of Pasig City, Municipality of Taytay and the Municipality of Cainta.
25 The Legal Mandate of the Local Government
Local governments have the legal duty to initiate and promote Local Economic Development policies and programs. Section 14, Article X of the 1987 Constitution in its declaration of Local Government principles states that “The President shall provide for regional development councils or other similar bodies composed of local government officials, regional heads of departments and other government offices, and representatives from non-governmental organizations within the regions for purposes of administrative decentralization to strengthen the autonomy of the units therein and to accelerate the economic and social growth and development of the units in the region.” In addition, Sections 15 of Republic Act 7160 or the Local Government Code states “Every local government unit created or recognized under this Code is a body politic and corporate endowed with powers to be exercised by it in conformity with law. As such, it shall exercise powers as a political subdivision of the national government and as a corporate entity representing the inhabitants of its territory.” And Section 16, states that “Every local government unit shall exercise the powers expressly granted, those necessarily implied therefrom, as well as powers necessary, appropriate, or incidental for its efficient and effective governance, and those which are essential to the promotion of the general welfare. Within their respective territorial jurisdictions, local government units shall ensure and support, among other things, the preservation and enrichment of culture, promote health and safety, enhance the right of the people to a balanced ecology, encourage and support the development of appropriate and self-reliant scientific and
26 technological capabilities, improve public morals, enhance economic prosperity and social justice, promote full employment among their residents, maintain peace and order, and preserve the comfort and convenience of their inhabitants.”
27 CHAPTER III RESEARCH FRAMEWORK
Conceptual Framework
This Governance Innovation Report gave attention to the impacts of climate change and natural disasters in the Municipality of Cainta. The Intergovernmental Panel on Climate Change’s (IPCC) “Climate Change 2007: The Physical Science Basis” released its scientific knowledge on climate change and concluded that extreme weather events are increasing and regional climate patterns are changing. Heat waves and other weather extremes, as well as changes in atmospheric circulation patterns, storm tracks and precipitation, can now be traced back to climate change caused by human activities. (Intergovernmental Panel on Climate Change, 2007) It was in this context that the United Nations Framework Convention on Climate Change (UNFCCC) was adopted as basis for a global response to the evident effects of climate change. The UNFCCC is an overall framework for intergovernmental efforts to confront climate change challenges in which the Philippines is a State party, committed to its core principle of common but differentiated responsibilities. (United Nations Framework Convention on Climate Change, 2012) The Bali Action Plan, decided in the Bali Climate Conference (COP 13) of December 2007, identified adaptation as one of the key building blocks required for a strengthened future response to climate change. (United Nations Framework Convention
28 on Climate Change, 2012) Consequently, The Delhi Declaration highlighted the importance of adaptation as a “high priority for all countries”. The National Framework Strategy on Climate Change (NFSCC) of the Philippines was a result of the call to prepare a National Adaptation Program of Action by the IPCC and the Bali Conference. It gave more emphasis and urgency on adaptation to risks in an area due to variable and extreme climate conditions. The NFSCC, also known as the "framework", was rooted on IPCC’s knowledge about climate change’s serious implications on the country’s efforts to address poverty and sustainable development. This served as the basis for a national program on climate change and established an agenda through the National Climate Change Action Plan. This Governance Innovation Report took off from NFSCC’s guiding principles, particularly (Climate Change Commission, 2010):
Its vision of a climate risk-resilient Philippines with healthy, safe, prosperous and self-reliant communities, and thriving and productive ecosystems;
The goal to build the adaptive capacity of communities and optimize mitigation opportunities towards sustainable development;
Make use of risk-based framework where strategies/activities shall be formulated, with decisions made based on causes, magnitude and impacts of risks;
Adaptation measures based on equity, in accordance with common but differentiated responsibility; special attention must be given to ensure
29 equal and equitable protection of the poor, women, children and other vulnerable and disadvantaged sectors;
The role of local governments as front-liners in addressing climate change; and
The value of forming multi-stakeholder participation and partnerships in climate change initiatives, including partnerships with the private sector, other government agencies and the civil society, especially with indigenous peoples and other marginalized groups who are most vulnerable to climate change impacts.
The said framework created the National Climate Change Action Plan (NCCAP) to guide the local government units in the preparation of their Local Climate Change Action Plans (LCCAP). The proponents utilized the NCCAP as template for developing the Local Action Plan for Disaster Risk Reduction and Climate Change Adaptation (LAPDRR-CCA) for the Municipality of Cainta. The framework also recognized a consultative approach that seeks the consensus of stakeholders and their meaningful participation in the formulation of the action plan. In attempting to understand the critical concepts of disaster risk, the proponents of this study came across several theoretical and conceptual developments that include a hazard paradigm, a vulnerability paradigm, resilience and extended alternative adjustments later known as adaptation.
30 Hazard Paradigm
Thirty-five years ago, a trio of scholars, Ben Wisner; Ken Westgate and Phil O'Keefe, published a paper called “Taking the Naturalness Out of Natural Disasters.” Their paper laid the foundation for something now widely agreed on - that nature makes earthquakes, landslides and floods, but humans are responsible for the deaths by failure of proper planning and putting preventive measures in place. The people most likely to die during disasters are the poor and the vulnerable. The paper by Wisner et.al. continued to spark debate worldwide while engineers, geographers, seismologists and academicians tried to push governments into investing more money in preparing for natural calamities, arguing that better building standards and policies which are more rigorously enforced could save thousands of lives; that better education, more economic development and greater social equity could buffer millions against deprivation and loss. (Radford, 2006) According to Prof. Wisner and his hazard paradigm, there is no such thing as an innocent disaster. Disaster results from the clash of two opposing forces: the socio-economic conditions creating human vulnerability and the natural processes that create geophysical hazards. As a result, the focus of attention has shifted to the needs of the most disadvantaged members of society and to the importance of vulnerability assessment and mapping in disaster risk studies, programs and projects. (Smith, 2004) This theory became the basis for the proponents of this study to look into concepts that were critical in performing a hazard assessment by understanding the origin and classification of hazards as well as the different dimensions that characterize a hazard. Specifically, this Governance Innovation Report adopted the concept of “hazardscape” that engages the
31 physical susceptibility of the Municipality of Cainta and vulnerability of its people. Hazardscape also substitutes for the term “natural hazards.”
Pressure and Release Model
Vulnerability comprised the second important element to disaster risk. People possess different capacities to deal with exposure by means of various strategies of action (Chambers, 2006). To support this theory, Blaikie et al (2004) developed the Pressure and Release Model (PAR), which is considered as the most influential thinking around vulnerability in the disaster risk field. This model explained disaster risks from a macro perspective and seeks to trace the progression of vulnerability from its root causes shaped by dynamic pressures that can give rise to unsafe conditions. These three forces are defined as follows (Schilderinck, 2009):
Root causes (or underlying causes) are a set of well-established, widespread economic, demographic and political processes within a society that give rise to vulnerability (and reproduce vulnerability over time) and affect the allocation and distribution of resources between different groups of people;
Dynamic pressures are the processes and activities that transform the effects of the root causes into vulnerability and channel the root causes into particular forms of uncertainty related to hazards such as population growth, rapid urbanization and deforestation;
Unsafe conditions are the specific forms in which the vulnerability of a population manifests itself in time in conjunction with the hazard. This may occur through
32 such processes as fragile local economic conditions, lack of disaster planning and preparedness and a fragile environment. Figure 9 below summarizes the PAR Model and shows how disasters occur when unsafe conditions are combined with physical exposure to hazards.
Figure 9 Pressure and Release Model (PAR)
Access to Resource Model and Human Vulnerability Framework This study also referred to Wisner et. al.’s (2004) Access to Resource model, which acts as a complement to their PAR model. (Benjamin, 2009) It explained how unsafe conditions at the household level influence their capacity to cope with disasters. This model compelled the proponents of this study to look into the level of access to resources
33 of the communities in Cainta and to gauge their capacities to respond to the impacts of hazards. Resources referred to here could be economic (e.g. income, loans, employment), related to health or infrastructure (including communications) or be information-based. Figure 10 below summarizes this model. Box 1 shows the normal life of households, whose choice of a specific livelihood is limited by the unsafe conditions (box 2) and influenced by the household’s social relations (box 1a) and surrounding structures of domination (box 1b). During normal times, households create a form of defense coined as “social protection” to save their livelihoods from disruptions. Social protection is a repeating process (expressed as t1, t2, t3 and tn) but can also operate at the public level in the form of preparedness plans provided by the government or the community. Hazards (Polygon 3 in Figure 10) have both spatial and temporal dimensions (Polygon 4) that can often depend on a trigger event (Polygon 5). In Polygon 6, the event hits the households, having different effects depending on the level of social protection. A low level can turn the event into a disaster. The impacts of the disaster and the household’s responses to them are iterative for a period of time (Polygon 7). After this period the households have the choice of either passively waiting for the next disaster or to strengthen their capacities and social protection as preparation (Polygon 8). Improved access to resources is the key mechanism through which households could improve their livelihoods, make them sustainable, and increase their resilience against shocks and their capacity to restore their livelihoods after a disaster. (Schilderinck, 2009)
34
Figure 10 The Access to Resource Model
The Access to Resources model shows a clear relation between vulnerability and livelihoods and serves the same function of resistance as livelihood does in Dr. Mark Pelling’s Human Vulnerability Framework. Figure 11 below further illustrates Pelling’s Human Vulnerability Framework.
35
Figure 11 Pelling's Human Vulnerability Framework
Since it is critical to acknowledge the importance of resilience in disaster risk, the proponents factored in resilience in its risk assessment component. This study used the issues around livelihood and social protection to strengthen its vulnerability assessment. Capacity assessment, a participatory process, was used to understand how the communities cope with and survive in times of crisis. Therefore, to generate a balanced approach to disaster risk assessment, this study required both hazard characterization and vulnerability and capacity assessment, using the above-mentioned context.
36 Theoretical Framework
This Governance Innovation Report was based on the mainstreaming guidelines framework formulated by the National Economic and Development Authority (NEDA) to mainstream DRR and CCA in local development plans. The overall theoretical framework presented below guided the proponents in the conduct of this study:
Threats of Natural Hazards
Impacts of Climate Change
Barangay / Community-Based Disaster Risk Assessment
Local Development Planning
Hazard Characterization/ Assessment
Planning Environment Social Economic
Vulnerability and Capacity Assessment
Vision
Institutional Environment al
Infrastructure & Land Use
Issues/ Vision-Reality Gaps
Sectoral Goals, Objectives and Targets
AIP
Sectoral Programs, Projects, Activities
Budgeting
Figure 12 LAP-DRR-CCA Planning Framework
37 The framework illustrated in Figure 12 involved two processes and described the steps this study went through in disaster risk assessment and identification of their entry points in the local development planning process. (National Economic and Development Authority, 2008) The process started with a community-based disaster risk assessment (DRA) focusing on hazard characterization, vulnerability and capacity assessment. The second process looked at how the results of the risk assessment were used to enhance the aspects of the development planning process: from visioning; profiling; analyzing visionreality gap; transforming issues into goals, objectives and targets; and specifying the appropriate Programs, Projects and Activities (PPAs). The PPAs should exhibit reduction in risks by increasing resilience or reducing the vulnerability of Cainta. This paper also highlighted the fact that good governance requires the integration of reducing vulnerability and risk to natural hazards in order to achieve sustainable development especially in the Municipality of Cainta. (Siebert, Mollen, & Rosales, 2008)
Operational Framework
This study used a community-based disaster risk assessment that involved a) hazard characterization, b) vulnerability assessment, and c) capacity assessment. On the other hand, the entry points in the plan were in the following: a) analysis of the multi-sectoral planning environment, b) identification of issues and problems, c) formulation of goals, objectives and targets, and d) identification of programs, projects and activities.
38 This study went through a participatory risk assessment and planning process in four phases illustrated in Figure 13 discussed in detail in the next chapter. Phase 1 Convened the Cainta DRR-CCA Summit Multi-stakeholder campaign: 7 barangays HOAs Business Sector Religious Sector Youth Academe CSOs NGOS Informal Settlers PWDs
Phase 2
Phase 3
Phase 4
Conducted CommunityBased Disaster Risk Assessment & Planning
Developed the Municipality of Cainta’s LAPDRR-CCA
Building a Culture of Safety and Resilience in Cainta
Barangay Disaster Planning Workshop Multi-sectoral approach DRA Report
Grassroots approach Multi-sectoral PPAs 2013 Annual Investment Plan
Presentation of LAP-DRR-CCA Multi-stakeholder (Summit participants) Sasakawa Award
Figure 13 Operational Framework for the Creation of Municipality of Cainta's LAP-DRR-CCA
To realize the adoption of appropriate and adequate countermeasures to prepare for and reduce disaster risks, a participatory and systematic process was used to identify and assess the hazards which threaten the community and the communities' vulnerabilities and capacities at the barangay level. It involved an understanding of how people perceive and measure disaster risks. The level of understanding of the community on their natural disaster risks – hazards, vulnerabilities and capacities –influence their level of resilience and the proper identification of appropriate and adequate risk reduction measures. (United Nations International Strategy for Disaster Reduction, 2012) Hence it was important to assess the
39 people’s perception of risk, nature and behavior of hazards, elements at risk and their survival or coping strategies and what resources they could use in disaster management activities. This particular phase of the study, illustrated in Figure 14 showed that these four contribute to the elements of the Municipality of Cainta’s LAP-DRR-CCA, particularly its programs, plans and actions. This second operational framework also shows how the components of disaster risk assessment work together to generate data for a situational analysis needed to come up with community development projects. INDEPENDENT VARIABLE
DEPENDENT VARIABLE
PEOPLE’S PERCEPTION OF THEIR DISASTER RISK Socio-economic status Culture Insiders (community members) and outsiders Common understanding Local knowledge plus scientific and technical information
DISASTER RESILIENT MUNICIPALITY OF CAINTA
OTHER COMPONENTS OF COMMUNITY-BASED DISASTER RISK ASSESSMENT Hazard Vulnerability Capacity
No informal settlements built on flood prone areas Inclusive, competent and accountable local government Shared information base Empowered people Steps to anticipate and mitigate disaster (and climate change) impacts Able to respond, implement immediate recovery strategies and cope 10-Point Checklist
Figure 14 Operational Framework Toward a Disaster Resilient Municipality of Cainta
40 Operational Definition of Terms
The Local Action Plan referred to in this Governance Innovation Report ensured the strong focus of DRR and CCA by integrating both into one local action plan. It sought to incorporate a comprehensive risk-reducing approach in climate change adaptation in the Municipality of Cainta’s programs, projects and activities and its Annual Investment Plan (AIP) for 2013. The definitions in this study were taken mainly from the IPCC (as used in the Philippine Climate Change Act of 2009) and UNISDR combined with relevant definitions found in the literature review. Hazard – a potentially damaging physical event, phenomenon or human activity that may cause the loss of life or injury, property damage, social and economic disruption or environmental degradation. (United Nations International Disaster Reduction , 2009) It can include potential conditions that may represent future threats and can have different origins. For the purpose of this study, the proponents only focused on natural hazards specifically earthquake, tropical cyclones/ typhoons, and flood. It can be characterized by its location, intensity and probability. This study also recognized hazard as the primary cause of human vulnerability. Vulnerability – the degree to which a system is susceptible to, and unable to cope with, adverse effects of climate change, including climate variability and extremes. Vulnerability is a function of the character, magnitude, and rate of climate change and variation to which a system is exposed, its sensitivity and its adaptive capacity. (Source:
41 IPCC) The concept of vulnerability is central to disaster risk reduction. All individuals and communities are to varying degrees vulnerable to hazards and all have capacities to reduce their vulnerability. There are many dimensions of vulnerabilities according to the elements at risk – physical, social, economic and environmental. This study worked with the physical and social dimension of the concept where physical vulnerability refers to exposure to hazards and includes environmental elements as well as location and standards of infrastructure while social vulnerability includes the overall organizational system. This concept when used in the study also covered the mechanisms to address these vulnerabilities by influencing the community’s capacity to cope with and adapt to the changing environment. High Risk Areas/ Danger Zones – areas at risk because they are prone to flooding and earthquake hazards Capacity – positive factors that increase the ability of people and the society they live in to cope effectively with hazards that increase their resilience or that otherwise reduce the susceptibility of a community to the impacts of hazards. (United Nations International Disaster Reduction , 2009) Coping Capacity – the means by which people or organizations use available resources and abilities to face adverse consequences that could lead to a disaster. (United Nations International Disaster Reduction , 2009) The strengthening of coping capacities usually builds resilience to withstand the effects of natural hazards. Resilience - this is the capacity of a system, community or society to resist or to change in order that it may obtain an acceptable level in functioning and structure. This is
42 determined by the degree to which the social system is capable of organizing itself, and the ability to increase its capacity for learning and adaptation, including the capacity to recover from a disaster. (United Nations Development Program, 2006) According to Pelling’s (2003) framework discussed previously, resilience is the ability of people to cope with or adapt to hazard as the effect of planned preparation undertaken or adjustments made. Risk – the probability of harmful consequences, or expected loss of lives, people injured, property, livelihoods, economic activity disrupted (or environment damaged) resulting from interactions between natural or human induced hazards and vulnerable conditions. (United Nations International Disaster Reduction , 2009) This definition comprises both the biophysical hazard and vulnerability and was used in this study as it assessed the impacts and identified and reduced the vulnerabilities as a result of climate change. Climate-related risks come not only from direct exposure to natural hazards such as floods, but also from the vulnerability of social and economic systems to the effects of these hazards. Responses to these risks should combine two approaches: short-term measures to react to hazards when they occur; and structural reforms that enhance the capacities of communities to adapt. This study covered both aspects in coming up with a comprehensive LAP-DRR-CCA for the Municipality of Cainta. Disaster – a serious disruption of the functioning of a community or a society causing widespread human, material, economic or environmental losses which exceed the ability of the affected community or society to cope using its own resources. (United Nations International Disaster Reduction , 2009) A disaster results from the combination
43 of hazards, vulnerable conditions and insufficient capacity or measures to reduce the potential negative consequences of risk. Simply put, a disaster cannot occur if only a hazard exists but there is no vulnerable population or vice versa (Wisner, Blaikie, Cannon, & Davis, 2003). Thus, disaster involves the extent and types of vulnerability produced by people’s situations and the manner by which society deals with hazard in terms of mitigation and preparedness. (Cannon, 1994) In the case of Cainta, the onslaught of Ondoy brought serious disruptions of the functioning of the entire municipality involving human, material, economic and environmental losses and impacts, which exceeded the ability of the local government to cope using its own resources. (United Nations International Disaster Reduction , 2009) Risk Assessment – as stated in the operational framework, risk assessment was carried out to identify which hazards are more likely to occur and to have the biggest impact to the community or individual resources. It has two distinct components: Hazard assessment; and Vulnerability and Capacity assessment. Risk Management – the systematic management of administrative decisions, organizations, operational skills and responsibilities to apply policies, strategies and practices for disaster risk reduction. (United Nations Development Program, 2006) Disaster Risk - Risk to human populations is determined by the frequency of a hazard event, its intensity and people’s vulnerability (O’Brien et al, 2006). Risk to a disaster or “disaster risk” therefore refers to the probability of harmful consequences, or expected losses (such as deaths, physical injuries, property damages, livelihoods and economic activity disruption, or environment damaged) resulting from the interaction
44 between natural or human-induced hazards with the physical, environmental, social and economical vulnerabilities of society (UNISDR, 2004 and 2005). Disaster Risk Reduction – the systematic development and application of policies, strategies and practices to minimize vulnerabilities and disaster risks throughout a society, to avoid (prevention) or to limit (mitigation and preparedness) adverse impact of hazards, within the broad context of sustainable development. (United Nations International Disaster Reduction , 2009) It speaks of adjustments in describing a planned preparation as a result of being resilient. Prevention – activities to provide outright avoidance of the adverse impact of hazards and related environmental, technological and biological disasters. (United Nations Development Program, 2006) Mitigation – this term refers to the measures aimed at minimizing the frequency, scale, intensity and impact of a natural or man-made disaster on a nation or community in terms of casualties and damages. It also referred to measures designed to prevent natural phenomena from causing disasters or emergencies. (United Nations Development Program, 2006) In simple terms, it means “to make less severe”. Preparedness – this refers to pre-disaster actions and measures being undertaken in advance to avoid or minimize loss of life and property. Measures may include community organizing, training, planning, hazard mapping and public information and effective early warning. (United Nations Development Program, 2006) In general, it is strengthening the capacity of communities to withstand, respond to and recover from hazards, and of
45 government and implementing partners to establish speedy and appropriate interventions when the communities’ capacities are overwhelmed. Climate Change – The Philippine Climate Change Act referred to this as a change in climate that can be identified by changes in the mean and/or variability of its properties and that persists for an extended period, typically decades or longer, whether due to natural variability or as a result of human activity. Adaptation – IPCC defined adaptation as a response to (potential) environmental stimuli that affect given entities, subjects or systems. Climate change adaptation (CCA) is an adjustment in natural or human systems, which occurs in response to actual or expected climatic changes or their effects. The term “adaptation” was used in this study more than “coping,” for the latter connotes the “helpless victims” of disaster that are in desperate need of outside relief assistance. This study moved out of the way disaster victims in developing countries are seen and veer to a more proactive term: adaptation which refers to the vulnerable people’s way of finding themselves in everyday disaster situations that require them to learn to live with the situation and adjust their lifestyles accordingly. Adaptation and DRR have similar aims – to build people’s resilience in the face of hazards. There are also important differences to note; DRR includes non-climatic disasters such as earthquakes, and adaptation addresses the longer-term impacts of climate change, such as the loss of biodiversity. (Institute of Development Studies, 2008) Mainstreaming – This refers to the integration of disaster risk reduction policies and measures that address climate change into local development planning and sectoral decision-making. This study noted that climate change is inevitable therefore it is
46 important for flood prone areas like Cainta to anticipate, reduce and manage disaster risks by integrating reduction measures into sustainable development planning. The conceptual framework in Figure 12 took off from the standard local planning process, mainstreaming DRR and CCA in the various programs, plans and action. Hence DRR and CCA become part of the day-to-day business of the local government of Cainta and its stakeholders. Liquefaction –a phenomenon that pertains to the behavior of a soil’s reaction to stressors causing it to behave like a liquid. This study referred to earthquake liquefaction as a probable hazard applicable to the Municipality of Cainta. Earthquake liquefaction used in this GIR refers to land instability or the cracking and movement of the ground down slope or towards margins of river, streams or coast. (Wikimedia Foundation, Inc. , 2013)
47 CHAPTER IV RESEARCH METHODOLOGY
The creation of Cainta’s LAP-DRR-CCA used a participatory process, wherein the local government worked together with key stakeholders in assessing the risks and in planning for programs, resulting in resilient and safe communities for the constituents. Partnership arrangements, in written form, were made between the public and the private stakeholders, enabling the cooperation of concerned parties from the initial planning stages to the implementation of the plans, and even to the evaluation.
Research Design
This Governance Innovation Report entailed the creation of the Municipality of Cainta’s Local Action Plan for Disaster Risk Reduction and Climate Change Adaptation (LAP-DRR-CCA). Throughout the process of creating the LAP-DRR-CCA, the proponents provided management advice and professional support in guiding the local government officials and key stakeholders in a participatory planning process using the LAP-DRR-CCA Planning Framework (Figure 12), adapted from NEDA’s Mainstreaming DRR Guidelines Framework. The original timeframe meant for the phases to be done sequentially. However, unintended and unforeseen events such as the Habagat Disaster in August 2012
48 compelled the proponents to carry out the phases simultaneously. The concurrent activities and milestones were done to keep up with the backlog caused by the Habagat disaster, with the purpose of achieving this study's overriding goal of including the LAP for DRR and CCA in the Municipality of Cainta's CY 2013 budget hearing. Table 2 GIR Timetable
FEB
MAR
APR
MAY
CONCEPTUALIZATION PHASE PRELIMINARY DATA GATHERING
JUN
PHASE 1
SEPT
PHASE 2
BDRRM Orientation (Jul 26-27)
MAY
JUN
OCT
JUL
AUG
Plan Refinement
Presentation of LAP-DRR-CCA (Sep 26)
SEPT
OCT
MDRRMC
RESILIENCE Workshop (May 7-11)
DRR-CCA Summit (Jun 24)
CBDRRM Seminar (Jun 13-14)
Figure 15 Milestones and Activities Timeline
NOV
PHASE 4
BDRRM Planning (Jul 30-Aug27)
CBDRRM Orientation (May17)
GIR Proposal (Apr 14)
AUG PHASE 3
Community Survey (May 22-31)
APR
JUL
Review
LAP Consolidation (Aug 27-Sep 19)
Budget Hearing (Sep 27-28)
NOV
49 Phase 1: Cainta DRR-CCA Summit and Data Gathering
Following the format of the Flood Summit organized in 2010, the local government of Cainta launched a multi-sectoral campaign for disaster resiliency through the Cainta DRR CCA Summit by inviting the officers and members of the seven barangays, the homeowners associations, the business sector, the youth, the academic community and people’s organizations including the non-government organizations, civil society organizations and the religious sector. The Summit laid the groundwork for the participatory process in the LAP-DRR-CCA. With the leadership of the local chief executive, one of the proponents of this study, the DRR-CCA Summit became a venue for effective communication and constituency building by involving local stakeholders as early as possible to ensure their support and commitment in the succeeding phases of the study. Using the research undertaken by the proponents in rethsponse to the first objective of this study, a presentation of the institutional and legal framework of DRR and CCA was presented in the summit to help explain the rationale and the significance of the creation of the LAP-DRR-CCA. Other objectives of the summit included the establishment of baseline data and the identification of the communities and areas, which have the need for a Disaster Risk Assessment in Phase 2. The Summit was held on June 24, 2012 at the Entertainment Center Phase II of Sta. Lucia East Grand Mall in Cainta. More than 300 participants attended the event, broken down into the following sectors:
50 Table 3 Sectoral Representation of DRR CCA Summit
SECTOR Academe Private Informal Settler Homeowners’ Association LGU, Barangay NGO CSO Persons with Disabilities Youth Religious Media
NUMBER OF PARTICIPANTS 42 26 22 51 45 34 28 6 31 22 5 TOTAL: 312
In the Summit Overview provided by Ms. Cecil Benavidez from the Asian Research Center for Climate Change, it was mentioned that the summit intended to increase the level of preparedness of the people when typhoon strikes and to lower its impact. The summit urged the participants to do their share and not just rely on the local government to deal with the hazards and disasters brought about by the change in climate. The speaker called on the participants to join in the preparation to respond better to climate change. (See Appendix 1 for PowerPoint presentation) Mr. Rizalino Timbol, OIC-Municipal Administrator, delivered the welcome address and his key message was to together toward making Cainta a disaster resilient community. The next part of the summit set the perspective of the summit through technical presentations by experts from the government. It started by localizing DRRM, presented by Director Vicente Tomazar, Regional Director - Office of Civil Defense Region IV-A. His presentation differentiated hazards from disasters and enumerated their respective effect on people's lives. He said that in terms of safety, everyone was responsible for their
51 own safety and in order to minimize the effect and damage of disasters, preparedness plans must be in place at the soonest possible time. The plans, he said, must be community-driven and centered on hazards. Since problems were identified per community, solutions must also be unique to the communities. It is vital to know the available resources before planning. After presenting the technical definitions and descriptions of disasters, hazards and climate change effects, they were brought down to the local setting of natural and humaninduced disasters focusing only on three: typhoons, floods and earthquakes. Director Renato Solidum of Phivolcs emphasized the risk reduction measures that need to be followed:
Surveillance
Safe location
Safe construction
Safe workplace, school
Safe individual, family
Simulate possible responses
Save the environment The summit also laid the ground for the urgency of establishing DRRM and CCA
plans for Cainta. Director Josefina Castilla-Go, Regional Director - DILG IV-A, gave the facts and figures of the damages caused by disasters in Cainta, which she said were compelling reasons for the creation of the plans and programs for action. There is enough mandate or advisory that serve as basis for the creation and integration of a local action
52 plan in DRR and CCA. Mainstreaming DRRM and CCA in the local development process would allow Cainta to be proactive and not only act when there is calamity. For this to happen, the local development plan of Cainta must be updated to incorporate the respective DRRM plans and CCA measures. In line with this is the strengthening of the capacity of the LDRRM office and personnel to be equipped in disaster management and for the communities in Cainta to be ready at all times. The speaker urged all sectors to do more than belong and participate and always work under the spirit of solidarity and teamwork. Mayor Ramon Ilagan, one of the proponents of this study, ended the summit by emphasizing that everyone should face the threats of disasters and the impacts of climate change by being prepared and ready. He said that everyone is part of the solution and that the solution should start from each one of us. In summary, the summit was able to achieve the following results: 1) enhanced the culture of gender-sensitivity and disaster preparedness among all sector participants as basis for adopting measures and establishing strong mechanisms required for effective response and early recovery. 2) promoted understanding on various aspects of DRR and CCA from prevention/ mitigation, preparedness, response to recovery and rehabilitation. 3) determined and defined sectors' respective tasks and their contributions to disaster preparedness efforts of the LGU. 4) prepared a Sectoral Emergency and Adaptation Plan of Action
53 Phase 2: Community-Based Disaster Risk Assessment Using the United Nations Development Programme’s “Integrating Disaster Risk Management in Local Governance: A Facilitator’s Guide and a Sourcebook for Barangay Disaster Risk Management Training Workshop”, the proponents assisted the local government in conducting community-based disaster risk assessment and planning focus group discussions in all the seven barangays of Cainta. Through the "Cash for Work" program of the Municipal Social Welfare and Development (MSWD) headed by Ms. Leonor de Guzman, the proponents of this study worked with Mr. Angelo Apostol of the Cainta Municipal Disaster Risk Reduction and Management Office (CMDRRMO) to train ninety (90) community leaders from high-risk areas particularly of Barangay San Andres to conduct a community survey. The activity deemed as CBDRRM Orientation held last May 17, 2012 at the PFCI Session Hall, East Bank Floodway, Barangay San Andres, included discussions and presentations on the following:
Basic information on DRR and the salient provision of RA 10121 useful in the development of community disaster risk reduction plans;
Fundamental approaches, principles and processes of DRR;
Leveling-off and establishing common understanding on DRR; and
Reviewing and analyzing the survey by area.
The Community Survey used a capture data form, which enabled the community leaders to gather necessary information on the vulnerability level and get baseline data on the communities' hazard and risk assessment. Data gathering commenced on May 22,
54 2012. On June 13-14, 2012, a 2-day CBDRRM Seminar was conducted to discuss the community leaders' actual survey experience and to understand the result of the information collected. The seminar also included the following:
Practical Tips on "What to do in times of disasters and calamities";
Workshop on "Home and Community Disaster Survival";
Workshop on Earthquake and Fire Drill - How To's; and
Community-based Flood Early Warning Systems (CBFEWS)
Phase 3: Municipality of Cainta's LAP-DRR-CCA
On May 7 - 11, 2012, officers and representatives from Cainta attended a workshop on Local Disaster Risk Reduction And Management Plan (LDRRMP) sponsored by the Canadian International Development Agency (CIDA) and United Nations Development Program (UNDP) in partnership with the NDRRMC as part of Building Community Resilience and Strengthening Local Government Capacities for Recovery and Disaster Risk Management or RESILIENCE Project. This 5-day workshop was conducted to help LGUs formulate or update their local DRRM Plan that served as a road map on how to implement gender-responsive DRRM initiative and to align with the National DRRM Framework and National DRRM Plan. The workshop was specifically designed to assist the cities of Pasig and Marikina and the Municipality of Cainta in creating their respective DRRM Plans. Cainta spent the whole month of May 2012 to formulate their draft DRRM action plan termed as the Local Disaster Risk Reduction and Management Plan (LDRRMP) of Cainta.
55
L ocal D isaster R isk R eduction & M anagement P lan of Cainta
PRODUCT OF A CONCERTED PLANNING
Represented by almost all Departments and local functionaries
Represented by various local partners (DepEd, BFP, Local Police, BJMP, Women, Youth Sector
Done in Subic under the Resilience Project on May 711, 2012
(2013-2017)
4 THEMATIC AREAS OF DISASTER
Basis of Planning
1. Prevention & Mitigation 2. Preparedness 3. Response
Basis of planning
4. Recovery & Rehabilitation SUMMARY
LDRRMP FORMULATION FRAMEWORK
Figure 16 Drafting the LDRRMP of the Municipality of Cainta
On July 26-27, the proponents joined a Barangay Disaster Risk Reduction Management Planning Workshop (BDRRMPW) for the seven barangays in the Municipality of Cainta led by the CMDRRMO. This 2-day planning workshop held at Sierra Madre Resort in Tanay, Rizal was done to strengthen the Local Disaster Risk Reduction System of the local government and as technical assistance to its barangays to be DRR-compliant Barangays. This planning workshop was as a product of the mentoring process by the Cainta Municipal DRRM Office, in coordination with the DILG-MLGOO,
56 in order to assist each barangay in its formulating its own Barangay Disaster Risk Reduction and Management Plan. Specifically, the planning workshop helped the seven Barangays in the development and formulation of policies and plans as well as implement actions and measures that concern various aspects of DRRM, risk assessment, awareness raising, reduction of underlying risk factors and preparedness for effective response and early recovery. Each Barangay sent their respective BDRRMC members including duly recognized NGOs and produced the following outputs or outcomes: 1) A common understanding on DRR as input to the BDRRM plans and programs; 2) Increased knowledge on first hand response in times of disasters and calamities; 3) Increased understanding on resource allocation and mobilization for DRR specifically finding budget and means to disburse at the barangay level the Disasater Risk Reduction Management Fund (DRRMF); and 4) Barangay Disaster Risk Reduction and Management Plan (BDRRMP) for 2013. Using a grassroots approach to disaster resilience planning, the proponents collected and analyzed the outputs and recommendations formulated by the various communities during Phase 2 and the BDRRMP. Similar to the planning process in the communities, the proponents worked with local government officials to create a multi-sectoral LAP-DRR-
57 CCA for the Municipality of Cainta taking off from the draft LDRRM Plan. In order for the recommended Programs, Projects and Activities (PPAs) of the LAP-DRR-CCA to be implemented, the PPAs were included in the 2013 Annual Investment Plan (AIP) of the Municipality of Cainta, through the leadership of the local chief executive.
Phase 4: A Culture of Safety and Resilience in Cainta
The participatory planning process came full circle in this phase as the local government invited the participants of the DRR CCA Summit to a forum where the LAPDRR-CCA was presented to them. More than 200 participants and guests attended the forum held on September 26, 2012 at the People's Center at the Municipal Compound that marked the third anniversary of Supertyphoon Ondoy. This activity served as a reminder to the people of Cainta of the threats of natural disasters and the impacts of climate change. The occasion was also used to rally support for the Municipality of Cainta’s nomination to the Sasakawa Award of United Nations’ 2010-2015 World Disaster Reduction Campaign “Making Cities Resilient: My City is Getting Ready.”
58 Locale of the Study
Geographic Location and Population The first-class urban Municipality of Cainta in the Province of Rizal, known as the “Gateway to the East,” is the most populous municipality in the Philippines 2 , with a population of 289,833 on a land area of 4,299 hectares (26.81 sq km). With a population density of 11,810.63 people per sq km, highest in the province of Rizal, the municipality experiences rapid (high) urbanization that results to an expansion of informal settlers who are more exposed to hazards and disasters brought by living in unsafe sites (i.e. flood prone areas). An integration of DRR with CCA therefore becomes key to sustainable development in Cainta and in attaining their vision of striving to be a prosperous, progressive and habitable city of responsible residents. Cainta is bounded on the north by Marikina City and San Mateo, on the west by Pasig City, and on the east and south by Taytay. It lies in the Marikina Valley, with 10 percent rolling hills and 90 percent residential-industrial flatlands.
2
Official population data (as of Aug 1, 2007) show that Bacoor, Cavite which is now a city used to be the most populous municipality in the Philippines. Cainta’s aspiration to also become a city has been endorsed by the League of Cities of the Philippines, based on the requirements set by the Constitution and the Local Government Code. (Pasaylo, 2011)
59
Figure 17 Geographic Location of Cainta
There are seven barangays in the Municipality of Cainta and according to the 2007 Philippine Census Information; they have the following population figures: Table 4 Population per Barangay
BARANGAYS San Andres San Isidro San Juan San Roque Santa Rosa Santo Niño Santo Domingo
POPULATION 100,147 47,393 87,015 7,802 1,589 6,609 39,278
60 Political Subdivision
Barangay San Isidro has the largest land area and is the third most populous barangay in Cainta. It is situated in the northern part bounded by the City of Antipolo in the east, Marikina City in the north, and Pasig City in the south. Barangay Sto. Domingo is the second largest barangay in terms of land area. It is bounded by Barangays San Isidro in the north, San Andres in the south, and portions of Barangays Sto. Niño and Sta. Rosa in the
Figure 18 Seven Barangays of Cainta
east.
Barangay San Juan is located at the eastern side of Cainta. It is separated from Barangays Sto. Niño, San Andres and San Roque by the Cainta River. Barangay San Andres, the most populous barangay, is also located at the eastern side of the Municipality and bounded by Barangays Sto. Domingo in the north, Barangay San Juan in the east and Pasig City in the south. Barangay San Roque is the least populous barangay. Barangay Sto. Niño is the second smallest Barangay with a land area of 41.14 hectares while Barangay Sta. Rosa is the smallest with a land area of only 2.77 hectares.
61 Table 5 Land Areas of the Seven Barangays
BARANGAY
AREA (IN HECTARES) Barangay San Andres 322.96 Barangay San Isidro** 2,158.90 Barangay San Juan** 675.5 Barangay San Roque 66.96 Barangay Sta. Rosa 2.77 Barangay Sto. Niño 41.14 Barangay Sto. Domingo** 1,021.29 Total 4,289.52 ** areas where disputed territories are located Source: Municipal Assessor’s Office
Rivers and Waterways Cainta has the highest number of rivers and streams in the Province of Rizal. It is traversed by five rivers: Cainta River (20 kilometers long), Taytay River, Buli River, Bulao Rive and Samberga River and three creeks: Balanti Creek, Habangan Creek and Palilingonan Creek, which all drain into the Laguna Lake. As is evident in the river network map in Figure 19, Cainta is a natural flood-plain since it is a low-lying area that becomes the “catch basin” of rainwater from the mountains of Antipolo. But with the worsening state of the waterways and rivers, combined with the urbanization problems and the impacts of climate change, the flooding in Cainta has become a grave concern for the local government.
62
Figure 19 Cainta River Network Map
The experiences with Super Typhoon Ondoy brought many lessons to the people of Cainta, especially the local government. Since then, the development of flooding mitigation strategies for Cainta has been a top priority for the municipality. A 1.2 kilometer drainage interceptor in a low-lying area in Barangay San Andres was recently constructed. Continuous dredging and desilting of major waterways such as the Cainta River and nearby creeks and tributaries have also been ongoing simultaneously with sewer rehabilitation and riprap construction.
63 Soil and Topography Cainta used to be an agricultural land but due to the increase in population and rapid urbanization, the need for residential, commercial and industrial land eventually reduced the agricultural activities and eventually gave way to commercial, residential and industrial establishments. Cainta's topography is generally level to nearly level (62%) with few sloping areas. A detailed slope category is indicated in the table below: Table 6 Slope Category
SLOPE CATEGORY (%) 0 - 2.5 2.6 - 5 5.1 - 10 10.1 - 15 18 - 25
AREA (HECTARES) 2,660.80 368.28 1,049.59 105.89 115.09
PERCENTAGE (TOTAL LAND AREA OF CAINTA) 62% 9% 24% 2% 3%
DESCRIPTION
Level to nearly level Very gently sloping Gently sloping Moderately sloping Strongly sloping
Major Fault System
Cainta is crossed by the south - southeast trending Binangonan Fault otherwise known as the East Marikina Valley Fault, which roughly represents the boundary between Cainta's lowland and its hills.
64
Figure 20 Ground Shaking Map
Public Funds for Public Services
Effective fiscal management has direct impacts on the budgetary allocations of the services provided to the public, especially in today’s decentralized government structure where local government units are tasked to promote the general welfare and provide the basic services and facilities for the people. To ensure that the people’s needs are addressed and the municipality’s priority programs have sufficient funds, getting Cainta’s financial house in order was a priority for Mayor Ilagan.
65 The Municipality of Cainta has doubled its annual revenues from PhP331 million when Mayor Ilagan started in 2004, to PhP673 million in 2011. With the help of the Municipal Treasurer, Mr. Ed Villanueva, who is now the treasurer of Quezon City, and the budget head, Ms. Privada Gonzales, Cainta has consistently improved its financial condition and performance. Table 7 below gives a glimpse of how the Municipality of Cainta has consistently met its target income and increased its annual revenues. The revenues are channeled directly into public services that meet the municipality’s needs.
Table 7 Target Income and Annual Revenues (2004-2011)
YEAR 2004 2005 2006 2007 2008 2009 2010 2011
TARGET INCOME 340,000,000 405,000,000 450,000,000 450,000,000 480,000,000 550,000,000 600,000,000 650,000,000
ACTUAL INCOME 331,125,023.15 399,598,162.77 422,325,300.13 476,327,566.15 498,854,846.52 563,395,321.97 624,623,594.56 673,321,327.33
% INCREASE 20.68% 5.69% 12.79% 4.73% 12.94% 10.87% 7.80%
ACTUAL EXPENSES 209,449,921.92 301,445,151.80 344,434,548.20 415,211,956.03 420,184,786.27 484,840,719.33 508,432,292.56 550,882,421.24
In addition, almost half of business taxes amounting to PhP474 million collected in 2010 from the municipalities by the Provincial Government of Rizal came from Cainta with a contribution of PhP206 million. Cainta, despite being the locality with the smallest land area of about 43 square kilometers, is also the biggest municipal contributor to the province’s real property taxes. The good financial standing of the Municipality of Cainta is reflected in the “Commission on Audit’s 2009 Annual Financial Report for Local Governments,” as detailed in the figure below:
66 Table 8 Commission on Audit's 2009 Annual Financial Report for Rizal
With equity or net assets of P1.464 billion and a gross income of P627 million, the Municipality of Cainta is considered as one of the richest municipalities in the country. The graph in Figure 21 charts the equities (net assets) and gross incomes of the top ten wealthiest municipalities in the Philippines. Having sufficient funds meant that the LGU of Cainta is in a position to allocate budgetary resources to serve the people. As Gov. Joey Salceda of the Province of Albay once said, “Budget is the best articulation of public policy and instrument for its execution.” The power of the coffers should be utilized with good judgment, in accordance with the local government’s priority projects. The chart in Figure 22 shows Cainta's latest expenditure program.
67
Figure 21 Wealthiest Municipalities in the Philippines (2009 COA Report)
EXPENDITURE PROGRAM (DISTRIBUTION BY SECTOR) 2011 BUDGET YEAR Social Welfare Services 22%
Health and Nutrition Program 15%
Reserve for Calamity 5% Development Projects 8%
General Public Services 45%
General Public Services
Economic Services 5%
Health and Nutrition Program
Social Welfare Services
Economic Services
Reserve for Calamity
Figure 22 Expenditure Program (Distribution by Sector) 2011 Budget Year
Development Projects
68 Figure 23 below shows the increasing allocations provided by the local government for the various sectors:
EXPENDITURE PROGRAM BY SECTOR COMPARATIVE TREND, 2009 TO 2011 300,000,000.00 250,000,000.00 200,000,000.00 150,000,000.00 100,000,000.00 50,000,000.00 0.00
General Public Services
2009
240,974,861.43
Health and Nutrition Program 82,860,357.14
126,861,572.97
31,979,971.26
27,500,000.00
Municipal Development Fund 39,823,237.20
2010
274,241,996.60
83,058,196.00
136,862,705.00
27,248,586.00
30,000,000.00
48,588,516.40
2011
288,849,263.40
98,024,297.00
145,203,658.00
33,393,316.00
32,500,000.00
52,029,465.60
2009
Social Welfare Services
Economic Services
Reserve Fund for Calamity
2010
2011
Figure 23 Expenditure Program by Sector Comparative Trend, 2009-2011
Local Economic Development
Cainta has a competitive advantage in attracting investors and residents because of its proximity to Metro Manila. It is like getting all the benefits of being in the metropolis but paying for them at provincial rates. Cainta has adequate access to transportation and communication technologies and public utilities such as electricity from Meralco and water from Manila Water. The authorities are currently studying the Light Rail Transit (LRT) Line 2 Extension (East/West) Project. The extension along Marcos Highway will
69 go from the existing Santolan Station to the Masinag Junction in Antipolo City, with an Emerald Station in between, fronting Robinson’s Place Metro East in Cainta. Cainta also aims to be the Information Technology and Business Process Outsourcing (BPO) Hub of Rizal. According to IBM’s latest Global Locations Trend Annual Report, the Philippines is now the number one Business Process Outsourcing country in the world. And this industry is certainly getting bigger and stronger. It provides not just good paying jobs, but also high-tech training to its employees. At the moment, Cainta is home to Teletech, the Outstanding Employer of the Year for three consecutive years since 2008 and the newest member of the Philippine Economic Zone Authority (PEZA) Hall of Fame. Alternative livelihood programs to generate employment in the community are also being promoted. With the help of the women’s organization, Bangon Kababaihan Bagong Cainta, the local government implemented the Water Lily for L.I.F.E. project, which is supported by the Department of Trade and Industry (DTI) and Meralco Foundation, Inc. With a budget of almost PhP700 million, the local government of Cainta is certainly one of the biggest employers and the biggest spender in town. The local government provides support to local businesses by patronizing their goods and services. Another kind of affirmative action policy that is good for employment generation is that local businesses are required to prioritize local residents in their job placements. Another way to help businesses in the municipality is to follow the lead of Thailand and Japan’s “One Town, One Product” (OTOP) project. It is a good way to “support micro, small, and medium enterprises (MSMEs) to manufacture, offer, and market
70 distinctive products or services through the use of indigenous raw materials and local skills and talents.” (Department of Trade and Industry, 2008) The local government of Cainta should take the lead in choosing and promoting a product or service that is viable and profitable for the residents of the municipality. Cainta should be proud of its rich heritage in making native delicacies called “kakanin” or “bibingka.” They should reclaim the title, Bibingka Capital of the Philippines. It is common knowledge among Cainteños that their bibingka is a localized version of the Indian/Goan dessert, “bebinca.” The Indian Sepoys who came with the British forces that occupied Manila in the 18th Century brought this dessert. Some of the Sepoys stayed behind after the short British occupation of Manila and settled in Barrio Dayap in Cainta. Aside from these areas for enterprise promotion, the local government of Cainta already has a microfinancing project for small to medium enterprises. Through the “Tulong Puhunan for Native Small Business Enterprises”, institutionalized by the Sangguniang Bayan in 2005, the municipality allocated a revolving fund of PhP2.4 million to help qualified entrepreneurs to avail of loans with zero interest for livelihood development and enhancement. Since its inception, “Tulong Puhunan” has released funds amounting to PhP2.7 million pesos to cooperatives, worker associations, women’s groups, and other indigenous groups.
71 Data Collection Methods and Analysis
In laying the foundations of this study, a literature review was necessary. The literature review was important for the proponents to have a foundation on the theories and practices in DRR and CCA. The proponents utilized Internet technologies and library resources to gain access to publications and materials from organizations such as the UN International Strategy for Disaster Reduction (ISDR), the World Bank and national agencies such as the Climate Change Commission and NDRRMC. After gathering relevant literature, the proponents extracted information that helped in the creation of Cainta’s LAP-DRR-CCA, especially in terms of research design and implementation. The technical aspects of the Cainta DRR-CCA Summit included the relevant policy frameworks at the international and national levels that affect the Municipality. In addition, knowledge of the best practices in other localities drawn from the researchers’ review of case studies was useful in writing the first draft of the LAPDRR-CCA. Primary sources of data were also crucial forms of inputs from the key stakeholders.
Interviews
As an in-depth understanding of the plans and programs that are in place to address Disaster Risk Reduction and Management and Climate Change Adaptation in Cainta, the proponents interviewed Mr. Angelo Apostol, Head of the Cainta Municipal Disaster Risk Reduction Management Office (CMDRRMO). As the local chief executive of Cainta for
72 nine years, Mayor Ilagan was also a vital primary source of data. This is one of the most important aspects of the data collection process of this study. Interviews are excellent tools for understanding the complex dynamics of people and events in times of disasters because of the depth of information that can be accessed from personal interviews. (Wamsler, 2007) Interviews were also conducted at the barangay level since the barangay officials and personnel are usually at the frontlines of disaster management operations. Department Heads of MENRO, MSWD and Engineering, along with long-time3 residents were also interviewed to find out the notable impacts of climate change and other weather events. The questionnaire used, patterned after the King County Questionnaire for Preliminary Assessment of Climate Change Impacts and Adaptation Barriers, (Center for Science in the Earth System-The Climate Impacts Group, 2007) found in Appendix 2 can be summarized into the following main questions:
What does their experience tell them about sensitivity to climate and weather events?
What have they done within their respective departments on climate and weather impact?
Past and present policies, planning documents and practices in disaster risk reduction and management and climate change adaptation were also compared to the information gathered from the interviews to determine their effectiveness and effectivity in the real world. Other questions asked during the interviews were:
3
Share success and failure stories of DRRM that you have seen or experienced.
people who have lived in Cainta for at least 9 years
73
Describe the negative effects and consequences of the natural hazards of earthquakes, typhoons and floods.
What are the shortcomings of the local government in DRR and CCA and how can these shortcomings be met?
Give the benefits of having an LAP-DRR-CCA.
Focus Group Discussions
Barangay officials and personnel, together with community members of all seven barangays, were subjected to individual focus group discussions for the hazard and vulnerability and capacity assessment as mentioned in the previous chapter. The final draft of the LAP-DRR-CCA was presented to the Municipal Disaster Risk Reduction and Management Council (MDRRMC) and subjected to an FGD. In this discussion, the PPAs were refined and reviewed to determine which should be included in the Annual Investment Plan for CY 2013. The proposed PPAs were ranked using a similar method to the Goal Achievement Matrix, described in the “Guide to Comprehensive Development Plan (CDP) Preparation”: Step 1: Each member of the Municipal Disaster Risk Reduction and Management Council (MDRRMC) and the officer of the LDRRMO ranked every PPA that required funds using the following scale: Table 9 Goal Achievement Matrix Scale
SCALE INTERPRETATION 3 PPA contributed greatly to building a disaster-resilient municipality 2 PPA contributed moderately to building a disaster-resilient municipality
74 SCALE INTERPRETATION 1 PPA contributed slightly to building a disaster-resilient municipality 0 PPA did not contribute to building a disaster-resilient municipality PPA slightly inconsistent with the goal of building a disaster-resilient -1 municipality PPA moderately inconsistent with the goal of building a disaster-resilient -2 municipality PPA greatly contradicts the goal of building a disaster-resilient -3 municipality
Step 2: The scores for each PPA were added up and ranked from highest to lowest to determine the PPAs that should be prioritized and included in the Annual Investment Plan for CY 2013.
Workshops To accomplish the objective of getting proposals and recommendations for Cainta’s LAP-DRR-CCA, it was important for disaster risk assessment and planning workshops to be conducted at the grassroots level, down to the barangays and communities. The people who actually experienced the disasters can best describe the realities of vulnerabilities and capacities in times of disasters. Through the guided planning sessions, they were able to identify the gaps and issues that needed to be addressed through programs, projects and activities. The planning workshops at the barangay and/or community levels were crucial to the success of this study. As stated in the Local Government Code, the barangay is “the primary planning and implementing unit of government policies, programs, projects and
75 activities in the community, and as a forum wherein the collective views of the people may be expressed, crystallized and considered.” Using the steps outlined in the DILG’s “Rationalizing the Local Planning System. A Source Book 1st Ed.” and “Guide to Comprehensive Development Plan Preparation,” the proponents guided the participants to formulate important policies, programs and services to be included in a multi-sectoral DRR and CCA for their community.
Figure 24 DILG's Rationalized Local Planning System
On July 26 - 27, the proponents joined the Barangay Level DRRM Planning (Finalization and Review) Workshop led by the Cainta MDRRMO. The proponents
76 collected and organized all planning outputs produced by the barangays and the other communities where the workshops were conducted. This served as the LAP-DRR-CCA found in Appendix 3, containing the consolidated proposals and recommendations from the communities in the different barangays, including the findings of the study of international, national and local policies, plans, practices and programs in disaster risk reduction and climate change adaptation. The Hazard Assessment Matrix and the Format on Synthesis of Community Risk Assessment Matrix found in the “Integrating Disaster Risk Management in Local Governance: A Facilitator’s Guide and a Sourcebook for Barangay Disaster Risk Management Training Workshop” was used as tools in gathering information for community-based Disaster Risk Assessment through a 2-day Seminar Workshop conducted on June 13 – 14, 2012. The Hazard Assessment Matrix is a tool that characterized the threats and impacts of the natural hazards that distress the community. The analysis of the matrix brought about hazard-specific early warning system and community-based contingency plans and disaster preparations. As described in the Voyage to Disaster Resilience in Small Islands: A Guide for Local Leaders (2011), the participants in the community workshops were asked the following questions:
What are the specific hazards that have hit the community?
How frequent have these hazards hit the community?
What is the magnitude of the hazard?
How strong was the hazard?
77
How large was the area coverage of the damage? How long did the hazard persist?
Where did the hazard occur?
How severe was the damage brought by the hazard? Below is a sample of the Hazard Assessment Matrix taken from the “Integrating
Gender into Community Based Disaster Risk Management Training Manual.” (2009). Table 10 Sample Hazard Assessment Matrix
The hazard assessment was followed by the assessments of vulnerabilities and capacities. The synthesis of the community hazard risk assessment matrix and its analysis led to a better understanding of the disaster risks in the community and their preparedness. The Disaster Risk Assessment helped the community identify their needs in DRR and CCA. Program recommendations and project proposals were generated through the discussions that led to the planning workshop.
78 Survey Questionnaires
During the Cainta DRR CCA Summit, the proponents administered a selfassessment for disaster resilience survey to 200 participants from the various sectors to set baselines and identify gaps in the disaster resilience of Cainta. The stakeholders accomplished a survey that represented their views on the “Self-Assessment for the Ten Essentials for Making Cities Resilient” (2012). The Local Government Self Assessment Tool (LGSAT) consisted of 41 key questions, with each one phrased in a way that allows local governments and participating stakeholders to reflect on the level of progress that has been made to date. The proponents chose to ask 27 questions out of the 41 based on relevance to the objectives of this study. The respondents were from the municipal and provincial government, local academia, religious group, business community, youth, PWDs, civil society organizations, senior citizens, homeowners, informal settlers, media and community-based organizations. The data below is an excerpt from the LGSAT for Disaster Resilience used by the proponents in the group discussions (See Appendix 4 for the survey tool used):
79 Table 12 LGSAT Scoring Scale - Level of Progress
Table 11 Excerpt from the LGSAT
A community survey method was used to gather information on existing regulatory barriers and potential climate change vulnerabilities and to measure public awareness. It was also used to complete the community-based hazard identification and the community risk and vulnerability assessment.
80 CHAPTER V RESULTS AND DISCUSSION
Plans, Policies, Programs
International Level
As mentioned earlier, one of the proponents, Ramon Ilagan, is the incumbent Mayor of the Municipality of Cainta. And during his nine-year term, he has been invited to four international meetings and conferences that focus on Disaster Risk Reduction and/or Climate Change. He identified two international organizations, the United Nations Development Programme (UNDP) and the United Nations International Strategy for Disaster Reduction (UNISDR), as partners in translating and transferring global policies and programs into more concrete implementation activities at the local level. His experiences in the two most recent international conferences he attended in Kobe, Japan on November 21-25, 2011 and in Bangkok, Thailand on December 6-9, 2011 provided the proponents with a glimpse on how the global movement towards disaster and climaterisk resilience is gaining ground with local leaders.
81 A. Kobe, Japan, (the birthplace of the Hyogo Framework for Action) November 21-25, 2011 The five-day conference in Japan, organized by the United Nations International Strategy for Disaster Reduction (UNISDR) and Senator Loren B. Legarda, was a caucus on linking disaster-risk reduction and climate change adaptation in effective risk governance. It was held in Kobe, Japan, the city where the World Conference on Disaster Reduction was held in 2005 when 168 member-states adopted the present Hyogo Framework for Action 2005-2015. The other participants were Undersecretary Eduardo Garcia Batac of the Department of National Defense; Director Susan Rachel Galang Jose of the National Economic Development Authority; Director Ronald Ignacio from the Office of Civil Defense; Ms. Maria Cecilia Dayot Panlilio from the Senate; Undersecretary Corazon Tecson Jimenez of the Metro Manila Development Authority; Quezon City Vice-Mayor Joy Belmonte; Vice-Mayor Alfredo Aranas Arquillano Jr. of San Francisco, Camotes Island, Cebu; Plaridel Escalona Sanchez VI, former mayor and Board Member of Pandan, Antique; DZBB’s Nimfa Ravelo and the Philippine Star’s Edith Regalado. The UNISDR officials, led by Yuki Matsuoka, Etsuko Okazaki, Jerry Velasquez and Manny de Guzman, accompanied the participants as they toured the Hyogo Disaster Management Center, the Toga River and Yakigahara Dam, and a courtesy call on Hyogo Prefecture Governor, Toshizo Ido. The caucus highlighted the Hyogo Framework for Action and the role of local government officials in adapting them, and this was embodied
82 in the Memorandum of Agreement drafted and signed by the participants at the end of the caucus.
B. Hyogo Framework for Action
An approach to reduce disaster risks was set out in the United Nations-endorsed Hyogo Framework for Action (HFA), adopted in 2005. (Benjamin, 2009) The HFA is a global policy framework that directs actions to address and reduce disaster risks and build resilience of nations and communities by the year 2015. It is a highly influential framework, having been most acknowledged in disaster related research and papers since 2005. It tackles disaster risks at the global, regional, national and local levels and is considered to be the latest important intervention in the field of disaster risk reduction. The expected outcome of the HFA by 2015 is the “substantial reduction of disaster losses, in lives and in the social, economic and environmental assets of communities and countries.” (United Nations, 2005) This outcome will “require the full commitment and involvement of all actors concerned including governments, regional and international organizations, civil society, the private sector and the scientific community” The International Strategy for Disaster Reduction (ISDR) system provides a vehicle for cooperation among the actors to assist in the implementation of the Framework. (United Nations International Strategy on Disaster Reduction, 2005) Figure 25 provides a summary of the Hyogo Framework enhancing themes, cross cutting issues, actors involved in the implementation and the following strategic goals (United National International Strategy for Disaster Reduction, 2005):
83 1) The integration of disaster risk reduction into sustainable development policies and planning; 2) The development and strengthening of institutions, mechanisms and capacities to build resilience to hazards; and 3) The systematic incorporation of risk reduction approaches in the implementation of emergency preparedness, response and recovery programs. It sets out strategies for reducing disaster risks through five priorities for action: (United Nations International Strategy on Disaster Reduction, 2005) 1) Ensure that disaster risk reduction is a national and a local priority with a strong institutional basis for implementation; 2) Identify, assess and monitor disaster risks and enhance early warning; 3) Use knowledge, innovation and education to build a culture of safety and resilience at all levels; 4) Reduce the underlying risk factors; and 5) Strengthen disaster preparedness for effective response.
84
Figure 25 Hyogo Framework for Action: 2005-2015 Building the Resilience of Nations and Communities to Disasters
C. Economic Recovery in Post-Conflict/Disaster Situations, Thailand, December 6-9, 2011
The four-day conference in Thailand, participated in by two of the proponents, Lester G. Cavestany and Ramon A. Ilagan, focused on workshop sessions on economic recovery in post-conflict or post-disaster situations. Mr. Sanny Jegillos, the Regional Program Director of the UNDP Asia-Pacific, organized the workshop to emphasize a multi-sectoral approach in minimizing the adverse effects of conflicts or disasters on local
85 communities, especially the most vulnerable and marginalized in society, such as the poor, women, children, people with disabilities, and the elderly. Mayor Ilagan presented the economic recovery initiatives in his municipality, showcasing the Water Lily Livelihood Program and the UNDP’s Cash for Work project. He also moderated a dialogue between the public sector leaders and the business sector panelists from Myanmar, Timor-Leste, Sri Lanka and Nepal about the potential challenges and opportunities for public-private partnerships. He facilitated this dialogue with respondents from the government, United Nations organizations and civil society groups who also shared their insights on how the partnerships among different stakeholders in post-crisis recovery can be strengthened to maximize benefits for communities affected by conflicts or disasters. Ilagan was accompanied in Thailand by another proponent, Lester Cavestany and the other delegates from the Philippines were Alma Evangelista, Team Leader of the Crisis Prevention and Recovery Team of the UNDP Philippines; Romeo Diocolano, Director of the Technical Management Services from the Office of the Regional Governor of the Autonomous Region in Muslim Mindanao; and Khannapi “Sonny” Ayao, board member of the Kadtabanga Foundation for Peace and Development Advocates, Inc. from the Municipality of Datu Odin Sinsuat, Maguindanao.
International Initiatives for Local Action In our study of the Municipality of Cainta, the proponents found two noteworthy projects that have been initiated by international organizations. These are the following: 1) UNDP-led “Cash for Work Program”
86 2) CIDA-funded “Resilience Project” A. UNDP’s Cash for Work In 2009, UNDP through the Department of Social Welfare and Development Office Region IV-A, provided financial assistance to the victims of Typhoon Ondoy through the Cash for Work Program. The Ondoy victims were hired and paid to do community service. The table below provides details about the 700 beneficiaries who cleaned-up the streets and creeks and repaired houses damaged by typhoon Ondoy in the different barangays, with a cash total of about forty thousand US dollars. The positive experience gained through this temporary employment program helped in scaling up disaster recovery efforts to reach those most affected by the tragedy, especially the poor. This initiative is an effective social protection measure that compensated for loss and prevented further adverse effects in health, education, nutrition and productivity especially in the marginalized sector.
Figure 26 Cash for Work in Cainta
87 Following UNDP’s lead, the Municipality of Cainta, through its Municipal Social Welfare and Development Office, has adopted the Cash for Work scheme when assisting victims of fires, typhoons or floods, to complement the direct relief and financial assistance measures.
B. CIDA’s Resilience Project in Cainta
The Municipality of Cainta is fortunate to have been selected as one of three LGUs chosen by the UNDP and the Canadian International Development Agency for its “Resilience Project”, a 2 year-project that strengthened capacities for risk reduction. Key activities included the creation of hazard maps, the training in the Rapid Earthquake Damage Assessment System Software, and the establishment of early warning devices for floods in Cainta, Marikina and Pasig. This project was implemented through the national agencies such as the weather bureau PAG-ASA, the volcanology and seismology bureau, PHIVOLCS and the Office for Civil Defense.
National Policies and Programs towards Local Paradigm Shifts
The plenary discussions in international conferences and in the national legislature play a vital role in addressing the impacts of climate change and natural disasters that are immediately felt by the people, especially those who have less financial resources. While this study was being made, the reality of natural disasters in Cainta, surfaced yet again in August 2012 when the weeklong monsoon rains and flooding disaster wreaked havoc in
88 Cainta and other areas. The Habagat disaster was comparable to “Ondoy”, prompting the Sangguniang Bayan of Cainta to declare the entire municipality under a state of calamity. In the aftermath, up to 5,462 families consisting of 27,094 individuals in 43 evacuation centers were affected and the damage to infrastructure was estimated to be over a hundred million pesos. The proponents found the following policies and programs that evidence the active and pro-active implementation of measures to address disaster risk and climate change risk reduction and management: 1) Enabling laws 2) Disaster Management Roles including response, preparedness, recovery and mitigation 3) Participatory local planning
A. Enabling laws Less than a month after Ondoy, Republic Act 9729 or the Philippine Climate Change Act was signed into law, which recognized that the “State shall integrate disaster risk reduction into climate change programs and initiatives.” Months later, Republic Act 10121 or the Philippine Disaster Risk Reduction and Management Act was enacted, affirming the State’s duty to “uphold the people's constitutional rights to life and property by addressing the root causes of vulnerabilities to disasters, strengthening the country's institutional capacity for disaster risk reduction and management and building the resilience of local communities to disasters including climate change impacts.” And on
89 August 16, 2012, President Benigno Aquino III signed Republic Act 10171, or the People's Survival Fund Act of 2012, that guarantees at least P1 billion annual budget allocated for climate change adaptation and mitigation measures. These laws ensure that the changes are institutionalized from the national agencies and spread across the local government units. One such institutionalized change is the mandatory creation of the local disaster risk reduction and management office in all the local government units. This is in line with one of the principles in government bureaucracy that one of the most effective ways in institutionalizing change is by creating an office for the change you want to create. And in Cainta, a priority resolution of the local council in 2012 was the creation of the Cainta Municipal Disaster Risk Reduction And Management Office. This enabling resolution paved the way to get the manpower and to allocate the financial resources needed to formulate plans and to implement them. Another effect of the enabling laws is the paradigm shift in the role of the government, both national and local, when it comes to disasters. In the past, LGUs were reactive first responders. And they were only allowed to use their calamity fund during calamities. But the DRRM Act of 2010 changed the “Calamity Fund” and renamed it “Disaster Risk Reduction and Management Fund.” And the change in name translated into the expansion of the role of the LGU from their primary role in disaster response, into their roles in Disaster Mitigation, Preparation, and Post-Disaster Recovery. These are the criteria looked into by the DILG in their “Seal Of Disaster Preparedness.” DILG Memorandum Circular 2012-73, through Sec. Jesse Robredo+, gave this order: “All local chief executives are hereby enjoined to utilize their local disaster risk
90 reduction and management fund to ensure that basic rescue and response equipment are procured.” The Municipality of Cainta knows too well the importance of having rescue and response equipment. Adequate life-saving equipment must always be on standby and the emergency response staff have to be well trained. The lesson of Ondoy was clear: lack in the administrative and technical capacity to respond to disasters leads to a much bigger disaster, translating to more lives lost and more damages incurred. Before Ondoy, only coastal towns had boats. After Ondoy, almost every local government unit, including Cainta, now has one or more rescue boats. In the recent Habagat disaster, the rescue teams in Cainta were able to use their emergency response training and rescue equipment to save the constituents from the dangers of flooding in their homes. And fortunately, Cainta had zero casualties in the Habagat disaster, due to the heroism and selfless dedication of the various rescue teams composed of the Cainta Bureau of Fire Protection headed By Major Rosete, the Cainta Philippine National Police headed by Col. Briones, the Cainta Public Safety Office headed By Mr. Dinoy And Mr. Arevalo, the members of the Philippine Army and the Philippine Navy, the Local Disaster Risk Reduction and Management Office headed by Mr. Apostol, and other rescue volunteers and personnel who came to the aid of their constituents. Aside from the regular drainage clean-up programs, the local government purchased heavy equipment for the dredging and desilting of the Cainta River and the other major
91 waterways. A drainage interceptor was also constructed in one of the barangays to ease the flow of drains and sewers.
From National Policies To Participatory Local Planning
According to Senator Legarda, the principal author of the Climate Change Act of 2009 and the Disaster Risk Reduction and Management Act of 2010, the logical step in disaster preparedness is “to put in place proactive measures to reduce our risk to disasters. We cannot be complacent and wait for another Ondoy or Pepeng.” Or another Habagat, for that matter. And these proactive measures should begin with good planning. R.A.9729 mandated the Climate Change Commission to formulate a National Climate Change Action Plan (NCCAP) which would serve as a guide for LGUs in writing their own local climate change action plans. On the other hand, R.A. 10121 required the development and implementation of a Comprehensive National Disaster Risk Reduction And Management Plan (NDRRMP) that would serve as a template for the LGUs in crafting their own local disaster risk reduction and management plan. Through this study and with the help of the Office of Civil Defense, the Municipality of Cainta drafted a 5-year LDRRM plan and also the contingency plan for Climate Change, formulated in September 2012.
92 Hazard Assessment and Climate Change Impacts
Climate Change Impacts Risk Assessment
Among the 10,020 people randomly surveyed in the community, 6,714 of them mentioned climate change as one of the underlying factors of the hazard they experienced at the barangay level, garnering a high 67 percent awareness rating. In particular, they identified heavy rainfall and increased intensity and frequency of typhoons as the main impacts they know. This means that people at the barangay level of Cainta are generally informed about the extreme weather events that climate change brings. According to the maps by the Manila Observatory and the Department of Environment and Natural Resources (DENR), the province of Rizal is identified to have a projected medium to high level of typhoon hits during the wet season due to climate change.
Figure 27 Typhoon Incidence
93
Figure 28 Projected Rainfall Change (Dry Season)
Figure 29 Projected Rainfall Change (Wet Season)
94 Hazard Identification Based on the community disaster risk assessment conducted at the barangay level, the community identified the following potential hazards for the municipality: 1) Severe typhoons 2) Floods 3) Landslides 4) Road accidents 5) Utility failures 6) Major fires in commercial areas and densely populated areas 7) Earthquake - Ground Shaking and Liquefaction Table 14 below summarizes the community's assessment regarding the identified hazards. Table 13 Hazard Assessment Summary
HAZARD Typhoon
LEVEL OF RISK High
Flooding
High
UNDERLYING FACTORS Proliferation of informal settlers Most of the structures are made of light materials All seven barangays are affected Climate change - increased typhoon intensity and frequency
Flood “catch-basin” Degraded and ruined rivers and waterways Poor drainage system Malpractice of waste disposal – community, people, establishments Climate change - heavy rainfall
Landslide
High
Loss soil Denuded environment
Fire
High
“Octupus”
electrical
connections
that
95 HAZARD
Earthquake (including liquefaction)
LEVEL OF RISK
Moderate to High
UNDERLYING FACTORS resulted to overload of electricity Structures are made of light materials Congested communities
Proliferation of informal settlers Structures are made of light materials Absence of retrofitting scheme Soft soil
Flood Hazard Risk Assessment
According to a Geographical Information System (GIS) flood risk management case study of Cainta by Gatchalian et.al., (2011), the geographic location of the Municipality of Cainta and its physical conditions make it generally prone to flooding. Cainta's location in the Marikina Valley, where its elevation is significantly lower than the neighboring towns with rivers and water systems surrounding the municipality, makes it more susceptible to flashfloods. Figures 27 and 28 show that Cainta is a natural flood plain since it is a low-lying area that becomes the catch basin of rain water from the mountains of Antipolo. Flooding is further aggravated by the presence of informal settlers occupying the banks of the waterways, and the siltation of rivers and streams. According to MSWDO data, 13,744 families are living in flood prone areas (i.e. near river easement) and are highly vulnerable to flooding. Table 14 Flood Prone Areas and Number of Affected Families
BARANGAY Sto. Niño
San Roque
LOCATION/ AREA Renea Compound N.N. Fernandez St. Dominic Creekside C. Cruz Nursery Road
NO. OF FAMILIES 119 Total: 190 25 28 18 225 Total: 225
96 BARANGAY San Andres
Sto. Domingo
San Juan
San Isidro
LOCATION/ AREA Planters Bern Buklod Maralita Lakas Tao PFCI Berm Kabisig Lower/Kampi I & II Village East Ph. 1 Villarica Kasibulan Ascona St. Cobra St. Broncho St. Dagat Dagatan Gruar Back of Puma (UMS) San Buena Country Homes Subd Kamagong St. (St. Joseph) Irma St. Marick Subd. Villa Cuana Riverside Arinda Exodus Berm Apras San Franscisco Special Block San Francisco Berm Don Mariano Creekside Tabang Bagong Silang Sitio Pag-Asa Mabolo St. Waling-Waling Isidro Avenue Atis St. Pasco St. UE Creekside Ruby St. Emerald St. Finance St. UE Village Sampaguita St. Ilang-Ilang St. Easter St. St. Gregory Tribu Bayanihan Sitio Dagat-Dagataan Signal Corp Franchesca Creek Macopa TOTAL PERCENTAGE OF TOTAL POPULATION
NO. OF FAMILIES 1,015 Total: 5,178 463 1,500 1,500 700 50 Total: 3,834 200 200 260 60 39 120 1,300 200 1,200 30 41 134 50 Total: 3,934 1,154 140 1,300 30 130 50 45 1,000 35 130 Total: 194 18 21 20 36 36 3 1 2 10 6 2 28 62 1 4 3 13,744 24%
97
Figure 30 Cainta Elevation Map
Figure 31 Hazard Map of the Province of Rizal
98 According to the incident report prepared by the Municipal Disaster and Coordinating Council (MDCC), the rains brought about by the tropical storm Ondoy in 2009 submerged 98 percent of Cainta in flood water with heights ranging from 3 to 10 feet. It affected 45,000 families representing more or less 285,000 individuals. Figure 27 below shows the flood hazard map identifying Barangays San Andres, Sto. Domingo, San Juan, San Roque, Sta. Rosa and Sto. Niño as high-risk barangays in flooding.
Figure 32 Flood Hazard Map
99 Earthquake Hazard Assessment
Cainta is in the Rizal province, identified as an earthquake prone area having 29 to 47 projected annual earthquake hits with intensity ranging from 7.3 to 7.6 in magnitude. Figure 30 and 31 below show that the Municipality of Cainta also lies close to the active Marikina Valley Fault System that passes through its nearby towns, Marikina and Pasig, making it also susceptible to experience earthquakes with strong magnitudes.
Figure 33 Earthquake Prone Areas in the Philippines
100
Figure 34 Cainta in the Distribution of Active Faults and Trenches in the Philippines
101
Figure 35 Cainta Valley Fault System
102 Rapid Earthquake Damage Assessment System (REDAS) maps provided by the Philippine Institute of Volcanology and Seismology (PHIVOLCS) and the Department of Science and Technology (DOST) give an approximation of the scenarios in terms of earthquake intensity and liquefaction caused by the valley fault system. Figure 32 concur with the flood hazard map in Figure 27 in identifying the six barangays, excluding San Isidro, as highly susceptible not only to flooding but also to experience quakes with 7.50 and above intensity due to the valley fault system. Figure 33 presents pictures of the possible liquefaction scenario during the dry and wet seasons that could happen due to the valley fault system. This study considered only the liquefaction effects on buildings and other infrastructures whose foundations are held up by soil or sand, which liquefies after experiencing pressures from many cycles of ground shaking. Possible effects of earthquake liquefaction include structural damage (i.e. foundation cracks and building destruction); underground utility line breakage (e.g. water pipes, electric lines); underground water brought upward by ground pressure which may cause damage to building contents and electrical services; open large cracks or fissures; road destruction; and sloping ground or ground next to rivers and streams may slide on a liquefied soil. Figure 34 gives an overview of the liquefaction hazard of the Municipality of Cainta most significant during the wet season.
103
Figure 36 Valley Fault System Earthquake Scenario (Cainta)
Figure 37 Valley Fault System Earthquake Liquefaction Scenario (Cainta)
104
Figure 38 Liquefaction Map of Cainta (Wet Season)
Hazard Sensitivity A study made by the Manila Observatory and DENR entitled “Mapping Philippine Vulnerability to Environmental Disasters”, ranked the province of Rizal 6th among the top 20 provinces at risk to climate change related disasters indicating a very high risk to typhoons and projected rainfall change.
105
Figure 39 Combined Risk to Climate Disasters
Table 15 summarizes the sensitivity to hazards of each barangay that this GIR considered in the creation of an integrated LAP for DRR and CCA based on the maps presented above and in the previous chapters. The hazard assessment which utilized both the hazard maps and the community survey data, revealed that six barangays are highly susceptible to all three hazards featured in the LAP, with barangay San Andres rating high in all four. Table 15 Hazard Sensitivity of the 7 Barangays of the Municipality of Cainta
Hazards
Typhoon Flooding Earthquake (Ground Shaking) Earthquake (Liquefaction)
Barangays of the Municipality of Cainta San Juan San Sta. Rosa Sto. Roque Domingo High High High High High Moderate High High High High High High High High High
San Andres High High High
San Isidro
High
Low
Moderate
Moderate
Moderate
Moderate
Sto. Niño High High High Moderate
106
Vulnerability and Capacity Assessment
Vulnerability to Disasters According to the Global Climate Risk Index, the Philippines is one of the worst hit countries by the impacts of weather-related loss events because of droughts, storms, floods, and other weather-related disasters. The country is estimated to attract 20 tropical cyclones annually, nine of which make landfall. The figure below shows the country's rankings in terms of vulnerability to natural disasters, compiled by the Office of the President. (Presidential Communications Development and Strategic Planning Office)
Figure 40 Vulnerability to Disasters of the Philippines
107 Land Use
The hazard sensitivity matrix in Table 15 states that out of the seven barangays in the Municipality of Cainta, San Andres is the most vulnerable barangay from all four hazards. Looking at the most recent land use map of the Municipality, barangay San Andres consists of the following: a large group of informal settlements located mainly along the Manggahan Floodway; formal settlements such as subdivisions; some heavy industries; major commercial areas; cultural heritage sites; educational facilities; transportation hubs; and leisure areas. It also has a number of vacant areas. Based on the hazard assessment, the abovementioned are considered highly vulnerable to flooding, typhoon, and ground shaking and liquefaction caused by earthquake.
Economic Vulnerabilities
Cainta has a robust economy as evidenced by several commercial and industrial establishments that are in the area. The town continues to attract businesses because of its proximity to Manila and the town’s burgeoning population. It is home to numerous manufacturing firms including the Mitsubishi Motors Philippines, the largest car manufacturer in the country, the Monde M.Y. San Corporation, one of the nation’s leading biscuit manufacturers and BF Construction Philippines.
108
Figure 41 Land Use Map of the Municipality of Cainta
109 As of 2011, the Business Permit and Licensing Office (BPLO) reported that Cainta has 26 real estate establishments that include realtors and developers, agents and appraisers, lessors of real property, planners, brokers, operators and managers and builders, suppliers and contractors. Commercial activities in Cainta includes wholesale and retail trade, transportation and communications, and other services like call centers and BPOs. Cainta also has 42 registered financial institutions. Despite growing urbanization in Cainta, the Municipality still has 38.02 hectares of land devoted to agricultural production with agricultural activities as mostly rice and vegetables. Barangay San Andres being the most vulnerable barangay has 2.79 percent of agricultural land with rice as its main produce that is at high risk to typhoon, flooding and earthquake. Table 16 Agricultural Crops by Area, 2011
Major Crops Rice
Vegetables
Barangay San Juan San Andres San Isidro San Juan San Isidro Sto. Domingo Total
Area Hectares 9.50 9.00 10.50 0.91 1.00 7.11 38.02
% of Total 1.41 2.79 0.49 0.13 0.05 0.70 5.57
Every barangay in Cainta has swine and poultry industries. San Juan, San Andres and San Isidro have the highest number of livestock and poultry production compared to other barangays. Brgy. San Andres has a total of 830 livestock that is extremely vulnerable to disasters.
110 Table 17 Livestock and Poultry Production, 2011
Barangay San Juan San Andres San Isidro Sto. Domingo San Roque Sto. Niño Sta. Rosa Total
Swine
Cattle
Goats
Poultry
245 320 88 95
95
81
21 8
85
1,340 510 1,500 980
Total Livestock 1,761 830 1,694 1,083
125 230 35 3,566
165 277 50 4,706
10 35 15 808
30 12 124
208
The study of the Manila Observatory and DENR also used Human Development Index (HDI) in assessing vulnerability. HDI represents achievements of a country with regard to life expectancy, education and income. The HDI measure used by Manila Observatory and this study encompassed health, education and income factor and the inverse of HDI represented the vulnerability score found in Figure 42. Simply, the lower the HDI, the higher the vulnerability to disaster and since the province of Rizal’s HDI is low, its vulnerability to disaster is consequently very high.
111
Figure 42 Human Development Index, 2000
The Municipality of Cainta has the highest population density among all the LGUs in the province of Rizal. Having more than a 1,000 person per square meter, it is also considered as one of the most populated places in the entire country. This entire population, especially the 100,147 most affected people in San Andres as seen in Table 4, is regarded as those who are greatly vulnerable to disasters.
112
Figure 43 Population Density, 2000
Figure 44 Populated Places
113 Figure 45 and 46 show that the province of Rizal has a large number of settlements including the 1,153,726 estimated number of informal settlers located along the Manggahan floodway, according to the Manila Observatory and the Urban Research Consortium. The community survey in this study resorted to the 10,020 informal settlers located in the six flood prone barangays and used them as key informants to the hazard and risk assessment conducted. (See Appendix 5 for list)
Figure 45 Settlement Areas
114
Figure 46 Aggregate Map of Informal Settlers in Metro Manila (2000)
115 Capacity Assessment
The previous chapter discussed the financial capacity of the local government of Cainta to allocate resources and funds for DRRM and CCA. This situation allows Cainta to accommodate the priority PPAs of this study's output into its CY 2013 Annual Investment Plan. In terms of the local government's rescue and response capacity, Cainta has a total of 22 evacuation centers located in six barangays as seen in Table 18 below. Table 18 Evacuation Centers
BARANGAY San Andres
San Juan
Sto. Niño San Roque San Isidro Sto. Domingo
EVACUATION CENTER Kabisig Elementary School Planters Elementary School Anak Pawis II Covered Court Lakas Bisig/ Feliz Elementary School Lakas Bisig Covered Court Lakas Bisig I Day Care Center Lakas Bisig II Day Care Center PCFI Covered Court Planters Day Care Center Planters Covered Court Mercedes PNP Outpost San Francisco Elementary School Exodus Elementary School Anak Pawis I Day Care Center Anak Pawis I Covered Courts Anak Pawis I Multipurpose Hall Arinda Elementary School Sto. Niño Barangay Hall Sto. Niño Day Care Center San Roque Covered Court Balanti Covered Court Gruar Ph. 1 Covered Court Gruar Day Care Center
116 Majority of the families from the east and west Manggahan Floodway during the Habagat disaster in 2012 voluntarily evacuated to their respective evacuation centers as flood water started to rise. Some who refused to leave early were forced to vacate their homes by means of the municipality's forced and pre-emptive evacuation policy. The local government’s community-based self-assessment for disaster resilience tool administered via an FGD during the DRR CCA Summit to the 200 participants gave the local government of Cainta an overall average score of 3.0 in terms of status and level of progress, which meant that there are some institutional commitments and capacities to achieving DRR, but progress is not yet comprehensive. A total of 198 respondents completed the survey, mostly belonging to the Homeowners Association (34 respondents), between the ages of 26 to 59 (117 respondents) and mostly male (98 respondents). Figures 47, 48 and 49 show the representation by sector, age and gender wherein the unidentified sector includes responses that could not be classified (i.e. GPACI, Health, MOA, PLM, Senior Citizens, Workers).
117
Academe 9%
Blank 18% Unidentified 6% Media 0% Religious 4%
Private 8%
HOA 17%
Youth 5%
PWD 2%
Informal Settlers 1%
CSO 7%
NGO 11%
LGU 12%
Figure 47 Self Assessment for Disaster Resilience Sectoral Representation
100% 90% 80% 70% 60% 50% 40%
Female
30%
Male
20% 10% 0%
Figure 48 Gender Representation
118
Senior Citizens 12%
Male 40%
Middle Age 71%
Undisclosed 12%
Female 31% Youth 5%
Figure 49 Representation by Age Groups
The average age of the respondents was 39 years old. Table 19 shows a breakdown of the respondents according to age groups. The grouping was made for the convenience of specifying the youth and senior respondents.
Table 19 Number of Respondents, By Age Group and Gender
GROUPS TOTAL Youth (16-25) 15 Middle Age (26-59) 117 Senior Citizens 34 (60 & up) Undisclosed Age 32 (blank) TOTAL 198
% 8% 59% 17%
MALE 6 66 23
% 40% 56% 68%
FEMALE 9 50 10
% 60% 43% 29%
BLANK 0 1 1
% 0% 1% 3%
17%
3
9%
3
9%
26
81%
16%
98
49%
72
36%
28
14%
Out of the ten essentials for a disaster risk reduction, the top five essentials that got the highest average rating among the respondents were:
119 1) Essential 5: Assess the safety of all schools and health facilities and upgrade these as necessary (with an overall average score of 2.98) 2) Essential 1: Put in place organization and coordination to clarify everyone’s roles and responsibilities (with an overall average score of 2.79) 3) Essential 3: Update data on hazards and vulnerabilities, prepare and share risk assessment (with an overall average score of 2.74) 4) Essential 10: Ensure that the needs and participation of the affected population are at the center of reconstruction (with an overall average score of 2.73) 5) Essential 6: Enforce risk-compliant building regulations and land use planning, identify safe land for low income citizens (with an overall average score of 2.71) However, out of the top five essentials stated above, Essential 5 got the highest rating which reflected the efforts of the Municipality of Cainta to ensure the safety of its public schools, hospitals and health facilities from disasters so that they have the ability to remain operational during emergencies. It received the highest rating because the affected population relied on the said facilities the most during disasters. The two questions under Essential 5 likewise obtained the highest ratings. And in terms of the core indicators of the five action priorities of the HFA that the national government use to monitor progress, this meant that the local government of Cainta is institutionally committed and capable to address the following HFA priority for actions:
120 1) (#2) Identify, assess and monitor disaster risks and enhance early warning. This also implied that local risk assessments based on hazard data and vulnerability information are available and include risk. 2) (#5) Strengthen disaster preparedness for effective response at all level. This meant that disaster preparedness plans and contingency plans are in place at all administrative levels, and regular training drills and rehearsals are held to test and develop disaster response programs. Though not far behind the top rated essential, “Essential 2” - Assign a budget and provide incentives for homeowners, low-income families and the private sector to invest in risk reduction – received the lowest status rating of an overall average of 2.41. In terms of the core indicators of the five action priorities of the HFA that the national government use to monitor progress, this meant that the local government of Cainta is close to having achievements but are incomplete, and while improvements are planned, its commitment and capacities are limited to address HFA priority for Action 4: Reduce the underlying risk factors. This suggested that social development policies and plans are being implemented to reduce the vulnerability of populations most at risk and that economic and productive sectoral policies and plans have been implemented to reduce the vulnerability of economic activities. The LGSAT result also revealed that the local government of Cainta rated low on the question "How much do warning systems allow for adequate community participation?" This could be interpreted in any (or combination) of the following ways:
121 1) Early warning systems are NOT in place for all major hazards, with outreach to communities; or 2) Early warning systems are in place BUT NOT for all major hazards, with outreach to communities; or 3) Early warning systems are in place for all major hazards, BUT WITHOUT outreach to communities (See Appendix 6 for key findings)
Disaster Resilient Cainta
In the past, local government units could only use the “Calamity Fund” if and when there was a calamity. But the DRRM Act of 2010 gave the directive not only to change the “Calamity Fund” into “Disaster Risk Reduction and Management Fund” but also in allocating funding to prepare for disasters. Consequently, the LAP for DRR and CCA also shifted from being reactive to becoming proactive. The CBDRRM and BDRRM Planning helped define the vision of the DRR-CCA action plan intended by this study along with its mission and respective goals. The participants agreed upon the LAP’s strategic lines and objectives and identified programs to be developed and implemented.
122 Vision Cainta to become a more resilient municipality, a safer place to live by well prepared residents in response to emergency. Mission 1) To strengthen local stakeholders and become active partners in disaster risk reduction and management and on climate change adaptation 2) To elevate the level of consciousness and awareness of each community in Cainta and become knowledgeable to all forms hazards in the municipality 3) To continuously work on the safety of every family and become prepared in response to the onslaught of a disaster or a calamity 4) To work intensively by empowering barangays and other various organizations to make disaster risk management a priority 5) To advance and promote environmental protection and management through community participation and mobilization 6) To establish strong collaboration with all local sectors and other agencies in advancing the development thrust in relation to disaster risk management
Goals 1) Strengthen vulnerable sectors for effective response during disasters 2) Establish technology mobilization 3) Institution building for effective participation of local stakeholders on disaster
123 risk management 4) Institute local emergency response groups down to the barangay level and equip them with necessary skills and knowledge on emergency and quick response 5) Well managed and community-based environmental management
DRR CCA Programs and Priorities
The selected programs and priorities to institutionalize and sustain the DRRM plan and mainstream CCA were the following: 1) Strengthening Local Disaster Risk Management System - Institutionalization of LDRRM and Leadership Structure a) Completion of the LDRRM Office b) Creation of Local Disaster Risk Reduction & Management Council (LDRRMC) through SB Ordinance No. 2012-002
Organizational Functional Structure with clarity in reporting relationship between and among Council Members
(Incident Command System) –Communication and Information Protocol was already established before, during, and after disaster
c) Establishment of Cainta Municipal DRRM Office through SB Ordinance No. 2012-001
124 d) LDRRMO Resource Management – designation of local disaster officer and detailing of personnel while waiting for the approved plantilla positions as provided by RA 10121 2) Establishing Strong Collaboration and Partnership with DRR Stakeholders in All Levels a) On-going “Resilience Project” or “Building Community Resilience and Strengthening Local Government Capacities for Recovery and Disaster Risk Management” Project with OCD/UNDP/CIDA b) Active Membership – Alliance Of Seven (A7) c) Active Membership – Philippine Disaster Risk Reduction And Management Organization (PDRRMO) spearheaded by the Provincial Government d) Work intensively with Barangays through strengthening the Barangay Disaster Risk Reduction And Management Council (BDRRMC) 3) Volunteerism and Innovation a) Strengthening the Cainta River Council
Multi-sectoral groups (LGU, Barangay, Women, Youth, Local Police, Local Fire, Religious, Homeowners Associations – HOA, etc.)
Off-shoot to Save Cainta River Movement (SCRM)
b) Institute local emergency response group through formation of V-ALERT (Versatile Alliance of Local Emergency Response Team)
Why “versatile” – scope is multi-hazard not just on flooding.
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Composition – minimum of 7 individual volunteers from each barangay and already organized Emergency Response Group in Cainta like UVCOM, etc.
c) Capacity Building of emergency response group and equipping them with necessary skills and knowledge on emergency and quick response.
Coverage of Training Programs a. First aid and Basic Life Support b. Search and Rescue c. Fire rescue d. Vehicular extrication e. Camp Management or Evacuation Center Management (MSWD) f. Rapid Earthquake Damage Assessment System (REDAS through PHIVOLCS and OCD) g. And other protective measures against Natural and Man-made calamities
d) Continuous Simulation on Earthquake and Fire Drills with Schools, Business Establishments and Subdivision with the Cainta Bureau of Fire Protection 4) Strong and Effective IEC - Advocacy & Development a) Elevate the level of consciousness and awareness of every community in Cainta to become knowledgeable to all forms of hazards in the municipality – Constant dialogue, partnering, symposium, meetings with concerned sectors (i.e. DepEd, HOA, Business, youth, etc.)
126 b) Institutionalize effective participation of local stakeholders on disaster risk management through summits and conferences c) Develop materials of Cainta such as DRRM flyers and hand-outs d) Strengthen vulnerable sectors through the conduct of a Community-based Disaster Risk Reduction and Management Program (CBDRRMP) – West and East Manggahan Floodway areas already done. Outputs of CBDRRMP were “disaggregated data” (how many are children, women, elderly, people with disabilities (PWD), etc… in the area/community?) 5) Institutionalized Planning and Budgeting For DRR CCA a) Revisiting Cainta Contingency Plan through “resilience project” to be held on June 25-28, 2012 at Clark, Pampanga b) Updating of Comprehensive Land-Use Plan and Comprehensive Development Plan (CDP) where DRR-CCA is integrated c) Forced and pre-emptive evacuation plan & policy under review for approval d) Stock-piling of relief goods e) Procurement of life saving & communication equipment f) Purchase and Maintenance of early warning system/devices (Rain-gauge devise, flood marker)
The LDRRM Plan
The Plan went through an inter-department participatory process of identifying the Strengths, Weakenesses, Opportunities and Challenges of the LGU before determining
127 gaps and barriers. The LDRRM Plan which followed four distinct yet mutually reinforcing thematic areas of NDRRMP namely Mitigation, Preparation, Response and Recovery was presented by the local chief executive to the MDRRMC.
List of Cainta DRRM Plan Priority Projects
To fast track the implementation of the LDRRMP, priority projects and demonstration sites were identified. The purpose was to either replicate good DRRM practices or implement projects in areas which need them most. All priority projects were to be implemented within the immediate or short term period from 2011 to 2013. The priority projects of the LDRRMP were: 1) Development of Contingency Plans 2) Development of IEC and advocacy materials on RA 10121, DRRM and CCA 3) Development of guidelines on a. Communications and information protocol before, during and after disasters b. Creation of DRRM teams c. Criteria/standards for local flood early warning systems d. Evacuation e. Infrastructue redesign and/or modifications f. Manual of operations of disaster operations centers g. Accreditation of stakeholders including volunteer groups
128 4) Establishment of a. DRRM Training Institutes b. Local flood early warning systems (through integrated and sustainable management river basins and water sheds – like the Cagayan River Basin (CRB) in Region 2 c. End-to-End Early Warning Systems d. Establishment of local DRRM Councils and Offices and their operations centers, as prescribed by R.A. 10121. 5) Conduct inventory of existing DRRM and CCA resources and services; and 6) Development and implementation of DRRM and CCA activities using 5 percent of government agency’s allocation from the annual national budget or General Appropriations Act (GAA).
Monitoring and Evaluation
Feedback mechanisms are important aspects of gauging performance targets and learning from experiences on the ground. The Cainta DRRMP, being a long term plan which outlasts political terms, administrations and leaderships, need to be constantly reviewed in terms of its relevance and impact on the changing situations on the ground. Monitoring and evaluation are essential components of results-based programming in DRRM and CCA, as these would ensure the plan’s on-time implementation and that lessons from past experiences become input to the plan altogether. Also, through monitoring and evaluation activities, appropriate and needed revisions and/or changes
129 could be identified, from the listed activities to the implementation mechanisms, in case more appropriate ones are realized. Monitoring and evaluation used the indicators, targets and activities identified in each of the four thematic areas of the DRRMP. (refer to Appendix 7 for some examples of means of verification).
130 CHAPTER VI SUMMARY OF FINDINGS, CONCLUSIONS AND RECOMMENDATIONS
Summary of Findings
This Governance Innovation Report was able to achieve its main objective of creating an integrated and multi-sectoral Local Action Plan for Disaster Risk Reduction and Climate Change Adaptation for the Municipality of Cainta that was mainstreamed into their Local Development Process. By following the four phases, the proposed LAP was approved by the Cainta MDRRMC and the Sangguniang Bayan and adopted into the CY 2013 Annual Investment Plan of the Municipality of Cainta. A thorough review of the secondary data allowed the proponents to study the international, national and local policies, plans, practices and programs in DRR and CCA as reference materials in the creation of the LAP for Cainta. This study considered international and national frameworks and policies such as the HFA, UNFCCC, Local Government Code, Philippine Climate Change Act, Philippine Disaster Risk Reduction and Management Act and NCCAP. Primary data were gathered through interviews, focus group discussions, workshops and survey questionnaires and were used in characterizing hazards, determining climate change impacts and assessing vulnerabilities of the exposed areas and the capacity of the Municipality of Cainta in terms of DRR and CCA. The LAPDRR-CCA's purpose of strengthening the resilience of the entire Municipality was done
131 in coordination with other government and development agencies, the private sector, civil society organizations, marginalized groups and other stakeholders. The first phase involved preparing the institutional setting and raising public awareness by convening all actors and utilizing a participatory process. The second phase consisted of becoming better acquainted with the Municipality’s risks by conducting disaster risk assessments and analyzing the local environment and actors. The method involved drew an analogy between the identified hazards and its underlying factors and the perceived vulnerabilities based on historical data and projections. Information on DRR from existing international, national and local frameworks, policies and programs as well, as where the local government stands in terms of the Ten Essentials for making cities resilient developed by the United Nations Office for Disaster Risk Reduction (UNISDR), were collected and systematized for better knowledge about risks. The DRR assessment process included:
Carrying out a general study or diagnosis of the Municipality of Cainta;
Community-based Hazard and Vulnerability assessment;
Prioritizing strategic actions;
Promoting discussions among all actors to reach consensus on priorities; and
Empowering local communities to generate risk assessments.
Internal and external analyses of the Municipality's strengths, weaknesses, opportunities and challenges accompanied with an assessment of the resources and capacities of the Municipality in relation to disaster risk reduction was also part of the second phase.
132 The third phase involved the definition of the LAP's vision and mission, objectives and goals and identification of key DRR and CCA programs and projects. Phase three went through the following steps: 1) Pointed out programs to be developed and implemented by the LAP; 2) Prioritized projects or programs that must be carried out immediately; 3) Prepared a DRR local action plan and convened stakeholders to validate and integrate their observations; 4) Prepared a final plan; 5) Incorporated all elements of the DRR into the Municipality of Cainta's local development plan; and finally 6) Disseminated the plan to ensure that the entire community is fully aware of its content. The fourth and last phase involved the following: a definition of responsibilities and roles of all agencies, actors and the community; the establishment of the necessary mechanisms and promotion of the management and mobilization of resources; and financing for implementation of the plan's projects. It also ensured broad participation and ownership of all stakeholders with the following purpose:
Guaranteed the validity of formal and informal institutional mechanisms that allowed all actors to take ownership of the plan.
Established partnerships and alliances at the local, national and international level for implementation of the plan.
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Enlisted the support of all sectors and actors in the preparation of the projects under each of the disaster risk reduction and climate change adaptation programs.
The community-based risk assessment done at the barangay level revealed that among the seven identified hazards in the municipality, the risks of flooding, typhoon and earthquake were the most recognized hazards within the Municipality. The risk assessment also revealed that San Andres, being the most populous barangay is the most vulnerable barangay from typhoon, flooding and earthquake. The previous chapters also established that the local government of Cainta has sufficient funds that put them in a position to allocate budgetary resources and serve its people including disaster risk reduction and climate change adaptation efforts found in the local action plan. With regards to disaster resilience, the local government got the highest rating in Essential 5, which revealed that in terms of the level of progress or status, the local government is committed to ensure the safety of its main schools, hospitals and health facilities from disasters, so that they have the ability to remain operational during emergencies. Essential 2 got the lowest rating, implying that in terms of level of progress, the local government of Cainta has made achievements but are incomplete and commitment and capacities are limited in assigning a budget and providing incentives for homeowners, low-income families and the private sector to invest in risk reduction. The LGSAT results also revealed that the local government of Cainta rated low on the question "How much
134 do warning systems allow for adequate community participation?" This could be interpreted in any (or combination) of the following ways: 1) Early warning systems are NOT in place for all major hazards, with outreach to communities; or 2) Early warning systems are in place BUT NOT for all major hazards, with outreach to communities; or 3) Early warning systems are in place for all major hazards, BUT WITHOUT outreach to communities.
The main purpose of the LAP-DRR-CCA, which is to make Cainta a climate and disaster resilient municipality, is aligned to Cainta’s vision of creating a progressive, prosperous and habitable city of responsible residents. The local chief executive, as one of the proponents of this study, realized that the sooner they mainstream DRR and CCA in their policies and programs, the easier it will be for Cainta to achieve their vision. The LAP-DRR-CCA priority programs and projects generally addressed the strategic priorities of NCCAP namely in terms of: 1) Ecosystem and environmental stability through enhanced resilience and safety of natural systems and communities, 2) Human security through reduced risks of the population from climate change and disasters, and 3) Knowledge and capacity development through enhanced awareness on and capacity to address climate change.
135 Conclusions
As one of the proponents of this GIR and as the local chief executive, Ramon A. Ilagan, has had first-hand experience on why and how the Local Action Plan for Disaster Risk Reduction and Climate Change Adaptation (LAP-DRR-CCA) of the Municipality of Cainta has to consider the Hyogo Framework for Action and the various climate and disaster-risk resilience initiatives of the United Nations Development Programme (UNDP) and the United Nations International Strategy for Disaster Reduction (UNISDR). The discussions on the UNDP-led “Cash for Work Program” and the CIDA-funded “Resilience Project” provided a concrete glimpse of how international cooperation can drive local action. The national government is also pushing institutional reforms and capacity-building through policies enacted by Congress and programs implemented by the national agencies and local government units. The triumvirate laws of Republic Act 9729 or the Philippine Climate Change Act of 2009, Republic Act 10121 or the Philippine Disaster Risk Reduction and Management Act of 2010 and Republic Act 10171, or the People's Survival Fund Act of 2012, ensure that institutionalized changes to improve disaster and climate-risk resilience are in place. These changes are evident in the creation of the Cainta Municipal Disaster Risk Reduction and Management Office; the expansion of the scope of “Disaster Risk Reduction and Management Fund” to include procurements and service contracts for disaster response, mitigation, preparation, and post-disaster recovery; and
136 the participation of national agencies and community members in the formulation of local action plans. Given its geographical location and geophysical characteristics, the Municipality of Cainta regularly experience natural disasters of geological and meteorological in origin. The voice of the community identified typhoon, flooding and earthquake, particularly ground shaking and liquefaction, as the top hazards that affect the Municipality of Cainta face. These natural disasters had a considerable impact on the lives and livelihoods of the people of Cainta. In 2009, Cainteños were awakened by the rush of floodwaters inside their homes caused by the nightlong rain of Super Typhoon Ondoy. More than 90 percent of Municipality of Cainta was flooded, causing the death of 15 people and inflicting damages worth over PHP 100 million pesos. In 2012, Cainta went under a State of Calamity again as 80 percent of the Municipality was again submerged in floods spanning from 2 feet to a high of 10 feet. A total of 5,462 families were affected consisting of 27,094 individuals in 43 evacuation centers and the damage to infrastructure (ripraps, bridges, silt) accounted to approximately PhP108 million. For the Municipality of Cainta, the proponents looked at its vulnerability to disasters through the province’s human development index, population density, number of informal settlers per barangay and number of affected families when disaster strikes. The province of Rizal ranked 6th most vulnerable among all the provinces in the country with regard to HDI levels. The Municipality being part of Rizal consequently becomes highly vulnerable in this aspect. Having a population density as high as 11, 810.63
137 persons per hectare, the people of Cainta becomes extremely vulnerable to the three hazards identified. Barangay San Andres was also pointed out as the most vulnerable barangay in terms of the hazard maps and population density. It has the highest number of informal settlers, high incidence of affected families in flooding. This study established that the local government of Cainta is in a position to allocate funds to serve its people due to its consistent improvement of fiscal capacity. The LGSAT survey also revealed that the local government is generally dedicated in completing the Ten-point checklist for disaster risk reduction with Essential 5 as its strongest suit. The local government however, needs to improve on Essential 2 and in allowing adequate community participation in warning systems. Having said that, the local government is able to create, appropriate and implement an integrated local action plan for disaster risk reduction and climate change adaptation for the entire Municipality. As a result, the major programs, projects and activities were comprehensively aligned to the voice of the most vulnerable members of the community, utilizing a participatory process in the truest sense of the word. The LAP and the AIP not only addressed the scientific concern of climate change but also considered the actual needs of the community. The proponents considered it an achievement that a number of municipal departments specifically MENRO, MEO and MSWDO included climate change and disaster mitigation and adaptation programs in their AIPs. In terms of four thematic areas, below were the thrusts of the local government regarding its LAP-DRR-CCA:
138 1) Mitigation a. Goal: To strengthen the Local Risk Reduction and Management System of Cainta down to the grassroots level by adopting measures and formulating policies and plans and implementing various actions that concern risk assessment and early warning measures. b. Create the LDRRM Office and establish the Operation Center c. Strengthen the Barangay DRMM Councils and Offices in all the 7 barangays d. Assess and inspect the safety/building codes of existing structures e. Monitor and maintain rivers and waterways f. Mainstream DRR-CCA in the Comprehensive Land Use Plan (CLUP) g. Involve Multi-sectors in awareness programs h. Enhance early warning systems i. Finalize multi-hazard maps j. Strengthen the Cainta River Council and partnership with other LGUs and organizations 2) Preparation a. Goal: To enhance the emergency response capabilities and readiness of Cainta through strengthening its LDRRM System to become a more resilient municipality b. Train and build capacity of Emergency Response Team
139 c. Store enough reserves of relief goods d. Purchase life-saving and emergency response equipment e. Conduct Disaster Emergency and Response Drills 3) Response a. Goal: To institutionalize the Incident Command System for effective and efficient response b. Recognize and continue to train the members of the Emergency Response/ Rescue Team c. Formulate the Evacuation Plans of the Barangays d. Provide accessible means of transportation e. Provide relief goods to those in need 4) Recovery a. Goal: To enable a fast psychosocial, economic and structural recovery of disaster-affected communities b. Deploy clean-up teams of Municipal Public Safety Office (MPSO) and Bureau of Fire Protection (BFP) c. Institutionalize Cash for Work and Food for Work Program d. Implement Rapid Damage Needs Assessment of Infrastructure e. Distribute wooden bridges for flooded areas Both the Christian doctrine and the legal principle state, "Those who have less in life should have more in law". Listening to the voice of the most vulnerable then means adopting a rights-based approach, where the less fortunate and people at-risk (elderly
140 people, children, people with disabilities, women and people living in hazard prone areas) are given the first priority to be served.
Lessons Learned and Recommendations
This Governance Innovation Report can be considered an exercise of good governance and accountability, as it required the local government to anticipate trends and changes that could affect their environment, economy and the well being of the community. The elements of participation and transparency were utilized through the summits and community dialogues. Accountability was also established in the barangay being the front liners in the impacts of climate change.
Social Accountability Toward Successful Planning
The success of this local action planning required the following key factors: the leadership and involvement of the local chief executive, the participation of key stakeholders; open communications and transparency; balanced decision-making; and sound project management. The ease of the local planning process depended on the degree of interest and support of the people, as is evident in the good participant turnout in the workshops, FGDs, interviews and surveys we conducted. Climate change is a very big issue or problem that could not be handled alone by the local government units. They need the help of the community in the same manner as the community needs the help of their government. Thus, it was necessary to have the
141 concepts of social accountability, a process of constructive engagement, to be applied in every stage of the action planning for disaster risk reduction and climate change adaptation. Social accountability required partnership and collaboration between the public and the citizens to work. Inclusion of the poor and the marginalized sectors was regarded to be crucial in planning for DRR and CCA programs that are meant to come to the aid of the highly affected population. During the formulation of the Barangay Development Plans, active participation from all sectors in the community was solicited and all sectors were properly represented. Vendors, business groups, the women's sector, senior citizens, the youth and others were encouraged to attend the Barangay Disaster Risk Reduction and Management Planning held in every community. The premise was based on the fact that people in the community know their own needs, problems and concerns. Social accountability also worked in an enabling environment in which the local government’s receptivity to citizen’s participation is embodied in the combination of the government’s advocacy and an enabling legislation. (Affiliated Network for Social Accountability in East Asia and the Pacific, 2010) The institutionalization of DRR and CCA into the local development planning was achieved with the support of planning frameworks such as the Comprehensive Development Plan (CDP) and the ELA (Executive and Legislative Agenda). Another important element in local action planning was the political will. The Mayor and the officials demonstrated strong and determined commitment to implement DRR and CCA plans, without bias to any political affiliations or soco-economic
142 divisions. It was also necessary to acquire and maintain the support of local stakeholders, local government staff and personnel, business sector, NGOs, and the public in general.
Disseminate and Promote the Plan
The proponents learned that people's awareness to climate change is crucial to allow appreciation and ownership of the DRRM-CCA plans. Thus it is important to develop and nurture a culture of disaster preparedness. Mayor Ilagan, through his public speeches, conveyed the need for action but balanced the challenge with optimism and inserted information on why local action was necessary. After developing the message of disaster preparedness, the next step was to spread the message to everyone, through issuances of newsletters, fact sheets, brochures, website, public meetings, press releases or public statements, summits and workshops. An internal and external communications strategy is necessary to inform local authorities, the community and different actors about the gaps, problems and achievements.
Incorporate Mitigation Efforts
It is true that climate change has largely negative consequences to the economy but the planning process revealed that it might also create economic opportunities for LGUs especially in the long run. The proponents of this study recommend for future plans to include mitigation or corrective measures in local action plans other than disaster risk reduction and climate change adaptation. Mitigation is one of the pillars of addressing
143 climate change and shall be pursued as a function of adaptation. It might not be cost effective to do now for Cainta, but in the long run, mitigation plans might produce more savings. Calculate Greenhouse Gas as CCA Impact Measurement The Municipality of Cainta’s susceptibility to natural hazards due to its geographical location and geophysical characteristics created the need to integrate the climate change programs in the local action plan. Cainta's experiences with Ondoy and Habagat had shown that climate change would likely lead to irreversible losses if no action is taken. Hence, planning for the future is a must. But in order for climate-smart development to take place in the local setting, the local government should not only end with being climate resilient (adaptation) but also strive for low emission development (mitigation). Greenhouse gases are the reason there is global warming, while global warming or the increase in atmospheric temperatures is said to force the climate to change. Therefore, climate change is indirectly attributed to greenhouse gas emissions from the earth. Peter Drucker, an American management consultant and educator once said, “You can only manage what you can measure” and it is in this context that the proponents recommend doing a quantified list of greenhouse gas (GHG) emissions and sources for the Municipality of Cainta to account for the amount of GHG it contributes in the atmosphere and from there build strategies to control them. Understanding, managing and reducing GHG emissions can bring several benefits:
Knowing the present and historical GHG emissions of the locality
144
Providing (scientific) information needed to prioritize actions which results to a reduction of waste and costs and improve on the quality of the local environment
Providing data needed to monitor and assess the actions
Demonstrating leadership and social responsibility.
By identifying emission sources, computing emissions and setting reduction targets, the local government would be technically equipped to implement actual climate change initiatives or projects in their own premises. Some LGU management operations resulting from a GHG inventory could be protection of forests and save on energy usage in buildings, homes, vehicles, etc.
Climate Change Adaptation through Land Use Planning
The local chief executive of the Municipality of Cainta realized that the sooner DRR and CCA programs, projects and activities are mainstreamed in the local government’s policies and programs, the easier it will be for Municipality to achieve its vision. There can be no progress and prosperity if the Municipality of Cainta does not prepare for the impacts of climate change and the onslaught of natural disasters. In the same manner, Cainteños cannot call themselves responsible residents if they do not have the skills and resources to respond to life-threatening situations. The Municipality of Cainta can also evolve to better adapt to climate change through land use planning. Adaptation is a local response to a global issue that is tailored to the vulnerabilities of the local communities. The type of planning used in LGU’s
145 comprehensive land use plan (CLUP) takes an anticipatory approach that is proven to be less costly than reactive planning measures. And since land use planning requires knowledge of the current state of the landscape, land use maps needs to reflect the most accurate and most recent land cover, with details on how it is being used. (Sanborn) The proponents recommend for the local government of Cainta to update its land use map that was created 12 years ago. The CLUP of the Municipality of Cainta is currently being re-developed and the proponents of this study aspire for DRR and CCA measures to be considered in the revisions.
Empower the LDRRMO
The Memorandum of Understanding (MOU) between the Climate Change Commission and the National Disaster Risk Reduction and Management Council (NDRRMC) on February 28, 2011, initiated the joint efforts of both national agencies to combine the related issues of climate-risk and disaster-risk resilience and help address them at the local level. According to their MOU, both agencies will work together to support the plans and actions of the local government units around the country, especially in each LGU’s integration of disaster risk reduction and management into climate change action plans. These joint efforts would provide the combined disaster and climate risk information coordination and knowledge management that local government units, especially the disaster-prone and climate change-affected ones, need. The proponents would like to recommend that the joint activities of the said national agencies be coursed
146 through the respective local disaster reduction and management offices of the LGUs so to facilitate greater appreciation and application of the technical information would be achieved. With these joint efforts in DRR and CCA, the Cainta MDRRMO should also look into expending its mandate not also include strategies for climate change adaptation and mitigation.
Monitor, Follow up and Evaluate the Plan
The key to an effective plan is to be able to measure its progress and submit the plan to constant updating. During the implementation stage, it is crucial to put in place communication mechanisms that allow the community to provide input, suggestions or comments. In particular, the proponents recommend the following course of actions to be done at the implementation stage: 1) Develop a monitoring, evaluation and assessment strategy to implement the plan. 2) Define who is responsible for follow up and monitoring, including the role of the local community and the social or economic sector. 3) Establish indicators to measure progress and achievement of the plan’s objectives. 4) Prepare a clear timeline for carrying out the evaluation and delivering progress reports, including responsibility for these tasks.
147 5) Include feedback mechanisms and opportunities to consult with the community and local authorities. 6) Improve technical content by allowing local authorities and stakeholder institutions to provide input to the plan.
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154 APPENDICES
Appendix 1 King Country Questionnaire for Preliminary Assessment of Climate Change Impacts and Adaptation Barriers
General Information 1. Name(s) of person(s), title(s) and division/ department completing this survey. 2. What is the natural or built resource that is the focus of this questionnaire response? Please use above sector name: Assessing Sensitivity 3. How is your natural or built resource sensitive to present day climate variability? 4. How is climate change likely to affect your
natural or built resource? Of these impacts,
which present the greatest concern and why? 5. What additional information about climate
impacts would help further your ability to
manage climate change impacts? 6 Do you know of, or can you identify, potential economic impacts from climate change? Please state what the potential or expected impacts are and why they may occur. Assessing the Capacity to Adapt to Climate Change 7. To what extent do current plans, policies, and
regulations explicitly account for the impacts of climate variability or change, or inherently provide a buffer against climate impacts? Please provide examples. 8. How adequate are these existing plans, policies, or regulations for managing climate impacts? (very good, good, fair, poor) If answering for more than one plan, policy, or regulation, please answer for each. 9. What additional actions, authorities, policies, or regulations are needed for managing climate change impacts? 10. If specific recommendations are not identifiable, what process is necessary to identify adaptation strategies?
155 11. Do you have existing forums or committees to do this? 12. What recommendations can you make for near-term (less than 5 years) and longerterm actions or next steps? Cross-agency and Cross-sector Interactions 13. To what extent do climate change impacts and adaptation activities in other sectors (listed above) affect your resource? Please specify. 14. To what extent do climate change impacts and adaptation activities in your resource affect other sectors (listed above)? Please specify. 15. What other county departments or governmental jurisdictions need to be involved in developing and implementing adaptation responses to climate change for your natural or built resource? 16. Is there currently a process or forum in place that facilitates this type of interaction? If so, please specify. 17. Please provide any additional information that you would like to share.
156 Appendix 2 LAP-DRR-CCA (Program, Projects, Activities)
1) PREVENTION AND MITIGATION LGU Budget Targets including IMPLEMENT Programs/ Activities Key Output PS/ Gender concerns ATION YEAR MOOE/ CO Goals: To strengthen Local Risk Reduction and Management System of Cainta down the grassroots level by adopting measures and or formulating policies and plans as well as implementing various actions that concerns risk assessment and early warning knowledge-building and awareness-raising. Completion and Fully Operationalized 7M 2012-2013 1. Establishment of Cainta Equipping of LDRRM Office with 3M 2014-2017 LDDRM Office or LDRRM Office complete human resources, Operation Center-C3 required equipment and supplies including furniture and fixtures Strong and effective Clear and synchronized 100K Yearly 2. Strengthening the Local contingency plans for all Disaster Risk Reduction coordination and communication types of hazards and disasters and Management mechanism in-placed Council) Harmonization of PPAs of LDRRMC members Strong involvement Synchronized DRRM-CCA 500K Yearly 3. Strengthening the of Barangays in plan of LGU and barangays Barangay Disaster Risk strengthening DRRDRR-CCA Focal person in Reduction and CCA implementation every barangay identified. Management Council in at the community 7 barangays level 4.
Building Assessment and/or inspection to determine strength and safety/ Implementation of building Code or “Retrofitting” (schools, business, ETC) – (ENGINEERING CONCERN)
5. River Monitoring and assessment of creeks, roads and bridges (MENRO CONCERN)
Commissioning of task force that involves men and women in the assessment
Strengthening & equipping Environment Enforcers (EEs)
Safe building structures – climate change adaptationcompliant structures Typhoon-resilient
2M
Clean rivers and safe roads Regular assessment report on the status of roads, bridges, creeks and Cainta river
500K
2013-2017
2013-2017
157
Programs/ Activities
6.
7.
8.
Mainstreaming of DRR-CCA in sectoral plans and programs
Enhancement of and Maintenance of EWS -Rain Gauged/-Flood Marker/ Communication (Radio)/siren (Note: Procurement of EWS under 2012 budget) Multi-Hazard Mapping
Targets including Gender concerns
LGU Budget PS/ MOOE/ CO 500K
Yearly
No. of activities, fora, symposia, meetings, etc., conducted in the identified at-risk-communities Increased awareness of the community-at-risk
500K
Yearly
Increased awareness of teachers, students, parents on DRR-CCA
200K
Yearly
No. of activities, fora, symposia, meetings, etc. conducted
500K
Yearly
Key Output
IMPLEMENT ATION YEAR
Development & Production of Multihazards IEC Materials for knowledge management activities Conduct of Community-based disaster risk reduction and management programs (CBDRRM) Integration to DepEd lessons, and related activities like “contest” Orientation seminars, workshops, meetings with other sectors (Academe, HOA, Women, Youth, OSCA, PWD, etc.) Inclusion of DRRCCA in updating CLUP/CDP Designation of equipped personnel
Number of IEC materials Disseminated (Flyers, Handouts, leaflets etc.)
Specific DRR/CCA Plans and Programs incorporated in CLUP & CDP Sufficient and effective early-warning system
300K
2012-2013
2M
2012-2017
a)Identification of vulnerable areas/ identification of hazard-prone areas per barangay b)Provision & reproduction of multi-hazard maps
Developed comprehensive CBDRRM plan suitable for the classification of hazards within identified Community-at-risk per barangay identified Disaggregated data based established in at-riskcommunities
500K
2012-2017
158
Programs/ Activities
Targets including Gender concerns
Key Output
LGU Budget PS/ MOOE/ CO 1M
2013-2017
IMPLEMENT ATION YEAR
9. Institutionalization of local emergency response system through Formation & capacitating of VALERT (Versatile Alliance of Local Emergency Response Team) on multi-hazardin partnership with OCD (deleted)
Acquisition of legal personality and accreditation Formation & capacitating of VALERT (Versatile Alliance of Local Emergency Response Team) on multi-hazard
Good quality & equipped emergency responders to be composed of individual volunteers and organizations from 7 barangays Defined and strengthened structure of V-ALERT
10. Strengthening the “Water-Lily for Life” project for women (GENDERRESPONSIVE DRR)
Expansion of “Water Lily for Life Project” as Livelihood program to cater unemployed women at the barangay level
No. of women-beneficiaries per barangay
500K
2013-2017
11. Strengthening of Cainta River Council
Multi-sectoral participation and involvement in DRR programs
No. of programs and projects initiated by CRC – river rehabilitation, effective implementation of local environmental ordinances
200k
2013-2017
2) PREPAREDNESS LGU IMPLEM Budget ENTATI Programs/ Activities Key Output PS/MOO ON E/CO YEAR Goals: To enhance the emergency response capabilities and readiness of Cainta through strengthening its LDRRM System and Structure to become more resilient municipality. Targets including Gender concerns
1. Capacity-building of VALERT on multi-hazard and DRR-CCA
2. Stock piling
Enhanced technical KSA of V-ALERT on multi-hazard (i.e response and rescue operations) a. Food & Non Food Items b. Set of Hygienic kits & Medicines
Good quality acquired training
1M 2M 2.5
2013-2014 2015 2016-2017
Purchased Food & Non Food items MOA with business sector “GET NOW PAY LATER”
2.5 M
Yearly
159
Programs/ Activities 3. Disaster Emergency & Response Drill (Local, Brgys, Schools Govt. / Private, Business Establishment, Hospital, H.O.A. 4. Purchase of Life-saving and response equipment
Targets including Gender concerns
Key Output
Conduct regular emergency drill in collaboration with concerned agencies
Increased level of resilience and climate change adaptation
Acquisition of disaster equipment in relation to the Capacity-building programs for VALERT
(can consider other requirements proposed or requested by local partners)
LGU Budget PS/MOO E/CO 300K
IMPLEM ENTATI ON YEAR Yearly
2M 3M
2013 2014-2017
3) RESPONSE Programs/ Activities
Targets including Gender concerns
Key Output
LDRRM F
IMPLEMENTA TION YEAR
Goals: To institutionalize the Incident Command System (ICS) for effective response and early recovery. 1. Capacity Building of Enhance awareness Efficient streamline 500K Yearly Personnel Involved in ICS of all personnel operation during under ICS structure time of disaster through series of Provide effective orientation, response during coaching, and disaster transfer of knowledge Zero casualty and 500K Yearly 2. Formulation of Force Pre- Formulate guidelines for prefatality emptive Evacuation Plan emptive evacuation w/ Barangay Officials 3. Identification of alternate routes, and friendship routes between and among subdivision - conduct
Forging of MOA with H.O.A. to open up their roads Review the SB resolution regarding the FRIENDSHIP ROADS IDENTIFIED Availability of heavy operational transport services and vehicle Coordination meetings with HOA
Effective Delivery / Distribution of Relief goods to affected areas – Building effective coordinative mechanism
300K
2013
160 4) REHABILITATION AND RECOVERY Programs/ Activities
Targets including Gender concerns
Key Output
LGU Budget PS/MOOE/CO
IMPLEMENTATION YEAR
Goals: To enable a fast psychosocial and structural recovery of disaster-affected communities 1. Development of Recovery Localized 2M 2013 and Rehab Plan Instrument/Tool/ 3M 2014 2. Conduct of Study/or Methodology 4M 2015-2017 Development of Effective Development for and Efficient Tool and RDANA Instrument on Post damage Enhanced KSA of assessment or RDANA local camp (Rapid Damage Needs managers Assessment) 3. Capacity-building of Camp Managers
161 Appendix 3 Local Government Self-Assessment Survey Tool
Name (Optional) ___________________________Sector______________________ Age____Gender __ Local Government Self-Assessment Tool for Disaster Resilience (Adapted from the ‘Ten Essentials for Making Cities Resilient’ TEN ESSENTIALS
KEY QUESTIONS PER ESSENTIAL
ESSENTIAL 1: Put in place organization and coordination to clarify everyone’s roles and responsibilities
1.1 How well are local organizations (including local government) equipped with capacities (knowledge, experience, official mandate) for disaster risk reduction and climate change adaptation?
ESSENTIAL 2: Assign a budget and provide incentives for homeowners, lowincome families and the private sector to invest in risk reduction
ESSENTIAL 3: Update data on hazards and vulnerabilities, prepare and share risk assessments
1.2 To what extent do partnerships exist between communities, private sector and local authorities to reduce risk? 1.3 How much does the local government support vulnerable local communities (particularly women, elderly, infirmed, children) to actively participate in risk reduction decision-making, policymaking, planning and implementation processes? 2.1 To what degree does the local government allocate sufficient financial resources to carry out DRR activities, including effective disaster response and recovery? 2.2 What is the scope of financial services (e.g. saving and credit schemes, macro and micro-insurance) available to vulnerable and marginalized households for pre-disaster times? 2.3 To what extent do local business associations, such as chambers of commerce and similar, support efforts of small enterprises for business continuity during and after disasters?
3.1 How regularly does the local government communicate to the community information on local hazard trends and risk reduction measures (e.g. using a Risk Communications Plan), including early warnings of likely hazard impact? 3.2 How well are local government risk assessments linked to, and supportive of, risk assessments from neighboring local authorities and state or provincial government risk management plans? 3.3. How well are disaster risk assessments incorporated into all relevant local development planning on a consistent basis?
Score
162 TEN ESSENTIALS
ESSENTIAL 4: Invest in and maintain risk reducing infrastructure, such as storm drainage
KEY QUESTIONS PER ESSENTIAL
Score
4.1 How far do land use policies and planning regulations for housing and development infrastructure take current and projected disaster risk (including climate related risks) into account? housing communication transportation energy 4.2 How adequately are critical public facilities and infrastructure located in high-risk areas assessed for all hazard risks and safety? 4.3 How adequate are the measures being taken to protect critical public facilities and infrastructure from damage during disasters?
ESSENTIAL 5: Assess the safety of all schools and health facilities and upgrade these as necessary ESSENTIAL 6: Enforce risk compliant building regulations and land use planning, identify safe land for low-income citizens
ESSENTIAL 7: Ensure education programs and training on disaster risk reduction are in place in schools and communities ESSENTIAL 8: Protect ecosystems and natural buffers to mitigate hazards, adapt to climate change
ESSENTIAL 9: Install early warning
5.1. How safe are all main schools, hospitals and health facilities from disasters so that they have the ability to remain operational during emergencies 5.2 How far are regular disaster preparedness drills undertaken in schools, hospitals and health facilities? 6.1 How well enforced are risk-sensitive land use regulations, building codes, and health and safety codes across all development zones and building types? 6.2 How strong are existing regulations (e.g. land use plans, building codes, etc.) to support disaster risk reduction in your local authority?
7.1 How regularly does the local government conduct awareness-building or education programs on DRR and disaster preparedness for local communities? 7.2 To what degree do local schools and colleges include courses, education or training in disaster risk reduction (including climate-related risks) as part of the educational curriculum? 7.3 How aware are citizens of evacuation plans or drills for evacuations when necessary? 8.1 How well integrated are the DRR policies, strategies and implementation plans of local government into existing environmental development and natural resource management plans? 8.2 To what degree do civil society organizations and citizens participate in the restoration, protection and sustainable management of ecosystems services, including the Cainta river and tributaries? 8.3 To what degree does the private sector participate in the implementation of environmental and ecosystems management plans in your local authority? 9.1 How much do warning systems allow for adequate community participation?
\
163 TEN ESSENTIALS
KEY QUESTIONS PER ESSENTIAL
systems and emergency management capacities
9.2 To what extent does the local government have an Emergency Operations Center (EOC) and/or an emergency communication system?
ESSENTIAL 10: Ensure that the needs and participation of the affected population are at the center of reconstruction
9.3 How available are key resources for effective response, such as emergency supplies, emergency shelters, identified evacuation routes and contingency plans at all times? 10.1 How well are disaster risk reduction measures integrated into postdisaster recovery and rehabilitation activities (i.e. build back better, livelihoods rehabilitation, psycho-social assistance)? 10.2 To what degree does the Contingency Plan (or similar plan) include an outline strategy for post-disaster recovery and reconstruction, including needs assessments and livelihoods rehabilitation?
Score
164
Appendix 4 List of CBDRRM Informants
Area
Number of Individuals
Barangay: Sto. Domingo 1
Nagkrus Creek (St. Joseph)
39
2
Kasibulan Creek
247
3
Sitio Kangkungan
150
4
SMTI-San Buena Compound
250
5
Gruar Riverside Creek
86
6
Phase 1 Village East Creek
180
7
Cobra People's Riverside (Vill. East)
40
8
UMS Compound (PUMA)
80
9 Petron Compound 10 Buick Creekside (Village East)
50 7
11 Bronco Creekside (Village East)
270
12 Samahang Tabing Ilog
217
13 VENA (Village East)
84
Sub-total
1,700
Area
Number of Individuals
Barangay: San Juan 1
L. Santos Street San Juan Heights
22
2
Masgad, Surigao
48
3
Palmera Heights Creek
42
4
JHENIL (Back of Digitel)
17
165
Area
Number of Individuals
5 6
San Juan Heights (Motor Pool) Riverside St. Francis
11 27
7
Gen. Ricarte Creek
13
8 9
San Francisco (BERM) Sitio Kababan I
201 212
10 Apras BERM
520
11 Lower Manggahan
75
12 Samahang Magkakapitbahay (Don Mariano)
170
13 Anak Pawis Creek
200
14 Sitio Kababan II
155
15 Samahang Pinagkaisa(Don Mariano)Quil St.
120
Sub-total
1,833
Barangay: San Roque 1
Nursery Road
115
Sub-total
115
Barangay: San Andres 1 Lakas Tao 2 Planters BERM 3 Bagong Silang (Lakas Bisig) 4 Samahang Buklod Maralita 5 Everlasting Neighborhood 6 Lower Easement 1 7 Lower Easement II 8 Lower Easement III 9 Lower Easement 1V/Falcon Ville 10 Kampi I 11 Kampi II 12 BERMAI 13 United Neighborhood East
1,330 800 92 392 127 50 23 81 140 51 25 1,577 387
166 14 Special Block Kabisig 15 Buli Creek Neighborhood Assn. 16 Karlangan 17 Isla De Cainta 18 Gitnang Parola (Cemetery) Sub-total
136 129 110 60 120 8,525
Barangay: Sto. Niño 1
St. Dominic
13
2 3
212 St. Dominic Renea Compound
14 107
Sub-total
134
Barangay: San Isidro 1 Balanti Creek 2 Katahimikan (Karangalan)
182 9
3
V.V. Soliven (ICCT College)
43
4 5
Samahang Pagkakaisa ng Mahihirap (V.V. Soliven II) Tribu (Bayanihan Village)
70 57
6
Emerald St. Greenpark Exec. Village
8
7 8
St. Gregory (Near School) Sitio Halang
32 207
Sub-total
608
Grand Total: 10,020
167 Appendix 5 Key Findings on the Municipality of Cainta's Self-Assessment for Disaster Resilience
From the Government
SECTOR SB Members, Barangay, Local Government Departments, NGAs
LGU's STRENGTHS Ensure that the needs and participation of the affected population are at the center of reconstruction (3.1)
LGU's WEAKNESSES Put in place organization and coordination to clarify everyone’s roles and responsibilities (2.6) Assign a budget and provide incentives for homeowners, low-income families and the private sector to invest in risk reduction (2.6) Ensure education programs and training on disaster risk reduction are in place in schools and communities Protect ecosystems and natural buffers to mitigate hazards, adapt to climate change (2.6)
From Partner Organizations
SECTOR Academe
LGU's STRENGTHS Put in place organization and coordination to clarify everyone’s roles and responsibilities (3.4)
Assess the safety of all schools and health facilities and upgrade these as necessary (3.4) Private/ Business Update data on hazards and
LGU's WEAKNESSES Invest in and maintain risk reducing infrastructure, such as storm drainage (2.4)
Ensure education programs
168 SECTOR
NGOs
CSOs
LGU's STRENGTHS vulnerabilities, prepare and share risk assessments (3.1) Protect ecosystems and natural buffers to mitigate hazards, adapt to climate change (3.1) Assess the safety of all schools and health facilities and upgrade these as necessary (2.9) Enforce risk compliant building regulations and land use planning, identify safe land for low-income citizens (2.9) Put in place organization and coordination to clarify everyone’s roles and responsibilities (2.7)
LGU's WEAKNESSES and training on disaster risk reduction are in place in schools and communities (2.6) Assign a budget and provide incentives for homeowners, low-income families and the private sector to invest in risk reduction (2.4) Install early warning systems and emergency management capacities (2.4) Assign a budget and provide incentives for homeowners, low-income families and the private sector to invest in risk reduction (2.0)
From Other Sectors
SECTOR Youth
Religious
LGU's STRENGTHS Assess the safety of all schools and health facilities and upgrade these as necessary (3.5) Assess the safety of all schools and health facilities and upgrade these as necessary (2.7)
Media
Update data on hazards and vulnerabilities, prepare and share risk assessments (3.3)
HOAs
Assess the safety of all schools and health facilities and upgrade these as necessary (3.1)
LGU's WEAKNESSES
Assign a budget and provide incentives for homeowners, low-income families and the private sector to invest in risk reduction (2.7)
