PHI PDA: Building Disaster-Resilient Communities in Flood-Prone Areas: A Demonstration and Pilot Testing of Local Design Innovations for Housing and Small Community Infrastructures (Midterm Report)

PROJECT MID-TERM REPORT Building Disaster-Resilient Communities Communities in Flood-Prone Areas: a demonstration and pilot testing test ing of local design innovations for housing and small community infrastructures

1.0 Background The pilot demonstration activity (PDA) started with data gathering on existing situation and condition of the project site, including assessment of capacities, awareness and skills of SAMASAISIP on disaster risk reduction.

The next stage, Formulation of Community Disaster Preparedness and Mitigation/Adaptation Plan, covers development of plans to address identified hazards and strengthen community vulnerabilities. The project assumes that the community, SAMASAISIP, will remain in the site in spite of the in-situ hazards and vulnerabilities identified. The mitigation measures, therefore, shall address identified identified in-situ vulnerabilities. vulnerabilities. Furthermore, this stage involves the generation of indicative proposals to enhance community disaster preparedness, mitigation or adaptation in the pilot site taking into consideration: planned developments in the surrounding area; the extent and duration of flooding; flood control mechanisms; and lack of security of tenure. The proposal may include use of space, concepts for movement systems and linkages, open space systems (if applicable), adaptation measures and designs, activities, and services. services.

1.1 Objectives This stage has h as the following objectives: •

•

•

• •

Identification and consideration of government policies into physical and spatial allocation of proposed activities within the pilot site, such as economic growth, community and social needs, betterment of the neighborhood environment, conservation and protection of the natural environment, and the disaster mitigation and adaptation plans of the local government. government. Drafting of a site framework plan for the pilot area showing the site (the informal community) community) as an integral part of the barangay and its development. Formulation of the community disaster preparedness and mitigation/adaptation plan derived from the users’ assessment and requirements. This includes the physical constraints, design considerations, architectural and engineering criteria, and environmental limitations. Consultation workshops with target community are likewise included. Identification of community disaster adaptation measures Preparation of proposed site layout for a disaster-resilient community and plans for community infrastructure and house retrofitting.

2.0 Development Perspective of The City of Navotas

The City of Navotas is envisioned as “a Marina City in a well ordered urban landscape serving as a regional fishing hub with a healthy and empowered community in a sustainable environment

TAO-Pilipinas TAO-Pilip inas (Technical Assistance Organization), Inc.

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The views expressed in this paper/presentation are the views of the author and do not necessarily reflect the views or policies of the Asian Development Bank (ADB), or its Board of Governors, or the governments they represent. ADB does not guarantee the accuracy of the data included in this paper/presentation and accepts no responsibility for any consequence of their use. Terminology used may not necessarily be consistent with ADB official terms.

PROJECT MID-TERM REPORT

Building Disaster-Resilient Communities Communities in Flood-Prone F lood-Prone Areas: a demonstration and pilot testing of local design innovations for housing and small community infrastructures

governed by a transparent, dedicated, responsive and financially self-sufficient local 1 Government.'' The City endeavors to “ harness all resources to serve the needs of its constituency towards

industrialization and urbanization through the dedicated and accountable public official 2 and empowere e mpowered d citizenry c itizenry.'' .'' As a marina city, cit y, the coastal shores of Navotas play a significant s ignificant role in its development towards a regional fishing hub through industrialization and urbanization. However, for the island of Sitio Pulo, industrialization is not the option. From the City’s old land use plan, Sitio Pulo is planned as part of the 6.25 hectares parks and open spaces scattered in the city. Planning along the designated land use, Sitio Pulo has a strong potential as a recreational island with a local community serving as custodians or stewards of the development. Refer to Figure 1. Land Use Plan of Barangay Tanza (taken from the old Comprehensive and Land Use Plan of Navotas).

Low-density Residential

FISHPONDS

Medium-density Residential High-density Residential Commercial Institutional

Malabon

Industrial Parks and Open Spaces

Sitio Pulo

Manila Bay

Fishponds Existing road dike

Barangay Tangos

Figure 1. Barangay Tanza Land Use Plan

1

Official Website of Navotas. http://navotas.gov.ph/ Ibid.

2

TAO-Pilipinas TAO-Pilipi nas (Technical Assistance Organization), Organizati on), Inc.

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2.1 Sitio Pulo Framework Plan

Physical

Development

Sitio Pulo is located off the mainland of Tanza to the northern portion of Navotas. Sitio Pulo maintains its relationship with Barangay Tanza which serves as the seat of education and health services and other socio-economic activities. Livelihood sources in Sitio Pulo are mainly through off-shore fishing and are affected by seasonal catch. Pulo gets its water from another barangay, Tangos and power through off grid sources like generators and solar panels. Travel to and from Pulo is mainly on foot along the 500m long earth dike. Alternative access is through Manila Bay but people will have to pay for the boat ride. This is preferred for large volume of heavy cargoes like potable water, construction materials and household supplies. But this is only possible during good weather. Linkage of Sitio Pulo to adjacent areas may improve as the proposed industrial, commercial and residential developments developments are implemen i mplemented. ted. Refer to Figure Figure 2. Physical Physical Development Development Framework Framework Plan. Plan.

Pulo Existing road dike Existing earth dike Possible earth dike access Boat route to Tangos Low-density Residential Medium Density Residential High-density Residential Industrial Commercial Parks and Open Spaces Fishponds

Tangos

Figure 2. Physical Development Development Framework Framework Plan


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The proposed development of Sitio Pulo should take into consideration local site conditions, community activities, and movement systems. It should reduce current vulnerabilities due to natural and human-made hazards and improve the physical condition of the site, structures, access to services services and utilities, mobility, and opportunities to earn. The p roposed development development is divided into three zones: the buffer and conservation zone, residential zone and evacuation zone. Refer to Figure Figure 3. Zoning Zoning of Sitio Pulo. The buffer and conservation zone includes a mandatory 20m easement measured from the highest waterline. A 10m deep mangrove strip/reforestation area planted along the coastline shall serve as buffer against strong winds especially during southwest monsoon season. The mangrove strip can expand seaward to widen and strengthen the buffer and facilitate recovery of local marine resources. The mangrove strip shall be conserved and cannot be exploited. Subsistence fish gathering within the mangrove area may be allowed but it should carefully follow a set guidelines. Access from the Bay will be provided by three entry points that could accommodate small fishing boats during good weather. Infrastructure for docking may be provided to ensure proper docking of boats. The mangrove can also serve later as an eco-tourism to promote its conservation and appreciation more with the l ocals. The buffer and conservation zone shall serve as the first line of defense against natural hazards like typhoons, storm surge, strong winds, and the accretion or erosion of coastal land brought about by the periodic sea level rise and fall. The residential zone shall accommodate the existing 120 families and basic community facilities to provide adequate and humane living condition. Planning of the existing settlement area shall take into consideration the following: a. Adequate circulation system and access to housing units; b. Faster evacuation in times of calamity; c. Safety from human-made hazards hazards such as fire, disease outbreak, water and air po llution; llution; d. Equal area of housing units for all occupants; e. Allocation of adequate space for community facilities; and f. Removal of non-conforming uses (charcoal-making). Housing density shall be maintained or if possible lessened and shall by no means be increased. The present residents shall serve as custodians/stewards custodians/stewards of the island, including the conservation of the mangrove and buffer zone. The existing condition of the island and its surroundings prevent it from accommodating future population growth or expansion thus the residents of Pulo should agree on the maximum number of families that should stay in the island and enforce it. The maintenance of density in the island should also be regulated by the Barangay. The evacuation zone is composed of the inner channel that could serve as shelter for small fishing boats during inclement weather and a faster and safer route than Manila Bay, to evacuate people from the island in case of calamities; a multi-purpose hall that could serve as evacuation


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Building Disaster-Resilient Communities Communities in Flood-Prone F lood-Prone Areas: a demonstration and pilot testing of local design innovations for housing and small community infrastructures

center; a wooden bridge across the channel linking Sitio Pulo to the earth dike; and the dike as the main and only existing access to and from Barangay Tanza during normal normal days. The inner channel shall require periodic maintenance to ensure its functionality during inclement weather or typhoon season. The earth dike needs strengthening to prevent destruction and erosion during typhoon and sustain daily pedestrian traffic. The wooden bridge also needs retrofitting for safer pedestrian access at all times.

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Residential Zone 5 �� 10�� (�� ) �� (3�5�� )

Evacuation zone 2,4�2.2703 13,073.21�4 27.8847 4,224.3661


Boat access docking/ area Existing pedestrian dike Possible pedestrian dike

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Building Disaster-Resilient Communities Communities in Flood-Prone F lood-Prone Areas: a demonstration and pilot testing of local design innovations for housing and small community infrastructures 2.2 Disaster Risk Reduction in Navotas

The main hazard recognized in Navotas is flooding. In response to flooding, the City and National Government implemented major flood control projects to address flooding all throughout Navotas. The Department of Public works and Highways reported completion of the KAMANAVA Area Flood Control and Drainage System Improvement Project in 2009. Sitio Pulo however, is located outside the polder po lder dike. Budget allocation for flood control activities and equipment for rescue and relief operations are the priority items of th thee city’s disaster risk reduction management (DRRM) plan. Fire drills and rescue exercises were conducted among members of the city’s Local Disaster Risk Reduction and Management Office (LDRRMO) and rescue team. Disaster risk reduction and preparedness orientation however, has not reached the level of vulnerable communities. Barangay Tanza has yet to formulate its own local DRRM plan. Refer to Figure 4. KAMANAVA Flood Control and Drainage System Improvement Project, Table 1. Plan of Activities for 2011.

Figure 4. Map showing KAMANAVA Area Flood Control and Drainage System Improvement Project Source: http://jicari.jica.go.jp/publication/assets/Impacts%20of% 20Climate%20Change%20to%20Asian%20Co astal%20Areas%20The%20Case%20of%20Me tro%20Manila%20%20.pdf


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Table 1. Plan of Activities for 2011 Areas of Concern

Programs/Activities Programs/Ac tivities

Provision of gasoline oil and lubricants Payment of overtime service for rescuers

To provide gasoline/oil and lubrican lubricants ts to all rescue vehicles To provide overtime pay to all employees involved in rescue operations To maintain stockpile of food supplies for quick response operations To maintain stockpile of durgs and medicine for quick response To conduct trainings for all rescue teams To purchase one unit rescue vehicle To purchase disaster equipments and other logistics for rescue operations

Food supplies for stockpile Drugs and medicine Trainings and Seminars Lack of rescue vehicle Lack fo disaster equipments and other logistics Infrastructure facilities for disaster Lack of office supplies Financial assistance assistanc e Travelling expenses Quick response operations Evacuation centers Other activities for disaster preparedness

To repair/maintain/construct infrastructure facilities for disaster preparedness to purchase office supplies for the delivery of LDRRMO services To provide financial assistance to all victims of disaster/calamities Tp provide travelling expenses to LDRRMO To allocate funds for quick response operations To allocate funds for maintenance of evacuation centers To allocated funds for other activities of disaster preparedness

Period of Implementation Jan – Dec 2011

Budgetary Requirements 315,000.00 315,000.00

Jan – dec 2011

200,000.00

Jan – Dec 2011

1,000,000.00

Jan – Dec 2011

500,000.00 500,000.00

Jan – Dec 2011 Jan – Dec 2011 Jan – Dec 2011

315,000.00 1,400,000.00 2,300,000.00

Jan – Dec 2011

12,600,000.00 12,600,000.00

Jan – Dec 2011

110,000.00 110,000.00

Jan – Dec 2011

705,000.00 705,000.00

Jan – Dec 2011

5,000.00 5,000.00

Jan – Dec 2011

10,000,000.00 10,000,000.00

st

1 quarter of CY 2011 Jan dec 2011 Total (PhP)

750,000.00 351,707.00 30,551,707.00

2.3 Sitio Pulo Disaster Risk Reduction and Management Plan

As part of the PDA, a one-day workshop was conducted in 17 December 2011 to draw out the community’s ideas and formulate a disaster preparedness and mitigation plan. Taking-off from the outputs of previous workshops on disaster risk assessment, inputs on bridge design were given to guide the community in planning their identified priority projects: bridge repair, dike repair and house improvement. Actions identified from the previous workshops (conducted in November) were classified into structural and non-structural measures. Two focus group discussions (FGDs) discussing structural and non-structural measures as part of disaster preparedness and mitigation plan formulation formulation were conducted. In planning structural measures, discussion groups were asked to draw and locate proposed infrastructures or any physical improvements in the site, specify dimensions, materials and method of installation according to the local knowledge of the community and basic inputs provided for bridge design. Three groups were formed and three schemes were developed. Finally, the community decided on one scheme (Scheme 2) as the basis for the implementation TAO-Pilipinas TAO-Pilip inas (Technical Assistance Organization), Inc.

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of their preparedness and mitigation plan with some refinements from other schemes presented. Refer to Figure Figure 5. Selected Selected Scheme Scheme - Scheme 2.

Proposed detail of dike repair to be adopted.

Figure 5. Selected Scheme - Scheme Sche me 2. Schedules for the implementation of priority structural measures were then set. The top two priorities—wooden bridge retrofitting and dike repair, were scheduled in January 2012 and February 2012 respectively. Non-structural measures were mainly social preparations for the implementation of the structural measures which included fund raising, gathering of materials, design of the structures; getting the agreement and support of the whole community, the barangay and the city government; awareness-building and re-echo of the workshops participated by the leaders to the whole community. Refer to Annex 1. Disaster Preparedness Preparedness and and Mitigation Mitigation Plan Workshop Workshop Results Results

2.4 Priority Structural Measures

2.4.1 Wooden Bridge Retrofitting The wooden bridge retrofitting was scheduled on 20 January 2012. An inventory of useable materials from the existing bridge was made and additional materials were purchased to complete the needed materials for the retrofitting. Concrete foundations were provided with the use of square tin cooking oil cans filled with concrete. Good lumber posts (4” x 4”) were embedded in concrete foundations to support the bridge at 2.4m (8 feet) intervals (span). Planks from the old bridge were used for the flooring and additional 2” x 2” lumber for handrails were provided to improve the safety of o f pedestrians crossing crossing the bridge.


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Building materials and food were provided by the project with labor counterpart from the community members. Sand was taken from the coast and clean water was contributed by the community. Boats to transport the materials from Tangos to Sitio Pulo and manpower to haul materials to site were also provided by the community. Refer to Figure 6. Bridge Materials Inventory. Annex Annex 2. Photo Docume Documentation ntation of Retrofittin Retrofitting g Activity.

Figure 6. Bridge Materials Inventory

2.4.2 Dike Retrofitting The dike retrofitting was tentatively scheduled in February 2012 but some issues that need to be clarified prior to implementation include: obtaining the permission of the fishpond owner adjacent to the dike before the project implementation and counter funding needed to complete the retrofitting of the whole 500m stretch st retch of dike. The barangay Chairman set a meeting with the owner to discuss the proposal and get the dike owner’s owner’s consent. While issues are being addressed, design for the repair of the dike is underway. For the demonstration activity, only a segment of the dike will be retrofitted to serve as a model for the owner to follow. The community picked the longest breach of 33.80m for the demonstration. Other options were also identified in case resources/funding will not be sufficient to complete the selected segment. Design options took into consideration locally available materials, skills needed, and cost. The cost of the demonstration demonstration segment should not be prohibitive to encourage the fishpond owner to implement the same the design throughout the dike. Refer to Figure 7. Dike Retrofitting Retrofitting Options. Options.


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Figure 7. Dike Retrofitting Options

3.0 Issues and Concerns

During the project implementation, some delays were encountered due to unresolved issues concerning the tenure situation of the benefiting community, SAMASAISIP. The ADB requires that the community be allowed to stay in the site for 3-5 years to allow for the testing of building components to be applied in the site. 3.1.1 Supreme Court Order A certification attesting to the temporary tenure of the community in Sitio Pulo was sought from the Local Government of Navotas in compliance with the ADB requirement. However, the Navotas LGU cannot give the needed certification certification citing the Supreme Court order to clear all danger areas which covers all waterways. Furthermore, a mandamus was issued by the Supreme Supreme Court to clear all danger areas by 2015. Hence, the needed tenure of 3-5 years can not be assured. The LGU confirmed confirmed that they do not have immediate plans to clear the site but owners of adjacent fishponds fishponds must be consulted to determine whether they have plans that might affect affect the community.

TAO-Pilipinas TAO-Pili pinas (Technical Assistance Organization), Organizati on), Inc.

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Further consultation with the barangay yielded conflicting information. The barangay confirms that Sitio Pulo is a public land. But implementing infrastructures infrastructures such such as the repair of the earth dike needs the agreement of the adjacent fishpond owner/s. The Barangay Chairman consulted the fishpond owner/s for their agreement and possible share to the infrastructure infrastructure project. A draft agreement was submitted to the barangay for negotiations with the fishpond owner/s. Feedback still have to be received received from the Barangay to date. A possible option being considered was to move to another LGU/city to a new pilot site. However, it is expected that the problem will be the same given that most if not all flood-prone areas are located in danger areas subject to clearing as pe r Supreme Court order. 3.1.2 Tenure of Sitio Pulo In the latest consultation with ADB, the project is advised to proceed in Sitio Pulo. However, it must be clarified with the community, SAMASAISIP, that in the event that they are resettled outside of Navotas, the technology and materials will remain in Navotas and will be donated to a community in similar flood-prone condition.

4.0 Next Stage: Disaster – Resilient Models and Disaster - Resilient Technology/ Design Development

The next stage will be the selection of a common facility for the application of disaster-resilient technology. A consultation will be held to gather ideas for improvement of the selected facility and determine building components to be developed. ~(o(O)o)~


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Annex 1 Disaster Preparedness and Mitigation Plan Workshop Results

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PHI PDA: Building Disaster-Resilient Communities in Flood-Prone Areas: A Demonstration and Pilot Testing of Local Design Innovations for Housing and Small Community Infrastructures (Midterm Report)

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