QC Disaster Risk Reduction and Management Plan 2014 to 2020

project

Building a Disaster Resilient Quezon City Project

quezon city Disaster Risk Reduction and Management Plan 2014 to 2020

22 August 2013

Earthquakes and Megacities Initiative Earthquakes and Megacities Initiative Puno Building, 47 Kalayaan Avenue, Diliman, Quezon City, Metro Manila, Philippines 1101 T/F: +632 9279643; T: +632 4334074 www.emi-megacities.org

Disaster Risk Reduction and Management Plan 2014-2020 Building a Disaster Resilient Quezon City Project 22 August 2013

Copyright © 2013 QCG and EMI Formulated as part of the Final Deliverables of the “Building a Disaster Resilient Quezon City Project”, Earthquakes and Megacities Initiative, 2013 The concepts, methodologies, and overall design of the Quezon City Disaster Risk Reduction and Management Plan are developed by EMI; hence, the aforementioned are, and remain, intel-lectual property of EMI. Parts of the contents, data, and information contained in this report are property of Quezon City. This document is jointly owned by the Quezon City Government and EMI. Permission to use this document is granted provided that the use of the document or parts thereof are for educational, informational, non-commercial, and personal use only. The Quezon City Government and EMI must be acknowledged in all cases as the source when reproducing or using any part of this publication.


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Message from the Mayor

The Quezon City Disaster Risk Reduction and Management Plan 2014-2020 (QC DRRMP 2014-2020) specifies the policies, priorities, and actions to reduce the disaster risks faced by Quezon City within the next six years. It emphasizes the goal of the Quezon City Government to keep Quezon City residents safe from disasters and to protect our investments from the adverse effects of geological and well as climate related catastrophic events. With the help of our partner, the Earthquakes and Megacities Initiative (EMI), the QC DRRMC developed a plan that is based on sound scientific information to guide us in decisionmaking and in prioritizing the limited resources of the City Government to address the needs of its more than 2.86 million residents. This plan is a significant accomplishment and milestone for us since we now have the tools in our hands to better manage our risks. It also allows us to focus our attention and resources to where they are most needed and highlights the need for helping populations that are vulnerable to the impact of extreme events brought about by earthquake and flooding. I strongly encourage all city government and barangay officials, employees, development partners, and stakeholders in Quezon City to make full use the information contained in this QC DRRMP 2014-2020 in planning for their own work. Disasters is an issue that concerns us all and it is our collective responsibility to keep our families and our city safe from disasters. Finally, I wish to commend all those who worked hard into bringing this QC DRRM Plan 2014-2020 into fruition. Let us all work together to build a Disaster Resilient Quezon City. Mabuhay ang Lungsod Quezon!

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In the wake of recent earthquake and flooding events in the country, many local government units are now impelled to draw up and review their existing programs on disaster risk reduction and management. As the largest and most populated city in Metro Manila, Quezon City is all the more compelled to ensure the safety of its constituents and protect its development gains. Through the development of the Quezon City Risk Atlas, the city has made great leaps in understanding the importance of planning effectively to mitigate, prevent and prepare for the adverse effects of earthquakes and floods. In a country that constantly deals with one disaster after another, quality and science-based information becomes the next best tool for developing programs, projects and activities aimed for ensuring the safety of the city’s constituents. I commend all those who worked hard in completing the Quezon City Risk Atlas. With its completion, I am looking forward to a Disaster-Resilient Quezon City. Kaya natin ‘to!

Disaster Risk Reduction and Management Plan 2014 - 2020

Message from the Vice Mayor


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Message from the Project Directors

PCSUPT (Ret.) Elmo DG San Diego, QC DRRMC Action Officer

Dr. Eng. Fouad Bendimerad, EMI Chairman of the Board and Executive Director

The partnership between the Quezon City Government and Earthquakes and Megacities Initiative(EMI) proves that the city recognizes the fact that risk reduction is the responsibility of all, not just the government. The Quezon City Disaster Risk Reduction and Management Plan 2014-2020, along with the other products of the “Building a Disaster Resilient Quezon City Project,” provides the opportunity for the city to comply with the national law and international standards of practice, thus reducing risks in the long term and enticing developmental investments to come in the city.

The Quezon City Disaster Risk Reduction and Management Plan provides guidance for Quezon City to iniate investments effective in building resilience and protecting local development. The tools, methods and global experience by EMI applied to develop the plan ensures that Quezon City will meet the established international standards of practice in disaster risk reduction.

With the available information on the city’s hazards, vulnerability and risk, the QC DRRMP provides a road map on the strategies that will help Quezon City enhance its capacity in facing the potential impacts of a disaster. The “Building a Disaster Resilient Quezon City Project” paved way for Quezon City to envision ‘a Quality City with an empowered and responsive citizenry who live in a sustainable, well planned, and structurally sound environment with a vibrant economy under progressive leadership.’ Now equipped with the outputs from the Project, Quezon City now has the tools to reduce its risk and build its capacity towards a disaster-resilient city.

The QC DRRMP, along with its Annexes, is a product of several consultation and validation sessions among EMI, Quezon City Technical Working Group, Steering Committee and the City Development Council. By working together, EMI and Quezon City were able to produce a product that is scientifically sound and grounded on the real life experiences of people who are at the forefront of disaster risk reduction and management activities in Quezon City. I am confident that Quezon City will make full use of the QC DRRMP and sustain the momentum towards building a disaster resilient city!

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The Quezon City Disaster Risk Reduction and Management Council and Earthquakes and Megacities Initiative would like to express its great appreciation to a number of people, institutions and organizations that contributed to the development of the Quezon City Disaster Risk Reduction and Management Plan 2014-2020 (QC DRRMP 2014-2020). The Quezon City Technical Working Group, for the support, commitment and contribution, especially the Office of the City Mayor, Office of the Vice Mayor, the City Administrator, the City Council, Liga ng mga Barangay and other departments and offices involved in the project including the Information Technology and Development Office (ITDO), City Assessor’s Office, Environmental Protection and Waste Management Department (EPWMD), Department of City Engineer, Department of Building Official (DBO), Parks, Development and Administration Department (PDAD), City Health Department, Barangay Operations Center (BOC), Community Relations Office (CRO), City General Services Office (CGSO), Housing and Community Development and Resettlement Department (HCDRD), Social Services Development Department (SSDD), Gender and Development Resource and Coordination Office (GADRCO), Radio Communications Services (RCS), Business Permits and Licensing Office (BPLO), Office of the City Secretary, QC General Hospital, Philippine Red Cross-QC Chapter, Division of City Schools, Communication Coordination Center (CCC), Public Affairs and Information Office, City Budget Office, Task Force COPRISS, and City Treasurer’s Office. Special thanks to the Department of Public Order and Safety (DPOS), City Planning and Development Office (CPDO), and the Quezon City Disaster Risk Reduction and Management Office (QC DRRMO) for the commitment,

dedication, and support at all stages of project implementation until the completion of the QC DRRMP 2014-2020. The Project Steering Committee, for providing guidance and in harnessing the support of key stakeholders in the city. The Consultative Committee composed of representatives of the City Development Council Sectoral Groups, for providing pertinent contribution and counsel to the formulation of the QC DRRMP 2014-2020. Select barangay officials of the Quezon City Government, for their inputs and participation in the activities conducted by the QC TWG for the duration of the project. To all individuals, organizations, and institutions who contributed and participated in all project activities, we greatly appreciate your contributions and inputs. Our sincere apologies are extended to those we might have inadvertently failed to thank in this document.


Acknowledgements


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Executive Summary

The Quezon City Disaster Risk Reduction and Management Plan (QC DRRMP) for 2014-2020 is the concluding output of the twelve-month “Building a Disaster Resilient Quezon City Project,” which was a collaboration of the Quezon City Government (QCG) and the Earthquakes and Megacities Initiative (EMI). Purpose and Objectives The development of the QC DRRMP finds its principles, foundations, and structure from the following national and international acts, standards, and guides: • Republic Act 10121 or Disaster Risk Reduction Management Act of 2010 • UN Economic and Social Council’s Number 63/1999 • Hyogo Framework for Action 2005-2015, • Emergency Management Standard by Emergency Management Accreditation Program or EMAP • ISO 31000 The QC DRRMP intends to support QCG fulfill its obligations and compliance in the above-listed acts, standards, and guides while at the same time provide a clear road map on actions and decisions to reach the DRRM objectives set up by national and international actors in the specific context and parameters of Quezon City. Another purpose of the QC DRRMP is to provide the necessary and required elements to understand, communicate, and manage the various hazards and risks faced by the city through optimization of its existing capacities in reducing risks and protecting its assets and communities. Moreover, the QC DRRMP will inform policy and decision makers to optimize investments in DRRM and to guarantee commitments to integrated Disaster Risk Reduction priority programs. The specific objectives include:

a. Identification of hazards, vulnerabilities, risks and capacities; b. Identification of mainstreaming strategies and definition of near term, mid-term and long term programs, projects, and activities (PPA’s); c. Assessment of the local capacity to manage risk and reduce vulnerability at the local level (i.e., barangay and community); Application of a gender-responsive DRRM approaches and strategies in managing said hazards and risks; d. The elaboration of an Emergency/Disaster Management System that is in line with international standards and national laws and guidelines e. Identification and clarification of department roles, responsibilities and line of authority at all government offices; f. Vertical and horizontal coordination of DRRM in the pre-disaster and postdisaster phases; and, g. Evaluation and monitoring tools to benchmark and measure progress. Ultimately, the QC DRRMP will aid the institutionalization of DRRM protocols, policies, procedures, and functions within Quezon City based on the scientific knowledge and collective experience from the “Building a Disaster Resilient Quezon City Project.” Scope QC DRRMP is a document specifying policies, platforms, strategies, action plans and mechanisms pertaining to the implementation and institutional basis of disaster risk reduction and management in Quezon City. It describes the interests and responsibilities of all stakeholders that were developed under the concepts, mandates and principles of the NDRRMP, DRRM Act of 2010, and the Hyogo Framework for Action.

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The development of the DRRMP adopted a fully participatory process by which stakeholders’ interests, inputs and consensus determined the outcome. Experts in various fields developed the scientific data and analyses and guided the stakeholders in the data collection, data interpretation, discussions and recommendations. Several activities were conducted for the completion of this report. These include primary and secondary data gathering, conduct of multistakeholder workshops, key informant interviews with concerned QCG authorities, desk review of existing legislative framework and other DRRMrelated documents, , and various scientific analyses such as the development of the hazard, vulnerability and risk assessment. These data and information were not only aggregated but also reviewed and assessed through the organizational mapping and network analysis approach, where functional interrelationships of concerned DRRM stakeholders were drawn. Validation exercises, workshops and trainings were conducted to ensure that stakeholders made informed and consensus decisions based on factual data and cumulative knowledge. Concerned Stakeholders Bearing in mind that DRRM is the responsibility of all, and that safety of the people from any disasters is a priority, the Project pursued a participatory process in the development of the QC DRRMP, by engaging the government, the civil society, nongovernment organizations (NGOs), the private sector, service providers, international organizations and other stakeholders concerned with disaster risk management. The QC DRRMP’s primary concerned stakeholders are the members of the QC DRRM council under the leadership of the City Mayor. It also involves all City Departments under their respective

department’s heads and the supervisors and staff, barangay leadership and senior staff and officials, ancillary and auxiliary agencies including all service providers and utility companies, national and provincial agencies involved in preparedness and response as well as in public safety, and representatives of civil society, private sector, media, international partners, and other communities and organizations which provide their knowledge, support, services for the general good. The QC DRRMP is a public document developed to support the city’s and the nation’s effort to plan, reduce, respond and recover from the occurrence of hazardous events. Organizations and institutions are encouraged to study the plan and be familiar with its provisions as well as use the plan to develop their own DRRMP and agenda in support for the welfare and well-being of all citizens of Quezon City. Implementation Challenge Effective implementation of the QC DRRMP, however, requires the continuous involvement of the city, provincial, national as well as international actors. Constant collaboration and cooperation among different stakeholders in disaster risk reduction and management is crucial as well as disasters not only extend beyond administrative and territorial boundaries but also evolve through time due to the gradually changing climate. City, provincial, national and international cooperation is therefore one form of cross-jurisdictional disaster risk reduction and management that reduces risks and keeps development on track. In particular, QCG is expected to provide accessibility of facilities and infrastructure as well as adequate resources to implement the QC DRRMP. Enhanced access to all formal and informal information sources will allow for direct involvement of the community and the private


Methodology


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sector in disaster risk reduction. Furthermore, sustaining and enhancing local and community capacity, disaster risk reduction efforts will use and empower local resources, which includes: financial resources, trainings and seminars, equipment, technology, natural resources, skills and economic and social processes. Summary of the Plan The discussions in this document were put together for better appreciation of the consolidated data and information from the “Building a Disaster Resilient Quezon City Project.” This document is divided into the following eight (8) chapters:

1

Introduction

This section of the report highlights the following data and information: Philippines as a Disaster-prone Country and the New DRRM Approach. The geographical and geological features of the Philippines cause the exposure of Philippines to natural hazards. Recorded history suggests an increase in the susceptibility of the Philippines to the damaging effects of hazards. In fact, in 2011, the Philippines was part of the top 5 countries that are hit by natural disasters (mostly hydro-meteorological and geophysical by nature). However, within the last decade, increasing trend in disaster occurrence and loss has also been observed in various regions of the world. This led to a paradigm shift in the DRRM field: from a response-oriented approach to a more proactive- and preventive-approach. Legal and Institutional Arrangements. Various institutional and coordination mechanisms, including other pertinent laws and issuances on DRRM apply to Quezon City in terms of:  Risk Framework: RA 10121 (DRRM) and RA 9729 (CCA);  Fund Utilization, Sourcing, Accounting, and Reporting: DILG Memorandum Circular No. 2012-73, DBM Local Budget Memorandum No. 66, and COA Circular No. 2012-002;

 QC Risk Policy and Practice: EO 23 Series of 2010, EO 71 Series of 2011, and EO 5 Series of 2013. QC DRRMP Rationale. The development of the QC DRRMP marks Quezon City’s recognition of the need to shift its DRRM approach from a response-oriented to a more proactive and preventive one. 2 Development Methodology This section of the report highlights the following data and information: Development Phases of the QC DRRMP. The development of the QC DRRMP was undertaken together by EMI Experts and members of the QC Technical Working Group (TWG). The QC DRRMP development was divided into four (4) Phases: 1. Phase 1: Setting up of the formal organizational structures to implement the project activities (e.g. Project Steering Committee, Advisory Committee, Consultative Committee, Technical Working Group, Secretariat). This is to ensure that the mechanism for project implementation, decision-making, and collaboration is not only participatory but also inter-sectoral and multi-disciplinary. 2. Phase 2: Conduct of Situational Analysis according to Legal and Institutional Arrangements (LIA), Land Use Planning – Construction Codes and Standards (LUPCCS), Emergency Management (EM), Geographic and Information Systems (GIS), and Hazards, Vulnerability, and Risk Assessment (HVRA) were carried out to diagnose the current DRRM practice of QC. 3. Phase 3: Formulation of Narrative Scenario, conduct of Consequential Analysis, review of HVRA findings, and the identification of priority programs, projects, and activities (PPAs) aligned with the four (4) thematic DRRM sectors (Preparedness, Response,

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3

Overview and Profile of Quezon City

This section of the report highlights the following data and information: QC Risk Atlas Key Characteristics. The key characteristics of Quezon City as detailed in the QC Risk Atlas is described in terms of:  National and geographic conditions: population, land area, topography, hydrography, climate zones;  Socioeconomic conditions: demographic characteristics (no. of households and barangays, level of education, dependency ratio, and no. of informal settlements) and land use and urban development (residents, institutions, open spaces and parks, universities, health facilities, media networks, government offices, commercial and residential spaces, transportation network, and growth centers). Suitability of QC as a Capital City. The following distinct qualities of QC made it one of the most suitable sites in Metro Manila to develop a City:  Extensive area of government-owned land right in its central zone, which provided substantial active economy in the development of public infrastructures as well as more liberal assignments in parks and recreation sites;  Desirable geologic characteristics of the city, which provided a satisfactory foundation

for buildings and structures, and at the same time, allowed the construction of underground structures.

4

Hazards, Vulnerability, and Risk Assessment (HVRA)

This section of the report highlights the following data and information: QC Natural and Human-induced Disaster Risk and Their Possible Impacts. Disaster risk arises from two kinds of hazard: • Natural Hazards: o Earthquakes (e.g. impact of surface ground rupture; fire after an earthquake; liquefaction; ground motion shaking; building damage; impacts of aftershocks; hotspots based on earthquake risk index); o Floods (e.g. susceptibility; population affected; casualties; buildings affected; displaced population; economic losses; impact on critical and high loss potential facilities; post-flood health issues; hotspots based on the flood risk index)  Human-induced Hazards: o Sociological Hazards (crime, civil disorder, terrorism and war, hazardous material intentional release) o Technological Hazards (fire accidents, travel/transportation accidents, and industrial accidents) HVRA Findings. The findings from the HVRA indicate an assessment of impacts for flood and earthquakes in terms of the following: • Spatial severity of hazards; • Quantifiable damage, losses and impacts to population, buildings, infrastructure, critical and high loss facilities; and • Hotspot barangays. The data, findings, and mapping of social and physical losses provided in the HVRA report provide the city with the necessary understanding and competency to address and reduce risk from


Prevention and Mitigation, and Rehabilitation and Recovery) and based on urgency and importance (immediate-term: as soon as possible; short-term: within 1-3 years; medium-term: in the next 4-6 years) 4. Phase 4: Development of Monitoring and Evaluation indicators to provide benchmark for measuring performance and effectiveness of different operational and organizational policies of the Quezon City Government and their effect on reducing the disaster risk in the different sectors analyzed in the DRRM Plan.


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earthquakes and floods. On the other hand, damage impact assessments and projections provided in the report are meant to inform the Quezon City Government on its risks from earthquakes and floods in order to help it improve its planning and policy making processes. Risk Indicators and Urban Disaster Risk Index (UDRI). To obtain a holistic view ofrisk, a set of indicators describing both vulnerabilities and coping capacities in Quezon City are considered in addition to physical risk indicators. The UDRI is the approach for identifying risk hotspots by combining directly the descriptors compromising both physical risks and socioeconomic factors. Hotspots and Hotspot Analysis. Hotspots are defined by a combination of a number of critical factors or indicators. Both the physical and socioeconomic dimensions of vulnerability, risk and coping capacity, are used to identify the hotspots. Together with risk indicators, ‘Hotspot’ analysis or the determination of risk “hotspots”, or Barangays with high risk in terms of casualties, social impacts and economic losses, allows for rational and adequate planning of resources.

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Situation and Consequential Analysis

This section of the report highlights the following information and processes utilized on the various sectors of the city’s DRRM system to gauge its institutional capacity and enhance understanding of the overall risk in Quezon City: Situational Analysis. The situational analysis guides the QCG in recognizing its strengths, weaknesses, opportunities, and challenges (SWOC) in terms of its institutional capacity on DRRM. The findings or results of the analysis per DRRM element were used to develop initial strategies to improve the capacity and competency of QC to address its DRRM gaps and build on existing strengths (see Chapter 5 for a complete list of results per DRRM element). Consequential Analysis. The consequential analysis is used to reinforce understanding of the impacts of the scenario earthquake and

flood to the different planning parameters (population, buildings, facilities, infrastructure and socioeconomic parameters).

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Definition of Resiliency Strategies

This section of the report highlights the following data and information: Steps Undertaken to Define QC Resiliency Strategies for DRRM. The QC Resiliency Strategies for DRRM are as follows:  Strategies for Improving QC Legal and Institutional Arrangements (LIA);  Strategies for Improving QC Emergency Management (EM);  Strategies for Developing and Sustaining QC’s Geographic Information System (GIS);  Strategies for Mainstreaming DRRM in Land Use Planning and Construction Codes and Standards (LUP-CCS). The key strategies per DRRM element have been identified through a revisit of the initial findings and strategies of the situational and consequential analysis and a series of SWOC workshop exercises conducted with the QC TWG. The resiliency strategies incorporate practical considerations and priorities for implementation. Furthermore, they serve as basis for developing DRRM programs, projects, and activities (PPAs) aligned along the four (4) DRRM thematic areas of prevention and mitigation, preparedness, response, recovery and rehabilitation (see Chapter 6 for a complete list of the QC Strategies for DRRM).

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Disaster Risk Reduction and Management Plan (DRRMP)

This section of the report discusses how the main section of QC’s DRRMP can be organized along the four (4) thematic areas as prescribed by OCD, and, at the same time, comply with the sectoral approach in order to effectively mainstream DRRM in the city’s functions. DRRMC/DRRMO Functions, Members, Roles and Responsibilities. RA 10121 mandates the

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Emergency Support Function (ESF). The purpose of the ESF is to ensure the effectiveness of the QC DRRMO’s Emergency Management by involving and asking for the support of other institutions. Emergency managers, responders, planners, decision makers and implementers of these involved institutions are grouped according to a specified ESF based on the function/role of their respective institutions. Each ESF has a specific scope/role/ function and is comprised of a Lead Agency and is supported by a number of government (from different levels of governance) and private institutions, known as Support Agencies. This grouping of emergency support functions is captured and documented in an ESF Table and Matrix.  ESF Table: defines roles and responsibilities for each function related to emergency management;  ESF Matrix: assigns Lead Agencies and Support Agencies. Priority Programs, Projects, and Activities (PPAs) for 2014-2020. PPAs were developed based on the key strategies identified by the QC TWG with EMI. The PPAs are aligned along the four thematic areas of DRRM in accordance with the National DRRM Plan and are classified into immediate-term, shortterm, and medium-term to establish the investment priority of QC in terms of urgency and importance in reducing risks and building resiliency. The table below presenting the programs guiding the projects and activities per DRRM thematic area provides a synopsis of the discussion of priority PPAs for 2014-2020 in Chapter 7.2 of this report.

Thematic Area Mitigation and Prevention

Preparedness

Response

Rehabilitation and Recovery

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Program Strengthening QC’s Legal and Institutional Arrangements for DRRM Mainstreaming DRR in Land Use Planning and Land Use Management DRR for Critical and Essential Facilities Introducing Urban Rejuvenation and Urban Redevelopment for DRR Strengthening QC’s Emergency Management System DRRM Geospatial Database Development Preparation of Contingency Plan for Each Department and Function of QC Provision of Emergency Services and Public Assistance During or After A Disaster Development of Sheltering, Relocation, and Rehabilitation Plans

Monitoring and Evaluation Guidelines (M&E)

M&E is used for benchmarking and measuring performance and progress of a project. The Department of the Interior and Local Government (DILG) advocates its undertaking and even provides manuals/guidelines for conducting M & E as a function of the local planning structure. Among these are the Local Government Treasury Operations Manual (LGTO), Updated Budget Operations Manual (UBOM), Rationalized Planning System Manual (RPS), and Comprehensive Development Plan – Executive Legislative Agenda Manual (CDP-ELA). Though the LGTO and UBOM are useful for M&E, they


creation of local disaster management councils at the city and barangay levels, the composition and functions of which are clearly defined in the law. In compliance with RA 10121, Executive Order No. 23 Series of 2010 was issued by the Mayor to organize the Quezon City DRRMC. Likewise, the Executive Order No. 5 establishes the QC DRRMO to comply with the law.


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only include forms and reports unlike the RPS and CDP-ELA that specifically include M&E instructions/guidelines. Disaster Risk Resiliency Indicators (DRRI) for M&E Performance on DRRM. The DRRI developed by EMI is a set of ten (10) indicators that establishes initial benchmarks to measure to what extent risk reduction approaches have been mainstreamed in the organizational, functional, operational and development systems and processes of local governments. It captures the potential for achieving disaster resilience in particular sectors, based on pre-defined benchmarks and performance targets. DRRI is divided among 5 key areas:  Legal and Institutional Processes and Policies;  Public Awareness and Capacity Building;  Critical Services and Infrastructure Resiliency;  Emergency Preparedness, Response, and Recovery Planning;  Development Planning, Regulation, and Risk Mitigation. The DRRI was used in Quezon City to establish an initial benchmark on risk resiliency of Quezon City. From the two self-assessments of the QC TWG, on the average, there is a slight increase from the results of the first assessment with the second assessment. Overall, both assessments show a moderate level of attainment on DRM mainstreaming which could mean that Quezon City has yet to fully establish the necessary systems and policies for on disaster risk reduction. It could also be translated to a general willingness of Quezon City to invest in DRR activities while recognizing its inherent challenges for mainstreaming.

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DRRMP Implementation and Mainstreaming Process

Recognizing Initial Gains and the Challenges of Implementation. The challenge ahead of Quezon

City Government, particularly of the QC DRRMO, is the implementation of the QC DRRMP 20142020. In the course of developing the DRRMP, there were significant gains that were already made that provide the foundation for a more structured and efficient approach to building the resiliency of Quezon City to disasters. However, mainstreaming DRRM remains a challenge for the city to sustain the good work that was started and to instutionalize the QC DRRMP 2014-2020 recommendations within the city’s overall plan and priorities. Putting in Place the Mechanisms and Structures to Support the Implementation of the QC DRRMP 2014-2020. The implementation of the QC DRRMP 2014-2020 will be made possible through setting up several mechanisms necessary for the QCG’s way forward. The commitment of QC to undertake projects and activities recommended by the TWG as immediate actions to be incorporated in the 2014 budget paves way for the first step in institutionalizing QC DRRMP 2014-2020 recommendations within the city’s priorities. By also identifying entry points within the City Development Plan (CDP) and City Comprehensive Land Use Plan (CLUP) and Zoning Plan where relevant elements of the DRRMP can be incorporated, QCG will be taking a big leap to support mainstreaming DRRM in the city’s overall development plan and priorities. Ultimately, through continued partnerships with stakeholders and partners, including technical organizations and agencies that can help carry out its mission, the newly formed QC DRRMO can carry out its mandated tasks by using the the rational and optimal approach and framework provided in the DRRMP. The full implementation of the DRRMP would require sustained attention, institutional commitment, detailed planning, significant investments, multi-sectoral and multi-stakeholder

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10 Annexes The annexes of the QC DRRMP 2014-2020 include the following: 1. Emergency Support Function (ESF) Table including the ESF Tasks and Responsibilities 2. Emergency Support Function Matrix 3. SWOC II Results 4. Situational Analysis Report Recommendations for SWOC Strategy Validation Forms 5. Executive Order No. 23, Series of 2010 6. Executive Order No. 5, Series of 2013


partnerships, and adequate competencies. However, with the QC DRRMP 2014-2020 on hand, and the momentum and knowledge gained during the development of this project, the Quezon City Government now has the tools to reduce its risk and build a disaster resilient city.


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Contents

Message from the Mayor Message from the Vice Mayor Message from the Project Directors Acknowledgements Executive Summary Acronyms Glossary I. Introduction

4 5 6 7 8 20 22 27

1.1 Background 27 1.2 Legal and Institutional Arrangements on Disaster Risk Reduction and Management in Quezon City 28 1.2.1 National Framework for Disaster Risk Reduction and Management 28 1.2.2 Fund Utilization, Sourcing, Accounting, and Reporting 30 1.2.3 Institutional and Organizational DRRM Arrangements in Quezon City 30 1.3 Rationale for the Quezon City DRRM Plan 2014-2020 31

2. Methodology for Developing Quezon City’s DRRM Plan 2014-2020 3. Overview and Profile of Quezon City 3.1 Natural and Geographic Conditions 3.2 Social and Economic Conditions 3.2.1 Key Demographic Characteristics 3.2.2 Land Use and Urban Development

4. Hazards,Vulnerability and Risk Assessment

32 32 35 35 35 35 40

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4.1 Earthquake Risk in Quezon City

42

4.1.1 Impact of Surface Ground Rupture 4.1.2 Impact of Fire Following an Earthquake 4.1.3 Liquefaction 4.1.4 Ground Motion Shaking 4.1.5 Building Damage 4.1.6 Impact of Aftershocks 4.1.7 Earthquake Hotspots 4.2 Flood Risk in Quezon City

42 42 42 45 45 45 45 49

4.2.1 Flood Experience in Quezon City 4.2.2 Flood Context 4.2.3 Population Affected by Floods 4.2.4 Casualties Caused by Flood 4.2.5 Buildings Affected by Floods 4.2.6 Population Displaced by Floods 4.2.7 Economic Losses due to Flood 4.2.8 Impact on Critical and High Loss Potential Facilities 4.2.9 Post-Flood Health Issues 4.2.10 Flood Risk Hotspots

49 50 50 53 53 53 53 58 58 58

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5. Situational and Consequential Analyses 5.1 Assessment of Legal and Institutional Arrangements 5.2 Emergency Management 5.3 Geographic Information System for DRRM 5.4 Land Use Planning and Construction Codes and Standards 5.5 Knowledge Management and Training and Capacity Building 5.6 Consequential Analysis 5.6.1 Consequential Analysis Output Exercise for Earthquakes 5.6.2 Consequences to Sector Output Exercise 2 for Earthquakes 5.6.3 Consequential Analysis Output Exercise for Floods 5.6.4 Consequences to Sector Output Exercise 2 for Floods

6. Definition of Resiliency Strategies

61 61 61 63

64 64 65 66 67 68 70 70 73 73 73

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6.1 Strategies for Improving Quezon City’s Legal and Institutional Arrangements on DRRM 79 6.2 Strategies for Improving Quezon City’s Emergency Management System 79 6.3 Strategies for Developing and Sustaining Quezon City’s Geographic Information System (GIS) for DRRM 80 6.4 Strategies for Mainstreaming DRRM in Land Use Planning and Construction Codes and Standards 80

7. Quezon City’s Disaster Risk Reduction and Management Plan 7.1 General 7.1.1 Vision 7.1.2 DRRMC Functions, Members, Roles and Responsibilities 7.1.3 DRRMO Functions, Roles and Responsibilities 7.1.4 Emergency Support Functions (ESF) 7.2 DRRM Priority Programs, Projects, and Activities (PPA) for 2014-2020 7.2.1 7.2.2 7.2.3 7.2.4

Mitigation and Prevention Preparedness Response Rehabilitation and Recovery

81 81 81 81 82 83 84 84 96 103 103

8. Monitoring and Evaluation

105

8.1 DILG Guidelines

105

8.1.1 Rationalized Planning System (RPS) M&E 105 8.1.2 Comprehensive Development Plan-Executive Legislative M&E 108 8.2 Disaster Risk Resiliency Indicators for Monitoring and Evaluating Performance on DRRM 110

9. DRRMP Implementation and Mainstreaming Process

115


4.3 Combined Earthquake and Flood Risk 4.4 Human-induced Disasters 4.4.1 Sociological Hazards 4.4.2 Technological Hazards


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9.1 Recognizing Initial Gains and the Challenges of Implementation 9.2 Putting in Place the Mechanisms and Structures Support the Implementation of the QC DRRMP 2014-2020 10. Annexes 10.1 Emergency Support Function (ESF) Table 10.2 Emergency Support Function (ESF) Matrix 10.3 SWOC II Results

115 116 117 117 127 132

10.3.1 Legal and Institutional Arrangements 132 10.3.2 Emergency Management 134 10.3.3 Geographic Information System for DRRM 137 10.3.4 Land Use Planning and Construction Codes and Standards 139 10.4 Situational Analysis Report Recommendations for SWOC Strategy Validation Forms142 10.4.1 Strategy Recommendations for Legal and Institutional Arrangements 142 10.4.2 Strategy Recommendations for Land Use Planning and Construction Codes and Standards 147 10.4.3 Strategy Recommendations for Mainstreaming GIS in DRRM 154 10.4.4 Strategy Recommendations for Emergency Management 159 10.5 Executive Order No. 23, Series of 2010 172 10.6 Executive Order No. 5, Series of 2013 180

Figures Figure 1. Top 10 Countries by Number of Reported Events in 2011 Figure 2. National Disaster Risk Reduction and Management Framework Figure 3. EMI’s Scientific Approach for Developing the DRRMP Figure 4. EMI’s DRRM Model Figure 5. Workflow for Developing the DRRMP for Quezon City Figure 6. Hydrography Map of Quezon City Figure 7. Hydrography Map of Quezon City Figure 8. Population Age Pyramid, Quezon City, 2010 (Source: National Statistics Office, 2010) Figure 9. Informal Settlements Families Map of Quezon City Figure 10. West Valley Fault System Figure 11. Fire Following Magnitude 7.2 Earthquake for Quezon City Figure 12. Liquefaction Hazard Map of Quezon City Figure 13. Modified Mercalli Intensity Scale (MMI) value distribution among barangays in Quezon City Figure 14. Barangay Hotspots for Earthquake Hazard in Quezon City Figure 15. Barangay Bagumbayan Hotspot for Earthquake Map Figure 16. Flood Susceptibility for Quezon City Figure 17. Population Affected by a 100-year Return Period Flood Map Figure 18. Potential Casualties in a 100-year Return Period Flood for Quezon City Figure 19. Buildings Potentially Affected by a 100-year Return Period Flood Figure 20. Displaced Population for a 100-year Return Period Flood Figure 21. Capital Stock Losses Caused by Flood Figure 22. Projected Infection Risk Distribution for a 100-year Return Period Flood Figure 23. Barangay Hotspots for Flood in Quezon City Figure 24. UDRI ranking for barangays in Quezon City for combined flood and earthquake

27 28 31 32 34 36 37 38 39 43 44 46 47 48 49 51 52 54 55 56 57 59 60 61

62 66 81 82 83 106 107 109 109 110 111 112 116

Tables Table 1. List of Barangays per District, Quezon City, 2013 37 Table 2: Top five barangays for each of the critical and high loss facilities 58 Table 3: Summary of the GIS Capacity Needs Assessment results and corresponding recommendations 67 Table 4: Gaps in Risk Sensitive Land Use Planning in Quezon City 68 Table 5: Findings for Processing Development Permits 68 Table 6: DPOS-DCD (now established as QC DRRMO) Plans and Programs for 2012 69 Table 7: Trainings and Capacity Building Exercises Conducted in the Duration of “Building a Disaster Resilient Quezon City Project” by EMI 69 Table 8: Summary of the Earthquakes Impacts to Sectors from a M7.2 Earthquake from the West Valley Fault 71 Table 9: Summary of Consequences to Sector of a M7.2 Earthquake Including Initial Recommendations to Reduce the Consequences 74 Table 10: Summary of Flood Related Consequences to Sectors 75 Table 11: Summary of Consequences of Floods to Sector Including Initial Recommendations to Reduce Consequences 77 Table 12: Criteria for Prioritizing Projects 84 Table 13: Summary of Results of the DRRI for Quezon City 114

19 Disaster Risk Reduction and Management Plan 2014 - 2020

Figure 25. Barangay Hotspots for Combined Earthquake and Flood Risk for Quezon City Figure 26. Comprehensive emergency management and a few examples during each phase where GIS plays a roles Figure 27. Quezon City Disaster Risk Reduction and Management Council Organizational Structure Figure 28. Department of Public Order and Safety (DPOS) Figure 29. QC DRRMO Organizational Chart Figure 30. Full Blown LPDO Organizational Structure Figure 31. Structure and Primary Functions of Local Development Council Figure 32. Sectoral Development Planning Process Figure 33. Municipal Planning and Development System Figure 34. Annual/End-of-Term Accomplishment Report Figure 35. M&E Strategy Template Figure 36. Aims, Strategic Goals, and Key Areas for Mainstreaming DRR Figure 37. Schematic Diagram of the DRRMP Formulation Process iin Comparison with Development Planning and Land Use Planning Processes


20

Acronyms BERT BOC BPLO CCA CDC CGSO CPDO DBM DBO DEM DILG DOST DPOS DRGS DRR DRRM DRRMC DRRMP DSM DTM EM EMI EPWMD EO EOP EQ ESF GADRCO GIS HCDRD HFA HVRA ICT IMPLAN ITDO IRA ISF JICA KDD LDRRMC LDRRMF

Barangay Emergency Response Team Barangay Operations Center Business Permits and Licensing Office Climate Change Adaptation City Development Council City General Services Office City Planning and Development Office Department of Budget and Management Department of Building Official Digital Elevation Model Department of Interior and Local Government Department of Science and Technology Department of Public Order and Safety Disaster Risk Geo-Spatial Disaster Risk Reduction Disaster Risk Reduction and Management Disaster Risk Reduction and Management Council Disaster Risk Reduction and Management Plan Digital Surface Model Digital Terrain Model Emergency Management Earthquakes and Megacities Initiative Environmental Protection and Waste Management Department Executive Order Emergency Operations Plan Earthquake Emergency Support Functions Gender and Development Resource and Coordination Office Geographic Information Systems Housing and Community Development and Resettlement Department Hyogo Framework of Action Hazards,Vulnerability and Risk Assessment Information Communication Technology Implementation Plan Information Technology and Development Office Internal Revenue Allotment Informal Settler Families Japan International Cooperation Agency Knowledge Development and Dissemination Local Disaster Risk Reduction and Management Council Local Disaster Risk Reduction and Management Fund

21

PDAD PHIVOLCS PRC QC QCG QC BFP QC GH QC PD QRF RA RDRRMC RSLUP SDI SSDD SWOC TCC TWG UDRI UPAO WVF

Local Disaster Risk Reduction and Management Office Local Disaster Risk Reduction and Management Plan Local Government Unit Legal and Institutional Arrangements Land Use Planning Land Use Planning and Construction Codes and Standards Monitoring and Evaluation Memorandum Circular Mines and Geosciences Bureau Metro Manila Development Authority Metro Manila Earthquake Impact Study National Mapping and Resource Information Authority National Disaster Risk Reduction and Management Council National Disaster Risk Reduction and Management Plan Nationwide Operational Assessment of Hazards Philippine National Statistical Coordination Board National Statistics Office Office of Civil Defense Open Street Map Philippine Atmospheric, Geophysical and Astronomical Services Administration Parks Development and Admin Department Philippine Institute of Volcanology and Seismology Philippine Red Cross Quezon City Quezon City Government QC Bureau of Fire Protection Quezon City General Hospital Quezon City Police District Quick Response Fund Republic Act Regional Disaster Risk Reduction Management Council Risk-Sensitive Land Use Plan Spatial Data Infrastructure Social Services Development Department Strengths, Weaknesses, Opportunities, Challenges Technical Coordinating Committee Technical Working Group Urban Disaster Risk Index Urban Poor Affairs Office West Valley Fault


LDRRMO LDRRMP LGU LIA LUP LUP-CCS M&E MC MGB MMDA MMEIRS NAMRIA NDRRMC NDRRMP NOAH NSCB NSO OCD OSM PAGASA


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Glossary

a. “Adaptation” - the adjustment in natural or human systems in response to actual or expected climatic stimuli or their effects, which moderates harm or exploits beneficial opportunities. b. “Capacity” - a combination of all strengths and resources available within a community, society or organization that can reduce the level of risk, or effects of a disaster. Capacity may include infrastructure and physical means, institutions, societal coping abilities, as well as human knowledge, skills and collective attributes such as social relationships, leadership and management. Capacity may also be described as capability. c. “Civil Society Organizations” Or “CSOs” non-state actors whose aims are neither to generate profits nor to seek governing power. CSOs unite people to advance shared goals and interests. They have a presence in public life, expressing the interests and values of their members or others, and are based on ethical, cultural, scientific, religious or philanthropic considerations. CSOs include nongovernment organizations (NGOs), professional associations, foundations, independent research institutes, communitybased organizations (CBOs), faith-based organizations, people’s organizations, social movements, and labor unions. d. “Climate Change” - 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. e. “Community-Based Disaster Risk Reduction and Management” or “CBDRRM” - a process of disaster risk reduction and management

in which at risk communities are actively engaged in the identification, analysis, treatment, monitoring and evaluation of disaster risks in order to reduce their vulnerabilities and enhance their capacities, and where the people are at the heart of decision-making and implementation of disaster risk reduction and management activities. f. “Complex Emergency” - a form of humaninduced emergency in which the cause of the emergency as well as the assistance to the afflicted IS complicated by intense level of political considerations. g. “Contingency Planning” - a management process that analyzes specific potential events or emerging situations that might threaten society or the environment and establishes arrangements in advance to enable timely, effective and appropriate responses to such events and situations h. “Disaster” - 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 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.

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j. “Disaster Preparedness” - the knowledge and capacities developed by governments, professional response and recovery organizations, communities and individuals to effectively anticipate, respond to, and recover from, the Impacts of likely, imminent or current hazard events or conditions. Preparedness action is carried out within the context of disaster risk reduction and management and aims to build the capacities needed to efficiently manage all types of emergencies and achieve orderly transitions from response to sustained recovery. Preparedness is based on a sound analysis of disaster risk and good linkages with early warning systems, and includes such activities as contingency planning, stockpiling of equipment and supplies, the development of arrangements for coordination, evacuation and public information, and associated training and field exercises. These must be supported by formal institutional, legal and budgetary capacities. k. “Disaster Prevention” - the outright avoidance of adverse impacts of hazards and related disasters. It expresses the concept and intention to completely avoid potential adverse impacts through action taken in advance such as construction of dams or embankments that eliminate flood risks, land-use regulations that do not permit any settlement in high-risk zones, and seismic engineering designs that ensure the survival and function of a critical building in any likely earthquake.

l. “Disaster Response” - the provision of emergency services and public assistance during or immediately after a disaster in order to save lives, reduce health impacts, ensure public safety and meet the basic subsistence needs of the people affected. Disaster response is predominantly focused on immediate and short-term needs and is sometimes called “disaster relief ”. m. “Disaster Risk” - the potential disaster losses in lives, health status, livelihood, assets and services, which could occur to a particular community or a Society over some specified future time period. n. “Disaster Risk Reduction” - the concept and practice of reducing disaster risks through systematic efforts to analyze and manage the causal factors of disasters, including through reduced exposures to hazards, lessened vulnerability of people and property, wise management of land and the environment, and improved preparedness for adverse events. o. “Disaster Risk Reduction and Management” - the systematic process of using administrative directives, organizations, and operational skills and capacities to implement strategies, policies and improved coping capacities in order to lessen the adverse impacts of hazards and the possibility of disaster. Prospective disaster risk reduction and management refers to risk reduction and management activities that address and seek to avoid the development of new or increased disaster risks, especially if risk reduction policies are not put m place. p. “Disaster Risk Reduction and Management Information System” - a specialized database which contains, among others, information


i. “Disaster Mitigation” - the lessening or limitation of the adverse impacts of hazards and related disasters. Mitigation measures encompass engineering techniques and hazard-resistant construction as well as improved environmental policies and public awareness.


24 on disasters and their human material, economic and environmental impact, risk assessment and mapping and vulnerable groups. q. “Early Warning System” - the set of capacities needed to generate and disseminate timely and meaningful warning information to enable individuals, communities and organizations threatened by a hazard to prepare and to act appropriately and in sufficient time to reduce the possibility of harm or loss. A peoplecentered early warning system necessarily comprises four (4) key elements: knowledge of the risks; monitoring, analysis and forecasting of the hazards; communication or dissemination of alerts and warnings; and local capabilities to respond to the warnings received. The expression “end-to-end warning system” is also used to emphasize that warning systems need to span all steps from hazard detection to community response. r. “Emergency” - unforeseen or sudden occurrence, especially danger, demanding immediate action. s. “Emergency Management” - the organization and management of resources and responsibilities for addressing all aspects of emergencies, in particular preparedness, response and initial recovery steps. t. “Exposure” - the degree to which the elements at risk are likely to experience hazard events of different magnitudes. u. “Geographic Information System” - a database which contains, among others, geohazard assessments, information on climate change, and climate risk reduction and management. v. “Hazard” - a dangerous phenomenon, substance, human activity or condition that may cause loss of life, injury or other health impacts, property damage, loss of

livelihood and services, social and economic disruption, or environmental damage. w. “Land-Use Planning” - the process undertaken by public authorities to identify, evaluate and decide on different options for the use of land, including consideration of long-term economic, social and environmental objectives and the implications for different communities and interest groups, and the subsequent formulation and promulgation of plans that describe the permitted or acceptable uses. x. “Mitigation” - structural and non-structural measures undertaken to limit the adverse impact of natural hazards, environmental degradation, and technological hazards and to ensure the ability of at-risk communities to address vulnerabilities aimed at minimizing the impact of disasters. Such measures include, but are not limited to, hazard-resistant construction and engineering works, the formulation and implementation of plans, programs, projects and activities, awareness raising, knowledge management, policies on landuse and resource management, as well as the enforcement of comprehensive land-use planning, building and safety standards, and legislation. y. “National Disaster Risk Reduction and Management Framework” or “NDRRMF” - provides for comprehensive, all hazards, multi-sectoral, inter-agency and communitybased approach to disaster risk reduction and management. z. “National Disaster Risk Reduction and Management Plan” or “NDRRMP” the document to be formulated and implemented by the Office of Civil Defense (OCD) that sets out goals and specific objectives for reducing disaster risks together with related actions to accomplish these objectives. The NDRRMP shall provide for the identification of hazards, vulnerabilities

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aa. “Post-Disaster Recovery” - the restoration and improvement where appropriate, of facilities, livelihood and living conditions. of disasteraffected communities, including efforts to reduce disaster risk factors, in accordance with the principles of “build back better”. ab. “Preparedness” - pre-disaster actions and measures being undertaken within the context of disaster risk reduction and management and are based on sound risk analysis as well as pre-disaster activities to avert or minimize loss of life and property such as, but not limited to, community organizing, training, planning, equipping, stockpiling, hazard mapping, insuring of assets, and public information and education initiatives. This also includes the development/enhancement of an overall preparedness strategy, policy, institutional structure, warning and forecasting capabilities, and plans that define measures geared to help at-risk communities safeguard their lives and assets by being alert to hazards and taking appropriate action in the face of an Imminent threat or an actual disaster. ac. “Private Sector” - the key actor in the realm of the economy where the central social concern and process are the mutually beneficial production and distribution of goods and services to meet the physical needs of human beings. The private sector comprises private corporations, households and nonprofit institutions serving households. ad. “Public Sector Employees” - all persons in the civil service.

ae. “Rehabilitation” - measures that ensure the ability of affected communities/ areas to restore their normal level of functioning by rebuilding livelihood and damaged infrastructures and increasing the communities’ organizational capacity. af. “Resilience” - the ability of a system, community or society exposed to hazards to resist, absorb, accommodate and recover from the effects of a hazard in a timely and efficient manner, including through the preservation and restoration of its essential basic structures and functions. ag. “Response” - any concerted effort by two (2) or more agencies, public or private, to provide assistance or intervention during or immediately after a disaster to meet the life preservation and basic subsistence needs of those people affected and in the restoration of essential public activities and facilities. ah. “Risk” - the combination of the probability of an event and its negative consequences. ai. “Risk Assessment” - a methodology to determine the nature and extent of risk by analyzing potential hazards and evaluating existing conditions of vulnerability that together could potentially harm exposed people, property, services, livelihood and the environment on which they depend. Risk assessments with associated risk mapping include: a review of the technical characteristics of hazards such as their location, intensity, frequency and probability; the analysis of exposure and vulnerability including the physical, social, health, economic and environmental dimensions; and the evaluation of the effectiveness of prevailing and alternative coping capacities in respect to likely risk scenarios. aj. “Risk Management” - the systematic approach and practice of managing uncertainty to minimize potential harm and loss. It comprises risk assessment and analysis, and the implementation of


and risks to ‘be managed at the national level; disaster risk reduction and management approaches and strategies to be applied m managing said hazards and risks; agency roles, responsibilities and lines of authority at all government levels; and vertical and horizontal coordination of disaster risk reduction and management in the pre-disaster and postdisaster phases. It shall be in conformity with the NDRRMF.


26

strategies and specific actions to control, reduce and transfer risks. It is widely practiced by organizations to minimize risk in investment decisions and to address operational risks such as those of business disruption, production failure, environmental damage, social impacts and damage from fire and natural hazards. ak. “Risk Transfer” - the process of formally or informally shifting the financial consequences of particular risks from one party to another whereby a household, community, enterprise or state authority will obtain resources from the other party after a disaster occurs, in exchange for ongoing or compensatory social or financial benefits provided to that other party. al. “State of Calamity” - a condition involving mass casualty and/or major damages to property, disruption of means of livelihoods, roads and normal way of life of people in the affected areas as a result of the occurrence of natural or human-induced hazard. am. “Sustainable Development” - development that meets the needs of the present without compromising the ability of future generations to meet their own needs. It contains within it two (2) key concepts: (1) the concept of “needs”, in particular, the essential needs of the world’s poor, to which overriding priority should be given; and (2) the idea of limitations imposed by the state of technology and social organizations on the environment’s ability to meet present and future needs. It is the harmonious integration of a sound and viable economy, responsible governance, social cohesion and harmony, and ecological integrity to ensure that human development now and through future generations is a life-enhancing process. an. “Vulnerability” - the characteristics and circumstances of a community, system or asset that make it susceptible to the damaging effects of a hazard. Vulnerability may arise from various physical, social, economic, and environmental factors such as poor design and construction of

buildings, inadequate protection of assets, lack of public information and awareness, limited official recognition of risks and preparedness measures, and disregard for wise environmental management. ao. “Vulnerable and Marginalized Groups” those that face higher exposure to disaster risk and poverty including, but not limited to, women, children, elderly, persons with disability, and ethnic minorities.

I. Introduction

Due to its geography and geology as well as the presence of internal disputes in some areas, the Philippines is exposed to natural and humaninduced hazards (DILG, 2011). Hazards (both natural- and human-induced) happen due to geological, meteorological, oceanic, biological, and technological sources, sometimes acting in combination (DILG, 2011). Recorded history tells that the Filipino people have borne loss of lives, injury and other health impacts, property damage, loss of livelihoods and services, social and economic disruption or environmental damage, and the negative effects have even risen (DILG, 2011). Communities, towns and cities have become more susceptible to the damaging effects of hazards (DILG, 2011).

Over the last decade, the Philippines constitute together the top five (5) countries that are most frequently hit by disasters (Guha-Sapir et al, 2011). Most of these disasters in the Philippines, however, are primarily triggered by natural phenomena (most frequent are hydrometeorological and geophysical hazards such as floods and landslides, storms, volcanic eruption, and earthquake, respectively). In 2011, the Philippines even registered the highest number of natural disasters in its history (33) (see Figure 1 below) (Guha-Sapir et al, 2011). Coinciding with the increasing trend in disaster occurrence and loss within the last decade, parallel efforts in various regions of the world called for a paradigm shift on how international organizations, nations, states, and

Figure 1. Top 10 Countries by Number of Reported Events in 2011


1.1 Background

27


28

cities plan and respond to disasters as the cost of disasters takes a heavy toll on the economy and human lives. The framework shifted from a ‘response’ oriented systems towards a ‘whole of government’ approach with a focus on disaster risk reduction (DRR). The change of focus came from the United Nations Hyogo Framework of Action (HFA) to which the Philippines is signatory. In compliance with the HFA, the Philippine government enacted the Republic Act 10121 (RA 10121), the Philippine Disaster Risk Reduction and Management Act of 2010, antecedent to Presidential Decree Number 1566 of 1978 (PD 1566), An Act Strengthening the Philippines Disaster Control Capability and Establishing the National Program on Community Disaster Preparedness, to provide the legal basis for government policies, plans and programs to deal with disasters (DILG, 2011).

and Management (NDRRM) Framework. The following sections provide a discussion on the institutional and coordination mechanisms, including other pertinent laws and issuances on Disaster Risk Reduction and Management (DRRM) as they apply to Quezon City1.

1.2 Legal and Institutional Arrangements on Disaster Risk Reduction and Management in Quezon City

1

The Quezon City Disaster Risk Reduction and Management Plan (QCDRRMP) is anchored both on the vision and legal provisions of RA 10121 and the National Disaster Risk Reduction

1.2.1 National Framework for Disaster Risk Reduction and Management Figure 2 illustrates the paradigm shift towards a proactive and preventive approach to disaster management as legally embodied in RA 10121. This conceptual representation highlights the goal of “safer, adaptive and disaster resilient Filipino communities toward sustainable development” through preparedness, response, prevention and mitigation, and rehabilitation and recovery.

The Legal and Institutional Arrangements (LIA) Situational Analysis report completed as part of the “Building a Disaster Resilient Quezon City Project” provides a complete analysis of this topic with regards to the legal and institutional DRRM arrangements of Quezon City in the context of national laws and regulations as well as international standards.

National Disaster Risk Reduction and Management Framework

Figure 2. National Disaster Risk Reduction and Management Framework

1.2.1.1 Institutional Mechanisms

• National Disaster Risk Reduction and Management Council (NDRRMC) - The NDRRMC serves mainly as an oversight body in the promotion of DRRM at the national level; and hence, it reports directly to the President of the Philippines. • Regional Disaster Risk Reduction Management Council (RDRRMC) - At the regional level, the RDRRMC is in charge of the coordination of DRRM activities and policy. Note that in the case of Metro Manila, it is the Metro Manila Development Authority (MMDA) Chairman that heads the Metro Manila DRRM Council unlike in other regions where the Chair is the Office of Civil Defense (OCD) Regional Director. • Local Disaster Risk Reduction and Management Council (LDRRMC) - At the province, city, and municipal levels, the LDRRMC, under the chairmanship of the Local Chief Executive takes on the responsibility for coordination of DRRM policy and activities. Section 12.d of RA 10121 states that at the barangay level, the functions of the former Barangay Disaster Coordinating Councils shall now be transferred to the Barangay Development Councils (BDC). Under the BDC, the Barangay DRRM Committees (BDRRMC) are to be established (Sec 12.a) with at least two members representing civil society organizations (CSOs). 1.2.1.2 Other Pertinent Laws, Regulations and Issuances for DRRM

2

The full text of Republic Act No. 10121 and its Implementing Rules and Regulations can be found in the website of the National Disaster Risk Reduction and Management Council (www.ndrrmc.gov.ph/attachments/045_RA%2010121.pdf and www.ndrrmc. gov.ph/attachments/095_IRR.pdf).

• Republic Act No. 9729, or the Climate Change Act of 20093. The Climate Change Act, passed on 27 July 2009, mandates the local government units (LGU) as the front line agencies in the planning and implementation of Climate Change (CC) action plans in their respective areas, consistent with the provisions of the Local Government Code (LGC), the National Climate Change Framework, and the National Climate Action Plan. This Act also provides for the legal basis for the creation of the Philippine Climate Change Commission, who shall be in-charge with the preparation of the National CC Framework and Climate Action Plan. It shall be the responsibility of the Commission to extend technical assistance to local government units for the accomplishment of their Local Climate Change Action Plans. • Other relevant laws and issuances prior to the passage of the abovementioned legislations and the Philippine Constitution of 1987, are Republic Act No. 7160 (Local Government Code of 1991), Republic Act No. 7279 (Urban and Development Housing Act), Executive Order No. 72 (Preparation and Implementation of the Comprehensive Land Use Plan), Executive Order No. 648 (Promulgation of Zoning and Other Land use Control Standards and Guidelines)4. 1.2.1.3 Coordination during Emergencies During emergencies, it shall be the role of the LDRRMCs to lead in preparing for, responding to, and recovering from the effects of any disaster based on the following criteria:

3

The full text of Republic Act No. 9729 can be found in this link: http://www.lawphil.net/statutes/ repacts/ra2009/ra_9729_2009.html and its Implementing Rules and Regulations in this link: http:// www.scribd.com/doc/38617291/Philippine-ClimateChange-Act-RA-9729. 4 Refer to the Legal and Institutional Framework Report for an overview of these legislations with access links to their respective full text.


RA 10121 defined the organizational structure of the DRRM System in the Philippines from the national down to the local government units and communities2.

These include:


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• The BDC shall be in charge, if a barangay is affected; • The City/Municipal DRRMC shall be in charge, if two (2) or more barangays are affected; • The provincial DRRMC shall be in charge, if two (2) or more cities/municipalities are affected; • The regional DRRMC shall be in charge, if two (2) or more provinces are affected; • The national DRRMC shall be in charge, if two (2) or more regions are affected. Supporting the LDRRMCs are the NDRRMC, intermediary LDRRMCs, private sector and civil society groups. The two latter organizations shall work in accordance with the coordination mechanism and policies set by the NDRRMC and concerned LDRRMCs.

1.2.2 Fund Utilization, Sourcing, Accounting, and Reporting 1.2.2.1 DILG Memorandum Circular No. 201273 Pursuant to RA 10121, the Department of Interior and Local Government Secretary issued Memorandum Circular (MC) No. 2012-73 which provides the guidelines in the utilization of the Local Disaster Risk Reduction and Management Fund, which shall not be less than five percent (5%) of the estimated revenue from regular sources. Thirty percent (30%) of the 5% LDRRMF shall be allocated for Quick Response Fund (QRF) or stand-by fund for relief and recovery projects and activities while the remaining seventy percent (70%) shall be the Mitigation Fund (MF) for pre-disaster preparedness activities, postdisaster activities and other related activities including payment of premium on calamity insurance. 1.2.2.2 DBM Local Budget Memorandum

No. 66 In line with the DILG’s Memorandum Circular No. 2012-73, the Department of Budget and Management has circulated a Local Budget Memorandum No. 66 last July 2, 2012, informing local government units of their Internal Revenue Allotment (IRA) level for FY 2013 and the guidelines in the preparation of the FY 2013 local budget. It was explicitly stated in the memo that a budget allocation which is not less than 5% of the estimated revenue of LGUs from regular sources shall be set aside as the LDRRMF and shall be utilized in accordance with the pertinent provisions of laws, rules and regulations. 1.2.2.3 COA Circular No. 2012-002 In relation to the LDRRMF utilization, the Commission on Audit has released an Accounting and Reporting Guidelines for the LDRRMF of Local Government Units (LGUs) and NDRRMF transferred to LGUs and Receipts from Other Sources last September 12, 2012. The said Circular provides guidance to LGUs on the proper accounting and reporting of expenditures to prevent disallowances of expenditures.

1.2.3 Institutional and Organizational DRRM Arrangements in Quezon City DRRM policy and practice in Quezon City is regulated and organized by several related executive orders and ordinances. The most pertinent of these are the following: • Executive Order No. 23 Series of 2010, organizing the Quezon City DRRMC and defining the functions, the composition and the specific roles and responsibilities of its members. • Executive Order No. 71 Series of 2011, creating a special task group called the West Valley Fault Task Group under the Quezon City DRRMC. This group is tasked to focus on earthquake mitigation measures and to ensure the safety of the inhabitants within the five (5) to ten (10) meter buffer zone of the West Valley Fault, and to determine

• Executive Order No. 5 Series of 2013, establishing and tasking the Quezon City Disaster Risk Reduction and Management Office (QC DRRMO)5 to begin a coherent, integrated, proficient and responsible management system to address all forms of disasters, reduce risk to human life and property, mitigate potential damage and destruction including the implementation of fast recovery and rehabilitation efforts in postdisaster conditions.

1.3 Rationale for the Quezon City DRRM Plan 2014-2020 The National Disaster Risk Reduction and Management Plan (NDRRMP) realizes the new preventive approach to disasters through the identification of hazards, vulnerabilities and risks to be managed at the national level, disaster risk reduction and management approaches and strategies to be applied in managing said hazards and risks, agency roles, responsibilities and line of authority at all government levels, and vertical and horizontal coordination of disaster risk reduction and management in the pre-disaster and postdisaster phases. More importantly, the preventive approach is further realized by the NDRRMP by serving as a reference for the development of the Local Disaster Risk Reduction and Management Plans (LDRRMP) and the implementation of disaster risk reduction and management at local levels.

Risk Reduction and Management Council (QCDRRMC) during disasters and emergencies, and outline the coordination mechanism from the Quezon City Government down to its 142 barangays. In the QC DRRMP 2013, the concept of the Emergency Support Functions (ESF) was first introduced which organizes various departments within Quezon City and other stakeholders into specific task groups based on their respective functions. A further discussion on the ESF is found in Section 7 of this document and in Annex 10. The QC DRRMP 2014-2020 is formulated in accordance with national guidelines and international standards of practice. Its development followed a rigorous process of scientific investigation and detailed study and was the product of several consultations and validation sessions with the Quezon City Technical Working Group and Project Steering Committee.6 It follows EMI’s scientific approach and has strong foundations in the Hazards, Vulnerability and Risk Assessment (HVRA), which formed the basis upon which the elements of this Plan were put together.7

6

The Technical Working Group and Project Steering Committee were established by the Office of the Mayor through Office Order no. 59, Series of 2012 7 The Hazard, Vulnerability and Risk Assessment Report is a separate report submitted by EMI on May 2013 as part of the Building a Disaster Resilient Quezon City Project

In line with RA 10121, the QCG adopted its Disaster Risk Reduction and Management Plans (DRRMP) for 2012 and 2013. The said plans specify the functions and responsibilities of the members ofthe Quezon City Disaster

5

The establishment of the Quezon City DRRMO is one of the early recommendations made in the “Building a Disaster Resilient Quezon City Project” which was presented by EMI to the Management Committee in December 2012 and was subsequently acted upon by the Quezon City Government through the Executive Order No. 5 Series of 2013.

Figure 3. EMI’s Scientific Approach for Developing the DRRMP


the response of the Quezon City Government (QCG). The task group is led by the City Vice Mayor and represented by different offices of the QCG.


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2. Methodology for Developing Quezon City’s DRRM Plan 2014-2020

The development of the QC DRRMP required a process of meaningful engagement by various stakeholders. It took 12 months to complete and was divided into 4 phases where several tasks were undertaken per phase by EMI Experts working together with members of the Quezon City Technical Working Group to develop the different elements of the QC DRRMP. This process follows EMI’s model for Disaster Risk Reduction and Management, which it has tested and improved with applications for different cities around the world.8 Figure 4 illustrates EMI’s DRRM Model. Phase 1 in the development of QC DRRMP 2014-2020 involved setting up the formal organizational structures to implement the project activities. On December 11, 2012, the

8

EMI has tested and applied its Disaster risk management model for the cities of Istanbul, Kathmandu, Mumbai, Amman, and Pasig City

Office Order no. 59, Series of 2012, was issued by the City Mayor to create the Project Steering Committee, Advisory Committee, Consultative Committee, Technical Working Group and Secretariat. This ensured that the mechanism for project implementation and decision-making isparticipatory and there is cross-sectoral and multi-disciplinary collaboration. The Project Steering Committee, made up of members of the QC DRRMC, was created to provide oversight to the conduct of project activities and support its implementation. Stakeholders from within the city government and other external agencies and organizations make up the Technical Working Group that serves as the in-house technical team of the project and acts primarily to support data collection and validation. National government agencies (NGA) are also represented in the project as part of the Advisory Committee, who

EMI Disaster Risk Reduction & Management (DRRM) Model

DRRM Model is organized into 4 phases

Figure 4. EMI’s DRRM Model

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In Phase 2, several analyses were carried out to diagnose Quezon City’s current practice on DRRM. Situational analyses were carried out on relevant sectors such as Legal and Institutional Arrangements (LIA), Land Use Planning and Construction Codes and Standards (LUP-CCS), Emergency Management (EM), and Geographic Information System (GIS). A Hazard, Vulnerability and Risk Assessment (HVRA) for Earthquake and Flood was also carried out in this phase but was completed in nine (9) months due to the more extensive data collection and analysis required. In Phase 3, the DRRM Framework is formulated along the DRRM sectors by identifying programs, projects, and activities. Analytical tools were used during the consultations and workshops with the QC TWG in order to facilitate the integration of risk information with the various sectors and identify entry points for mainstreaming DRRM in development planning. They include: • Development of a Narrative Scenario for earthquake and flood, based on the findings of the HVRA. The scenario helped the QC TWG review their existing practices and current planning capabilities under extreme conditions. Realistic planning parameters were then developed taking into account the feedback from the QC TWG. 9

9

Full details on the application of the Narrative Scenario are found in the DRRMP Formulation Report submitted by EMI on May 2013 as a deliverable of the Building a Disaster Resilient Quezon City Project

• Consequential Analysis undertaken as exercises with the QC TWG to evaluate the current conditions and capabilities for DRRM and to define the potential consequences (i.e., causes and effects), and to define remedial measures for their own areas of responsibility. 10 • Reviews of finding of hazards, vulnerabilities and risk studies as they impact Quezon City to develop a rigorous and scientific understanding of these elements among the QC TWG so that a common baseline for planning is established and initial entry points for mainstreaming DRR in urban development planning processes including land use planning/land use management are identified. The programs, projects, and activities (PPA) that were identified are aligned with the four (4) thematic sectors of prevention and mitigation, preparedness, response, and rehabilitation and recovery. The list of projects identified was then prioritized by the QC TWG based on urgency and importance. Projects were categorized as those that need to be implemented immediately, within three years (short-term), and within six years (medium-term). In Phase 4, indicators were developed to provide benchmark for measuring performance and effectiveness of different operational and organizational policies of the Quezon City Government and their effect on reducing the disaster risk in the different sectors analyzed in the DRRM Plan. The indicators permit a systematic and quantitative benchmarking of

10

Full details on the results of the Consequential Analysis are found in the DRRMP Formulation Report submitted by EMI on May 2013 as a deliverable of the Building a Disaster Resilient Quezon City Project


in turn was created to provide counsel and validate scientific findings of the project. A Consultative Committee was also formed following the suggestion of the City Planning and Development Office (CPDO) to involve the members of the City Development Council (CDC).


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different functional capacities and policies of the City Government and how much progress the city is making in reducing disaster risk over time. 11 Figure 5 below provides the workflow for developing the QC DRRMP 2014-2020 following EMI’s DRRM Model as discussed above.

11

EMI utilized the Disaster Risk Resiliency Indicators (DRRI) as a self-assessment tool for measuring progress on DRRM and the Urban Disaster Risk Indicators (UDRI) for determining the hotspot barangays for earthquake and flood and combined earthquake and flood, taking into account the socio-economic vulnerability together with the physical vulnerability.

Figure 5. Workflow for Developing the DRRMP for Quezon

This section provides an excerpt of the key characteristics of Quezon City as detailed in the Quezon City Risk Atlas (EMI, 2012).12

3.1 Natural and Geographic Conditions Owing to its size, Quezon City is the biggest city in the National Capital Region in terms of population and land area. It has an estimated population of 2.86 million with a land area slightly over 16 thousand hectares. Quezon City is located at the northeastern part of Metro Manila near the center. The northern and eastern fringes of the city are bordered by San Jose del Monte in Bulacan, San Mateo in Rizal andMarikina City. The southern and western parts are bounded by the cities of Pasig, Mandaluyong, San Juan, Caloocan, Valenzuela, and Manila. The Philippines consists of varying climate zones, each with a significantly different rainfall pattern, with annual rainfall varying between 960mm and 4,000mm. Within Metro Manila, annual rainfall varies between 2000mm in the Manila Bay area to 3,000mm over the mountains of Marikina, San Mateo and Rodriguez. The climate type of Quezon City, Type I, is characterized by a dry season from November to April and a wet season during the rest of the year. However, due to climate variability, the city, as of 2012, experienced a prolonged wet season. A study by the Philippine Atmospheric, Geophysical and Astronomical Services Administration (PAGASA) predicts that in 20062035, the mean temperature will increase to 27.1°C, and rainfall will rise to 93.7mm. There will be 6,302 dry days, 8 days of rainfall of >300mm, 12 A more detailed discussion on the natural, geographic and socio-economic conditions of Quezon City can be found in the Quezon City Risk Profile, EMI, 2012.

and 1,984 days of daily maximum temperature of >35°C.13 Quezon City’s topography is mostly rolling with alternating ridges and lowlands. Slopes of between 0° and 15° dominate the northern part of the City while the terrain gets lower as it extends to the south. The city has 5 river systems with 44 tributaries in total, most of which drain into the Quezon City River system.

3.2 Social and Economic Conditions 3.2.1 Key Demographic Characteristics14 With a population of 2.86 million considered to be the largest in the National Capital Region, Quezon City is acknowledged as the second biggest local government unit in the country. Based on data from the 2010 Census of Population and Housing, an increase of 82,270 from 2007 approximates the city’s 2.92% estimated annual population growth rate. In 2010, Quezon City’s population amounted to 23% to the total population in the National Capital Region. The city has 142 barangays and is divided into six (6) districts. District 2 used to have the most number of barangays and the most densely populated. In 2012, RA 10170 was passed thereby reallocating the barangays under District 2 and creating the new districts: Districts 5 and 6 (Table 1). The number of households increased by 7%,

13

PAGASA Climate Change of the Philippines. http://kidlat.pagasa.dost.gov.ph/cab/climate_change/ Cli-mateProjections.html#NCR. 14 Complete statistics and figures can be found in the National Statistics Office, 2010 Census of Population and Housing


3. Overview and Profile of Quezon City


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Figure 6. Hydrography Map of Quezon City

In terms of level of education completed in 2010, a quarter (25%) of Quezon City residents reached only high school level while 7% had an elementary education only. Nineteen percent (19%) of the

2010 household population was able to complete a college degree while 2% did not complete any grade level. Dependency ratio decreased from 50% in 2007 to 48% in 2010. This resulted from the larger increase in the proportion of the economically active population compared to the slight changes in the proportion of young and old dependents. Based on the 2010 NSO database, less than half of the lots in the City were occupied by the

Figure 7. Hydrography Map of Quezon City Table 1. List of Barangays per District, Quezon City, 2013 District (No. of Barangays) District 1 (37)

District 2 (5)

Barangays Alicia Bagong Pag-asa Bahay Toro Balingasa Bungad Damar Damayan Del Monte Katipunan Lourdes Bagong Silangan Batasan Hills

Maharlika Manresa Mariblo Masambong N.S. Amoranto Nayong Kanluran Paang Bundok Pag-Ibig sa Nayon Paltok Paraiso Commonwealth

Phil-Am Project 6 Ramon Magsaysay Salvacion San Antonio San Isidro Labrador San Jose Siena St. Peter Sta. Cruz Holy Spirit

Sta.Teresita Sto. Cristo Sto. Domingo Talayan Vasra Veterans Village West Triangle

Payatas


from 2007 to 2010, with a corresponding increase of 27% in the household population. As of 2010, the city has a young population where only 5% are 60 years old and older, and a median age of 25 years. Quezon City has more females with a sex ratio of 95 males for every 100 females. The majority of the population over 9 years old are either single (45%) or married (42%).


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District (No. of Barangays) District 3 (37)

District 4 (38)

District 5 (14)

District 6 (11)

Barangays Amihan Bagumbayan Bagumbuhay Bayanihan Blue Ridge A Blue Ridge B Camp Aguinaldo Claro (Quirino 3-B) Dioquino Zobel Duyan Duyan Bagong Lipunan Crame Botocan Central Damayang Lagi Don Manuel Doña Aurora Doña Imelda Doña Josefa Horseshoe Bagbag Capri Greater Lagro Gulod Apolinario Samson Baesa Balon-Bato

E. Rodriguez East Kamias Escopa I Escopa II Escopa III Escopa IV Libis Loyola Heights Mangga Marilag Immaculate Concepcion Kalusugan Kamuning Kaunlaran Kristong Hari Krus na Ligas Laging Handa Malaya Mariana Obrero Kaligayahan Nagkaisang Nayon North Fairview Novaliches Proper Culiat New Era Pasong Tamo

Masagana Matandang Balara Milgrosa Pansol Quirino 2-A Quirino 2-B Quirino 2-C Quirino 3-A San Roque Silangan Paligsahan

Socorro St. Ignatius Tagumpay Ugong Norte Villa Maria Clara West Kamias White Plains

Pinagkaisahan Pinyahan Roxas Sacred Heart San Isidro Galas San Martin de Pores San Vicente Santol Sikatuna Village Pasong Putik Proper San Agustin San Bartolome Santa Lucia Sangandaan Tandang Sora Unang Sigaw

Sto. Niño Tatalon Teacher's Village East Teacher's Village West UP Campus UP Village Valencia

South Triangle

Santa Monica Fairview

Sauyo Talipapa

Figure 8. Population Age Pyramid, Quezon City, 2010 (Source: National Statistics


Figure 9. Informal Settlements Families Map of Quezon City


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owners. More than one-third (31%) are rented while the rest are freely occupied either with or without consent of the owner. According to the Quezon City’s Housing and Community Development and Resettlement Department, there are 184,821 informal settlement families occupying 146,594 structures in 2012. More than half of which (51%) occupied private lands while 19% resided in government properties and projects.

3.2.2 Land Use and Urban Development The land in Quezon Cityis predominantly used for residential purposes. In terms of land area, the city has a sizeable area for open spaces and parks, thus, earning its status as the Green Lung of Metro Manila. A significant portion of the land is allocated for institutional uses. It is home to leading universities, hospitals and health facilities, media networks and national government offices.The city’s highly urbanized region consisting of 16,112 hectares of land of both commercial and residential spaces serves as an ideal distribution hub located at the heart of Metro Manila due to the convergence of various transportation networks such as the Mass Rail Transit 3 (MRT-3), EDSA, North Luzon Expressway, and the C-5 highway. Most of its growth centers are also linked to the main thoroughfares, such as Balintawak, the Triangle Central Business District and Cubao link for EDSA; Novaliches, Balintawak and Triangle CBD for Quirino Highway; and Libis, Cubao Triangle Central Business District and Batangas link for Aurora Boulevard and Commonwealth Avenue. The growth centers boast of various commercial, educational, historical, and recreational centers, which generate additional revenue for the city. Quezon City’s distinct qualities made it the most suitable site on which to build the capital city and its capitol buildings during the post-war period. One factor that determined its status is the extensive area of government-owned land right in its central zone, which provided

substantial active economy in the development of public infrastructures as well as more liberal assignments in parks and recreation sites. The desirable geologic characteristics of the city also provided a satisfactory foundation for buildings and structures, and at the same time, allowed the construction of underground structures.

15 The Hazards, Vulnerability and Risk Assessment (HVRA) report was submitted to Quezon City by EMI on

May 22, 2013. The Quezon City Risk Atlas also provides an understanding of risk in Quezon City in terms of a compendium of earthquake and flood maps. This was submitted in August 22, 2013 by EMI to QCG.

The data, findings, and mapping of social and physical losses provided in the HVRA report provide the city with the necessary understanding and competency to address and reduce risk from earthquakes and floods. Damage impact assessments and projections provided in the report are meant to inform the Quezon City Government on its risks from earthquakes and floods in order to help it improve its planning and policy making processes. Through the Disaster Risk Geo-Spatial (DRGS) database that was jointly consolidated by EMI and QC TWG, scientifically-validated scenarios and parameters for planning were developed. Several specific working sessions and workshops with the QC TWG were conducted for the purpose of developing the DRGS database and findings for the HVRA: 1. Orientation on the Disaster Risk Geospatial (DRGS) database (January 14, 2013), held with Project TWG members to orient them on the benefits and requirements in the development of a DRRM Database for Quezon City, to establish agreements on the database and to develop a workplan for addressing the gaps in the current data gathering efforts 2. DRGS Database Development Working Sessions (January 31 and February 7), held with data cluster heads and selected members of the Project TWG to consolidate the data available into the DRGS database. 3. Flood Map Validation • Working session with DPOS-DCD, held to map situational flooding based on recurrent experience and rescue efforts (February 4, 2013) • Working sessions with Philippine Red Cross (PRC) – Quezon City Chapter, organized to map situational flooding based on

experience of rescue efforts (February 15, 19 & 20, 2013) 4. Working Session with selected Project TWG members consisting of representatives from SSDD, CPDO,Engineering Department, City Health Department, PDAD, DPOS and PRC in a unified effort to verify the consolidated situational flooding information from the HVA (February 28, 2013) 5. Two-day Hazards, Vulnerability and Risk Assessment Workshop (April 3-4, 2013), provided key stakeholders with the perspective on the possible extent/ impact of the earthquake/flood risks in the city, established agreements on the development of HVRA and held a final round of validation of the situational flood maps with the whole assembly of the Project TWG members, along with representatives to the City Development Council. Also among the workshop outputs are the insight and consensus on key socio-economic factors describing groups that are especially vulnerable in Quezon City, and key socioeconomic factors describing drivers that limit the resiliency of the city The findings from the HVRA indicate an assessment of impacts for flood and earthquakes in terms of the following: • Spatial severity of hazards; • Quantifiable damage, losses and impacts to population, buildings, infrastructure, critical and high loss facilities; and • Hotspot barangays To obtain a holistic view of risk, a set of indicators describing both vulnerabilities and coping capacities in Quezon City are also considered in addition to the physical risk


4. Hazards,Vulnerability and Risk Assessment15


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indicators.The goal of the risk indicators and “hotspot” analysis is to identify concentrations of the highest impact areas or hotspot areas within a limited geographic area to focus respective planning and decision making. The approach for identifying risk hotspots is based on the Urban Disaster Risk Index (UDRI) methodology, which combines directly the descriptors comprising both the physical risks and the socio-economic impact factors.16 Hotspots are defined by a combination of a number of critical factors or indicators. In the analysis conducted by EMI, both the physical and socio-economic dimensions are used to identify the hotspots. The determination of risk “hotspots”, or Barangays with high risk in terms of casualties and economic losses, allows for rational and adequate planning of resources. The following section describes the key findings and identified EQ and flood hotspots in the HVRA report. For more details, refer to the main Hazards, Vulnerability and Risk Assessment report and the Quezon City Risk Atlas.

4.1 Earthquake Risk in Quezon City

Based on the Metro Manila Earthquake Impact Reduction Study (MMEIRS, 2004), the scenario earthquake Model 8 is seen to cause the most damage and losses to Metro Manila. The scenario pertains to a 7.2 magnitude on the West Valley Fault System caused by an inland fault mechanism with seismic intensity of VIII (Very Destructive) or IX (Devastating) alongside Marikina River and Manila Bay.

4.1.1 Impact of Surface Ground Rupture In the Model 8 scenario of MMEIRS, a magnitude 7.2 earthquake may cause for more than 69 kms of the ground to rupture along the West Valley Fault (WVF). The WFV runs from the northeast through the southeast sections of Quezon City. It passes through barangays Bagong Silangan, Batasan Hills, Matandang Balara, Pansol, Blue Ridge B, Libis, Bagumbayan, White Plains, and Ugong Norte. The WFV intersects two major roads in Quezon City, and hence may possibly cause ruptures along the transected areas. The northern portion of the WFV intersects the Batasan – San Mateo Road, while the southern portion of the WFV intersects the E. Rodriguez Jr. Avenue.

The Valley Fault System transects Metro Manila and is the most threatening should it generate a large earthquake. The Valley Fault System is composed of North East-trending faults: the Western and Eastern Valley Faults which transect parts of eastern Metro Manila including Quezon City. Recent studies show that the West Valley Fault has moved at least four (4) times and generated strong earthquakes within the last 1,400 years. The predicted return period of these earthquakes is less than 500 years. No recent seismic activity can be traced to this fault but its passage to the city makes it a very significant tectonic feature. 17

4.1.2 Impact of Fire Following an Earthquake

16

Liquefaction occurs when ground movement ment and Natural Resources, Mines and Geosciences Bureau. 18 According to the Beaufort scale, an 8 meter per second wind is classified as a “fresh breeze”. In a fresh breeze, small trees sway and flags flap and ripple

The full process and methodology undertaken for the development of the HVRA are detailed in the Hazards, Vulnerability and Risk Assessment Report submitted by EMI on May 22, 2013. 17 Aurelio, Mario and Peña, Rolando .(2004) Geology and Mineral Resources of the Philippines. Volume 1. Quezon City: Department of Environ-

Conflagration may occur in the city in the event of high-magnitude earthquakes. Based on the Model 8 scenario, a projected estimate of over 4,800 buildings may be burnt in case of an 8-meter per second wind.18 The HVRA report provides details on the projected number of buildings per barangay projected to endure the conflagaration after a M7.2 earthquake.

4.1.3 Liquefaction


Figure 10. West Valley Fault System


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Figure 11. Fire Following Magnitude 7.2 Earthquake for Quezon City

4.1.4 Ground Motion Shaking Barangays situated along the fault on the easternmost part of Quezon City exhibit the highest values in the Modified Mercalli Intensity (MMI)19 scale, which depicts the severity of ground shaking.20 Eastern barangays along the West Valley Fault such as Bagumbayan, Ugong Norte, Batasan Hills, Libis and Bagong Silangan show the highest potential intensity values of ground motion among all the barangays in Quezon City. The ground shaking velocity is strongest along and near the fault, and gradually reduces energy as it moves westward.

4.1.5 Building Damage The MMEIRS study provides estimates of damage in terms of two classifications: Heavily Damaged Buildings and Partially Damaged Buildings. Some key findings from the HVRA report are as follows: The following barangays will suffer the most with building collapse: Batasan Hills (449 buildings), Bagong Silangan (249), Payatas (134), Matandang Balara (112), and Commonwealth (101). These same barangays will also suffer the most with buildings that will receive very heavy damages.

19

The Modified Mercalli Intensity (MMI) scale is widely used to represent the local severity of the ground motion. The scale goes from 1 to 12. Damage starts at around intensity 5 with complete devastation at intensity 12. Intensive structural damage occurs between intensity 8 and 10. 20 The MMI scale values were calculated from the original MMEIRS data for the purposes of the “Building a Disaster Resilient Quezon City Project.” The conversion process is provided in the HVRA report.

The barangays that will suffer the most from buildings sustaining heavy damages are Commonwealth (1,414), Batasan Hills (1,348), Payatas (957), Holy Spirit (908), and Pasong Tamo (747). The barangays that will suffer the most from buildings that will sustain partial damages are Batasan Hills (5,741), Commonwealth (5,198), Payatas (3,705), Holy Spirit (3,236), and Bagong Silangan (3,155).

4.1.6 Impact of Aftershocks The recurrence of aftershocks is what makes earthquakes different from any other disasters. A major earthquake such as the M7.2 may cause hundreds of aftershocks, many of which will have damaging magnitudes of 6 or greater. The occurrence of aftershocks can last for several months. Aftershocks can aggravate existing damage to buildings, and may potentially cause more damage and casualties than the main shock. Since its occurrence may be prolonged and erratic, aftershocks may also delay restoration of services and recovery. This may also present a significant emotional problem to the society since it may cause severe anxiety and fear among the population, hence contributing to psychological trauma for many.

4.1.7 Earthquake Hotspots The top five barangays that are at high risk to an extreme earthquake scenario (Model 08 of MMEIRS) considering the combined physical risks, socio-economic impacts, coping capacities and social vulnerabilities,are the following: 1. 2. 3. 4. 5.

Bagumbayan St. Ignatius Ugong Norte Bagong Silangan Batasan Hills


shakes the soil, making the ground settle. This causes lighter materials, such as water, to rise. Poor soils, such as alluvial soils with high water content, are highly susceptible to liquefaction. Barangays with areas susceptible to liquefaction are detailed in the HVRA report.


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Figure 12. Liquefaction Hazard Map of Quezon City


Figure 13. Modified Mercalli Intensity Scale (MMI) value distribution among barangays


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Figure 14. Barangay Hotspots for Earthquake Hazard in Quezon City


Figure 15. Barangay Bagumbayan Hotspot for Earthquake Map

In terms of loss on population and buildings, Barangay Bagumbayan is at the highest risk of earthquake impact. The earthquake hazard given in terms of Peak Ground Acceleration (PGA) in this barangay is over 1.0g or a 9.8 on the Modified Mercalli Index (MMI), which is much higher than surrounding Barangays. This produces very high casualties (fatalities expected in almost 2 percent of the population, and injuries in close to 5% of the population with 20 percent of the buildings expected to collapse or severely damaged in this scenario. Bagumbayan, St. Ignatius, White Plains, Ugong Norte and Blue Ridge B have some of the highest fatality rates with values greater than 1.20 percent of the population at risk. Bagumbayan, Libis, Ugong Norte, Batasan Hills and Bagong Silangan will have the highest number of damaged buildings due to ground shaking. Kaligayahan has the highest number of critical facilities that are exposed to extreme ground shaking. Bagong Lipunan ng Crame (hospitals), Bagumbayan and Commonwealth (emergency and rescue operation centers and hazardous facilities), and Payatas (roads and bridges) have the next highest exposure of critical facilities due to earthquakes.

4.2 Flood Risk in Quezon City 4.2.1 Flood Experience in Quezon City In Metro Manila, floods have been recorded back to the 1800s. However serious floods have only been really documented in the last 70 years in 1942, 1948, 1966, 1967,1970 (Joan and Patsy – 768 dead and around 4 billion PHP losses), 1972, 1977 and 1986 (Miding). In recent years, 1988, 1995 (Angela, 1000 dead, 10.8 billion PHP), 1996, 1997, 2008 (Frank), 2009 (Ondoy) and 2012 (Habagat) saw major floods.21 The Ondoy floods of 2009 were the most intense in recent history in terms of IFD impact. There was an average rainfall of 347.5mm falling within six hours, and 448.5mm falling within 12 hours, which is estimated to be equivalent to a120-year return period. This rainfall event was the highest in the country’s forty-year record.The estimated losses were around 11 billion PHP (approx. 275 million USD), with 4.3 billion PHP being

21

For a full list, the user is referred to the NSCB http://www.nscb.gov.ph/beyondthenumbers/2012/12142012_jrga_calamity.asp


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infrastructure related and 6.7 billion PHP being agriculture related. The total number of damaged houses were 185,004 (30,082 totally and 154,922 partially) with the number of damaged daycare centers in Metro Manila totaling 239. At the height of Typhoon Ondoy, 100 people died when flashfloods inundated Barangay Bagong Silangan in Quezon City.22 In the Typhoon Habagat floods of 2012, 1,000mm of rain fell in some parts of Metro Manila in the 72-hour period from the 6th-8th August 2012, with the Marikina River reaching 20.6m flood height compared to the usual level of 16m. This was still however 3 meters lower than that of the 2009 Ondoy floods. In QuezonCity, hundreds of residents in the villages of West Fairview, North Fairview, Roxas District, Damayang Lagi, Talayan, Tatalon, and the Novaliches villages along the Tullahan River were evacuated. Flood water in these villages reached up to the roofs of houses in many areas. Landslides along Bayanihan Street in Barangay Commonwealth killed 9 people and buried 4 houses.

4.2.2 Flood Context Quezon City is a flood prone area in Metropolitan Manila and regularly experiences floods of different magnitudes following heavy rain mainly due to two main factors. The northern half of the city is close to the La Mesa Dam, a 700-hectare reservoir at 100m above sea level, while the southern region has low grade terrain and is affected by numerous waterways. During heavy rainfall events, the water level can exceed its spilling level of 80.15m, and cause flood waters water to overflow and flood downstream areas. When La Mesa Dam overflows, the Tullahan River can swell and burst its banks, causing excess flood runoff and storm water inundation from drainage and creek networks in Novaliches and northern Quezon City. This is typical during monsoon rains. The undulating terrain in northern Quezon City also contributes to floodwaters moving 22 See full newsclip in http://newsinfo.inquirer. net/149879/know- quezon-city%E2%80%99s-danger-zones.

downstream heavily affecting some barangays in the low-lying areas. Barangays such as Tatalon, Sto. Domingo, Roxas District and Pag-Asa can become flooded and made more severe by the low grade terrain in the area, resulting in flood waters remaining for longer periods of time. Anthropogenic factors such as clogged canals, illegal settlements, poor urban planning and lack of preparedness of the populace further aggravate damages caused by floods. The flood risk assessment for Quezon City is based on a validation process of flood hazard studies and calibrating these against observed flood inundation levels in historic events sets, using various documentation on past floods, including reports originating from the city government. The flood susceptibility map produced for Quezon City is an indicative inundation level map representing large flood events of longer return periods (100-year). Using a participatory approach based on scientific rigor23, the development and validation of the flood susceptibility for Quezon City undertook a rigorous process to ultimately generate estimates of areas and population affected by floods in each of the barangays.

4.2.3 Population Affected by Floods • A total of 700,000 are estimated to be affected in Quezon City (16% in low susceptibility areas, 30% moderate flood susceptibility areas and 54% in high flood susceptibility areas). • The top three Barangays that have greater than 80% of their areas within the high flood susceptibility boundaries are Capri, Talayan and Katipunan. • The JICA model estimates that climate change can increase the affected areas in Quezon City by 2050 by as much as 7%.

23

The process for development and validation of flood risk assessment data are detailed in the Hazards, Vulnerability and Risk Assessment Report (EMI, 2013).


Figure 16. Flood Susceptibility for Quezon City


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Figure 17. Population Affected by a 100-year Return Period Flood Map

4.2.6 Population Displaced by Floods

• It is estimated that 111 casualties in Quezon City will be caused by a 100-year flood.

• Around 68,619 people in the city are estimated tobe displaced.

• Areas which are in a high susceptibility flood susceptibility zone (inundation depth greater than 200cm), are likely to encounter casualties 2.5 times greater than medium susceptibility areas (inundation depth between 50cm and 200cm) and five times greater than low susceptibility areas (inundation depth below 50cm)

• The largest number of people displaced are expected to be in Batasan Hills, Tatalon, Sta. Lucia and Bagong Silangan due to their higher populations which are affected by high flood exposure levels.

• The largest number of casualties is expected to be in Batasan Hills, Tatalon, Sta Lucia and Bagong Silangan due to their higher populations which are affected by high flood exposure levels.

• Around 700,000 people are expected tobe affected with additional people dueto possible power or utility issues.

• The top four barangays with casualties had more informal settlement buildings than average in Quezon City. This is also probably due to the many informal settlements located nearby river systems.

Most of the economic exposure per square kilometer built area is spread towards the south of Quezon City. Total economic loss resulting from the Hazards, Vulnerability and Risk Assessment (EMI, 2013) comes out to 319 million USD of which about 245 million USD is capital stock related.

• For every 1,500 informal settlement buildings, an average of 1 extra casualty is estimated to occur. • Thirty percent (30%) of the population of Quezon City is under 15 years old and are at greater risk of becoming a casualty.

4.2.5 Buildings Affected by Floods For a one-storey building to be affected a flood height of 0.5 meter had to be reached. For a twostorey building to be affected, a 3-meter flood or of higher level had to occur. Based on the Flood Susceptibility Map for Quezon City and the calculated floor areas in each barangay24, in no case was the third storey of a building had been affected as no flood heights reached above 6 meters in the city.

24

The total floor area in each barangay was determined via GIS using the building footprint and number of stories. An explanation on the process of calculation is found in the HVRA report.

• There is one casualty for every 1,000 people displaced.

4.2.7 Economic Losses due to Flood25

• Talayan, Dioquino Zobel, Sto. Domingo, Bagumbayan and Maharlika have the highest economic losses per capita. • North Fairview, Doña Imelda, Tatalon, Damayang Lagi, Sto. Domingo (Matalahib), Bahay Toro, Batasan Hills, Roxas and Talayan have an estimated total economic losses over 10 million USD or 43 million PhP due to flood damage.

25

The methodology to determine losses combines the value of capital stock and GDP in Quezon City, aggregating this value to the building floor area affected and then using loss ratio functions from the aggregation of various building typologies in terms of losses to finishings, contents, assets and other factors. See the HVRA report for more details.


4.2.4 Casualties Caused by Flood


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Figure 18. Potential Casualties in a 100-year Return Period Flood for Quezon City


Figure 19. Buildings Potentially Affected by a 100-year Return Period Flood


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Figure 20. Displaced Population for a 100-year Return Period Flood


Figure 21. Capital Stock Losses Caused by Flood


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4.2.8 Impact on Critical and High Loss Potential Facilities Typical critical facilities such as hospitals, fire stations, police stations, storage of critical records, and similar facilities should be given spe cial consideration when formulating regulatory alternatives and floodplain management plans. It is essential that facilities located in a floodplain should be provided a higher level of protection so that it can continue to function and provide services after a flood. • The top 10 barangays in Quezon City in terms of critical and high loss facilities exposed to floods are: Doña Imelda, Masambong, Tatalon, Bagumbayan, Kalusugan, Damayang Lagi, Commonwealth, Sto. Domingo (Matalahib) and San Antonio. • The flood exposure to hazardous facilities in Tatalon and Bagumbayan contribute to the high ranking of these barangays. Table 2: Top five barangays for each of the critical and high loss facilities Member Weight Hospitals and Healthcare Centers Emergency and Rescue Operation Centers High Loss Potential Facilities

Doña Imelda, Damayang Lagi, Kalusugan, Central, Bagumbuhay Masambong, N. S. Amoranto (Gintong Silahis), Libis, San Antonio, Matandang Balara Fairview, Bagong Lipunan ng Crame, Bagumbayan, E. Rodriguez, Holy Spirit Hazardous Facilities Tatalon, Manresa, Bagumbayan, Sto. Domingo (Matalahib), Talayan Major Roads Pag-ibig sa Nayon, Commonwealth, Sta. Monica, Capri, Duyan-

4.2.9 Post-Flood Health Issues High disease incidence rate after a flood combined with systemic failures of healthcare systems and parallel infrastructure such as the water and sanitation system constitute a major vulnerability after a disaster.Direct and indirect contact with water are also assumed

to occur and may attribute to the probabilities of gastrointestinal infection cases among the population. • Dose-response relationships for the indicator pathogen (E. coli) using different ingestion rates as a function of flood inundation depth and age show that as many as 6,800 people in Quezon City are at risk of to gastrointestinal illness via incidental ingestion of flood water. • People under the age of 15 are at significantly higher risk.

4.2.10 Flood Risk Hotspots Contributing factors such as affected population, buildings and extent of flooding were measured to rank the top barangays to prioritize for flood impacts: 1. 2. 3. 4. 5.

Talayan Damayang Lagi Roxas St. Peter Dona Imelda

Silangan which does not show up in the top 10 flood risk harangays has the highest flood infection risk with a value of 3.5% of the population of this barangay at risk of infection versus the next highest Barangay Sto. Domingo (Matalahib) at 1.6%. Talayan, Damayang Lagi, Tatalon, Roxas, Bagong Silangan and Libis have some of the highest fatality rates with values greater than 0.02 percent of the population at risk. St. Peter, San Vicente, San Isidro Labrador and Sienna have the highest levels of long-term displaced population and affected. Doña Imelda (hospitals), Masambong (emergency and rescue operation centers), Tatalon (hazardous facilities and roads), Bagumbayan (hazardous facilities) have the highest exposure of critical facilities due to floods.


Figure 22. Projected Infection Risk Distribution in Quezon City for a 100-year Return


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Figure 23. Barangay Hotspots for Flood in Quezon City

4.4 Human-induced Disasters26

In the analysis for the Hazards, Vulnerability and Risk Assessment, both the physical and socioeconomic dimensions are used to identify the hotspots. The indicators identified are linked to the most significant quantitative outputs of the flood and earthquake impact study, and then combined with the socio-economic vulnerability and coping capacities of the different barangays in Quezon City. The combined earthquake and flood UDRI score is also plotted for all barangays to provide further insights into the distribution of risk in the city.

Disasters are not solely natural in form as it can also be man-made where the cause of hazard is deliberate or accidental. Thus, most manmade disasters fall into two general categories of hazards: sociological (intentional acts) and technological (accidental events):

Considering all factors the top five Barangays to prioritize for combined earthquake and flood impacts are therefore: 1. 2. 3. 4. 5.

Bagumbayan Libis Damayang Lagi Talayan Dioquino Zobel

4.4.1 Sociological Hazards 4.4.1.1 Crime • Arson/incendiary attack – initiation of fire or explosion on or near target via direct contact or remotely via projectile (FEMA, 2003).

26

Definitions are sourced from: http://emilms. fema.gov/IS318/assets/howto7.pdf http://restoreyoureconomy.org/disaster-overview/ types-of-disasters/ http://epdfiles.engr.wisc.edu/dmcweb/AA02AimandScopeofDisasterManagement.pdf http://cbse.gov.in/Disastermgmt8th.pdf http://www.dhses.ny.gov/oem/mitigation/archive/ documents/S3.L-Power-Failure-Hazard-Profile.pdf

Figure 24. UDRI ranking for barangays in Quezon City with respect to combined flood


4.3 Combined Earthquake and Flood Risk


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Figure 25. Barangay Hotspots for Combined Earthquake and Flood Risk for Quezon

or transportation accidents (ie Aviation, Rail, Road and Sea) and Industrial Accidents.

4.4.1.2 Civil Disorder

4.4.2.1 Industrial Accidents

Civil Disorder usually takes the form of mass protests by groups seeking changes in government policy or solutions to adverse social situations, which may result to disruption of travel, access to public areas, and many services to both residents and tourists alike (RestoreYourEconomy.org, n.d.)

• Power service disruption and blackout – any interruption or loss of electrical service due to disruption of power transmission caused by accident or equipment failure (NY DHSES, 2008). • Haardous material release (unintentional) – solid, liquid, and/or gaseous contaminants/ pollutants released from fixed or mobile containers, vehicles, or facilities (FEMA, 2003) »» Fixed facility - Nuclear/Radiological agent – dispersal of nuclear contaminants from nuclear power plants (FEMA, 2003). »» Transportation

4.4.1.3 Terrorism and War • Conventional bomb/improvised explosive device/explosion – the detonation of explosive device on or near target; delivery via person, vehicle, or projectile (FEMA, 2003) • Nuclear bomb/explosion – detonation of nuclear device underground, at the surface, in the air or high altitude (FEMA, 2003). • Cyberterrorism – electronic attack using one computer system against another to intimidate or coerce a government or its people for political or social objectives (FEMA, 2003; RestoreYourEconomy.org, n.d.) • Agriterrorism – direct, generally covert contamination of food supplies or introduction of pests and/or disease agents to crops and livestock (FEMA, 2003). 4.4.1.4 Hazard material release (intentional) • Biologicalagent – dispersal of solid or liquid contaminants using sprayers or other aerosol generators or by point or line sources such as munitions, covert deposits, and moving sprayers (FEMA, 2003). • Chemical agent – dispersal of liquid/aerosol contaminants using sprayers or other aerosol generators; liquids vaporizing from puddles/ containers; or munitions (FEMA, 2003). • Nuclear/Radiological agent – dispersal of radioactive contaminants using sprayers or other aerosol generators or by point or line sources such as munitions, covert deposits, and moving sprayers (FEMA, 2003).

4.4.2 Technological Hazards Technological hazards include fire accidents, travel

The extent of human-induced occurrences could be considered a disaster depends on the number of people affected or the extent of damage caused. One particular example is the 1996 Ozone Disco Club Fire incident in Timog Avenue, Quezon City which left 160 people dead and was considered as the 7th deadliest nightclub fire in world history.27 Although the casualty figure is adequately high when compared to many natural disasters, the incident was a localized event considered to be an emergency situation but not large enough to warrant a disaster declaration. Further, the UNISDR defines 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.”28

27

News article can be found here: http://newsinfo.inquirer.net/348777/what-went-before-ozonedisco-is-no-6-in-worlds-deadliest-nightclub-fires 28 Definition of a Disaster is culled from the 2009 UNISDR Terminology on Disaster Risk Reduction, published by the United Nations International Strategy for Disaster Reduction in Geneva, Switzerland, May 2009. The same definition is also used in the Republic Act 10121.


• Armed attack – tactical assault or sniping from remote location (FEMA, 2003).


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5. Situational and Consequential Analyses

The situational analysis on the various sectors of the city’s DRRM system guided the city in recognizing its strengths, weaknesses, opportunities and challenges (SWOC) in terms of its institutional capacity on DRRM. The findings from the situational analysis were used to develop initial strategies to improve the capacity and competency of Quezon City to address its gaps on DRRM and build on existing strengths. The following section discusses the key preliminary findings for each identified sector.

5.1 Assessment of Legal and Institutional Arrangements 29 In terms of legal and institutional arrangements (LIA), Quezon City is continually strengthening its capability to address the potential effects of disaster to human life. In compliance with the Republic Act 10121, Quezon City has created several institutional bodies and units to enhance its efforts towards disaster risk mitigation and prevention, preparedness, response, and recovery and rehabilitation. Among them are the Quezon City Disaster Risk Reduction and Management Council, the West Valley Fault Task Group, and most recently, the Quezon City Disaster Risk Reduction and Management Office (QC DRRMO). The QC DRRMO, activated on July 13, 2013, was the former Disaster Control Division under the Department of Public Order and Safety. Upon its activation, the current staffing complement of the division was transferred to the Office of the Mayor. As prescribed in the RA 10121, the office structure was re-organized to be headed

29

Full report of the Situational Analysis of the Legal and Institutional Arrangements in Quezon City can be accessed via QC DRRMO.

by a disaster risk management officer with three assistory positions for Research and Planning, Operations and Warning, and Administration and Training. The process for the comprehensive situational assessment or SWOC I for the area of Legal and Institutional Arrangements involved the active participation of the Project TWG. The following series of workshops and activities were conducted to support data gathering and validation of the identified SWOC: • LIA Workshop (October 18, 2012), held to orient the QC DRRMC and Project TWG on the Philippine and local DRRM system along with its relevance to legal and institutional arrangements for QCG, to identify significant legal and organizational gaps that impact on QC DRRM, and to identify initial measures to address these legal and organizational gaps • Key Informant Interviews for LIA (October 31 to November 5, 14, & 20, 2012), initiated by EMI for data gathering purposes • Organizational Mapping and Network Analysis Workshop (November 14, 2012), held for QCG to map out institutional and coordination mechanisms in DRRM and identify roles, responsibilities and resources of various institutions at different levels in the performance of an inter-institutional mandate or functions in DRRM Results of situational analysis revealed preliminary findings in the legal and institutional arrangements for DRRM in Quezon City. They are highlighted below, as follows: ☑☑ Weak institutional support of the QCDRRM system due to the absence of a permanent

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☑☑ ☑☑ ☑☑ ☑☑

5.2 Emergency Management Quezon City is recognized to have a long and successful Emergency Management response history. While there is already a system is in place, QCG desires to ensure that they have an EM System that is mainstreamed, holistic, and in accordance with national laws and international standards. In 2012, QCG was awarded a certificate of recognition and Seal of Disaster Preparedness31

30

This preliminary finding has already been addressed by the Quezon City Government with the creation of the DRRMO through EO 5 Series of 2013 31 The Seal of Disaster Preparedness (SDP) Level 1 Assessment is a test of a local government capability to address the potential effects of a disaster to human life. It has four minimum criteria which includes Lead-

from the Department of Interior and Local Government (DILG ) for fostering a culture of excellence through the Local Government Performance Management System. The city is also much admired in demonstrating an acceptable level of disaster preparedness response before and during calamities. Significant gaps pertaining to the institutional organization in the DRRM system are likewise recognized by the city since they bring about consequences that may threaten the QCG’s capability in emergency management.32 Thus, the assessment identifies which areas the city needs to improve, and addresses planning and coordination challenges on emergency management that are inherent in all major cities for major disaster events. Through the use of the EMI Comprehensive Gaps Analysis Tool (CGAT), the existing emergency management system was assessed relative to the provisions of the Emergency Management Accreditation Program (EMAP), an international standard for evaluation of city and state emergency management systems. Preliminary findings from the Quezon City EM Situational Assessment and field investigations are summarized below: ☑☑ Quezon City Executive Ordinance 23 should be realigned with the required organizational structure as mandated by Republic Act 10121;33 ☑☑ The organization of the Quezon City Disaster ership Structure, Guide to Action, Disaster Preparedness, and Partnership, Volunteerism and Innovation. 32 These gaps and issues are detailed in the Quezon City EM Situational Analysis Report. 33 This preliminary finding has already been addressed by the Quezon City Government with the creation of the DRRMO through EO 5 Series of 2013


☑☑

Disaster Risk Reduction and Management Office (DRRMO) pursuant to RA 10121.30 Lack of criteria on prioritizing LDRRMF utilization Lack of a DRRMP 2013 and beyond in accord with the National DRRMP 2011-2028 Lack of a comprehensive DRRM capacity development program Weak coordination among departments, barangays and national agencies Inadequacy of policy and legal support in the form of ordinances, executive orders, rules and regulations, and guidelines on the implementation of the National Building Code, stringent application of the 5-meter easement from the West Valley Fault zone and assessment of risk to essential and critical facilities at city and barangay levels, and risk financing, among others.


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Control Division (DCD) should be revisited and reviewed to respond to the provisions of Republic Act 10121; ☑☑ The organization of the then Quezon City DCD Offices needs to accommodate an Emergency Operations Center (EOC) that follows international standards. The DCD offices (now QC DRRMO) are not equipped with tools to develop a Common Operating Picture (COP) that enables elected leaders and key officials to make informed decisions to deploy resources during disaster; ☑☑ The disaster response coordination system of Quezon City should be organized into disaster management international standards as described by the Emergency Support Function System; ☑☑ Quezon City currently has two plans that meet some, but not all, national and international standards: “IMPLAN to Quezon City EO 23”, dated 27 October 2010, and “Quezon City Disaster Risk Reduction and Management Plan”, dated 21 December 2011; ☑☑ Quezon City, as with any city, has limited

resources for life saving operations during the response phase of a disaster

5.3 Geographic Information System for DRRM Quezon City recognizes Geographic Information System (GIS) as an important tool within a DRRM system as it can greatly enhance mitigation, preparedness, response and recovery activities and used to support decision making. GIS is an information system that may be used to centralize, store and visually display selected information before, during and after an emergency. All four thematic areas in DRRM depend on spatial data (information that can be located on a map) from a variety of sources. For disaster prevention and mitigation, GIS can be useful in visualizing disaster impacts and as an interface to decision-making tools for formulating long-term mitigation and policy strategies. GIS can also be used in developing simulations that reflect realistic emergency situations for contingency planning and overall disaster preparedness. Disaster response is therefore more efficient once GIS plays a role in providing information for resource deployment,

Figure 26. Comprehensive emergency management and a few examples during each phase where GIS plays a roles

The GIS for DRRM Situational Analysis report revealed that the successful use of GIS technology for DRRM is critically dependent on an institutional environment that fosters interdepartmental coordination for the mainstreaming of GIS applications, products, and services. While the Quezon City’s Information System Strategic Plan (ISSP) has resulted in the operationalization of the eGIS; procurement of hardware and software for GIS; administration of trainings; and development of some protocols and processes for data sharing and management, several critical factors may still impede the sustainability of the use of GIS across different departments of Quezon City Government. The report further provides the foundation for both the development of a strategic guide and planned eGIS system under the Information System Strategic Plan (ISSP) in Quezon City into a more robust and effective tool for DRRM. The strategic guide provides a set of recommendations to act upon, and a timeline for implementing the recommendations for mainstreaming GIS for DRRM into the eGIS system. Based on the established approach of scientific rigor that EMI utilizes on the DRRM framework, several activities with the QC TWG have been conducted to help derive and validate the findings for the situational analysis of GIS for DRRM in Quezon City. Besides desktop research and analytical methods, the activities listed below combines and cross validates stakeholders input with the experts’ knowledge and experience: • Capacity Needs Assessment Interviews for GIS-ICT Component (October 24 to 26, and November 14, 2012), instigated by EMI to gather data and conduct information and inventory audits using tried and tested tools

for capacity needs assessment • Focus Group Meeting for GIS-ICT Component (November 15, 2012), held with selected members of the Project TWG to validate proposed recommendations and provide further input to the preliminary findings Key results of the investigation are listed in Table 3. Table 3: Summary of the GIS Capacity Needs Assessment results and corresponding recommendations Member Weight Management of GIS databases and Software Platforms

Acquisition and sharing of data in City Hall is based mostly on formal/ informal agreements and relationships, and currently no system is in place for interdepartmental data sharing and regular back up and maintenance of data. Currently, different brands of GIS software are utilized by different departments which produce different file formats as output

Coordination and institutional processes and protocols

Each department has its own system of gathering and updating its own data sets and no institutional protocols and processes are in place for a citywide GIS set up as envisioned in eGIS.

Capacity for using GIS in DRRM

There is an absence of personnel who are trained in using GIS for Disaster preparation and response planning.

5.4 Land Use Planning and Construction Codes and Standards Quezon City already has a growing recognition of risk-driven land-use planning and a risksensitive project development cycle as evidenced from the policies, strategies, programs, projects and activities proposed in the city’s land use plan, comprehensive development plans and


shelter placement, search and rescue, and response planning. After a disaster, GIS can work in concert with GPS (on the ground) and remote sensing technologies (from space) to locate each damaged facility, identify the type and amount of damage, and begin to establish priorities for action (triage).Recovery and rehabilitation efforts are supported by ready and accessible data through the utilization of GIS.


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zoning ordinances. The rational process of preparing plans followed by QCG is a clear indication of the know-how on the preparation and enhancement of the current planning documents. However, there are key issues and concerns identified by selected members of the TWG, which QCG should address to improve the current land use plan and its implementation. These issues were identified in a validation meeting held on October 29 - 30, 2012 in which the group provided insights on the plan formulation, the spatial and development policies and strategies, as well as, zoning ordinances, building code provisions on construction, monitoring, permitting process, and non-regulatory tools(such as incentives) utilized by QCG. Gaps, in terms of missed process steps, participation and involvement of stakeholders, quality of data and information

used, analysis and synthesis, were identified based on the information made available for the investigations. The preliminary findings are summarized in Table 4. Similarly for processing development permitting and construction, certain gaps and strategies to overcome them are identified. The result of the gaps analysis is presented in Table 5.

5.5 Knowledge Management and Training and Capacity Building34 In line with Disaster Risk Reduction Management and Mitigation program of the City, the QC DRRMC, through the Council members conducted orientation courses, seminars and trainings aimed to 34 Further details on the EM Trainings can be found in the Emergency Management Training Report submitted by EMI to QCG on August 2012.

Table 4: Gaps in Risk Sensitive Land Use Planning in Quezon City Planning Parameter Technical process of land use planning

Norms and Standards

Technical Data Participatory process

Findings QCG has not used the MMEIRS (MMDA,2004) outputs and past reports on flood events such as Ondoy, 2009; Habagat, 2012; Yoling,1970, to identify and address the most exposed population and critical infrastructure to earthquake, flood and fire risks The current process and working groups (Technical Working Groups and Functional Committees) should be made operational again for the review of the QC CLUP. Proposed Development Controls and Standards for Zones identified in the CLUP need to be reviewed for hazard and risk considerations Continue supportive provisions of the CLUP to hazard reduction The outputs of the current land use plan and comprehensive development plan have not been fully informed by the hazards and risk information. The current process of planning makes use of a participatory process.

Table 5: Findings for Processing Development Permits Stages Building Design

During Construction Surveillance of existing buildings Participatory process

Findings •

Availability of documentation is limited at this time to show previous practices on permitting, inspection and enforcement of laws related to building construction and development • There is no fire zoning in place. • There is no specific micro-zoning for areas of very high expected earthquake severity Continue Green Building program of QC (Ordinance No. SP-1917, s-2009) • • •

Continue enforcement of Building Codes; Current Inventory of QC Buildings is not yet complete; QCG continue to support DBO and Engineering in their tasks of enforcing the Building Code. The current process of planning makes use of a participatory process.

QCG is continually improving its roster of trainings and drills for capacity and awareness building among its constituents. Training plans and programs initiated by the QCG are listed in Table 6: Table 6: DPOS-DCD (now established as QC DRRMO) Plans and Programs for 201235 Capacity building and training courses in earthquake disaster mitigation. Organizing trainings and orientations for Communitybased disaster mitigation. Develop awareness on potential earthquake and flooding events. Capacity building and training in water search and rescue.

35

Full description of accomplished trainings, seminars, orientation courses and seminars for the year 2011 are detailed in the QCDRRMC Accomplishment Report For CY 2011 as submitted by the then Disaster Control Division to the QC DRRMC Action Officer.

Promote pre-emptive evacuation during inclement weather situations.

In helping Quezon City improve its resilience to disasters, EMI’s approach for the “Building a Disaster Resilient Quezon City Project” provided opportunities for specialized training activities to be conducted for QCG. Table 7 enumerates these capacity building activities, implemented mainly through EM training exercises and modules and separate workshops for the GIS and LUP-CCS components. Under the area of Emergency Management, the trainings conducted are based on the EMI MEGA-Safe Program. MEGA-Safe is a specialized course developed by EMI on Citylevel Emergency Management Organizations and Operations. The course walks through the steps of how to build and conduct basic Emergency Management functions at the city level. Among these functions are the development of basic plans, coordinating among organizations, conducting preparedness activities, testing plans and developing and conducting exercises. MEGA-Safe aims to train city authorities on how to set up city-level organizational structures and operations for disaster/emergency management.

Table 7: Trainings and Capacity Building Exercises Conducted in the Duration of “Building a Disaster Resilient Quezon City Project” by EMI Training Courses Training Output Date Conducted Trainees Resource Person Emergency Management Training Module 1: Introduction to Emergency Management

• • •

Emergency Management Training Module 2: Emergency Operations Center and Plan

• •

Emergency Support October 1-3, 2012 Function (ESF) Table drafted Table Top Exercise for PC Earthquake Field Investigation Report Table Top Exercise May 15-17, 2013 for PC Flooding Field Investigation Report

Representatives from QCG department/ offices, Manila Water, Red Cross, DepEd

Mr. Troy Kindred, EM Expert

Representatives from QCG department/ offices, QC barangay officials, Manila Water, Red Cross, DepEd and DILG-NCR

Mr. Troy Kindred, EM Expert


organize and train members of QC DRRMC, Barangay Emergency Response Teams (BERT), develop response protocols on different types of emergencies and develop expertise and competency of the QC DRRMC members, BERT, schools and members of the private sectors on disaster prevention and mitigation.


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Training Courses Emergency Management Training Module 3: Emergency Operations Plan Formulation

Training Output • • • •

Orientation on the Land Use Planning Workflow Process

•

Mainstreaming GIS in DRRM Workshop

•

• •

Table Top Exercise June 27-28, 2013 for PC Earthquake and Flooding EOP outline formulated Emergency Support Function (ESF) Table finalized Field Investigation Report Initial situational March 7 & 14, 2013 and consequential analysis

Data wishlist for the Disaster Risk Geo-Spatial Database Data template for usage in DRRM Sample simulation video of Fire Following Earthquake

5.6 Consequential Analysis Consequential Analysis is an analytical exercise used to reinforce understanding of the impacts of the scenario earthquake and flood to the different planning parameters -population, buildings, facilities, infrastructure and social and economic parameters. This exercise was conducted in April 2013 with the QC TWG where the impact of earthquake and flood risk to Quezon City’s population, economic activity, access to income and services, emergency management, and institutional and land use planning were discussed.36 The following sections provide a summary of the results of the consequential analysis that incorporates feedback from the QC TWG with technical inputs from EMI.

36

Date Conducted

Results of the situational and consequential analysis are detailed in the DRRMP Formulation Report, which was submitted by EMI to QCG on May 22, 2013.

June 20- 21, 2013

Trainees

Resource Person

Representatives from QCG department/ offices, QC barangay officials, Manila Water, Red Cross, DepEd

Mr. Jim Buika, EM expert

Representatives from the CPDO, DPOS, Engineering Department, EPWMD, City Health, Division of City Schools, GSD, HCDRD, QC ITDO Representatives from QCG department/ offices, DILG-NCR, Red Cross

Dr. Renan Tanhueco, Urban Development and Planning Expert

Kristoffer Dakis & Lalaine Bergonia, GIS Specialists

5.6.1 Consequential Analysis Output Exercise for Earthquakes Table 8 provides a summary of the earthquake impacts (consequences) to sectors from a M7.2 earthquake from the West Valley Fault as interpreted by participants of the April 3, 2013 workshop in ISSI, UP Campus. The participants from different departments and work stations of QCG were assigned according to the sectors (first column) they service. • The QC areas commonly identified by the groups as strongly impacted by the M7.2 earthquake were the following: Barangay Silangan, Ugong Norte, Libis and Bagumbayan, Blue Ridge areas, Pansol, Batasan and St. Ignatius. • Agreements based on the results were the following: »» A significant number injuries and lives lost, damage and collapse of the

»» Health and sanitation issues; »» Business stoppage or interruptions and loss of jobs;

Table 8: Summary of the Earthquakes Impacts to Sectors from a M7.2 Earthquake from the West Valley Fault Core Elements Primary Hazards: Primary Damage: Secondary Hazard/Damage: Faulting, shaking, Building/Structural Liquefaction. Landslide Fire, Hazmat, liquefaction, landslide Non-structural/Equipment Flooding…

Population

Shaking Barangay Silangan • BF Homes Subd. • Brgy. Proper • South Cemetery • Petines • Filinvest II Ugong Norte • Mercury • C5 • Green Meadows • Acropolis Eastwood Cyberpark Libis • C. Atienza • C. Indusria Barangay Blue Ridge B. • left side of bridge Pansol White Plains

Primary Loss: Life/Injury, Repair Costs, Function, Communication/Control Building Collapse • Residential /Commercial, Industrial, Institutional, Reservoir • Schools (Brgy. Bagong Silangan ES/ HS) • Churches, Markets, hospitals • Roads & Bridges (C5) Cracking, damage to La Mesa Dam Expected % life loss - 3,000 (estimated) • Injured - 9,000 (Estimated) • 3000 * 2 = 6,000 9000* 2 = 18,000 Estimated 16 * 5000 = 90000 students • 1350 - injured, 67 deaths

Secondary Loss: Business /Operations Interruptions, Market Share, Reputation Landslide • Payatas (open dumpsite) • Brgy. Bagong Silangan Flooding Disruption of: • Basic Services / Supply (food, water, electricity) • Slowing down/stoppage of business

Economic Activity

Faulting & Shaking

Damage to Malls, Condominiums and Residences • Brgy Bagumbayan • Brgy White Plains,

Buildings Collapse • Brgy. Bagumbayan Landslide • Brgy. Bagong Silangan, Brgy. Batasan Hills • Informal Settlers Food & Water Shortage Communication & Power Interruption

Access to Income/Services

Ground Shaking Bagumbayan Escopa Loyola Heights Pansol Old Balara Batasan Bagong Silangan

Damage to Balara Filter Plant & Main Water Aqueduct Damage to La Mesa Dam Damage to Schools • Red: Bagong Silangan Elementary School, Bagong Silangan High School, Bagumbayan ES, OB ES • Orange: Payatas ES, Judge Cecilia Palma ES, Batasan Hills ES, Balara ES, Batino ES, T. Alonzo ES, JP Laurel HS, Camp Aguinaldo, PV Kalaw, Libis

Possible flooding of barangays along Tullahan River Informal Settlers • Fire Prone • Flash flood • Loss of Lives (Mass casualties) Water supply interruption Health and Sanitation Problems -> Disease Outbreak Disruption of Health Services


following: buildings, lifelines and critical infrastructures like schools and hospitals; »» Disruptions of basic services;


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Core Elements

Primary Hazards: Faulting, shaking, liquefaction, landslide

Emergency Those affected by Management and primary hazards: First Responders Blue Ridge B Libis St. Ignatius Bagumbayan

Primary Damage: Building/Structural Non-structural/Equipment

Secondary Hazard/Damage: Liquefaction. Landslide Fire, Hazmat, Flooding…

Primary Loss: Life/Injury, Repair Costs, Function, Communication/Control • Orange: Murphy HC, Camp Aguinaldo Station Hospital, Quirino Memorial Medical Center, Proj 4 HC, Villarosa Gen. Hospital, Escopa HC, Payatas A. HC, Payatas B. HC, Lupang Pangako, Commonwealth Primary Damage - Bridges and Roads • Red: Brgy B. Silangan - Joyful St.; San Mateo - Batasan; Bagumbayan, Calle Industria Damage to Health Centers & Hospitals • Red: Pansol HC, Libis HC, B. Silangan HC, Batasan Super and Batasan Annex HC, Dona Nicasia, Camarilla ES, Libis ES, Fort Auignaldo ES, Belarmina Sports Complex Life lines are cut Suspension of Classes Mass Casualties (Death, Injuries)

Secondary Loss: Business /Operations Interruptions, Market Share, Reputation Disease Outbreak Loss of Lives Injuries Demand for services Delayed Emergency Response dues to inaccessible roads

Power Cut-off Loss of Communication, Water Supply Faulting along C5: Road Damage Flyover Libis-Katipunan Collapse Buildings and Hotels Collapse

Contamination of Waterways Liquefaction in Brgy. Bagumbayan Residential Fire Industrial Fire (e.g. Gas station, Factories) Industrial & Chemical Leaks in Bagumbayan Residential Areas prone to landslide

Casualties/ Injuries Loss of Lives Work, school, suspension

Food/Medical Shortage Security Threat (Chaos among civilians), looting Closure of business/transactions Prolonged restoration of electrical & water supply Hampered PNP & other law enforcement response

Core Elements

Bagong Silangan Batasan Hills Matandang Balara Pansol St. Ignatius Blue Ridge B White Plains Bagumbayan Ugong Norte Libis



Primary Loss: Life/Injury, Repair Costs, Function, Communication/Control Roads & Bridges Damage Building Damage • Government Office, Churches • Batasan National HS, Batasan ES • B. Silangan ES, HS • QC PU • Ateneo & Miriam College • Lupang Pangako ES, Payatas A ES • Corazon Aquino ES • Daycare Centers • Health Care Centers • Private Schools • Hospitals • Brgy Halls • Commercial and Industrial Establishments (in Libis)

Secondary Loss: Business /Operations Interruptions, Market Share, Reputation Liquefaction • Batasan Hills • B. Silangan • Bagumbayan • Ugong Norte Landslide • Matandang Balara • Batasan HIlls • B. Silangan Fire • High-density areas, communities Flooding • Access issues • Extra human loss

»» Fire following issues; »» Peace and Order, Security Issues.

5.6.2 Consequences to Sector Output Exercise 2 for Earthquakes Table 9 provides a list of recommendations from participants to reduce the negative consequences of a M7.2 earthquake from the West Valley Fault movement to the different sectors. The participants from different departments and work stations from QCG were assigned according to the sectors (Core element) they service.

5.6.3 Consequential Analysis Output Exercise for Floods Table 10 provides a summary of the flood related impacts (consequences) to sectors as interpreted by the QC TWG. The QC TWG members from different departments and work stations of QCG were assigned according to the sectors (1st column) they service. • About 66 barangays (out of 142) of QC areas commonly near rivers: Tullahan, San Francisco, Marikina, San Juan are flood prone

• Agreements based on the results were the following: »» Injuries and lives lost are less than earthquakes; »» Widespread evacuations; »» Damage to roads, bridges and buildings, lifelines and critical infrastructures like schools and hospitals; »» Widespread disruptions of basic services; »» Health and sanitation issues; (ex.disease outbreaks, water source contamination) »» Business stoppage or interruptions and loss of jobs;

5.6.4 Consequences to Sector Output Exercise 2 for Floods The matrix provides a list of recommendations from participants to reduce the negative consequences of flooding to the different sectors. The QC TWG members from different departments and work stations from QCG were assigned according to the sectors (Core element) they service.


Institutional and Land Use Administrators

Primary Hazards: Faulting, shaking, liquefaction, landslide


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Table 9: Summary of Consequences to Sector of a M7.2 Earthquake Including Initial Recommendations to Reduce the Consequences Core Elements Population

Consequences to Sector of M7.2 EQ 1. Loss of Life, Possible injuries 2. Destruction of the environment 3. Loss of properties or infrastructure

Initial Recommendation 1. Reduce % of deaths through increasing the level of awareness on DRRM in the community 2. Greening the buffer zone of the fault line (5m on both sides) 3. Strict implementation of the National Building Code. 4. Relocation of the ISF located along the fault line 5. Proper Waste Management 6. Reduce risk by: Identifying hazards 7. Empowerment of the people

Economic Activity 1. Landslide 2. Roads & Bridges Damage 3. Shortage of Relief Goods (Foods and Medicine)

1. Resettlement of I.S.F. 2. Construct EQ-proof bridges and all other roads and frequent inspections 3. Pre-deployed relief good to strategic areas

Access to Income/ Services

1. 2. 3. 4. 5. 6. 7.

1. Casualties and injuries 2. Damaged school buildings 3. Damaged roads and bridges

8. 9. 10. 11. 12.

Preparedness Drills Retrofitting of treatment plants Education Advocacies Capacitate vulnerable groups Relocation Train health personnel and community on first aid, rescue and water sanitation & hygiene Capacitate community - provide emergency kits and logistics for primary care services Coordination & networking Inspection of roads and bridges Retrofitting and repair Identify alternative routes to transport people, supplies and other needed resources

Emergency Management and First Responders

1. Landslide in Residential areas (Brgy. Blue Ridge B 2. Civil unrest (Brgy. Libis 3. Chemical Leak (Fire)

1. 2. 3. 4. 5. 6. 7. 8. 9.

Provide early warning signage IEC (Trainings & Drills) materials Relocation of ISFs from danger zones Identification of evacuation centers Prepare contingency plan on the part of PNP during civil unrest Frequent exercise of fire and EQ drills Conduct Barangay-Ugnayan Identify the kinds of chemicals present Contingency plan in cases of emergency, in coordination with QC BFP


1. Depreciation of Land Values 2. Structural Damage (Infrastructure) 3. Disruption of government services and operations

1. Conversion of Use 2. Repair and rehab (make the structures more resilient) 3. Strict Compliance & implementation of the National Building Code and Zoning Ordinance 4. Review and revision of the CLUP 5. Identify areas where the services & operations can resume

Physical Resources

1. Contamination of waterways 2. Uprooting of trees 3. Accumulation of wastes

1. 2. 3. 4. 5.

Invest on Earthquake-resistant drainage systems Retrofitting of treatment plants Reinforcement of huge old trees Continuous improvement of the existing disposal sites Retrofitting of roads

Table 10: Summary of Flood Related Consequences to Sectors

Population

Primary Hazards: Flood inundation

66 Barangays • District I -20 • District II - 5 • District III - 11 • District IV - 11 • District V - 11 • District VI - 8 46% out of 142 Barangays Economic Activity Novaliches Bagong Silangan Batasan Hills Bagumbayan Sto Domingo Talayan Del Monte Santol Dona Imelda Damayang Lagi Kalusugan Tatalon Roxas Masambong San Antonio Gulod Access to Places near Tullahan River: Income/Services • Capri • Gulod • Novaliches Proper • N. Nayon • North Fairview • Sta. Lucia Brgys. Near San Francisco River: • Siena • Del Monte • San Antonio • Tatalon • Damayan • Talayan Brgys near San Juan River • Tatalon • Dona Imelda • Damayan Lagi • Roxas • Brgy Pasong Tamo • Culiat • Vasra



Primary Loss: Secondary Loss: Life/Injury, Repair Costs, Business /Operations Interruptions, Function, Communication/ Market Share, Reputation Control Affected Est. Population: 1.334 M 150 deaths (Based on Ondoy)

Structural Damage • Roads & bridges • Residential, commercial structures • Drainage system • Rip-raps

Loss of lives & property Loss of income & livelihood

Displaced Families Casualties

Disease Outbreak


Core Elements

75

Core Elements


76



Core Elements

Along Marikina River/ San Mateo Bridge • B. Silangan • Batasan • Payatas • Matandang Balara Libis Bagumbayan Quick Rise of Flood Water Flash Floods Tatalon • Villa Espana • Araneta Avenue • Victory Avenue Dona Imelda • Kapilingan Street • Betty Go Belmonte Barangay Roxas • Gumamela • Waling-waling Damayang Lagi • Calvary Hills Area 5 All barangays traversed by rivers & creeks • Tatalon • Dona Imelda • Roxas • Tlayan • Bagong Silangan • Sta Lucia • Gulod



Primary Loss: Life/Injury, Repair Costs, Function, Communication/ Control

Secondary Loss: Business /Operations Interruptions, Market Share, Reputation

Loss of lives Damage/loss of priorities

Food/medicine shortage Water-borne disease outbreaks Electricity & water supply Contamination of portable water Stranded disruption of essential services (e.g. transportation)

Roads & Bridges Damage Widespread evacuation Damage to powerlines

Suspension of classes

Structural damages • ISFs • Residential Establishments • Commercial Establishments Drainage System Ripraps Bridges & Roads Utilities (water & powerlines) Loss of lives, properties & livelihood

Outbreak of diseases Contamination of water supply Disruption of public services, commercial activities

Core Elements Population

Consequences to Sector of M7.2 EQ Affected Est. Population: 1.334 M 150 deaths (Based on Ondoy)

Initial Recommendation Full implementation of the QC Shelter Program Intercity Flood Control Program Recovery of easements Strict implementation of RA 9003

Economic Activity 1. Loss of lives & damage to properties 2. Disruption of public services 3. Lifeline Disruptions (Communication, water, power)

1. Provision of budget for livelihood (start-up budget for livelihood) 2. Trainings for livelihood & income 3. Additional rubber boat, generators and relief goods (food, medicine, clothes 4. Provision of evacuation areas

Access to Income/ Services

1. 2. 3. 4. 5. 6.

1. 2. 3. 4. 5. 6.

Loss of lives and injuries Health and Sanitation Livelihood & Shelter Lifeline are damaged Unemployment Mobility and Accessibility


Identify relocation sites/evacuation centers Community-based trainings DRRM - First Aid Training Involve NGOs Budget Allocation Basic Training, using indigenous materials/resources Create livelihood programs for rehabilitation “work for food”

1. Declogging of canals/drainages/rivers 2. Develop protocols on alert levels/ communication during inclement weather (between brgys and QCDRRMC) 3. Relocation sites of ISF located along riverways/creeks 4. Formulate contingency plan of barangay 5. Enhancement training & capacity building of BERT 6. Install CCTV & Flood markers to flood prone areas 7. Ordinance for force evacuation 8. Increase capacity through accredited community


1. Structural Damages 2. Loss of lives, properties & livelihood 3. Presence of informal settlers along rivers & creeks

1. Review & revision of CLUP & Zoning Ordinance 2. Locate activities & functions in flood free areas 3. Strict implementation of the water code (3-M creek easement)

Physical Resources

1. Water Contamination (waterways & portable water 2. Waste Accumulation 3. Damage to parks and wildlife

1. 2. 3. 4. 5.

Strict monitoring of compliance of water companies Construction of retaining wall & desiltation of rivers Strict implementation of waste segregation policies IEC on proper waste segregation Desiltation & construction of retaining wall


Table 11: Summary of Consequences of Floods to Sector Including Initial Recommendations to Reduce Consequences


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6. Definition of Resiliency Strategies

Several steps were undertaken in order to define the resiliency strategies for Quezon City. They are as follows: 1. Revisit the initial findings and strategies developed from the Situational Analysis of the various DRRM elements such as LIA, EM, LUP-CCS, and GIS with respect to the results of the Hazards, Vulnerability, and Risk Assessment and the Consequential Analysis 2. Refine and confirm each strategy by providing the rationale in the context of reducing risk and building resiliency 3. Determine the implementation requirements, establish responsibilities, and timelines 4. Determine the priorities for implementation Once the strategies have been defined, they were subjected to validation by again using the Strengths-Weaknesses-OpportunitiesChallenges tool.37 Several workshop exercises were conducted with the QC TWG to further define the resiliency strategies that incorporates practical considerations for implementation. These exercises are called SWOC II since this is the second time where SWOC was used to formulate strategies (the first was during the situational analysis of various elements of DRRM). These series of exercises were conducted from June to July 2013, as summarized in the following: • Mainstreaming GIS in DRRM and SWOC Exercise Workshop (June 20- 21, 2013) conducted with Project TWG to generate appreciation of a good database and

37

See Annex 10.3 for the detailed results of the SWOC II Analysis

encourage QCG to adapt best practices, to provide a data template for usage in DRRM and to verify proposed policy recommendations through SWOC exercises • LUP-CCS Working Session with CPDO and DPOS: Interpreting HVRA into Land Use and Sectoral Parameters (July 5, 2013) - aimed for the QCG to understand and validate the HVRA report using a planning perspective and propose strategies in addressing development drivers and pressures that contribute to UDRI parameters • SWOC Exercise on EM (July 28, 2013) - carried out SWOC exercise with the TWG to assess the city’s capability in the implementation of proposed Emergency Management Strategies • LIA SWOC Workshop (July 11, 2013) intended to present to QCG recommended strategies in improving institutional and coordination mechanisms on DRRM and assess the city’s internal and external environment in implementing the said recommended strategies • LUP SWOC Exercise during the DRRMP Writeshop(July 17-19, 2013) - carried out SWOC II exercise with the QC TWG to assess the city’s capability in the implementation of proposed Land Use Planning and Management identified strategies From these SWOC workshop exercises, key strategies per DRRM element have been identified and presented in the following sections. These strategies formed the basis for developing DRRM programs, projects, and activities (PPAs) as will be discussed in Section 7. The PPAs were aligned along the four thematic

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6.2 Strategies for Improving Quezon City’s Emergency Management System

6.1 Strategies for Improving Quezon City’s Legal and Institutional Arrangements on DRRM

¨¨ Emergency Management STRATEGY 1: Develop an Emergency Operations Center (EOC) as the DRRMO command, control, and communications (C3) center to manage Quezon City disaster operations. Complete construction and equipping of the new Disaster Risk Reduction and Management Office (DRRMO) facility to include a stateof-the-art Emergency Operations Center. The EOC must have the physical space and technology requirements and human resources to manage a major, sustained disaster response and recovery operation involving representatives from government and civil society.

¨¨ LIA Strategy 1: Strengthen DRRM System through the creation of the QC DRMMO cum Emergency Operations Center (EOC) and expansion of the DRRMC. ¨¨ LIA STRATEGY 2: Put in place the institutional mechanism for mainstreaming DRR into the regular local development planning, investment programming and budgeting process. ¨¨ LIA STRATEGY 3: Institutionalize HVRA findings and results. ¨¨ LIA STRATEGY 4: Define a legislative agenda to support DRRMP implementation based on HVRA findings. ¨¨ LIA STRATEGY 5: Invest in human resources and training to support resiliency goals through the development and adoption of a comprehensive DRM capacity development program and trainings specific to their line of responsibility for DRRMP implementation. ¨¨ LIA STRATEGY 6: Monitor and evaluate actions and performance. ¨¨ LIA STRATEGY 7: Establish prioritization criteria for LDRRMF utilization

¨¨ Emergency Management STRATEGY 2: Adopt, institutionalize, activate and practice the Emergency Support Function System (ESF) to support the DRRMO C3 Center. Quezon City should adopt and further formalize the ESF System as part of its command and control structure. ¨¨ Emergency Management STRATEGY 3: Adopt the Incident Command System as the organizational system for the Emergency Operations Center and the Emergency Support Functions. Organize the DRRMO according to the Incident Command System and as mandated by RA 10121. Finalize staffing pattern for the DRRMO and fill positions with qualified personnel. ¨¨ Emergency Management STRATEGY 4: Write the Emergency Response Operations Plan that incorporates the concepts of the EOC, ESF, and ICS international standards.


areas of prevention and mitigation, preparedness, response, recovery and rehabilitation.


80

¨¨ Emergency Management STRATEGY 5: Develop and institute a training program under the new DRRMO organizational structure in order to strengthen Quezon City’s emergency management capacity. ¨¨ Emergency Management STRATEGY 6: Develop and institute an Exercise and Drill Program under the new DRRMO organizational structure in order to strengthen Quezon City’s emergency management capacity.

6.3 Strategies for Developing and Sustaining Quezon City’s Geographic Information System (GIS) for DRRM ¨¨ GIS STRATEGY 1: Develop a Centralized DRRM database system. ¨¨ GIS STRATEGY 2: Develop data management plan that specifies the data required, data available and data to be collected. ¨¨ GIS STRATEGY 3: Develop data and information sharing and access protocols that govern the way transactions are undertaken between the departments and with other external organizations. ¨¨ GIS STRATEGY 4: Develop capacity building programs that focuses on training staff in using GIS for disaster preparedness, planning and response in the Disaster Control Division of DRRMO

6.4 Strategies for Mainstreaming DRRM in Land Use Planning and Construction Codes and Standards ¨¨ LUP-CCS STRATEGY 1: Establish, observe and strengthen the institutional process for mainstreaming DRRM in strategic panning and land use planning formulation. ¨¨ LUP-CCS STRATEGY 2: Strengthen implementation process of suggested land

use management (LUM) strategies and related PPAs that reduce earthquake and flood risks and build QC resilience. ¨¨ LUP-CCS STRATEGY 3: Institutionalization of HVRA Findings and Results for the Land Use Plan, Comprehensive Development Plan and Zoning. ¨¨ LUP-CCS STRATEGY 4: Invest in human resources and training to support Risk Sensitive Land Use Planning (RSLUP)and land use management as means for DRRMP implementation ¨¨ LUP-CCS STRATEGY 5: Develop a Monitoring and Evaluation implementation of the DRRMP

7.1 General 7.1.1 Vision Quezon City is envisioned to be a Quality City with an empowered and responsive citizenry who live in a sustainable, well planned, and structurally sound environment with a vibrant economy under progressive leadership.38

7.1.2 DRRMC Functions, Members, Roles and Responsibilities39 RA 10121 mandates the creation of local disaster 38 The descriptors of the QC DRRMP 2014-2020 were developed by the QC TWG during the DRRMP Preparatory Workshop in April 2013 from which the vision statement was developed in July 2013 during the DRRMP Formulation Writeshop. The vision statement was finalized in August 2013 after the meeting with the QC DRRMO Head of Office. 39 A new structure for the DRRMC has yet to be created to be aligned with EO 5 Series of 2013 that establishes the DRRMO.

management councils at the city and barangay levels, the composition and functions of which are clearly defined in the law. In compliance with RA 10121, Executive Order No. 23 Series of 2010 was issued by the Mayor to organize the Quezon City DRRMC. Furthermore, the EO defines the functions, composition, and the specific roles and responsibilities. Figure 27 presents the Quezon City DRRMC Organizational Structure. The City Mayor, together with the City ViceMayor, heads the Council and acts as the Chairman and Vice Chairman, respectively. The Chairman shall direct all the necessary resources in times of emergency while the Vice Chairman shall provide the necessary legislative measures on disaster risk reduction programs. The council has identified nine (9) operating teams with defined functions and specific tasks in DRRM. These are: (1) Health and Sanitation; (2) Police and Security; (3) Relief and Evacuation Center Management; (4) Rescue and Recovery; (5) Rehabilitation and Relocation;

Figure 27. Quezon City Disaster Risk Reduction and Management Council (QC DRRMC) Organizational Structure (pre-EO 5 S.2013)


7. Quezon City’s Disaster Risk Reduction and Management Plan


82

Figure 28. Department of Public Order and Safety (DPOS)

(6) Transportation Team; (7) Emergency Rapid Assessment; (8) Fire; (9) Public Information. Each team has an identified implementing office and attached implementing offices. The council coordinates closely with CSOs and NGAs for a more concerted effort and effective implementation of the local DRRM plan. The Head of the Department of Public Order and Safety (DPOS) was designated as the Action Officer, who shall take responsibility in all phases of disaster operations. An Acting Assistant Department Head II who is concurrently the Head of the Anti-Squatting and Relocation Division supports him. Figure 28 presents the organizational structure of the DPOS. Under the DPOS are six (6) divisions: (1) Tricycle Regulation; (2) Traffic Enforcement; (3) Security Intelligence; (4) Disaster Control Division; (5) Anti-Squatting Enforcement & Informal Settlers Relocation; (6) Administrative Division. An ad hoc Radio Communications Group is attached to the Head of the DPOS.

7.1.3 DRRMO Functions, Roles and Responsibilities Formerly known as the Disaster Control Division (DCD), the Quezon City Disaster Risk Reduction and Management Office (QC DRRMO) was instituted through Executive

Order No. 5 Series of 2013 as compliance to RA 10121, which authorizes LGUs to establish organizational units to implement their development plans and programs to reduce natural or human-induced risks or disasters. The rationale behind the inception of the QC DRRMO is to serve as the implementing arm of the QC DRRMC. The role and position of QC DRRMO in the QCG manifests this purpose. As permanent primary office under the Office of the Mayor, the QC DRRMO not only formulates the implementation of a comprehensive and integrated local disaster risk reduction management plan (LDRRMP) but also sets direction, implement and coordinate DRRM programs and activities of the Quezon City Government according to the National Council’s standards and guidelines. In acting capacities, the QC DRRMO is headed by a Head of Office and assisted by three (3) officers, one each for the following three (3) groups: administration and training, research and planning, and operations and warning40. Figure 29 shows the basic organizational structure of the LDRRMO for Quezon City as prescribed by the RA 10121. The Administration and Training group

40

KII with DPOS staff and functional chart from DCD.

83

organizes and conducts training and orientation on disaster risk reduction and management within the city. This group organizes, trains, equips and supervises the city emergency response teams and the community volunteers. The Research and Planning Group, on the other hand, designs programs and coordinates disaster risk reduction and management activities consistent with the NDRRMC standards and guidelines, formulates and implements a comprehensive and integrated LDRRMP in accordance with the national framework and policies on disaster risk reduction in close coordination with the BDRRMCs. They are also tasked to prepare and submit to the City Council, through the QCDRRMC and the Local Development Council, the DRRM Plan and annual investment plan, the proposed programming of the LDRRMF, other dedicated disaster risk reduction and management resources, and other regular funding source/s and budgetary support of the QCDRRMC/BDRRMC. The Operations and Warning group responds and manages the adverse effects of emergencies and carries out recovery activities in the affected area. It is their duty to ensure that there is an efficient coordination mechanism for immediate delivery of food, shelter and medical supplies for women and children. This group is also in charge of operating a multi-hazard early warning system that provides accurate and timely advice to city emergency response organizations and to the general public through PAISO and CCC, particularly radio, landline communications, and technologies for

communication with rural communities.

7.1.4 Emergency Support Functions (ESF) To supplement the capabilities of the QC DRRMO in fulfilling its primary functions, EMI introduced the Emergency Support Function (ESF) system. The purpose of the ESF is to ensure the effectiveness of the QC DRRMO’s Emergency Management. The ESF does this by enhancing the emergency management (EM) capabilities of Quezon City through the involvement and support of other institutions. Emergency managers, responders, planners, decision makers and implementers of these involved institutions are grouped according to a specified ESF based on the function/role of their respective institutions. Each ESF has a specific scope/role/function and is comprised of a Lead Agency and is supported by a number of government (from different levels of governance) and private institutions, known as Support Agencies. This grouping of emergency support functions is captured and documented in an ESF Table. The purpose of the ESF Table is to: • Facilitate an organized way to group the institutions for response to disasters, emergencies/incidents based on their function; • Delineate the tasks, based on the 13 ESFs, to a group of institutions; • Provide guidance for each institution on their roles and involvement; and


Figure 29. QC DRRMO Organizational Chart


84

• Show the extent or the roster of involved institutions for Quezon City. The ESF Table as developed by the TWG defines roles and responsibilities for each function related to emergency management. Together with the ESF Table is Emergency Support Function Matrix that assigns Lead Agencies and Support Agencies. The Lead Agencies are responsible for developing an internal planning process to document a short plan for carrying out each Emergency Support Function during response operations.41

7.2 DRRM Priority Programs, Projects, and Activities (PPA) for 2014-2020 Programs, projects and activities (PPAs) were developed based on the key strategies identified by the QC TWG with technical inputs and guidance from EMI. The PPAs are aligned along the four thematic areas of DRRM in accordance with the National DRRM Plan. In the PPAs, projects are classified into immediate-term, short-term, and medium-term. The classification establishes the priority for investment by Quezon City in terms of their urgency and importance to reducing risks and building resiliency. A further description of these criteria for prioritization is found in Table 12. Table 12: Criteria for Prioritizing Projects Immediate-Term (Critical)

These are classified as critical projects that must be implemented immediately. Advancement or moving DRRM agenda forward is impossible without these projects. The consequence of their nonimplementation will create a major liability to Quezon City.

Short-Term (Important)

These are classified as important projects that must be done and implemented within 1-3 years to create the foundation and infrastructure for DRR, which shall address significant vulnerability.

Medium-Term (Relevant)

These are classified as relevant projects that should be done and implemented in the next 4-6 years to improve DRR in the medium- to long-term even with the limitation of resources.

The succeeding sections provide a summary of the priority programs and projects per DRRM thematic area. A full listing of detailed activities per project is also listed which include indicative budgets for some items.

7.2.1 Mitigation and Prevention 7.2.1.1 Mitigation and Prevention Program 1: Strengthening Quezon City’s Legal and Institutional Arrangements for DRRM Mitigation and Prevention Projects

Priority

Strengthening of the DRRM System through the creation of the QC DRRMO and expansion of the DRRMC

Immediate

Institutionalization of HVRA findings and results

Immediate

Development and adoption of Immediate a comprehensive DRM capacity development program and trainings for QC departments Monitor and evaluate actions and performance on DRRM

Immediate

Mainstreaming DRR into the regular Short-term local development planning, investment programming, and budgeting process

41

See Annex 10.1 and 10.2 for the full description and details of the ESF Table and Matrix

Defining a legislative agenda to support DRRMP implementation based on HVRA findings

Short-term

7.2.1.3 Mitigation and Prevention Program 3: DRR for Critical and Essential Facilities Mitigation and Prevention Projects

Mitigation and Prevention Projects

Priority

Formulation of a Communications Plan to institutionalize HVRA within QC and for planners, engineers, owners, land development developers/real estate developers (with focus on hotspot areas)

Immediate

Mainstreaming DRR in the 2010-2030 Comprehensive Land Use Plan (CLUP)

Short-term

Consultation Workshops for Pilot Project identification and Feasibility of Selected Land Use Management Methods for flood and earthquake risk reduction.

Short-term

Development of a program for improving QCG capacity and expertise in building and infrastructure construction project development permitting, monitoring and evaluation

Short-term

Restructuring existing monitoring and evaluation program for stakeholder response(s) to and development impacts of QCG projects on DRRM

Short-term

Pilot projects on Preferred LUM methods of mainstreaming DRRM (e.g. development regulations, zoning EQ hazard areas, floodway zoning and setbacks, fire zones)

Short-term

Priority

Program for Identification, Feasibility Studies of Critical and Essential Facilities for seismic retrofitting

Medium-term

Piloting projects for retrofitting of essential and critical facilities

Medium-term

7.2.1.4 Mitigation and Prevention Program 4: - Construction and reinforcement of flood walls in waterways based on risk impact assessment to ensure its resistance to hazards


7.2.1.2 Mitigation and Prevention Program 2: Mainstreaming DRR in Land Use Planning and Land Use Management


86 Mitigation and Prevention Program 1: Strengthening Quezon City’s Legal and Institutional Arrangements for DRRM Projects Strengthening the DRRM System through the creation of the QC DRRMO and expansion of the DRRMC

Activities

Outputs

Responsible Agency

Approve ordinance creating the DRRMO.

•City Ordinance

Approve establishment of personnel complement of DRRMO.

•Approval Document by the DBM

Create an EO identifying new members of the DRRMC.

•Executive Order (EO) by City Mayor

Create an EO or Memo/Office Order to detail QC personnel to DRRMO to function on an interim basis (refer to the ESF for possible positions/personnel).

•Executive Order (EO) by City Mayor

Lead: DRRMO, Mayor’s Office, Department Heads, and City Personnel Support: Budget Department, DBM, and Civil Service

DRRMO Action Officer and City Personnel Officer with the Chief of Staff (OCM) to develop DRRMO staffing and conduct Organizational Development (OD) study for creation of positions, duties and responsibilities, qualification standards. Mainstreaming DRR into the regular local development planning, investment programming, and budgeting process

Indicative Budget

Timeline within 6-12 months within 2 years

within 1-2 months

within 3-6 months

Create an EO making QC DRRMO an automatic member of the Local Development Council (LDC).

Lead: DRRMO, CPDO Support: Budget Department, CDC, LDC, DILG, etc.

Interface QC DRRMO with the sectoral and functional committees of the LDC.

within 1 year

Ensure the integration of HVRA results into the CDP/LDIP/AIP.

•Updated CDP

immediately

Determine the timing of the activities to formulate the DRRMP and make it sync with the CDP/LDIP/AIP formulation process.

•Schedule of CDC meeting, CDP updating, letter/invitation from CDC Secretariat to DRRMO

immediately

Create mainstreaming internal guidelines.

•Guidelines

within 2 years

Projects

Activities

Outputs

Internally and externally disseminate the City Risk Profile and Risk Atlas (with prioritization of hotspot barangays for earthquake and floods). Ensure internalization and utilization of HVRA information for planning purposes at the city and barangay level.

Indicative Budget

Lead: DRRMO Support: Mayor’s Office, City Personnel (Facilitator), and IT

Timeline within 6 months

within 1 year

•Actual conduct of training, training module

within 3 months

Use HVRA data for preparedness focusing on hotspot barangays. Hold seminars and workshops to review, comprehend, and assimilate the findings and results of the HVRA and Risk Atlas. Update the HVRA every 3 years and •Other HVRA complete the HVRA study for other studies (e.g. fire, hazards. landslide, etc.) Defining a legislative agenda to support DRRMP implementation based on HVRA findings

Initially draw up a list of proposed legislative priority measures based on HVRA and DRRMP recommendations (by the DRRMC).

•List of priority legislative measures; Memo/letter to various departments (members of DRRMC) or per ESF requesting inputs to DRRM-related legislation

Present initial list to the LDC sectoral and functional committees.

Procurement expenses of other firms to conduct study (if needed) Lead: DRRMO Support: ESFs and Vice Mayor

within 3-6 months

within 6-12 months

Draft proposed ordinances to potential City Councilors. Present HVRA findings to the Sangguniang Panglungsod.

Consider ordinance to make hotspots as environmentally critical areas.

•Memo/letter from DRRMO for HVRA dissemination; Memo from DRRMO to the Vice Mayor to the 19th City Council; HVRA copies and presentation

within 1-2 months


Institutionalization Make HVRA and Risk Atlas •At least 142 HVRA findings and information public by distributing copies of the results copies to the barangays and making Risk Atlas it available online via uploading in the QC website.

Responsible Agency


88

Projects

Activities

Outputs

Responsible Agency

Indicative Budget

Timeline

Development and adoption of a comprehensive DRM capacity development program and trainings for QC departments

Each department should draw up technical training, drills, and exercises agenda to comply with the requirements of the law.

•Identified training activities/priority measures for ESFs by the DRRMO

Lead: DRRMO Support: Mayor’s Office and Personnel Department (Facilitator)

within 3-6 months

Monitor and evaluate actions and performance

Identify M & E tools being used and required by NDRRMC, DILG, and other offices.

•Copy of DILG form

Lead: DRRMO Support: Budget Office, COA, CPDO, Mayor’s Office and all Departments

immediately

Include training needs or other sectors (not only the initially identified specific training needs for GIS/ICT and EM) on proposed LDRRMP

Organize a small working group to set up M & E system for QC DRRM. Formally adopt the M & E system for implementation via an Office Order or Executive Order of the Mayor. Assign dedicated staff for M & E at the DRRMO. Formulate guidelines for financial M & E.

•DRRMF Utilization Guidelines

within 3-6 months

89 Projects

Activities

Mainstreaming DRR Establish, observe and strengthen in the 2010-2030 the institutional Process for CLUP mainstreaming disaster risk reduction and management in strategic planning and land use planning formulation. Ensure that the next CLUP and CDP will be risk-sensitive. The framework for mainstreaming DRR should be finalized and harmonized with existing guidelines from HLURB and DILG: • Revisit the vision statement and consider vision descriptors on resilience and safety;

•

•

•

Land use and sector situational analysis (in CDP) should be reviewed with the inputs from HVRA, workshop outputs on consequence analysis, implications of risk to land use planning and sector planning (e.g. health and sanitation, safety, infrastructure and transport, poverty, housing, hazardous areas, education). A work plan should be developed by CPDO for that purpose; Establish emergency management objectives and requirements for space and locational requirements for staging, emergency routes and evacuation sites (through SSDD and barangays) that should be incorporated in the formulation of the CLUP Further review and modify the goals, objectives, development strategies, policies in view of the risk information and interpretations;

Outputs •Addendum to CLUP Ordinance from City Council; Workshop outputs •Checklist; Addendum to the CLUP - DRR Mainstreaming Framework

Responsible Agency

Indicative Budget

Lead: Mayor’s Office, CPDO, QC DRRMC, CDC, and DRRMO Support: Committee on Land Use and Housing

P500,000.00

Timeline within 1 year


Mitigation and Prevention Program 2: Mainstreaming DRR in Land Use Planning and Land Use Management

Projects

Activities

•


90

Consultation workshops for Pilot Project Identification and Feasibility of Selected Land Use Management Methods for flood and earthquake risk reduction

Outputs

Responsible Agency

Indicative Budget

Timeline

P200,000.00

every year

Consider LUM methods identified in DRRMP in the development of alternative spatial strategies, and preferred spatial strategies for identified growth and non-growth areas, corridors, special urban development sites and open spaces to reduce and manage risks in these areas (Focus of LUM strategies concern open space provisions, improved vehicular and pedestrian access in congested areas, provision of easements and right of ways, siting requirements of new buildings and infrastructures in view of hazards and risks).

Review advisory from Mines and Geosciences Bureau (MGB) on occupation of landslide prone areas.

•Updated maps with technical reports; •Addendum to CLUP Ordinance from City Council

CPDO to arrange internal as well as external dialogues to identify, discuss the implementation problems and issues, and develop potential solutions to remove impediments of suggested land use management strategies for flood and earthquake risk reduction in QC. These consultations should involve internal departments (including legal, building official and others), and external stakeholders (e.g., developers, academe, media, NGO’s, Insurance, etc.).

•Ordinances, Workshop Outputs, Compendium of Best Practices, CDC-DRRMC Agreements and Operational Guidelines

Invite academic institutions, and/ or specialized scientific/technical organizations or NGO’s with expertise in zoning and building code implementation to conduct research on LUM implementation (e.g. a review of current zoning with regard to FAR, building height, density of use and occupancy in areas where intensities of earthquakes and floods are most severe) and to propose scheme and approaches for implementation of building codes, zoning ordinances, and other development control measures.

•Workshop Outputs, Guidebooks on Best Practices, and Feasibility Studies

Invite land use planners, scientists, engineers, and other experts from different disciplines and to conduct educational field trips within and outside the country to draw out workable arrangements in implementing the LUM methods.

•Study Grants

Lead: Budget Office, BOC, CDC, CPDO, CRO, DRRMO, Engineering, EPWMD, ITDO, Mayor’s Office, and PDAD Support:

Activities

Outputs

Formulating a Communications Plan ( IEC) to institutionalize HVRA within QC and for planners, engineers, owners, land development developers/real estate developers (with focus on hotspot areas)

Formulate a communications plan to institutionalize HVRA within QC and for planners, engineers, owners, and other stakeholders in QC, which covers the following: • Entry points: permitting process, environmental impact assessment, and the CLUP formulation; • IEC campaign on how to: (1) advise developers, owners (non-engineered structures, titled), and those affected by hazards and risks; (2) communicate ‘hotspots’ (3) better influence engineers and planners to strictly follow the building code; • RSLUP awareness-raising to policymakers; • Internal trainings, workshops, and meetings.

Communications Plan (IEC materials); Ordinances strengthening integration in plan formulation and plan implementation/ enforcement

Develop a clear plan and process for stakeholder participation, involvement in IEC for building resiliency. For example: • Make the HVRA and Risk Atlas information public via the Quezon City website and other means; • Disseminate the City Risk Profile and Risk Atlas internally and to the external partners; • Ensure that the HVRA information is internalized and utilized for planning purposes at the city and barangay level; • Use HVRA data for preparedness focusing on hotspot barangays.

•IEC materials, dialogues

Each department to draw up technical training, drills and exercises agenda per department to comply with the requirements of the RA10121 law.

•Training for inspection, inventory of engineered and non nonengineered structures, trainer's training, and Training Needs Analysis

Program for improving QCG capacity and expertise in building and infrastructure construction, project development, permitting, monitoring and evaluation

Responsible Agency

Indicative Budget

Timeline

Lead: DRRMO, CCC, and PAISO

P5,000,000.00 per barangay (P33,000,000 for 66 priority barangays)

within 6-12 months

Lead: Mayor’s Office, CPDO, Engineering, CTAO, DBO, DRRMO, Personnel Department, and Budget Department

P10,000,000

within 3 years

•Updates on social media •Delivery of copies of Risk Atlas •Workshops/ Seminars for action planning

Refocus trainings, allocate manpower •Equipment for and materials, equipment on building testing building inspections, permitting process materials as specified in the building code, improvement of enforcement of building construction codes and standards, development controls.


Projects


92

Projects

Activities

Outputs

Responsible Agency

Indicative Budget

Timeline

Offer incentives for trainings, graduate studies on civil/structural engineering, risk sensitive urban planning and green building and offer contract of service to recipients in return.

4.5 Restructuring existing M& E Program for stakeholder response(s) to and development impact(s) of QCG projects on DRRM

Go on educational field trips to observe and learn from other megacities on how they deal with disaster risk reduction through land use and strategic planning.

•IEC materials, dialogues

Establish group for Research and Development

•Updates on social media

Utilize goals, objectives and targets set in the sectoral plans (CDP) as means of evaluating project outputs accomplishment and determining whether desired changes or impacts were in fact accomplished (as prepared by the CPDO, Engineering and DBO and other offices).

•M & E Tools (forms and criteria)

CDP sectoral working groups to set up the M and E system for DRRM and identify and quantify logistical requirements for budget support (e.g. TWG members from Engineering, DBO,CPDO can develop the M & E requirements around the CDP and LUP strategies and PPAs such as building and infrastructure resilience to earthquake and flood DRRMP). The M& E plan should tackle, among others: > Draft an office order or executive order of the Mayor to formally adopt regular accomplishment reporting as part of the DRRM M & E system for implementation.

•Office Order/ EO

> Ensure that the PPAs identified for the prioritized strategies are packaged into the CDP/LDIP /AIP.

•Checklist

> QC Engineering and Building Officials (DBO) to take special roles on how to improve enforcement of building construction codes and standards, better reporting and documentation, which should be made public.

•Report

> DBO to make recommendations •Report to correct structural and nonstructural deficiencies (e.g. a thirdparty certification for structural and non-structural quality if a building structure is more than ten (10) years old and especially those located in hotspot areas.)

Lead: Engineering, CPDO, DBO, City Council, and Budget Department

P50,000.00

within 1 year

Projects

Activities

Outputs •Building database

> Consider special building design and construction consideration for areas with very high earthquake severity.

•Workshop outputs

Indicative Budget

> Enforce Ordinance No. SP1800, S-2007 ordinance regulating construction, repair, modification, and demolition of buildings and structures, including illegally constructed, abandoned, dangerous or unfinished buildings and structures in QC (e.g. at a minimum, buildings should be identified and listed publicly).

Pilot projects on preferred Land Use Management Methods (e.g. development regulations, zoning EQ hazard areas, floodway zoning and set-backs, fire zones)

> Make clear process of identifying and penalizing the owners of structures that pose hazards to the community and tackle issues on notification of building code violations to order compliance from the developers and owners (by the QCG) (e.g. dilapidated public and private buildings, unfinished buildings).

•Report

> Put in place a timeline for Green Building Technologies to be utilized in future constructions and land development.

•Revision of primer to include existing structures

Ensure that development regulations/measures are incorporated in the new CLUP and Zoning Ordinance. Some of these will require additional studies (e.g., Fire zones): • Review and Revision of Zoning (and integrate risk information); • Zoning special EQ hazard areas, use of buffer zones, fault setback regulations; • Special hazard area, floodway set-back regulations; • Fire zones are established • Ensure mitigation in capital improvements program; *Inter-city flood control program *Desiltation of rivers • Identify places where hazardous materials are stored and processed.

•Feasibility studies, workshop reports, and dialogues

Lead: Engineering, CPDO, DBO, City Council, Budget Department, DRRMO, EPWMD, and PDAD

P5,000,000.00

Timeline


> Make record keeping of newly applied permits and building permits issued more efficient to allow a scientific analysis of building vulnerability and risk.

Responsible Agency

Projects


94

Activities

Outputs

Responsible Agency

Indicative Budget

Timeline

Indicative Budget

Timeline

Land and Property Acquisition: • Relocation & resettlement sites for ISF; • Open space for easements and safer sites; • Acquisition of open space/ undeveloped lands for mitigation. Information Dissemination: • Increase level of awareness on DRRM; • Street furniture, markers, CCTVs for evacuation purposes.

Mitigation and Prevention Program3: DRR for Critical and Essential Facilities Projects

Activities

Outputs

Program for Identification, Feasibility Studies of Critical and Essential Facilities for Seismic Retrofitting

Identify Critical and Essential Public facilities that need to be surveyed including criteria.

Piloting projects for Retrofitting of Essential and Critical Facilities

Undertake Building Survey through a •Inventory, long-term program (5 years). Survey Reports

Establish a Special Program within Engineering or CPDO to manage and undertake the program

•Checklist and prioritization criteria

Responsible Agency Lead: CPDO, Engineering, and DRRMO

Establish Priorities for Survey Starting with Hotspot Barangays.

Based on Outcome of the Survey, determine which buildings should be retrofitted, or demolished and replaced. Undertake feasibility studies and pilot studies for Retrofit of Essential and critical facilities.

•Feasibility, pilot studies

Establish a multi-disciplinary team (architects, engineers, and administrators to manage the program.

•Institutional Arrangements for established special team

Learn from the pilot applications to set up a long-term program of retrofit.

•Report

Lead: CPDO, Engineering, and DRRMO


P10,000,000.00 (per year)

within 6 years

Mitigation and Prevention Program 4: Introducing Urban Rejuvenation and Urban Redevelopment for DRR Riverside Redevelopment Plan to include Land and Property Reacquisition such as salvage zones, relocation and resettlement siting, flood protection and flood management

Activities

Outputs

Establish Risk-Sensitive Urban •Risk-sensitive Redevelopment/Urban Rejuvenation Urban as a new practice within CPDO. Redevelopment/ Rejuvenation Plan, Studies, Criteria for Redevelopment

Responsible Agency Lead: CPDO, Engineering, and DRRMO

Undertake training for Planners, Architect and Engineers on RSUrban Rejuvenation, including study tours and learning field work in the Philippines and Abroad. Develop Internal Standards for Urban Rejuvenation /Urban Redevelopment.

Pilot studies on Interior Areas for Urban Rejuvenation and Redevelopment especially on Hotspot Areas

Use HVRA Results as well as Hotspots to determine areas that are most suitable for RS Urban Redevelopment.

Establish a city-wide Risk Sensitive Urban Redevelopment Program (based on experience from the Pilot Application)

Prepare a Risk-Sensitive (RS) Urban Redevelopment Plan with specific vision, goals, objectives, PPA, and budget.

•Studies


Undertake Pilot Studies in RS Urban •Selection Redevelopment Report

Have the RS-Urban Redevelopment Plan endorsed by the leadership and adopted by the City Council.

•Risk Sensitive Redevelopment Plan


Indicative Budget P15,000,000.00

Timeline


Projects

95


96

7.2.2 Preparedness To effectively anticipate, respond to, and recover from the impacts of likely, imminent of curent hazard conditions, these projects and activities are carried out within the context of DRRM and aims to build the capacities needed to efficiently manage all types of emergencies. Orderly transitions from response to recovery is made possible due to preparedness. The following are the projects and activities planned for this effect: 7.2.2.1 Preparedness Program 1: Strengthening Quezon City’s Emergency Management System Preparedness Projects

Priority

Immediate Development of a state of the art EOC Adoption, institutionalization, activation Immediate and practicing the ESF system Adoption of the Incident Command System Development of the EOP

Immediate

Development and institutionalization of an EM System training program Development and institutionalization of an EM exercise and drills program

Immediate

Incorporation of Land Use Management Interventions in improving emergency management

Immediate

Medium-term Medium-term

Development of a Centralized DRRM database system Development of data management plan which specifies the data required, data available and data to be collected

7.2.2.3 Preparedness Program 3: Preparation of Contingency Plan for Each Department and Function of QC Preparedness Projects

Priority

Development of QC-specific contingency plan templates

Immediate

Training for and completing department contingency plans

Immediate

Review of the department contingency Immediate plans and development of city-wide contingency plans

7.2.2.4 Preparedness Program 4: Stockpiling of basic emergency supplies

7.2.2.2 Preparedness Program 2: DRRM Geospatial Database Development Preparedness Projects

Development of a solution based two- Immediate tiered GIS software solution Establishment of a city-wide Immediate interdepartmental Technical Coordinating Committee Development of data and information Immediate sharing and access protocols that govern the way transactions are undertaken between the departments and with other external organizations Development of capacity building programs that focuses on training staff in using GIS for disaster preparedness, planning and response of DRRMO

Priority Immediate Immediate

7.2.2.5 Preparedness Program 5: Procurement of Communication Equipment to strengthen the QC DRRMC’s communication resources and capacity for disaster risk management on the ground

97

Preparedness Program 1: Strengthening Quezon City’s Emergency Management System Activities

Development of a Review the proposed EOC state of the art EOC building design on the space requirements.

Revise the layout/design of the EOC and make provisions for space and communication requirements for approximately 100 personnel (including estimated 84 operations and decision makers and 16 support staff): • ESF liaison (~15); • QC-DRRMC (~20); • DRRMO/DPOS/DCD Operations Control Room staff (~25); • > Additional Support Staff: Technical, Facilities, and Security (~16).

Outputs

Responsible Agency

•Recommendations on the design/layout of the building

Lead: DRRMO Suport: Mayor’s Office, Building Department, Engineering Department, CHO, SSDD, GSD, QCGH, PRC, EPWMD, RCS, PAISO, Assessors, CPDO, HCDRD, GADRCO, QCBFP, and QCPD

•Revised layout by the Special Design Group •Approval of the revised design by DRRMO

Make provisions for accomodating a dedicated room and communication equipment for: • Radio Communication Services (~15); • Joint Information Center for Media (~15); • Chair Person/Action Officer, Deputy, and Staff (~4). Organize the Operations Control Room into the ICS by making space and equipment provisions for Admin and Training (including Finance), Operations and Warning, and Research and Planning Sections. Provide back-up power systems. Conduct series of meetings for the implementation of the EOC Design.

•Documentation of the changes in the agreements made

Indicative Budget P30,000.00

Timeline within 3 months


Projects


98

Projects Adoption, institutionalization, activation and practicing the ESF system

Activities

Outputs

Draft a new ordinance or executive order formally adopting the ESF system.

•City Ordinance

Complete SOP procedures per 13 ESFs after completion of QC Basic Plan (by March 31, 2014).

•ESF (13) Annexes

Responsible Agency Lead: DRRMO Support: all ESF member institutions (please refer to ESF Table)

Indicative Budget P1,000,000.00

Define roles and responsibilities for disaster functions within the international ESF system. Develop policies to partially activate the ESF structure for various levels of disasters (according to the required EOC support resources).

•Memorandum of Understanding (MOU)

Establish formal linkages with external agencies/service providers involved with the ESFs through MOUs Adoption of the ICS

Review proposed QC organizational realignment to comply with QC Incident Command System (ICS). Implement ICS organizational structure into the EOC and ESF systems.

Implement ICS training programs •Training Plan for all EOC and ESF personnel as (include TNA well as executives. results); Module/ Curriculum Development; Pool of Trainors (TOT) from ESF members

Lead: DRRMO Support: Mayor’s Office, Building Department, Engineering Department, CHO, SSDD, GSD, QCGH, PRC, EPWMD, RCS, PAISO, Assessors, CPDO, HCDRD, GADRCO, QCBFP, and QCPD

P2,000,000.00


Activities

Development of the EOP

Continue in-place planning process with all key departments to create the EOP.

Outputs •Quezon City Emergency Operations Plan (EOP)

Responsible Agency

Indicative Budget

Lead: DRRMO Support: TWG Members

Identify a pool of writers to draft the 7 key elements of the Basic Plan (as prescribed by international standards). *Members of the TWG will review the draft documents and series of meeting will be conducted to consolidate the parts of the Basic Plan. Reflect and incorporate the mandated DRRMO organizational structure through development and exercise of a city-level EOP (as prescribed by international standards). Training in and exercising of updated plans should be part of the planning process. Make final plan officially sanctioned by gaining the approval of the City Mayor.

•City Ordinance of the approved EOP

P1,500,000.00

Conduct orientation at the barangay level on realigning the city-level EOP in the BDRRM Plan.

•City-wide barangay level orientation reports

P150,000.00

Timeline


Projects


100

Projects Development and institutionalization of an EM System training program

Activities Review the local and international "recommended" trainings.

Outputs

Responsible Agency

Indicative Budget

•Training Program (to include TNA, module development, documentation, etc.)


P20,000,000.00

within 2 years

P2,000,000.00

within 1 year

Design and implement an EM system-training program (by July 2014 to coincide with the EOC completion). Enhancement of the Barangay Emergency Response Team (BERT) through training. Develop and Plan and execute drills and institute EM exercise exercises (by outside experts). drills and programs

•Drill Reports (including post-drill evaluations)

Timeline

Mobilize and coordinate internal organizations and external stakeholder groups. Base priority exercises at the 'hotspot' barangays identified in the HVRA. Incorporate Land Use Management Interventions in improving emergency management

Develop escape routes and open •MOU with the space for emergency. private sector

no budgetary requirement

Identify escape routes and open space for emergency; Identify evacuation areas in the barangays. 1.7.2 Identify redundant systems (e.g. alternative routes to transport people, supplies and other needed resources).

Preparedness Program 2: DRRM Geospatial Database Development Projects Develop a Centralized DRRM database system

Activities EMI to provide DRGS Database, HVRA Report, City Risk Atlas to Project Directors (DRRMO and CPDO).

Outputs •HVRA Report and City Risk Atlas by EMI

Responsible Agency

Indicative Budget

Timeline

Lead: DRRMO Support: ITDO, CPDO

within 1 month

Lead: EMI Support:: ITDO, CPDO

within 1 month

DRRMO to serve and be approved as Action Officer of QC DRRMP and Data Custodian by GISTechnical Coordinating Committee (TCC)

Develop data management plan which specifies the data required, data available and data to be collected

DRRM Member Offices to serve as custodians of their own data at department level.

•Data Handling Protocol

EMI to provide SDI checklist of proposed data to be included for DRRMO.

•Database (SDI) from EMI

DRRMO to identify data to be updated and that is required but not available. DRRMO to inform DRRM Member Offices of required data to be produced and updated.

Projects

Activities

Outputs

Indicative Budget

DRRM Member Offices to collect, process, and update data. DRRM Member Offices to provide required and updated data with proper documentation based on metadata standards. DRRMO to update checklist and post data in centralized database. Develop a solution Indicate a protocol that will require based two-tiered GIS GIS data to be in a universal format software solution (shapefile) in the communications section of the EOP.

•EOP Provision

Lead: DRRMO Support: ITDO


Establish a city-wide interdepartmental Technical Coordinating Committee

Draft an EO creating the GIS-TCC and specifying the membership (to include the DRRMO).

•Executive Order (EO)

Lead: Mayor’s Office, ITDO Support: DRRMO


Develop data and information sharing and access protocols that govern the way transactions are undertaken between the departments and with other external organizations

Directly connect DRRM Offices to DRRMO (Data Custodian).

•EOP Communication Protocol (to DRRMO must house the data incorporate (databases, maps, reports, assessments) in a shared network as provisions in the left column) Data Custodian. DRRMO must have a back-up of data via one-way (forward connection) to ITDO. DRRMO must have direct connection to e-GIS (ISSP) DRRM component (e.g. cloud/web service). Barangays must have direct connection to e-GIS DRRM component. Public (QC constituents) must have a one-way (forward connection) to e-GIS. DRRM Member Offices must upload required data to DRRMO (Data Custodian). GIS-TCC must regulate data access of DRRM Member Offices via creation of a pre-determined list of offices who may access data other than their own. DRRMO must have full data access and distribute data required for emergency response (special powers is to be bestowed upon by GIS-TCC).

DRRMO must provide data to ITDO for back-up and data security purposes.


Timeline


Responsible Agency


102

Projects

Activities

Outputs

Responsible Agency

Indicative Budget

Timeline

DRRMO must upload data in e-GIS DRRM component and have full data access provided by the barangays. e-GIS must provide functionality and greated access to DRRM-related data for barangays (e.g. enabling them to provide DRRM information about their barangays). e-GIS must provide pre-determined DRRM information to constituents. Develop capacity building programs that focuses on training staff in using GIS for disaster preparedness, planning and response in the DRRMO

DRRMO must be prioritized in capacity building.

•Training of DRRMO

Lead: ITDO, DRRMO

within 1-2 months

DRRMO must have the software, hardware, IT infrastructure and GIS training to perform their functions.

•IT Infrastructure

Capacity building must include one contact point per DRRM Member Office.

•Trained Personnel per DRRM Member Office

P1,000,000.00

Establish IT infrastructure (shared network) to electronically connect to the e-GIS DRRM components of ISSP.

•Established Shared Network

for 2015 budget

within 2 years within 2 years

Preparedness Program 3: Preparation of Contingency Plan for Each Department and Function of QC Projects Develop a template for a Contingency Plan that is specific to QC

Train and instruct each department and function within QCG to complete its Contingency Plan

Activities

Outputs

Review national guidelines for Contingency Plans and samples from other cities.

•Compilation of national guidelines (samples/comments & recommendations)

Undertake workshops and internal consultations to discuss parameters for Contingency Planning in consideration of the conducted review of national guidelines and samples from other cities.

•Workshop and consultation meetings

Develop a Sample Contingency Plan.

•Identified parameters adopted for contingency planning

Undertake a training and dissemination program to inform and educate each department and function within QCG to develop a QC-specific Contingency Plan that is informed by HVRA.

•Close coordination with other departments/offices

Have each Department complete its own Contingency Plan.

•Draft of the Sample Contigency Plan

Responsible Agency Lead: DRRMO Support: CPDO

Lead: DRRMO

Indicative Budget

Timeline

Will be based on the number of departments/ offices who will be involved

within 1 year

Projects

Outputs

Undertake an exercise to •Reviewed review and uniformize the Departmental Departmental Contingency Plans. Contingency Plans Develop a City-Level Contingency Plan that encompasses the Departmental Contingency Plans.

Responsible Agency

Indicative Budget

Timeline

Lead: DRRMO

•City Level Contigency Plan integrating Departmental Contigency Plans

7.2.3 Response

7.2.4 Rehabilitation and Recovery

Provision of emergency services and public assistance during or immediately after a disaster in order to save lives, reduce negative health impacts, ensure public safety and meet the basic subsistence needs of the affected people; focused on immediate and short-term needs (‘disaster relief ’).

7.2.4.1 Rehabilitation and Recovery Program 1: Development of Sheltering, Relocation, and Rehabilitation Plans

Response Projects

Priority

Provision of alternative livelihood relief or assistance

Immediate

Procurement of tents and other temporary shelter facilities;

Immediate

Procurement of food subsistence or relief goods

Immediate

Procurement of life-saving equipment Immediate and rescue/emergency vehicles for rescue in floods, earthquake/landslide and collapsed structures, including basic hand tools and hydraulic equipment Procurement of medical response equipment

Immediate

Procurement of “construction and Immediate heavy equipment,” including vehicles for use in high angle rescue operations, clearing and trimming operation of fallen trees and transport of rescue personnel and equipment during operations Procurement of Chemical, Biological, Radionuclear (CBRN) equipment and Personal Protective Equipment (PPEs)

Immediate

Rehabilitation and Recovery Projects

Priority

Setting up requirements for shelter based on HVRA results

Immediate

Establishment of mutual aid agreements and arrangements with other local government units for sheltering and resource allocation

Short-term

Establishment of suitable relocation sites

Medium-term

7.2.4.2 Rehabilitation and Recovery Program 2: Retrofitting and repairs of structures such as roads, bridges, government buildings and any structural projects that pose danger or threat to life and properties


DRRMO to review all Departmental Contingency Plans and to generate a City-Wide Contingency Plan

Activities


104

Recovery and Rehabilitation Program 1: Development of Sheltering, Relocation, and Rehabilitation Plans Projects

Activities

Review HVRA results and set parameters and requirements for Shelter

Use HVRA results to develop parameters and requirements for setting up shelters (e.g. projections for displaced people, levels and number of injured people by barangay). Further establish the needs for sheltering to be gender sensitive and to attend to the most vulnerable such as children, the handicapped and others based on the developed parameters using HVRA results. Review the needs of shelters according to the hotspots and with an overall goal to improve coping capacity and reduce social losses.

Establish suitable Relocation Sites

Establish Mutual Aid Agreements and Arrangements with other LGUs for Sheltering and Resource Allocation

Outputs

Responsible Agency

•Long-term Shelter Lead: Housing Needs & Community Resettlement Department Support: SSDD, QCHD, CEO, DBO, National Housing •Disaggregated data on population Authority

Indicative Budget


(e.g. by sex, age, age-group, etc,)

•Relocation Sites; Livelihood Programs; Psychological Recovery Program

Study and consider other suitable •Evacuation options given that existing measures for shelters may not be sufficient. hotspot areas •Identified alternative relocation sites (off-city) Establish legal and administrative basis for alternative sites and prepare for procurement of equipment and supply.

•Executive Order (EO), Ordinance; City Council Resolutions; Biddings; Negotiated Contracts

Discuss arrangements for mutual aid with other cities.

•MOA between QCG and the Receiving City or Municipality

Optimize current agreements with the 7 cities.

•MOA amended with the 7 Cities

Lead: Housing & Community Resettlement Department (UPAO) Support: City Mayor, DRRMO, City Legal, BAC, City Council, CPDO, and GSD

Lead: City Mayor and DRRMO Support: City Legal

within 1 year

8. Monitoring and Evaluation

At the national level, the Department of the Interior and Local Government (DILG) advocates the undertaking of M&E and specifically provides manuals/guidelines for its undertaking as a function of the local planning structure. Among these are the Local Government Treasury Operations Manual (LGTO), Updated Budget Operations Manual (UBOM), Rationalized Planning System Manual (RPS), and Comprehensive Development Plan – Executive Legislative Agenda Manual (CDP-ELA). Though the LGTO and UBOM are useful for M&E, it only includes forms and reports unlike the RPS and CDP that specifically include M&E instructions/ guidelines.

8.1 DILG Guidelines 8.1.1 Rationalized Planning System (RPS) M&E 42 The critical importance of M&E for cyclical planning is its ability to link one planning cycle to the next through the production of new information derived from the assessment of: (1) impacts of plans, programs, and projects implemented; (2) effects of enforced regulatory measures; (3) outcomes of developments in the area that had not come under the control or influence of the planning system.

In general, the RPS discusses the application of M&E to the various plans prepared by LGUs as a mandate of Republic Act No. 7160, The Local Government Code of 1991. Specifically, it covered the following about M&E: • Designation of Function/Responsibility Consistent with the local planning structure and its mandated functions, M&E is a built-in function of the sectoral or functional committees. Formally, it is entrenched in the Planning Information Management Division of a full-blown local planning and development office (LPDO). See Figure 30. Otherwise, M&E function could be devolved to a functional committee consisting of a representative of each of the sectoral committees coordinated by the head or any staff of the local planning and development office (LPDO) (see Figure 2 below). Making M&E a part of the regular function of the LPDO will ensure that planning is a continuous process. • Definition of Terms Here are some definitions offered in the RPS: »» Monitoring – a continuous process of data collection and  analysis to check whether a project is running according to plan and to make adjustments if required. It is an evaluative study directed to the short term. »» Evaluation – a systematic process of collecting and analyzing information about activities and results of a project in order to determine the project’s relevance and/or


There is a prevalent notion in the current planning practice of the Philippines: rather than a continuous/cyclical process, planning is considered as a simple process of producing a plan document or project with ‘time start’ and ‘time finish’ elements. Monitoring and Evaluation (M&E)42 addresses this continuity gap by linking one planning cycle to the next by providing feedback or information on the results/assessment of plan implementation and on how the next year’s activities can be undertaken to better achieve local goals and objectives.

105


106

Figure 30. Full Blown LPDO Organizational Structure

to make decisions to improve the efficiency and effectiveness of a project. »» Project output – project deliverables arising from the activities carried out with the use of project inputs or resources. »» Project outcomes – results and long-term impacts arising from the utilization of project outputs. »» Project impact – a state of change over a reference point (baseline or time period) arising from the production and utilization of project outputs. Project impacts may be short term (as project outcomes/ effects) or long term (when related to the achievement of project goals) »» Development impact – a state of change arising from the implementation of a plan (program/project) or on account of actions

taken by agents outside the control or influence of the planning system, or both. • Application Clear from the definitions above is the more common application of M&E in project management than planning. Comparing the two, M&E for project management is primarily concerned with determining the implementation problems resulting in slippages, shortfalls, or the difference between the plans and executions of the project. On the other hand, M&E for cyclical planningis concerned not with mere project outputs per se but with the determination of the changes43 attributed to planned and 43 Manifested in terms of a changed state of the: (1) socioeconomic well being of the inhabitants; (2) quantity and quality of the physical environment; (3) local governance institutional capabilities. Furthermore, it is concerned with the (1) effects of the utilization of the outputs produced (proj-


Figure 31. Structure and Primary Functions of LDC

unplanned developments (what change to assess and how to measure that change). • Sectoral Planning Role In the sectoral planning process, the role of M&E is to determine changes in the ect outcomes); (2) contribution of the outputs to the realization of development goals (project impacts); (3) impacts of public sector planning interventions (programs, projects, services and regulatory measures) and impacts of private sector investments on the local area and population.

current reality after a lapse of time. New and feedback information should be clustered around five development sectoral indicators44 (social, economic, environment, infrastructure, and institutional) to describe and measure long-term changes in the area. This will then facilitate the creation of a new estimate of the vision-reality gap and formulation of new sectoral goals, objectives 44 Complete list of sectoral indicators can be found in the RPS Manual (http://www.dilg.gov. ph/PDF_File/reports/DILG-Reports-2011712-ea7ba5859e.pdf).


108

and targets, identification of new programs, projects or activities, and so on. However, the process compels updating the database for planning (e.g. ecological profile; LDIs). Figure 32 illustrates the role of M&E in the sectoral planning process. • Frequency M&E should be synchronized with various planning cycles/local plans45 : (1) annual for AIP/budget cycle; (2) once every three years for the revision of the short-time CDP and ELA; (3) longer cycles for the 6 year medium-term CDP and long-term CDP and CLUP revision. Figure 33 illustrates M&E in the local municipal planning and development system.

8.1.2 Comprehensive Development Plan Executive Legislative (CDP-ELA) M&E Compared to the RPS, the CDP-ELA discusses M&E functions as a performance measurement to present suggestions on how to improve future efforts in the LGU. The following are various tools that LGUs may use for performance measurement (monitor and evaluate the achievement of results): • Annual/End-of-Term Accomplishment Report Shows the accomplishments of the LGUs, the beneficiaries, area coverage, and the costs of implemented programs and projects. Figure 34 shows the Annual/End-of-Term Accomplishment Report template. • Community Based Monitoring System (CBMS) Allows monitoring and tracking progress of LGUs towards the attainment of their goals (including the MDGs). 45 Full discussion on frequency of M&E/synchronization of M&E with various planning cycles/ local plans can be found in the RPS Manual (http:// www.dilg.gov.ph/PDF_File/reports/DILG-Reports2011712-ea7ba5859e.pdf).

• Local Governance Performance Management System (LGPMS) Enables LGUs to conduct self-assessment in terms of their performance at three levels of results: (1) input; (2) output; (3) outcome. The self-assessment involves looking at the local government (provincial, city and municipal) in five performance areas and 17 service areas through the use of 107 indicators. • M&E Strategy Template Produces information that may be used in the next planning period and for other decision-making purposes. The following are the key elements of an M&E Strategy: a. Clear and expected results (goals, objectives, outputs); b. Explicit targets per result; c. Indicators to measure progress towards results; d. Data source to assess performance; e. Collection methods; f. Frequency at which measurements will be made; and g. Roles and responsibilities. Monitoring and evaluation are differentiated in terms of meaning and importance in the manual. While both provide information to decision makers, they differ in the kinds of information. Properly utilized, both information are mutually reinforcing such that monitoring can provide quantitative and qualitative data that can serve as inputs to evaluation (vice versa): • A well-functioning monitoring system can greatly reduce the need for in-depth evaluation as problems are revealed and resolved in a timely manner; • Monitoring can indicate the need for indepth evaluation of problems and issues; • In-depth evaluation may show the need for a new and improved monitoring system. The CDP-ELA manual also recommends the conduct of M&E on an annual basis or at the end


Figure 32. Sectoral Development Planning Process

Figure 33. Municipal Planning and Development System


110

of three years. As to who will handle M&E46, it identifies that the following existing structures can be triggered for M&E in local plans: • Local Development Council (LDC)47; • Sectoral or Functional Committees of the LDCs; • Local Planning and Development Office (LPDO); • Project Monitoring Committee48 (PMC); • Legislative Oversight Committee49 (LOC); 46 Full discussion on M&E responsibility can be found in the CDP Manual (http://www.dilg. gov.ph/PDF_File/reports/DILG-Reports-20117121939d5d3d3.pdf) 47 The LDC is tasked to coordinate, monitor, and evaluate the implementation of development programs and projects as stated in Section 109 (a) (5) of EO 93 of 1993. 48 The PMC is tasked to monitor government projects funded from foreign and national funds including development projects funded from the IRA per EO 93 of 1993. 49 The LOC (Sanggunian) is an integral part of the legislative process. It has the duty to ensure that plans, programs, and projects are implemented and administered efficiently, effectively and in a manner

• Implementing office or agency of Programs/ Project for short-term projects.50 Despite the LGUs’ principal responsibility to conduct of M&E, participation of other stakeholders/local constituents is encouraged. This can be achieved by: (1) including a CSO/ private sector representative in the monitoring team; (2) establishing regular formal or informal feedback mechanisms.

8.2 Disaster Risk Resiliency Indicators for Monitoring and Evaluating Performance on DRRM The Disaster Risk Resiliency Indicators (DRRI) developed by EMI can be used as a tool for monitoring and evaluation (M&E). The DRRI is a set of ten (10) indicators that establishes initial benchmarks to measure to what extent risk reduction approaches have been mainstreamed in the organizational, functional, operational and development systems and processes of local governments. The indicators capture the potential for achieving disaster consistent with legislative intent. 50 Project monitoring results may be discussed during the executive meetings of the LGUs.

Figure 34. Annual/End-of-Term Accomplishment Report


Figure 35. M&E Strategy Template

resilience in particular sectors, based on predefined benchmarks and performance targets. Anchored on EMI’s concept and approach to DRR mainstreaming and aligned with the five (5) elements of the Hyogo Framework for Action and the Ten Essentials for Making Cities Resilient, the DRRI is divided among 5 key areas: (1) Legal and Institutional Processes and Policies; (2) Public Awareness and Capacity Building; (3) Critical Services and Infrastructure Resiliency; (4) Emergency Preparedness, Response, and Recovery Planning; and (5) Development Planning, Regulation, and Risk Mitigation. The rationale for applying the DRRI indicators is illustrated in the next figure. The main aim of the indicators is to track progress on the mainstreaming of risk reduction approaches in a local government’s systems and processes. That primary mainstreaming goal is further divided into three strategic goals. Each of the goals corresponds to one or more key areas affecting a local government’s disaster resilience. Finally, two indicators corresponding to each of the five key areas of mainstreaming are identified, the descriptors for which provide a measure of the performance of the local government in mainstreaming disaster risk reduction in a particular key area. The five (5) key areas for mainstreaming DRR,

their corresponding indicators, and the characteristics evaluated are listed in the table in the next page. The DRRI allocates a 1-5 ranking for each of the ten (10) indicators that fall under the five (5) main areas of mainstreaming, using five Performance Target Levels of attainment. Each indicator has specific descriptors for its corresponding attainment levels, as well as guide questions that can be used to provide specific details to support the assigned ranking. The DRRI was used in Quezon City to establish an initial benchmark on risk resiliency of Quezon City. On two separate occasions the QC Technical Working Group were asked to do a self-assessment using the DRRI, the first in November 2012 at the start of the project and the second in July 2013 towards the end of the project. The results of these assessments are shown in Table 13. On the average, there is a slight increase from the results of the first assessment with the second assessment. However, it is also observed that there were decreases in scores from the first to the second assessments in areas such as Hazard, Vulnerability and Risk Assessment (Indicator 9) and Risk Sensitive Urban Development


112

and Mitigation (Indicator 10). Overall, both assessments show a moderate level of attainment on DRM mainstreaming which could mean that Quezon City has yet to fully establish the necessary systems and policies for on disaster risk reduction. It could also be translated to a general willingness of Quezon City to invest in DRR activities

while recognizing its inherent challenges for mainstreaming.

Figure 36. Aims, Strategic Goals, and Key Areas for Mainstreaming DRR

113

Indicators Indicator 1: Effectiveness of • Legislative Framework • • • Indicator 2: Effectiveness of • Institutional Arrangements • • Awareness and Indicator 3: Training and • Capacity Building Capacity Building • Indicator 4: Advocacy, • Communication, Education and Public Awareness • • Indicator 5: Resiliency of Critical Services

Indicator 6: Resiliency of Infrastructure Emergency Preparedness, Response Planning

Indicator 7: Emergency Management

• • • • • • • • • • •

Indicator 8: Resource Management, Logistics and Contingency Planning

• • •

Characteristics Laws, acts and regulations DRR Policies Compliance and accountability Resource mobilization and allocations (financial, human) Organizational structures that define roles and responsibilities Review, update, enforcement, monitoring and reporting process Partnerships with civil society and communities Institutional commitment to training and capacity building with dedicated resources and evaluations Knowledge management, research and development Commitment to advocacy and public awareness and education programs that engage all relevant audiences and stakeholders including civil society and community organizations Commitment to participatory processes and community involvement Research facilitation, use of information technology and communication (ITC) to disseminate information Pro-active and constructive media relations Inclusive, participatory and transparent shelter and housing policies and programs Protection of living (i.e. shelter) and livelihood conditions (i.e. access to and availability critical services including opportunities for livelihood) against disasters Resiliency of health services to deliver services during a disaster Resiliency of water, sewer and storm drain systems Resiliency of transportation systems Contingency for delivery of essential services Functioning Emergency Operations Plan with Basic Plan and ESF system Year-round response planning and functioning standard operating procedures Drills and Simulation involving relevant stakeholders including civil society and communities Preparedness programs for first responders and leaders and representatives of communities at risk Self analysis of resource management and logistics Contingency planning for key institutions for pre-defined scenario analysis and planning parameters Ability to manage delivery of resources to most vulnerable populations


Areas


114

Areas

Indicators Indicator 9: Hazard, Vulnerability and Risk Assessment

• • • •

Indicator 10: Risk-Sensitive Urban Development and Mitigation

• • • •

Characteristics Awareness of hazards and vulnerabilities (natural and man-made) Risk identification and assessment, vulnerability and capacity analysis Impact assessments (loss analysis) by relevant sectors and segments of populations at risk Use of forecasting and early warning in preparedness and response planning Risk-sensitive land use planning and urban re-development, Enforcement of codes and standards, particularly in shelter and housing programs; quality control norms in construction Capital investments in disaster risk reduction Reinforcing and retrofitting of critical assets and infrastructure

Table 13: Summary of Results of the DRRI for Quezon City DRRI Tool Components Legal and Institutional Process •Indicator 1: Effectiveness of Legislative Framework •Indicator 2: Effectiveness of Institutional Arrangements Awareness and Capacity Building •Indicator 3: Training and Capacity Building •Indicator 4: Advocacy, Communication, Education and Public Awareness Critical Services and Infrastructure Resiliency •Indicator 5: Resiliency of Critical Services •Indicator 6: Resiliency of Infrastructure Emergency Management and Response Planning •Indicator 7: Emergency Management •Indicator 8: Resource Management, Logistics, and Contingency Planning Development Planning, Regulation and Risk Mitigation •Indicator 9: Hazard, Vulnerability and Risk Assessment •Indicator 10: Risk-Sensitive Urban Development and Mitigation AVERAGE SCORE

15-Nov-12

19-Jul-13

3.06 2.94

3.54 3.30

2.59 2.74

3.10 3.50

2.58 2.67

2.70 2.70

3.03 2.76

3.10 3.00

3.11 2.92 2.84

3.00 2.70 3.064

9.1 Recognizing Initial Gains and the Challenges of Implementation The challenge ahead of Quezon City Government, particularly of the QC DRRMO, is the implementation of the QC DRRMP 2014-2020. In the course of developing the DRRMP, there were significant gains that were already made, mainly in: ✓✓ Improving the collective knowledge, awareness, and capacity of the stakeholders on disaster risk reduction and management with members of the Quezon City Development Council participating in all the orientations, training sessions, workshops, and writeshops; and in particular, persons from the different QC departments and offices who formed the Technical Working Group and working closely with EMI in developing the various elements of the DRRMP; ✓✓ Facilitating the establishment of the Disaster Risk Reduction and Management Office; ✓✓ Completing the Hazard, Vulnerability, and Risk Assessment (HVRA) for flood and earthquake which gives Quezon City the scientific information useful for various city planning work and in carrying out programs, policies, and activities that takes into account these risk parameters; ✓✓ Identifying “hotspot” barangays that have the highest risks to earthquake and flood; ✓✓ Developing an geographic information system and database useful primarily for DRRM work and for other uses(e.g. city planning, building and facilities planning, development and management); ✓✓ Processing risk information to identify initial land use management strategies for QC risk


9. DRRMP Implementation and Mainstreaming Process

115

reduction; ✓✓ Familiarizing QC CPDO with a process and framework for making future QC land use plan and zoning risk sensitive; ✓✓ Initiating the development of the Emergency Operations Plan (EOP), including a draft template and sections assigned to respective Technical Working Group members to complete; ✓✓ Initiating the set up of the Emergency Support Function (ESF) system that groups the different Quezon City Government departments and other stakeholders into different functions to facilitate an organized way of managing and coordinating response with clearly delineated tasks for each department; ✓✓ Identifying priority projects in the immediate-term, short-term, and mediumterm to implement risk reduction and adaptation objectives; ✓✓ Setting up a monitoring and evaluation system using indicators to measure progress over time in terms of disaster risk reduction These gains provide the foundation for a more structured and efficient approach to building the resiliency of Quezon City to disasters. However, a real concern is how to sustain the good work that was started, continue supporting the engagement of the Technical Working Group in formulating solutions collectively and of the Steering Committee in making decision and facilitating mainstreaming, and how to institutionalize the QC DRRMP 2014-2020 recommendations within Quezon City’s overall development plan and priorities. These are the challenges of mainstreaming.

116 Building a Disaster Resilient Quezon City Project

9.2 Putting in Place the Mechanisms and Structures Support the Implementation of the QC DRRMP 2014-2020 1. The Steering Committee, in its meeting held on July 9, 2013 and presided by Ret. Gen. Elmo San Diego, in his capacity as Project Director of the Building a Disaster Resilient Quezon City Project, expressed commitment to: a. Support continuing work of the Technical Working Group b. Undertake projects and activities recommended by the TWG as immediate actions to be incorporated in the 2014 budget, particularly in completing the Emergency Operations Plan, the operationalization of the EOC, the institutionalization of the ESF system, and the development of HVRAGIS simulation tools In that meeting, the Steering Committee indicated that it would be no issue to include such activities in the 2014 budget cycle so that funding will be earmarked and allocated.

Management Council (QC DRRMC) in order to provide the mandate for the TWG to continue with its work and to complete the first year activities of the DRMMP. 2. Mainstreaming disaster risk reduction and management in the city’s overall development plan and priorities should be done by identifying entry points within the City Development Plan (CDP), City Comprehensive Land Use Plan (CLUP) and Zoning Plan where relevant elements of the DRRMP can be incorporated. This would ensure that the planned investments take into consideration the risk parameters and risk drivers, and that appropriate measures have been made to reduce risk. The Functional Committee of the City Development Council should be convened and take lead in terms of taking the recommendations of the QC DRRMP 2014-2020 in the possible revisions to the CDP. Figure 37 provides a schematic diagram of the DRRMP formulation process as compared with the development planning and land use planning processes.

3. While the QC DRRMP 2014-2020 provides the rational and optimal approach, and framework for the newly created QC DRRMO to carry out its mandated tasks, it should do so through continued partnerships with stakeholders and partners, including LDRRMC + LDRRMC + technical organizations and agencies that can LDRRMO+LDC+ CityLDRRMO+LDC+ City help carry out its mission. The challenges Council+OCD Council+OCD of disaster risk reduction are enormous and most interventions would require specialized skills and resources that may not be presently LDRRMP LDRRMP available within Quezon City. A budget should be allocated for that purpose.

It is then crucial that the QC DRRMO reiterates and endorses this decision in the next meeting of the QC Disaster Risk Reduction and CPDO+QC Department CPDO+QC Department Offices+LDC+City Offices+LDC+City

Council+Mayor+HLURB+DILG+ Council+Mayor+HLURB+DILG+

MMDA MMDA

MMDA

CLUP and Zoning plan CLUP and Zoning plan

(2012-2042)

(2012-2042)

(2012-2042)

CDP (9 years)

CDP (9 years)

LDIP (9 years)

LDIP (9 years)

Local Budget (yearly) + AIP Local Budget (yearly) + AIP (1yr.)

(1yr.)

Figure 37. Schematic Diagram of the DRRMP Formulation Process iin Comparison with Development Planning and Land Use Planning Processes

In summary, the full implementation of the DRRMP would require sustained attention, institutional commitment, detailed planning, significant investments, multi-sectoral and multi-stakeholder partnerships, and adequate competencies. However, with the QC DRRMP 2014-2020 on hand, and the momentum and knowledge gained during the development of this project, the Quezon City Government now has the tools to reduce its risk and build a disaster resilient city.

117

10.1 Emergency Support Function (ESF) Table

2

Communication

1

Transportation

ESF ESF No. Name

Lead Planning Role: Primary Quezon City Government Department and other Allied Agencies City General Services Department (CGSD)

Radio Comms. Services (RCS)

Supporting Role Quezon City Government Departments

National Government Agencies

Civil Society and Private Corporations or Organizations

Barangays

Other LGUs

1. Department of Public Order and Safety (DPOS) 2. Environmental Protection and Waste Management Department (EPWMD) 3. Engineering Department 4. Parks Development and Administration Department (PDAD) 5. City Administrator’s Office 6. Barangay Operations Center (BOC)

1. Quezon City Police District (QCPD) 2. Division of City Schools (DOCS) 3. Metro Manila Development Authority (MMDA) 4. Armed Forces of the Philippines (AFP) NCR Command 5. Department of Transportation and Communication (DOTC)

1. Transport Sectors (Bus Companies, Public Utility Jeep, Tricycle Operators and Drivers’ Association) 2. Tricycle Regulatory Unit 3. Rider’s Club

Barangay Emergency Response Team (BERT)

Rescue units of other LGUs

1.Department of Public Order and Safety (DPOS) Operations Center 2. Public Affairs and Information Services Office (PAISO) 3. Communication Coordination Center (CCC) 4. Information Technology Development Office (ITDO) 5. Barangay Operations Center (BOC) 6. Liga ng mga Barangay (League of Barangays) 7. QC Disaster Risk Reduction and Management Office (QC DRRMO)

1. Metro Manila Development Authority (MMDA) 2. National Disaster Risk Reduction Management Council (NDRRMC) 3. Philippine National Police (PNP) 4. Armed Forces of the Philippines (AFP) 5. National Telecommunications Center (NTC) 6. Department of Interior and Local Government (DILG) 7. Philippine Information Agency (PIA)

1. Civic Communications Group 2. Amateur radio groups 3. Media networks 4. Philippine Long Distance Telephone Company (PLDT) 5. Bayantel 6. Smart Communications 7. Globe Telecommunications

1. Barangay Communication Systems 2. Barangay Emergency Response Team (BERT)


10. Annexes

3

4

Infrastructure

ESF ESF No. Name

Fire Fighting


118

Lead Planning Role: Primary Quezon City Government Department and other Allied Agencies

Engineering Department

QC Bureau of Fire Protection (QC BFP)



7. City General 8. Philippine Services Department Atmospheric (CGSD) Geophysical Astronomical Service Agency (PAGASA) 9. Philippine Volcanology and Seismology (PhilVolcs) 10. Department of Transportation and Communication (DOTC) 1. Office of the 1. MMDA Building Official 2. Department of (OBO) Public Works and 2. Parks Highways (DPWH) Development and 3. Armed Forces of Administration the Philippines (AFP) Department Engineering Corps (PDAD) 4. Philippine National 3. City Planning and Police (PNP) Development Office 5. Department of (CPDO) Interior and Local 4. Environmental Government (DILG) Protection and 6. Department of Waste Management Environment and Department Natural Resources (EPWMD) (DENR) 6. Barangay 7. Department of Operations Center Transportation and (BOC) Communication (DOTC) 1. Department of BFP-National Capital Public Order and Region (NCR) Safety (DPOS) 2. Social Services Development Department (SSDD) 3. Quezon City Police District (QCPD) 4. Barangay Operations Center (BOC) 5. Division of City Schools (DOCS)


Barangays

1. Private companies 2. Business companies 3. Construction companies 4. Architects of the Philippines (UAP) 5. Phil. Institute of Civil Engineers

1. Manila Water 2. Maynilad 3. Fire volunteers organizations 4. Philippine Red Cross (PRC) QC Chapter

Barangay Fire Team /Brigades

Other LGUs

7

Information Management Utility Services

6

Mass Care, Housing and Human Services

5

Lead Planning Role: Primary Quezon City Government Department and other Allied Agencies Public Affairs and Information Services Office (PAISO)

119




Barangays

1. Communications Coordination Center (CCC) 2. Barangay Operations Center (BOC) 3. Community Relations Office (CRO) 4. Information Technology Development Office (ITDO) 5. Department of Public Order and Safety (DPOS) 6. Social Services Development Department (SSDD) 7. Gender and Development (GAD) 8. QC Disaster Risk Reduction and Management Office (QC DRRMO)

1. Metro Manila DRRM Council (MMDRRMC) 2. National DRRMC 3. Department of Education (DepEd) 4. National Telecommunications Center (NTC) 5. Philippine Information Agency (PIA) 6. Philippine Atmospheric Geophysical Astronomical Service Agency (PAGASA) 7. Philippine Volcanology and Seismology (PhilVolcs) 8. Mines and Geosciences Bureau (MGB) 9. DENR

1. Philippine Red Cross (PRC) QC Chapter 2. Media networks

Administrative Management Office

1. Engineering Department 2. Department of Public Order and Safety (DPOS) 3. City General Services Department (CGSD)

1. Metro Manila Development Authority (MMDA) 2. Department of Public Works and Highways (DPWH)

Social Services Development Department (SSDD)

1. Housing Community Development and Resettlement Department (HCDRD) 2. City Health Department(CHD) 3. Engineering Department 4. Division of City Schools (DOCS)

1. Department of Health (DOH) 2. Department of Social Welfare and Development (DSWD) 3. Department of Education (DepEd) 4. National Housing Authority (NHA) 5. National Government Hospitals

1. Maynilad 2. Manila Water 3. Manila Electric Company (MERALCO) 4. PLDT (Philippine Long Distance Telephone Company) 5. Bayantel 6. Fuel companies 1. Philippine Red Barangay Cross (PRC) QC Officials Chapter 2. Volunteer organizations 3. NGOs 4. Home owners associations 5. Gawad Kalinga 6. Habitat for Humanity 7. UN Children’s Fund

Other LGUs


ESF ESF No. Name

ESF

ESF

9

10



5. Barangay Operations Center (BOC) 6. Parks Development and Admin Department (PDAD) 7. Community Relations Office (CRO) 8. Civil Registry

6. Private Hospitals 7. Quezon City Police District (QCPD) 8. Philippine Mental Health Association 9. Armed Forces of the Philippines (AFP) 10. Philippine Charity and Sweepstakes Office (PCSO) 11. PAG-IBIG 12. Government Service Insurance System (GSIS) 1. Office of the Civil Defense (OCD) 2. MMDA 3. Department of Social Welfare and Development (DSWD)

8. World Vision 9. Mortuaries

1. Manila Water 2. Maynilad 3. Philippine National Red Cross (PRC) QC Chapter 4. Other volunteer organizations 5. Portalet owners

1. City Budget 2. Accounting 3. Personnel 4. Treasurer’s office 5. Social Services Development Department(SSDD) 6. City Assessor’s Office

City Health Department (CHD)

1. Environmental Protection and Waste Management Department (EPWMD) 2. Quezon City General Hospital (QCGH) 3. Engineering Department 4. Civil registry 5. Novaliches District Hospital 6. Social Services Development Department(SSDD)

1. Department of Health (DOH) 2. PNP-Scene of the Crime Office (SOCO) 3. National Government Hospitals 4. Climate Change Commission (CCC)

Department of Public Order and Safety (DPOS)

1. Disaster Action Team 2. Barangay Operations Center 3. Social Services Development Department(SSDD)

1.Quezon City Police District (QCPD) 2. QC Bureau of Fire Protection (QC BFP) 3. BFP-NCR Special Rescue Unit 4. Armed Forces of the Philippines (AFP)

Resource Management

City Administrator’s Office

Public Health and Sanitation

8


Search and Rescue


120 No. Name


Barangays

Other LGUs

Barangay Officials

1. Philippine Charity Sweepstakes Office (PCSO) 2. Philippine Senate 3. House of Representatives 4. Foreign funding agencies 5. Charitable organizations Barangay health LGU workers

Quezon City Government Departments



Barangays

4. City Health Department (CHD) 5. Department of Public Order and Safety (DPOS)

5. Office of the Civil Defence (OCD) National Capital 6. Region Command (NCRCOM) 7. Reservists Army Group 8. 51st Engineering Brigade 9. Coast Guard 10. MMDA 1. QC Bureau of Fire Protection (QC BFP) 2. BFP-NCR Special Rescue Unit 3. Reservists Army Group 4. 51st Engineering Brigade 5. Coast Guard 6. Philippine Nuclear Research Institute (PNRI) 7. Metro Manila Development Authority (MMDA) 8. Philippine National Police Headquarters 9. Armed Forces of the Philippines (AFP)

1. Philippine Red Cross (PRC) QC Chapter 2. Volunteer organizations 3. Emergency Medical Services Group

Barangay Emergency Response Team (BERT)

1. Philippine Red Cross (PRC) QC Chapter 2. Volunteer organizations 3. Media Network 4. Philippine Charity Sweepstakes Office (PCSO)

1. Barangay Emergency Response Team (BERT) 2. Barangay Public Safety Office (BPSO)

1. Department of Social Welfare and Development (DSWD) 2. Department of Health (DOH) 3. Office of the Civil Defence (OCD) 4. Armed Forces of the Philippines (AFP) 5. Bureau of Fire Protection (BFP) 6. Philippine National Police (PNP) 7. MMDA 8. National Food Authority (NFA) 9. Department of Trade and Industry (DTI)

1. Private volunteer groups 2. NGOs 3. Philippine Red Cross (PRC) QC Chapter 4. Charitable organizations

Public Safety and Security

12

Supporting Role

Department of Public Order and Safety (DPOS)

1. Disaster Action Team 2. Barangay Operations Center 3. QC Police District

Social Services Development Department (SSDD)

1. Barangay Operations Center (BOC) 2. Department of Public Order and Safety (DPOS) 3. Environmental Protection and Waste Management Department (EPWMD) 4. Community Relations Office (CRO) 5. City General Services Department (CGSD)

Other LGUs


11


Relief Supplies

ESF ESF No. Name

ESF

ESF

Energy (power, fuel, gas)

13

Lead Planning Role: Primary Quezon City Quezon City Government Government Departments Department and other Allied Agencies City 1. Task force street Administrator’s light Office 2. City General Services Department

Supporting Role National Government Agencies


1. Department of Energy (DOE) 2. National Power Corporation (NAPOCOR)

Barangays

Other LGUs

1. Petroleum Companies 2. MERALCO 3. Independent Power Producers 4. Construction companies

9.2 ESF Tasks and Responsibilities Table

1

Transportation

ESF ESF No. Name

Quezon City Disaster Risk Reduction Management Council Tasks •

• • •

2

Communication


122 No. Name

Place all City Government Service Vehicles under the operational control of the QCDRRMC Action Officer for the duration of the disaster. Tap and coordinate private companies/ organization for transport services. Provide support to LDRRMC Action Officer for the efficient and effective dispatch of Service Vehicles. Assign personnel in the DPOS Operation Center/Quezon City Hall lobby, preferably the one designated as LDRRMC, TMG-Member.

Description of Function/ESF Responsibilities

• • • • • •

• • • • • • • • •

Coordinate the Quezon City transportation resources to respond to an emergency. Identify the need for resources Support Mass Evacuation Maintain ingress/egress Maintain Traffic control DPOS, MMDA Enforcement Division should coordinate with other cities within Metro Manila, the Department of Transportation and Communication (DOTC) AFP and PNP to ensure that potential resources are available in the time of an emergency. Develop Memorandums of Understandings and mutual aid agreements. Deployment of equipment and trained personnel. Provide stand-by emergency vehicle/driver in times of calamaties. To use available communication resources to respond to an incident. Alert and warn the community of a threatened or actual emergency. Continue to communicate with the community through a variety of media to inform of protective actions Inform the community of a threatened or actual emergency. Ensure that Quezon City Government (QCG) has the ability to notify the community of a disaster or emergency situation. Support the QCG with the restoration and reconstruction of telecommunications equipment, computers, and other technical resources. Communication includes transmission, emission, or reception of signs, signals writing, images, and sounds or intelligence of any natures by wire, radio, optical, or other electromagnetic systems.

Quezon City Disaster Risk Reduction Management Council Tasks •

• •

Be responsible for the damage assessment on the human lives and properties brought by natural or manmade calamities. Conduct seminars on Emergency Rapid Assessment procedures and protocol to ensure proper and on time reporting. Submit damage report to the LDRRMC Chairman through the Action Officer on infrastructure, bridges, buildings, and others with corresponding valuation in terms of peso.


• • • •

4

Fire Fighting

• • • •

5

Information Management

•

•

•

• • •

Assess the overall damage to Quezon City after a disaster. Perform all public works functions such as maintenance, inspections, buildings and grounds repairs, debris removal, and facilities management Assist with the recovery The Scope of Work may include the following, but is not limited to: »» Assess extent of damage »» Repair, maintenance and rehabilitation »» Debris removal »» Provide maintenance of the buildings and grounds and engineering-related support »» Clear roadways Recommend buildings for retrofitting.

Conduct seminars for fire prevention and • fire fighting technique in the community level. Be responsible for immediate • containment suppression of fire in time of emergency. • Ensure the tip tap condition of all fire engines/trucks for ready use. Recommend to the LDRRMC through the Action Officer, the accreditation of Volunteer Fire Brigades.

Directs and controls operations regarding fire prevention, fire detection, fire suppression, rescue, and hazardous materials incidents; Assists with warning and alerting, communications, evacuation, and other operations as required during an emergency. Manages and coordinates fire fighting activities including the detection and suppression of fires, and provides personnel, equipment, and supplies to support to the agencies involved in the fire fighting operations.

Disseminate information to the public on the risk reduction and disaster mitigation programs and activities undertaken by the LDRRMC. Coordinate with the different LDRRMC operating units for the activities updates along the field of risk reduction and mitigation. Provide media coverage in tile LDRRMC implementation of disaster preparedness in the City and community level. Ensure the veracity and quality of reports for public information and guidance. Observe Protocol on Media Coverage during Crisis Situations (PNP) Memorandum Circular No. 2006-22 issued November 21, 2006.

Information Management staff Coordinates the response of all the departments within QCG and the use of community resources to provide emergency response. Identify actions to be taken in the pre-incident prevention phase. Coordinate with agencies, organizations, and outside organizations when capabilities are exceeded Identify post-incident response phase activities. Examples of functions that support and facilitate planning and coordination are: »» Alert and notification, »» Deployment and staffing of emergency response teams, »» Incident action planning, »» Coordination of operations with local government for logistics and material, »» Direction and control, »» Information management, »» Facilitation of requests for assistance, »» Resource acquisition and management (to include allocation and tracking), »» Worker safety and health, »» Facilities management, »» Financial management, »» Other support as required Develop, maintain, and update plans and procedures for use during an emergency; Educate and train Department and support agency personnel in order to stay up to date with education and training that is required for a safe and efficient response to an incident;

• • • • •

• •


3

Infrastructure

ESF ESF No. Name

ESF

ESF

Quezon City Disaster Risk Reduction Management Council Tasks


• • • • • •

7

8

•

Utility Services Mass Care, Housing and Human Services

6

Resource Management


124 No. Name

• • • • • •

Identify and designate safe evacuation • areas within the City limits. Determine the necessary requirements in evacuation areas. Ensure adequate food and relief goods for the evacuees Responsible for evacuation and relief operations. Provide the needed manpower in the evacuation area to coordinate needs of the evacuees. • • • •

•

•

Provide a multi-departmental command system. Manage operations at the in QCG level; The Incident Command System (ICS) can be used in any size or type of disaster to control response personnel, facilities, and equipment. Supports the implementation of mutual aid agreements to ensure seamless resource response. Departments and agencies participate in the incident action planning process which is coordinated by Information Management Support Function. Maintain database of services and recipients during disasters Restore water, electricity and communication. Provide for water, power and communication during the initial phase of the emergency situation.

ESF# 7 by its name addresses the non-medical mass care, housing, and human services needs of individuals and/or families impacted by natural and/or technological incidents. »» The services and programs may include the following: »» Sheltering »» Food Service »» Counseling »» Provision of Family Assistance Centers »» Family Reunification Services

Resource Management works with all other ESFs to determine what resources are available. It also identifies potential sites for receiving, storing, and distributing resources in order to receive outside assistance and resources. Resource support may continue until the disposition of excess and surplus property is completed. During an incident if demand for resources exceeds the QCG’s capabilities and inventories, then outside requests will be made based on Memoranda of Understanding in place, Mutual Aid agreements and city and National Government policy. Logistics. This group coordinates the actual movement of resources into areas where a need (or needs) exists. This includes the warehousing and tracking of resources, the packaging and loading and subsequent transportation of resources to affected areas, and the disposal of used and/or unused resources following a disaster. Resource Management. This group is responsible for the acquisition of all types of resources that are identified as “needed” following a disaster. This group will make arrangements to purchase needed resources if it is determined the city does not have the resources itself to supply a requirement in the field. The payment of debts and other encumbrances generated as a result of the emergency is handled by this group as well.

ESF ESF No. Name



Public Health and Sanitation

9

• • • •

Control and manage the possible spread of disaster/ or epidemics in the affected areas and evacuation areas. Provide Manpower assistance for the pre-hospital treatment of victims. Assist in the provision of ambulance service in the disaster area. Stockpile medicines for ready use during crisis situation.

• •

•

10

Search and Rescue

• • •

11

Public Safety and Security

•

• • • • • •

Dispatch the needed rescue team · to • render pre-hospital treatment at the area of operation; • Provide the ambulatory service to victim/s and if needed, the hospitalization service to ensure full recovery of patient/s. Stockpile needed medicines in case a • disaster happens.

Be responsible for security, peace and order in the evacuation center and areas where a crisis situation may take place. Ensure adequate security and safety measures in place affected to protect lives and properties. Conduct seminars for proper procedures or protocol in security measures. Provide a Support Service in the conduct of search and rescue operation. Deploy manpower to maintain crowd control to areas in need. Control and manage the media in the scene of operation/crisis to ensure

• • •

• • • • • • • •


•

125

Staging Areas. To prevent a rapid and overwhelming influx of resources into affected areas, Staging Areas are utilized as temporary marshaling sites for collecting and gradually directing emergency resources into those areas. This group coordinates the activation and utilization of city-operated staging areas and marshaling points during emergency situations. The purpose of this function is to provide health and medical services to the residents of Quezon City during and after an emergency situation. Guide a response using Quezon City Government resources and to coordinate a response with the Department of Health particularly the Health Emergency Management Staff (HEMS), National Government agencies, MMDA and United Nations organizations (e.g. World Health Organization) when the incident exceeds the QCG’s capabilities. When an incident exceeds the QCG’s capabilities, outside assistance should be requested through Memoranda of Understanding, Mutual Aid Agreements and the coordination of this plan. Maintain sanitary conditions of community and excavation sites. Provide for coordination and effective use of search and rescue activities to assist people in potential or actual distress Communities are susceptible to many different natural and technical hazards that may result in the damage or collapse of structures within the city. Search and Rescue must be prepared to respond to emergencies and provide specialized assistance. Operational activities can include locating, extricating, and providing on site medical treatment to victims trapped in collapsed structures. Additionally, people may be lost, missing, disoriented, traumatized, or injured, in which case the Mechanical Section must be prepared to respond to these incidents and implement appropriate tactics to assist those, in distress or imminent danger. The Lead Agency of ESF # 11 should identify public safety and security capabilities for the city. Provide public safety and security for the city. Determine factors, laws, and regulations when a disaster may require outside security resources to respond to the event, such as National Government (MMDA, AFP), due to circumstances of the event, for example a terrorist event Provide traffic control, crime control, jail control, and evacuation and movement to safe areas. Lead and supporting agencies responds to a city emergency using existing procedures. Maintain law and order Coordinate public warning Provide security of city facilities Provide security of unsafe areas or potential crime scenes Provide security if the city opens a shelter Provide Traffic Control. This group works closely with the ESF # 1 to affect the orderly flow of traffic into, out of, and around areas affected by a disaster.

ESF

ESF



•

•

•

12

13

Relief Supplies

•

Energy (power, fuel, gas)


126 No. Name

• • • • •

• • •

•

Security/Crime Control. This group addresses the provision of security in disaster areas, as well as the actual policing functions normally associated with law enforcement activities, including riot control, explosive ordinance removal, counterterrorism, etc. Institutions/Jails. This group is responsible for coordinating prisoner recapture, the utilization of prisons and facilities following disasters, and the moving of prisoners from damaged facilities to undamaged ones. Evacuation/Movement. This group is responsible for coordinating the city’s assistance in carrying out evacuations. Ensure the protection of women in evacuation centers. Stockpiling of supplies and ensuring the sufficiency of supplies and equipment. Augment relief supplies. Coordinate and monitor the flow and distribution of supplies and relief goods. Provide information to donors. Help to prioritize facilities and infrastructure so that power may be restored or other energy supplies may be provided in such a way to enable life to be restored to full capacity as soon as possible. The Lead and Supporting Agencies will collect, evaluate, and share information on energy system damage. Estimate the impact of energy system outages in Quezon City. Provide information concerning the energy restoration process such as: »» Projected schedules, »» Percent completion of restoration, »» Determine schedule for reopening facilities The incident may impact Quezon City only or it may be part of a larger incident that impacts the entire Metro Manila.

127

10.2 Emergency Support Function (ESF) Matrix Agencies

E

E

E

E

E

E

E

E

E

E

E

E

E

S

S

S

S

S

S

S

S

S

S

S

S

S

F

F

F

F

F

F

F

F

F

F

F

F

F

1

2

3

4

5

6

7

8

9

10 11 12 13

1

51st Engineering Brigade

2

Administrative Management Office Amateur radio groups Architects of the Philippines (UAP) Armed Forces of the Philippines (AFP) Engineering Corps S Armed Forces of the Philippines (AFP) NCR Command Baragay Emergency Response S Team (BERT) Barangay Communication Systems Barangay Fire Team /Brigades

3 4 5 6 7 8 9 10 11 12 13 14 15

Barangay Operations Center (BOC) Barangay Public Safety Office (BPSO) Bayantel

S

L

S S

S

S

S

S

S

S

S

S

S

S

S

S

S

S S

S S S

17

City Administrator’s Office

L

18

City Assessor's Office

S

19

City Budget

S

20

City General Services Department (CGSD) City Health Department (CHD) City Personnel

24

S

S

BFP-National Capital Region (NCR) BFP-NCR Special Rescue Unit

City Planning and Development Office (CPDO) City Treasurer’s office

S

S

S

S

23

S S

S

16

22

S

L

Bureau of Fire Protection (BFP) City Accounting

21

S

S S

L

S

S

S S

L S

S S

S

S


No


128

No

Agencies

25

Civic Communications Group

26

Civil Registry

27

Climate Change Commission (CCC) Coast Guard

28 29 30 31 32 33 34 35 36 37 38 39 40 41 42 43 44 45 46 47

E

E

E

E

E

E

E

E

E

E

E

E

E

S

S

S

S

S

S

S

S

S

S

S

S

S

F

F

F

F

F

F

F

F

F

F

F

F

F

2

3

4

5

6

7

8

9

10 11 12 13

1

Communications Coordination Center (CCC) Community Relations Office (CRO) Department of Education (DepEd) Department of Energy (DOE)

S

S

S S S

Disaster Risk Reduction and Management Office (DRRMO) S Division of City Schools (DOCS) Emergency Medical Services Group S Engineering Department Environmental Protection and S Waste Management Department (EPWMD) Fire volunteers organizations

S

S S

S

S

S

S

S

Department of Environment and Natural Resources (DENR) Department of Health (DOH) Department of Interior and Local Government (DILG) Department of Public Order S and Safety (DPOS) Department of Public Works and Highways (DPWH) Department of Social Welfare and Development (DSWD) Department of Trade and Industry (DTI) Department of Transportation S and Communication (DOTC) Disaster Action Team

S

S

S

S S

S

S

S

S

S

S

S

S

L

L

S

S S

S

S S

S

S S

S

S

S S

S

S S L

S

S

S

S S

S

S

No

Agencies

E

E

E

E

E

E

E

E

E

E

E

E

S

S

S

S

S

S

S

S

S

S

S

S

S

F

F

F

F

F

F

F

F

F

F

F

F

F

1

2

3

4

5

6

7

8

9

10 11 12 13

48

Gawad Kalinga (GK)

49 50

Gender and Development (GAD) Globe Telecommunications

51

Government hospitals

52

Government Service Insurance System (GSIS) Habitat for Humanity

S

Home Development Fund (PAG-IBIG) House of Representatives

S

53 54 55 56

59

Information Technology Development Office (ITDO) Liga ng mga Barangay (League of Barangays) Manila Electric Company (MERALCO) Manila Water

60

Maynilad

61

Media networks (e.g. ABSCBN, GMA, TV5, PTV4, IBC) S Metro Manila Development Authority (MMDA) Metro Manila DRRM Council (MMDRRMC) Mines and Geosciences Bureau (MGB) National Capital Region Command (NCRCOM) National Disaster Risk Reduction Management Council (NDRRMC) National Food Authority (NFA) National Government hospitals National Housing Authority (NHA) National Power Corporation (NAPOCOR) National Telecommunications Center (NTC)

57 58

62 63 64 65 66 67 68 69 70 71

S

S S S

S

S S

S

S S

S

S

S

S

S

S

S

S

S S

S S

S

S

S

S

S

S

S

S

S

S S

S

S S S

S


E


130

No

72 73 74 75 76 77 78 79 80 81 82 83 84 85 86 87

Agencies

89 90

Private volunteer groups

91

Public Affairs and Information Services Office (PAISO), Quezon City Bureau of Fire Protection (QC-BFP) Quezon City General Hospital (QCGH)

92 93

E

E

E

E

E

E

E

E

E

E

E

E

S

S

S

S

S

S

S

S

S

S

S

S

S

F

F

F

F

F

F

F

F

F

F

F

F

F

1

2

3

4

5

6

7

8

9

10 11 12 13

Novaliches District Hospital (NDH) Office of the Building Official (OBO) Office of the Civil Defense (OCD) S Parks Development and Administration Department (PDAD) Petroleum Companies (e.g. PETRON, SHELL, CALTEX) Phil. Institute of Civil Engineers (PICE) Philippine Atmospheric Geophysical Astronomical Service Agency (PAGASA Philippine Charity and Sweepstakes Office (PCSO) Philippine Information Agency (PIA) Philippine Long Distance Telephone Company (PLDT) Philippine Mental Health Association Philippine National Police (PNP) Philippine Nuclear Research Institute (PNRI) Philippine Red Cross (PRC) QC Chapter Philippine Senate Philippine Volcanology and Seismology (PhilVolcs) PNP-Scene of the Crime Office (SOCO) Private hospitals

88

E

S

S S S

S

S

S S S

S

S S

S

S

S

S

S S

S

S

S

S

S S

S

S

S

S

S

S

S

S S

S S S

S

L L

S

S

No

96

Quezon City Police District (QCPD) Radio Communication Services (RCS) Reservists Army Group

97

Rider's Club

98

Smart Communications

99

Social Services Development Department (SSDD) Task Force Street Light

95

100 101

E

E

E

E

E

E

E

E

E

E

E

E

E

S

S

S

S

S

S

S

S

S

S

S

S

S

F

F

F

F

F

F

F

F

F

F

F

F

F

1

2

3

4

5

6

7

8

9

10 11 12 13

S

S

S

S

S

S

L

S S S

S

L

S

S

L S

102

Transport Sectors (Bus Com- S panies, Public Utility Jeep, Tricycle Operators and Drivers’ Association) S Tricycle Regulatory Unit

103

UN Children’s Fund (UNICEF)

S

104

S

105

Urban Poor Affairs Office (UPAO) Volunteer groups - Private

106

World Vision

S

S

S

S


94

Agencies


132

10.3 SWOC II Results 10.3.1 Legal and Institutional Arrangements LIA Strategy 1: Strengthen DRRM System through the creation of the QC DRMMO cum EOC and expansion of the DRRMC. Strengths Availability of legal bases and mandates (EO 23, RA 10121) Availability of funds (e.g. DRRM)

Weaknesses Lack of manpower

Opportunities Selection and development (training) of staff/personnel: doing it right the next time and no room for mistakes Not all are permanent Effective emergency management employees system and application of learnings from trainings

Political will (involvement of local offices) Good working relationship between executive and legislative offices Ongoing construction of operations center

Challenges Planning process: planning according to the law Aftermath of a disaster while waiting for the institutionalization of DRRMO Disaster management support from the right personnel Sustainability: maintaining effectivity in disaster management Length of time in the approval of all requirements

LIA STRATEGY 2: Put in place the institutional mechanism for mainstreaming DRR into the regular local development planning, investment programming and budgeting process. Strengths Inputs from local government and departments during the planning process makes a more holistic perspective as the needs of other offices are taken into consideration Availability of data from different departments Financial capacity of QCG to hire experts

Weaknesses Not aware of the timelines of the plans (e.g. CDP)

Opportunities Challenges TWG to review and identify gaps Level of involvement of of CDP with DRRMP NGOs/NGAs (e.g. some utility companies do not attend when invited)

Guidelines from NGAs are not clear Not aware of the process, implementation, and mainstreaming Dissemination and access to data

NGOs/NGAs involvement

Maintenance and update of data Data collated and transformed by Sustainability: Organization/ EMI into effective tools (HVRA, Set-up upon the end of mapping, etc); HVRA to be contract with EMI mainstreamed into DRRMP Active participation of EMI to guide QCG in the formulation of the DRRMP

LIA STRATEGY 3: Institutionalize HVRA findings and results. Strengths Availability of experts/ Location of technical offices in QC (MGB, Phivolcs, EMI etc.)

Weaknesses Human resource within QCG (well and lessequipped)

Science- and community/ experience-based

Tools and methods needs updating

Opportunities NGAs and academe in QC Expertise and technologies of NGAs and academe (as potential partners and supporters) Assistance from NGAs (PAGASA) Active involvement of DILG (QC first to conduct HVRA at barangay level) Media for information dissemination

Challenges Impact on land use (CLUP of QC)

Dissemination of HVRA (tapping CSOs, NGOs, etc.)

Lack of technical competency/know-how in interpreting and updating of HVRA in the community

Availability of HVRA (will allow focus planning)

Validation

Funds

Lack of coordination between support systems and absence of an action officer

Collaboration and integration of NGOs and other sectors (80 NGOs in QC to work together and come up with approaches in evaluating HVRA) Updating of HVRA after the contract with EMI ends Accuracy of information

TWG within QCG Utilization of support systems for information dissemination (PAISO and CCC to update website information; Liga ng mga Barangay)

LIA STRATEGY 4: Define a legislative agenda to support DRRMP implementation based on HVRA findings. Strengths Creation of CCA and DRR Committees Legal mandates (building and structural codes)

Weaknesses Existing standards not in accordance with DRRM Lax and ineffective enforcement of policies

Good/strong working relationship between executive and legislative (belongs to the same political party)

Creation of DRRM ordinances • No 5m easement ordinance

Opportunities Improvement and adoption of NGA laws/policies Selection and development (training) of staff/personnel: doing it right the next time and no room for mistakes NGAs, academe, and experts in QC • DILG, NCPAG, etc. willing to provide assistance

Challenges Implementation of existing laws Sustainability

Time and budget constraints in the creation of ordinance

Absence of secretariat or unit focusing on ELA Time constraints in the legislative process

LIA STRATEGY 5: Invest in human resources and training to support resiliency goals through the development and adoption of a comprehensive DRM capacity development program and trainings specific to their line of responsibility for DRRMP implementation. Strengths EO 23: Organization/office for research and training RA10121: budget for capacity building as mandatory

Weaknesses No fund allotted for training seminar Contractual status of trained employees

Opportunities External experts for training

Existing scholarships

Disappearance of personnel after training and during disasters

NGO and Foreign Aid support

Good relationships with NGOs, private firms and NGAs (red cross, MMDA)

Challenges Updating of training modules Return of investments (availability of trained personnel during a disaster event) Climate change


Barangay’s role in the management of people


134

Availability of funds for training

Lack of manpower (personnel and expert trainers)

Possible abuse/misuse of foreign aid

Existing technical trainings from EMI (GIS + EM) DPOS-trained for disaster response

LIA STRATEGY 6: Monitor and evaluate actions and performance. Strengths Existing M&E per department Existing M&E per department; submission to DPOS (Action Office) only, need to create one particular to DRR Availability of forms from DILG

Weaknesses No unified form or system for M&E Local utilization of M&E tools

Opportunities Adoption of national M&E

Utilization of results for planning purposes

Partnership of DILG and OCD (need to tap both agencies)

To include external agencies in the DRRMC

Challenges Coordination of each department's M&E for DRRM Feedback mechanism

Efficiency (speed) of information gathering and communication process in decision-making (e.g. suspension of classes)

Lack of personnel to conduct M&E No committed QC office who will send down the forms Transparency Lack of information of M&E tools for DRRM from NDRRMC, DILG, OCD, and other departments

LIA STRATEGY 7: Establish prioritization criteria for LDRRMF utilization Strengths Availability of funds

Weaknesses Utilization/prioritization of funds

Opportunities Challenges Issued Joint Memorandum- Question on which Circulars organization, program or office initiates effort to develop prioritization criteria

10.3.2 Emergency Management Emergency Management STRATEGY 1: Develop an Emergency Operations Center (EOC) as the DRRMO’s command, control, and communications (C3) center to manage Quezon City disaster operations. Complete construction and equipping of the new Disaster Risk Reduction and Management Office (DRRMO) facility to include a state-of-the-art Emergency Operations Center. The EOC must have the physical space and technology requirements and human resources to manage a major, sustained disaster response and recovery operation involving representatives from government and civil society.

Strengths

Involvement of all concerned departments Full support of the local Chief Executive Layout and well planned EOC Good leadership: quality and passion for risk reduction and management EO 23 mandate (creation of DRRMC)

Opportunities Strengthen linkage with other departments and NGAs

Challenges Seamless coordination among ESFs

Maximize resources of the city Avail best equipment and training Sustainability

The possibility of an inoperative EOC Surpassing the EOC of Pasig and Makati Real implementation of RA10121 Open space for new Adequate training of the personnel with expertise in personnel to develop a safe city DRRM Development and training of skills QC as the model city

Emergency Management STRATEGY 2: Adopt, institutionalize, activate and practice the Emergency Support Function System (ESF) to support the DRRMO C3 Center. Quezon City should adopt and further formalize the ESF System as part of its command and control structure. The above figure shows conceptually that the ESF system supports the EOC system. Strengths Creation of identified, defined, and validated 13 ESFs (9 operating teams)

Weaknesses Liaison to all departments

Opportunities Assistance from NGAs in the absence ofa DRRMO

Challenges Budgetary constraints for Disaster Response

Involvement of different departments

Budget release takes time in the absence of a DRRMO

Involve other agencies and sectors

Collaboration/involvement of team with other agencies and departments (vice-versa)

EO 23 mandate

Turfing and overlapping

Synchronization of 13 ESFs

Competent implementers from each involved agency

Lack of equipment and management


Availability of budgets/funds

Weaknesses Lack of training and human resource: No trained Personnel to operate the EOC No DRRM Officer Employment status of personnel involved Lack of equipment in facilities Conflict between two communication bases


136

Emergency Management STRATEGY 3: Adopt the Incident Command System as the organizational system for the Emergency Operations Center and the Emergency Support Functions. Organize the DRRMO according to the Incident Command System and as mandated by RA 10121. Finalize staffing pattern for the DRRMO and fill positions with qualified personnel. Strengths Existence of ICS Opportunity to utilize the existing personnel RA 10121 Mandate

Weaknesses Lack of minimum qualification standards for personnel Budget release depends on the establishment of DRRMO Meeting the implementation timeline by 2014 Retention of trained personnel Actual operation of ICS/ DRRMO

Opportunities Makati and Pasig as benchmarks

Challenges

Adoption of international standard system Fund allocation for employing new personnel

Emergency Management STRATEGY 4: Write the Emergency Response Operations Plan that incorporates the concepts of the EOC, ESF, and ICS international standards. Strengths Existing EOP of offices and barangays to be updated 2014 timeline has already been provided Unified planning process: city wide operationalization Budget for the TWG

Weaknesses Establishment of satellite emergency response center in all districts Availability and competency of personnel to formulate the EOP Lack of co-ordination from the ESFs

Opportunities Involvement of other agencies and sectors

Challenges Group compliance with the given time frame

Formulation of a document Harmonization of the existing that can serve as reference operation plan per department for other LGU's Collaboration with other agencies and departments

Emergency Management STRATEGIES 5 & 6: Develop and institute a training program under the new DRRMO organizational structure in order to strengthen Quezon City’s emergency management capacity. Develop and institute an Exercise and Drill Program under the new DRRMO organizational structure in order to strengthen Quezon City’s emergency management capacity. Strengths Existence of training programs and institutions Availability of training budgets

Weaknesses Budgetary constraints

Opportunities Larger training scope

Budget and program allocation Sustainability of trained personnel in Barangays

Creation of an income generating training center Formal training for: (1) QC Employees; (2) Barangays; (3) Stakeholders and NGOs; (4) Private Corps; (5) Utilities

No post-drill evaluation

Challenges Finding experts for different training courses Sustainability of the training program in the barangays

137

10.3.3 Geographic Information System for DRRM

Strengths Pursuant to RA 10121 DRRMC members have ready and accessible data Centralized and controlled information DRRM immediate decision making Lead agency for DRRM Accurate DRRM information/data dissemination DPOS as the front liner

Weaknesses Ongoing construction of DRRM building construction Real time reports

Opportunities Sufficient LDRRMF to fund future programs

Challenges Inter-connective sharing among DRRMC members

ITDO-headed capacity building trainings

ITDO as the back-up unit system; Absence of ITDO arrow connection to other units Immediate establishment of DRRM personnel

Availability of trained Capacity building: DPOS personnel and state-of-the- provides information to art equipment the city and advises the executives Availability of data Budget justification: improvement of the physical interconnectivity of each department Inadequate capability in data processing analysis Floating status of ITDO and; ITDO supports other departments Absence of infrastructure custodians

Continuity of trainings

Developing skilled personnel Time and Security Outcome when a disaster strikes

Human Resource

GIS STRATEGY 2: Develop data management plan that specifies the data required, data available and data to be collected. Strengths Pursuant to RA10121

Data accuracy and reliability: information must be real, accurate, and updated. Active participation and feedback of concerned offices at all levels Collective process on data management

Weaknesses Opportunities Need to invest in training, Trainings for permanent equipment, and manpower personnel (despite the creation of DRRMO) Not fully equipped with technical capability and capacity Readiness and preparedness of human resource Inconsistency of information/ data ITDO for back-up provided Each office upon data updating should leave footnotes Creation of IT section under the DRRMO New way of integrating data: data gaps considered in decision-making Centralized coordination and standardized information/data to come from different offices to be comprehensive

Challenges Interconnectivity

Trained personnel to man the system Immediate establishment of DRRMO Full implementation of RA10121 Data reconciliation and validation among different offices


GIS STRATEGY 1: Develop a Centralized DRRM database system.


138

GIS STRATEGY 3: Develop data and information sharing and access protocols that govern the way transactions are undertaken between the departments and with other external organizations. Strengths Data sharing facilitation Public can easily access data All member of DRRM can access data

Weaknesses Opportunities Designation of tasks and Ease of data access (as responsibilities (Information they are controlled by flow: barangay level is barangays) separate from the public.)

Challenges Public and Barangay acceptance of information, definition, and tasks

Implementation of strict policies should be well implemented

Can the public see data right away? How to screen the information?

Filtering of data before sharing to the public by the DRRMO

Easier coordination between LGU and agencies and easier info dissemination to the public Accuracy of information gathered

Accuracy and update of data for public use

Capacity building of barangay in terms of infrastructure and manpower Investment on computers, surveillance camera, etc.

Lack of technical personnel (human resource) and skills

Incorporation of judicial system

Information security: confidentiality and control can be seen in the lines Controlled information dissemination

Data inconsistency among barangays

Information transparency between departments

Not all barangays have the resources to access the information - equipment, infrastructure, and skills Some equipment are locked for other purposes

Data access of constituents should be controlled by the barangay Approval process of request might take time No feedback mechanism from the public

Institutionalization of other system of information sharing Investment security

Existing ITDO People-based data will be used for DRRM Plan formulation

Data security: selective public information sharing

Burden of accountability (as custodian holds the information) Operationability and policy formulation

Involvement of barangays and improvement of their resilience to disasters Creation of DRR policy Exchange of ideas (2-way communication) Participatory approach (involves the public)

GIS STRATEGY 4: Develop capacity building programs that focuses on training staff in using GIS for disaster preparedness, planning and response in the Disaster Control Division of DRRMO Strengths LDRRMF sufficient to fund DRRMO Organized and systematic Existing ISSP

Weaknesses Incomplete interconnectivity of member offices Lack of team spirit Limited number of contact persons

Opportunities More members of the QCG will learn on mainstreaming GIS

Challenges Phasing and training to achieve goals

Trainings and equipment must be provided to concerned or assigned person Assigned personnel must be exclusively for DRRMO only Continuous GIS training on personnel involved

Upgrading of department/office facilities (hardware and software)

Empowerment

Limited number of contact person (only 1, recommends more than 1) Manning of the DRRM member office (at least 2 persons per DRRM member office) Sustainability of the program (specially if the contact person is contractual)

10.3.4 Land Use Planning and Construction Codes and Standards

139

Strengths The CPDO has the capability to mainstream DRR & CCA activities in the Land Use Plan Formulation Availability of HVRA w/c can be incorporated with the CLUP Availability of funds for trainings and workshops

Weaknesses Only few personnel/offices have knowledge of Land Use Plan formulation

Opportunities Challenges Availability of NGAs and Barangay elections and how it other experts in the review, will impact planning analysis and formulation of CLUP

Current BDRRMP was formulated for compliance purposes only DRR is yet mainstreamed in the CLUP based on the guidelines of the HLURB

HVRA will be used in mainstreaming

Pull-out of investments/ effect on other sectors

Guidelines provided by the NGAs

Existing policies and guildelines in CLUP and CDP

Time it takes to gather and Inclusion of DRR in the update info for the CDP CDP vision statement and CLUP; CDC to review the HVRA as well HLRB guidelines are in the process Active participation of NGOs & POs

Appreciation of barangays on the results of HVRA as basis of their development plans and utilization of DRRM Fund Transition Stage

Involvement of all departments Existing City Development Council

Lack of HLURB guidelines

LUP-CCS STRATEGY 2: Strengthen implementation process of suggested land use management (LUM) strategies and related PPAs that reduce earthquake and flood risks and build QC resilience. Strengths Political will (as one of the Mayor's thrusts) in clearing high risk areas Presence of academic institutions, technical expertise within the city

Weaknesses Time element

CPDO conducts general assemblies pertaining to LUM (with barangays, architects and engineers)

Existing building code, zoning ordinance not in compliance with HVRA

CDC convened for first annual meeting

Lack of strict implementation of the ordinance on 5-meter buffer zone (for existing structures) Not enough manpower (e.g. inspectors, technical staff) Lack of political will ("every permit is negotiable")

Existing building code, zoning ordinance Existence of agencies (Task Force COPRISS, PNP, DPOS)

Existing ordinance limited to the 5m buffer zone

Implementation of Building Code

Opportunities Support from national government and private sector Local & international best practices that can be adapted (lakbay aral) National directive on clearing of ISFs and informal structures on danger zones along waterways Opportunity for trainings and capacity building

Challenges Full implementation of CLUP Different interpretation of NGAs regarding the implementation of national laws (consider socio-economic impacts to affected) Trainings abroad may be difficult for personnel

Implementation within the given time frame of 6 years

Provisions of the Lina Law


LUP-CCS STRATEGY 1: Establish, Observe and Strengthen the Institutional Process for Mainstreaming Disaster Risk Reduction and Management in Strategic Planning and Land Use Planning Formulation.


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LUP-CCS STRATEGY 3: Institutionalization of HVRA Findings and Results for LUP, CDP and Zoning. Strengths Existing HVRA information

Weaknesses Utilization of HVRA information/data in barangay level Acceptance of barangays/ communities of HVRA

Opportunities Presence of trimedia networks

Inclusion of the citizen's charter

Participation of target audience in IEC

HVRA to be integrated in the CDC agenda

Understanding & appreciation of HVRA through workshops Existence of CCC, PAISO, QC website QC is the homebase of the TV, radio networks

Programmatic approach in IEC (Duplication in various dept's efforts) Funds for printing costs, seminars, training

Community awareness on DRRM, HVRA

Existing communication channels for dissemination (website, publications)

Utilization of social media (facebook, twitter, etc.)

Challenges Development of appropriate IEC materials understandable to the general public Implementation of HVRA in barangay level; Appreciation of barangays on HVRA results as basis for their STRATEGYs Revisit the processes of concerned departments in the issuances of permits/licenses Communication plan Updating of HVRA results

LUP-CCS STRATEGY 4:Investment in Human Resources and Training to Support Risk Sensitive Land Use Planning and Land Use Management as means for DRRMP Implementation Strengths Availability of funds for trainings, seminars, etc.

Weaknesses Supporting documents for justification of trainings/ seminars Provisions of "green lung" of Employment status of the metropolis in the CDP trained personnel and those with potential; most are contractual employees only Increased number of Knowledge transfer inspection teams (DBO, CEO) Proposal to conduct No building audit in inventory of buildings thru residential areas, as geo tagging opposed to commercial areas Established cooperation Limited training on riskof different offices/ sensitive land use planning departments and land use management for DRRMP

Opportunities Existence of sister cities (Alliance of 7 and foreign cities) International grants and funds

Challenges COA Observation report Difficulty in creating a trade mark unique for Quezon City (for training and seminars)

Training s offered by NGAs Standard programs and training modules Implementation of geotagging activity

Implementation of geo-tagging activity

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Strengths Presence of DRRMO

Existing M & E per agency

Existence of city development council

Weaknesses No composite team for M & E since EO creating DRRMO has just been released Lack of manpower (number and capabilities to conduct maintenance and evaluation) No inventory of residential structures

Existing ordinance (SP 1800, No existing EO on DRRM S-2007 & other related monitoring and evaluation ordinances (only in practice but none in adoption of RA 10121 provisions) Availability of HVRA results Too many M & E tools Inefficient database management

Opportunities Availability of monitoring tool at the national level and NGOs Presence of NGOs w/c can be part of a composite team

Challenges Filing of cases with the regular courts, length of trial and presumption of innocence of violators Ensure full participation & commitment of the concerned agencies in the M & E process

Assistance from NGOs and Inclusion of non-structural NGAs in conducting M &E indicators in M & E Tool (include GAG, violence against women Existing recognition and Cooperation of brgy officials in awards M&E

Opportunity to share best practices Formulation of M & # system for DRR

National government directive on accountability of brgy officials How to encourage private owners to make their buildings resilient


LUP-CCS STRATEGY 5:Monitoring and Evaluation


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10.4 Situational Analysis Report Recommendations for SWOC Strategy Validation Forms 10.4.1 Strategy Recommendations for Legal and Institutional Arrangements

Legal and Institutional Arrangements Situational Analysis Report Recommendations for SWOC Strategy Validation July 11, 2013 | 8:30 AM to 5:00 PM Bulwagang Amoranto, Quezon City Hall

Recommended Strategies for Assessment (SWOC Analysis) The following are seven (7) recommended strategies for the legal and institutional arrangements component of the QC DRRMP drawn from previous LIA workshops and deduced from the outputs of the other project components. These are recommendations to be prioritized within a threeyear time frame for funding and implementation. A rationale and implementation requirements are provided along with each recommended strategy. The stakeholders shall utilize the SWOC analytical tool to validate the identified strategies and draw up actions to ensure implementation. Key Idea:The Rationale provides the basis for giving the startegy and must be tied up with one of the key issues identified. The implementation requirement provides a picture of the necessary actions to be taken by QCG to implement the strategy. The SWOC helps identify where the institution will have to allocate its resources to meet the over all goals as well as to meet the individual goals under the four DRRM aspects or themes. The output of the exercise is to come up with the individual goals, objectives, programs, projects and activities that will implement the strategies identified. The next exercise should lead to the following portions of the DRRMP. See Figure 1. UDD

LDRRMO

CLUP (10-30 yrs.)

LDRRMP

CDP (3 yrs.)

LDIP (3-6 yrs.)

Budget (70% of 5% + Additional)

LDRRMC

City Council

AIP (1 yr.)

Local Budget (yearly)

Figure 1. Mainstreaming DRRM in Local Planning and Budgeting

143 through the Creation of the QC DRMMO cum Emergency Operations Center and Expansion of the DRRMC

Rationale: Institutional support of the QCDRRM system is weak due to the absence of a permanent Disaster Risk Reduction and Management Office (DRRMO) and an emergency operations center pursuant to RA1012. The DRRMC membership likewise needs to be expanded to include vital offices. To date no ordinance has been passed creating the DRRMO. However the DPOS head is designated as the Action Officer of the DRRMC. It is important that the DRRMO be institutionalized pursuant to the DRRM Act. The Emergency Operations Center is now being set up with physical facilities and equipment. Manning requirements have to be determined and staff appointed. It is best to have permanent staff positions to institutionalize the office. Other vital offices have been excluded from the DRRMC namely the Office of the Administrator, the Chief of Staff, Legal and Public Assistance City Secretary, City Personnel, Engineering, Building Official, Planning and others.CSO and private sector representatives have not been identified so far. NGA representative may likewise be invited to strengthen DRR orientation of the DDRMC. Implementation Requirements: • An organizational development (OD) study should be undertaken by the Personnel Department to determine the positions, position title, definition of functions and responsibilities, compensation, etc. for the DRRMO. • Approval of the ordinance creating the DRRMO by the Sangguniang Panglungsod. • Approval of the DRRMO by the DBM. • Recruitment and appointment of staff to man the DRRMO. • Amendatory executive order to add other members of the DRRMC. • Construction and manning of the emergency operations center. Proposed Timeline and Budget: • Organization development study of the DRRMO will be undertaken within the next two to three months. • Identification of fund source for the newly created positions. • Endorsement by the DRRM Council and approval by the Sangguniang Panglungsod in the next 6 months. • DBM approval of the DRRMO creation in six months. • Recruitment and appointment of staff the new DRRMO within the two years. • Training of staff. • Office space and equipment provision. Concerned Agencies: Mayor’s Office, DPOS, Personnel Department, Budget Department, QCDRRMC, Sangguniang Panglungsod,and DBM.

B. LIA Strategy 2: Put in Place the Institutional Mechanism for Mainstreaming DRR into the Regular Local Development Planning, Investment Programming and Budgeting Process

Rationale: RA 10121 requires local governments to mainstream disaster risk reduction and management into the regular planning process and functions of local governments. The mechanism or opportunity for mainstreaming DRR-CCA is through its incorporation/integration into the rationalized planning investment programming and budgeting system now in place through Joint Memorandum Circular No.001S-2007. The National Disaster Risk Reduction and Management Plan 2011-2028 cites mainstreaming DRRM and CCA into local development policies, plans and budget as one of its outcomes or goals under the thematic area of Disaster


A. LIA Strategy 1: Strengthening of the Disaster Risk Reduction and Management System


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Prevention and Mitigation. Implementation Requirements: Complete the DRRMP through a participatory process with the DRRMC taking the lead. LDRRMO should be a member of the LDC. An executive order is necessary for the purpose. LDRRMO to interface with the sectoral and functional committees of the LDC. Ensure that the PPAs identified in the DRRMP are integrated into the CDP/LDIP /AIP. Determine timing of the activities to formulate the DRRMP to make it in sync with the CDP/ LDIP/AIP formulation process. • Create internal policy and guidelines for mainstreaming. • • • • •

Proposed Timeline and Budget: • Immediate for activities related to 2014 because the budget call is on July 16. From this point on every year prior to July1. • Budget for PPAs, staff, capacity building, consultants, and publications. Concerned Agencies: DRRMC Members, Mayors Office, DPOS, CPDO, Budget Department, LDC, and DILG.

C. LIA Strategy 3: Institutionalization of HVRA Findings and Results within Quezon City Rationale: HVRA provides detailed information on hazards, vulnerability and risk, which is technical in nature. Fairly new to the city, it takes time to be understood and to define the process for which DRM is scientifically informed. Implementation Requirements: • Make the HVRA and Risk Atlas information public via the Quezon City website and other means. • Disseminate the City Risk Profile and Risk Atlas internally and to the external partners. • Ensure that the HVRA information is internalized and utilized for planning purposes at the city and barangay level. • Use HVRA data for preparedness focusing on hotspot barangays. • Hold seminars and workshops to review, comprehend and assimilate the findings and results of the HVRA and Risk Atlas. • Update the HVRA every 3 years and complete the HVRA study for other hazards like landslides, fire, etc. Proposed Timeline and Budget: • 3 years • Costs for printing, workshops, seminars, and specialized consultants for updates of HVRA (earthquakes, floods, and other hazards). Concerned Agencies: Mayor’s Office, DPOS, DCD, Budget Department, Engineering Department, Social Welfare Department, Environment Department, Urban Poor Affairs Department, Barangays, and Building Official.

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Rationale: Currently, there is inadequacy of policy and legal support of the executive agenda (DRRMP) in the form of ordinances, rules and regulations, and guidelines in the implementation of the National Building Code, Structural Code, Fire Code, stringent application of the 5-meter easement from the West Valley Fault zone and assessment of risk to essential and critical facilities at city and barangay levels. The city overall is now much more informed in terms of its hazards vulnerabilities and risks thru the HVRA and other studies. Such knowledge should support a new legislative agenda to ensure that DRRMP is implemented and resiliency objectives are achieved. Implementation Requirements: • DRRMC to initially draw up a list of proposed legislative priority measures based on recommendations of the HVRA and DRRMP. • Present initial list to the LDC sectoral and functional committees. • Drafting of the proposed ordinances by the departments and potential City Councilors. • Presentation of HVRA findings to the Sangguniang Panglungsod. Proposed Timeline and Budget: • Within the next three years and three years thereafter. • Budget for research by specialists, meetings, public hearings, and publications. Concerned Agencies: DPOS/LDRRMO, DRMMC Members, Vice Mayor, and Quezon City Council.

E. LIA Strategy 5: Investment in Human Resources and Training to Support Resiliency Goals through the Development and Adoption of a Comprehensive DRM Capacity Development Program Trainings Specific to their Line of Responsibility for DRRMP Implementation Rationale: RA 10121 section 14requires training of all employees on DRRM. DRRMP is a new and emerging field, highly technical, cross-sectoral, therefore the need to build the internal competency for DRRM. Furthermore, the implementation of the DRRMP requires training and capacity building activities as well as drills and exercises that need to be conducted. Finally, resilient cities require building resilient communities and this demands additional trainings specific to communities and also the poor, disadvantaged, vulnerable sector. Implementation Requirements: • Each department should draw up their technical training, drills and exercises agenda to comply with the requirements of the law. • The proposed DRRM has initially identified specific training needs for GIS/ICT and Emergency Management but does not include training needs of other sectors. Training needs for other


D. LIA Strategy 4: Define a Legislative Agenda to Support DRRMP Implementation Based on HVRA Findings


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sectors should be provided. Proposed Timeline and Budget: • 3 years. • Set aside training budget for the next three-year period. It can either be lumped or integrated in the department budgets. Concerned Agencies: Mayor’s Office, DPOS, DRRMC Members, Personnel Department, and Budget Department.

F. LIA Strategy 6: Monitoring and Evaluation (research existing M&E tools from DILG-NCR or NDRRM OCD-NCR) Rationale: Monitoring and evaluation of actions and performance are important to keep track of progress in relation to set objectives and targets to keep the city safe and resilient. Implementation Requirements: • Identify monitoring and evaluation tools being used and required by NDRRMC,DILG and other offices. • Organize a small working group to set up the M and E system for DRRM in QC. • Formally adopt the M and E system for implementation via an Office Order or Executive Order of the Mayor. • Assign dedicated staff for M&E at the LDRRMO/DPOS. Proposed Timeline and Budget: • Immediate identification of M and E tools and consolidation of QC reports pertaining to DRRM within 1 month. • Set up system for monitoring and evaluation of DRRMP implementation by the LDRRMO/ DPOS, DRRMC within 2 months. • Draft and issuance of an executive order mandating submission of regular reports to the DRRMO/DPOS. • Assign dedicated staff for M and E. Concerned Agencies: Office of the Mayor, DRRMC, DPOS,CPDO,QC DILG, Budget, Accounting, and OCA.

G. LIA Strategy 7: Prioritization Criteria for LDRMF Utilization Rationale: It was observed that there are physical as well as manpower and capacity building needs for DRRM in QC. While the physical resources and equipage are now being addressed with the ongoing construction of the DRRMO Office with the EOC, the necessary manpower still has to be attended to. Guidelines on the utilization of the LDRRF are clearly spelled out in Joint Memorandum Circular No. 2013-1 dated March 25,2013 issued by the NDRRM, DBM and DILG. However, the city itself has to set a prioritization criteria which among the competing needs are to be prioritized based in part on the science based results and findings of the HVRA for floods and earthquakes. Institutional goals need to also be factored. Other hazards both natural and manmade have to be factored in as well.

Proposed Timeline and Budget: • Immediate-prior to issuance of budget call. • Funds to cover meetings of small committee. Concerned Agencies: Mayors Office, Budget Department, LDRRMO, DPOS, CPDO, and Engineering Department.

10.4.2 Strategy Recommendations for Land Use Planning and Construction Codes and Standards

Risk Sensitive Land Use Planning

Situational Analysis Report Recommendations for SWOC Strategy Validation JJuly 17, 2013

UP ISSI, Diliman, Quezon City 1. Recommended Strategies for Assessment (SWOC Analysis)

The following are five (5) recommended strategies forland use planning and construction codes and standards component of the QC DRRMP. These werederived from previous LUP-CCS workshops and deduced from the outputs of the other project components. These are recommendations to be prioritized within a six-year time frame for funding and implementation. The rationale and the implementation requirements for each strategy are provided to guide the discussions. The stakeholders shall utilize the SWOC analytical tool to validate and further refine the identified strategies and draw up actions that define the implementation process and potential impediments to ensuring implementation. Key Idea:The Rationale provides the basis for giving the strategy and must be tied up with one of the key issues identified. The implementation requirements provide guidances of activities or actions to be taken by QCG to implement the strategy. The SWOC helps identify where the institution will have to allocate its resources and assign responsibilities and timeline to achieve the strategy. The output of the exercise is to eventually come up with the individual goals, objectives, programs, projects and activities that will implement the strategies identified.

A. LUP-CCS Strategy 1:Establish, Observe and Strengthen the Institutional Process for Main-

streaming Disaster Risk Reduction and Management in Strategic Planning and Land Use PlanningFormulation.

Rationale: RA 10121 requires local governments to mainstream disaster risk reduction and management into the regular planning process and functions of local governments. The mechanism or


Implementation Requirements: • Organize a small committee (LDRRMO/DPOS, Budget, CPDO, Engineering) to draft the prioritization guide for presentation to the DRRMC. The criteria should find its ways into the budgetary statement of thrusts and priorities of the mayor upon issuance of the budget call.


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opportunity for mainstreaming DRRM is through its incorporation/integration into the rationalized planning investment programming and budgeting system. The DRRM objectives and strategies should be integrated in the formulation of the CLUP and CDP. Implementation Requirements: 1. CPDO shall lead the developmentof internal policy, guidelines for mainstreamingactivities and

entry points in the process of land use plan formulation.

2. The framework for mainstreaming DRR in land use planning/strategic planning as proposed in

RSLUP workshops can serve as a guide, but it should be reviewed, synthesized and turned into procedures and guidelines. A work plan should be drawn by CPDO for that purpose.

3. Revisit the vision statement and consider vision descriptors on resilience and safety; 4. Land use and sector situational analysis (in CDP) should be reviewed with the inputs from

HVRA, workshop outputs on consequence analysis, implications of risk to land use planning and sector planning ( e.g. health and sanitation, safety, infrastructure and transport, poverty, housing, hazardous areas, education). A work plan should be developed by CPDO for that purpose.

5. Established emergency management objectives and requirements for space and locational re-

quirements for staging, emergency routes and evacuation sites that should be incorporated in the formulation of the CLUP. These requirements are currently not available and must be developed by CPDO.

6. Further review and modify the goals, objectives, development strategies, policies in view of the

risk information and interpretations;

7. Considerland use management methods identified in DRRMP in the development of alternative

spatial strategies, and preferred spatial strategies for identified growth and non-growth areas, corridors, special urban development sites and open spaces toreduce and manage risks in these areas.Focus of LUM strategies concern open space provisions, improved vehicular and pedestrian access in congested areas, provision of easementsand right of ways, siting requirements of new buildings and infrastructures in view of hazards and risks.

Proposed Timeline and Budget: • Immediate because QC CLUP updating had already started. • Budget for guideline development and coordination workshops, capacity building, potential expert DRRM consultancy. Concerned Agencies:Mayor’s Office, CPDO, DPOS, QCDRRMC,SangguniangPanglungsod

B. LUP Strategy 2: Strengthen implementation process of suggested land use management

(LUM) strategies and related PPAs that reduce earthquake and flood risks and build QC resilience.

Rationale: The LUM strategies need to be operationalized (how) with adequate provisions forhuman resources, logistical support, institutional arrangements (internal and external of QCG), and stakeholder consultations to ensure efficient and effective implementation of strategies. This essentially entails

enforcement of zoning and building code regulations, and development controls.

• CPDO shall arrange internal as well as external dialogues to identify, discuss the implementation problems and issues, and develop potential solutions to remove impediments of suggested land use management strategies for flood and earthquake risk reduction in QC. These consultations should involve internal departments (including legal, building official and others), and external stakeholders (e.g., developers, academe, media, NGO’s, Insurance, etc.) • QCG to invite academic institutions, and/or specialized scientific/technical organizations or NGO’s with expertise in zoning and building code implementation to conduct research on LUM implementation (ex. a review of current zoning with regard to FAR, building height, density of use and occupancy in areas where intensities of earthquakes and floods are most severe.) and to propose scheme and approaches for implementation; • CPDO shall invite land use planners, scientists, engineers, and other experts from different disciplines; conduct educational field trips within and outside the country to draw out workable arrangements in implementing the LUM methods. CPDO can benefit from experience overseas. Refer also to Note 1. Timeline and Budget: • Period of 6 years • Immediate for activities related to 2014 because the budget call is on July 16. From this point on every year prior to July1. Budget for workshops, preparation of feasibility studies, research work Concerned Agencies: CPDO, DRRMC Members, Mayor’s Office, DPOS, Budget Department, LDC, and DILG.

C. LUP Strategy 3: Institutionalization of HVRA Findings and Results for LUP, CDP and Zoning. Rationale:HVRA provides detailed information on HVR, which is technical in nature. Fairly new to the city, it takes time to be understood and to define the process for which DRM is scientifically informed. Implementation Requirements: • LUP Strategy 2 and 3 must be harmonized to make an efficient and effective IEC (Information, education and communication) strategy targeting different stakeholders; Learnings from LUP strategy 2 must be documented and translated into IEC materials. • QCG develops a clear plan and process for stakeholder participation, involvement in IECfor building resilience. For example: - Make the HVRA and Risk Atlas information public via the Quezon City website and other means. - Disseminate the City Risk Profile and Risk Atlas internally and to the external partners. - Ensure that the HVRA information is internalized and utilized for planning purposes


Implementation Requirements:

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at the city and barangay level. - Use HVRA data for preparedness focusing on hotspot barangays. - Hold seminars and workshops to review, comprehend and assimilate the findings and results of the HVRA and Risk Atlas. Proposed Timeline and Budget: • 3 years • Costs for printing, workshops, seminars, and specialized consultants for updates of HVRA (earthquakes, floods, and other hazards). Concerned Agencies:Mayor’s Office, DPOS, DCD,Budget Department,Engineering Department, Social Welfare Department, Environment Department, Urban Poor Affairs Department, Barangays, and Building Official.

D. LUP Strategy 4: Investment in Human Resources and Training to Support Risk Sensitive Land Use Planning and Land Use Management as means for DRRMP Implementation

Rationale: Risk Sensitive land use planning is a recent development and that the practice had been limited. The CPDO will require continued trainings on risk sensitive planning and management for disaster risk reduction. In relation to the practice of monitoring and inspection, it may be important to note that QCG has increased its number of inspection teams from four (4) to eleven (11) to ensure wider area of coverage for inspections and the compliance of new developments with Building Codes and the approved specifications found in the building plans. However, logistical difficulties had resulted to QCG prioritizing inspection of buildings 3 storeys and higher for new construction and buildings built within the last 10 years for annual inspection. This means that many of the residential structures 1 to 3 storeys high may or may not have the benefit of full inspection during its construction. At this time, there are no accurate figures on the total number of structures in Quezon City but, through the DBO, an inventory of buildings is already being done. It appears, then, that the regular annual inspections and random checks provide the opportunity to reduce violations although the accomplishment rates are difficult to determine in the absence of the actual numbers of existing structures. Implementation Requirements: • Each department should draw up their technical training, drills and exercises agenda to comply with the requirements of the RA10121 law; • Focus of trainings, manpower and materials, equipment on building inspections, permitting process as specified in the Building code, improvement of enforcement of building construction codes and standards, development controls; • Offer of incentives(by QCG and development partners) for trainings, graduate studies on civil/ structural engineering, risk sensitive urban planning and green building; Offer contract of service to recipients in return. • Educational field trips to observe and learn from other megacities on how they deal with disaster risk reduction through land use and strategic planning;

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Concerned Agencies: Mayor’s Office, CPDO, Engineering, DBO, Personnel Department, and Budget Department.

E. LUP Strategy 5: Monitoring and Evaluation Rationale:Monitoring and evaluation of actions and performance are important to keep track of progress in relation to set objectives and targets to keep the city safe and resilient. Prior to any construction or development, location clearances and other permits and clearances are required. It is important that issues of implementing codes, zoning provisions are identified and addressed. Given the extent of work and coverage of risk reduction in QCG, there is a need to address logistical concerns on monitoring and feedback systems in order to ensure compliance with agreed plans and laws that build resilience in QC. Implementation Process: • Utilize goals, objectives and targets set in the sectoral plans (CDP) as prepared by the CPDO, Engineering and DBO and other offices as means of evaluating project outputs accomplishment and determining whether desired changes or impacts were in fact accomplished. • Existing CDP sectoral working groups to set up the M and E system for DRRM in QC. Logistical requirements must be identified and quantified for budget support. For example, TWG members from Engineering, DBO,CPDO can develop the M and E requirementsaround the CDP and LUP strategies and PPAs, such as, for example,building and infrastructure resilience to earthquake and flood DRRMP. The M& E plan should tackle, among others: o Formally adopt a regular accomplishment reporting as part of the DRRM M and E system for implementation. This can be instituted via an Office Order or Executive Order of the Mayor. o Ensure that the PPAs identified for the prioritized strategies are packaged into the CDP/ LDIP /AIP. o QC Engineering and Building Officials (DBO) to take special roles on how to improve enforcement of building construction codes and standards, better reporting and documentation, which should be made public. o DBO makes recommendations to correct structural and non-structural deficiencies, a third-party certification for structural and non-structural quality if a building structure is more than ten (10) years old and especially those located in hotspot areas. o A more efficient record keeping of newly applied permits and building permits issued to allow a scientific analysis of building vulnerability and risk. o Consider special building design and construction consideration for areas with very high earthquake severity. o Enforce Ordinance No. SP-1800, S-2007 ordinance regulating construction, repair, mod-


Proposed Timeline and Budget: • 5 years. • Set aside training budget for the next three-year period. It can either be lumped or integrated in the department budgets.


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ification, and demolition of buildings and structures, including illegally constructed, abandoned, dangerous or unfinished buildings and structures in QC;at a minimum, buildings should be identified and listed publicly. o A clear process of identifying and penalizing the owners of structures that pose hazards to the community (e.g., dilapidated public and private buildings, unfinished buildings). QCG tackles issues on notification of building code violations to order compliance by developers and owners. o Put in place a timeline for Green Building Technologies to be utilized in future constructions and land development. Proposed Timeline and Budget: • Set up a system for accomplishment monitoring,for evaluating strategies implementation (or PPAs) within 3 months after the DRMP are prepared.(or after the Land Use Plan and CDPs) • Draft and issuance of an executive order mandating submission of regular reports to the DRRMO/DPOS. • Assign dedicated staff for M and E coordination among departments. Concerned Agencies: Office of the Mayor, DRRMC, DPOS,CPDO,QC DILG,Budget, Accounting, and OCA.

F. LUP Strategy No. 6: Land Use Management Interventions(identified in workshops) for earthquake and flood risk reduction

Review and synthesize land use management methods suggested by different sectors in Annex A and B as methods for prevention, mitigation and preparedness in the different development sector plans (e.g. transportation, housing and shelter, energy, water). Develop into project definitions. Compare with Strategies 1 to 5 above. If not already addressed, develop into project description. Undertake SWOC, and identify Resources, Duration, Priority and Budget. Mitigation/Prevention: Building Codes • Strict Compliance & implementation of the National Building Code and Zoning Ordinance ( new and existing buildings) • Inventory and inspections of critical buildings (structural, non-structural) identified in hotspot areas. Development Regulations • Review and Revision of Zoning (and integrate risk information) • Zoning special EQ hazard areas, use of buffer zones, fault set-back regulations • Special hazard area, floodway set-back regulations • Fire zones are established

Critical Public facilities

-

Inter-city flood control program

-

Dredging of rivers

-

Retrofit of Selected Public Buildings

• Identify places where hazardous materials are stored, processed • Retrofitting of key facilities and public buildings Land and Property Acquisition • Relocation& resettlement sites for ISF • Open space for easements, safer sites • Acquisition of open space/ undeveloped lands for mitigation, Information Dissemination • Increase level of awareness on DRRM • Street furniture, markers, CCTVs for evacuation purposes Preparedness: • Identify escape routes and open space for the emergency • Evacuation areas to be identified • Redundant systems (ex. alternative routes to transport people, supplies and other needed resources) • Enhancement of BERT • Proper waste management Recovery and Rehabilitation: Recovery Strategy Plan

• CPDO and Engineering shall prepare feasibility studies for priority measures for earthquake and flood risk reduction; • Piloting of a project for an urban renewal or redevelopment; • QCG continue with the provision of tax reduction incentives for proposed green infrastructures; Ordinance on enforcing MMDA resolution on providing 3-10 meter buffer strips (linear parks) along riversides and creeks in QC, and removal of informal settlements along these areas.


• Ensure mitigation in capital improvements program

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10.4.3 Strategy Recommendations for Mainstreaming GIS in DRRM

Geographic Information Systems for Disaster Risk Reduction and Management Situational Analysis Report Recommendations for SWOC Strategy Validation June 21, 2013 Bulwagang Amoranto, Quezon City Hall

1. Scope  All ideas are limited to Disaster Reduction and Risk Management (DRRM). Ideas are based on the functions of the offices involved in DRRM and not to be confused with their main function as an office within the Quezon City Government (QCG).  Data being discussed are limited to data utilized in DRRM.

2. Assumption

 The roles of Earthquakes and Megacities Initiative (EMI) roles are limited to the scope of the project  The Quezon City Disaster Reduction and Risk Management Office (QC DRRMO) has not yet been established. The Disaster Control Division (DCD) under the Department of Public Order and Safety stands as the ad hoc group for the QC DRRMO  The GIS – Technical Coordinating Committee (GIS-TCC) has already been created through an Executive Order (Refer to the GIS for DRRM Situational Analysis Report, Strategy Guide Recommendation # 3)  A two-tier approach for software utilization has been solved by using a universal GIS format.  The QC Information Technology Development Office (QC ITDO) will provide support in terms of Information Technology (IT) infrastructure and other IT requirements based on Information Systems Strategic Plan (ISSP).  The ISSP is a consolidated list of proposed IT projects to be implemented within the time frame of the plan.  Any project proposed must be included in the ISSP. Non-aligned projects are subject to approval and budget.  All DRRM projects is in accordance with Republic Act 10121.

3. GIS for DRRM Strategies


Data Custodianship in Quezon City

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156

Data Management Plan in Quezon City

157

Data Sharing System, Policies and Protocols



158

Data Access and Ownership

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The QC DRRMO must be prioritized in terms of capacity building. DPOS-DCD must have the software, hardware, IT infrastructure and GIS training that they need to perform their functions. Capacity building must also include one contact point for each DRRM member office. Once established, the IT infrastructure (shared network) can be electronically connected to the e-GIS DRRM component of ISSP. 10.4.4 Strategy Recommendations for Emergency Management

Emergency Management

Quezon City Disaster Risk Reduction and Management Plan Recommended Strategies for Emergency Managemen Introduction: Integration of Six (6) Emergency Management Strategies to Comply with International Standards From the initial research conducted and presented in the EMI Emergency Management Component Situation Analysis Report, November 2012, and from further interactions with Quezon City Technical Working Group, during November, May, and June 2013 Emergency Management Field Investigations, the following are six (6) emergency management strategies have beenidentified and are recommended for Quezon City to prioritize within a two-year time frame for inclusion, funding, and implementation under its QC Disaster Risk Reduction and Management Plan (DRRMP). Figure 1, below, graphically displays the strategies to integrate international standards in emergency management by fully developing an Emergency Operations Center (EOC), supported by an Emergency Support Function System (ESF), applied under an Incident Command System (ICS) organizational structure, with common operating procedures documented in an Emergency Operations Plan (EOP). These four key systems are integrated as Quezon City’s Emergency Management System via both a robust training program and exercise and drill program, instituted in the years to come as part of the DRRMP strategy. A rationale as well asimplementation requirements are provided along with each recommended strategy. Deliverables for the Emergency Management Component are listed per strategy.


Capacity Building


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Figure 1.The figure above represents the six (6) recommended Emergency Management System Strategies, namely the 1) Emergency Operations Center (EOC), 2) Emergency Support Functions (ESF),3) Incident Command System (ICS) and the 4) Emergency Response Operations Plan (EOP) development. These four systems are supported by two Emergency Management System Integration Strategies, namely a 5) Training Program and complimentary 6) Exercise and Drill Program, to sustain and institutionalize the above four key recommended strategies.

1. Strategy 1: Emergency Operations Center Emergency Management Strategy 1:Develop an Emergency Operations Center (EOC) as the DRRMO command, control, and communications (C3) center to manage Quezon City disaster operations.Complete construction and equipping of the new Disaster Risk Reduction and Management Office (DRRMO) facility to include a state-of-the-art Emergency Operations Center. The EOC must have the physical space and technology requirements and human resources to manage a major, sustained disaster response and recovery operation involving representatives from government and civil society. Rationale:The basis for an effective disaster response operation affecting all of Quezon City is to build, establish, and equip an Emergency Operations Center where key decision makers can command, control, and communicate (C3) available resources on a 24/7 basis. The DRRMO’s job is to gather information, create a Common Operating Picture,and execute the direction and control during a disaster. The current facility is not suited to manage this task. Design and layout for an Emergency Operations Center can further accommodate decision-making and command and control of all QC resources during a disaster. Only through a well-designed Emergency Operations Center can Quezon City government make decisions to save lives, protect property, and speak with one voice. An EOC is a requirement of RA 10121 and international standard practice. Implementation Requirements:

Figure 2. Original proposed Emergency Operations Center layout for personnel and functions by Quezon City from which EMI has provided additional changes and comments. • Key to this recommendation is to utilize and accommodatethe Emergency Support Function system for disaster response. • During full activation, the design of the Emergency Operations Centerfacility should include space and communications requirements for a total of approximately 100 personnel including approximately 84 operations and decision makers and 16 additional support staff: 1) Emergency Support Function liaisons (~15); 2) Members or liaisons from the QC Disaster Risk Reduction and Management Council (QCDRRMC) (~20); and 3) DRRMO/DPOS/DCD Operational Control Room staff (~25) 4) Additional support staff, such as technical support, facilities management, and security (~16) • In addition, the new DRRMO Emergency Operations Center must accommodate a dedicated room and communications equipment for the: 5) Radio Communications Servicesas mandated by EO 23(~15); 6) Joint Information Center for the media (Media Center) (~15); and the 7) Chairman/Action Officer, Deputy Action Officer, and staff (~ 4).


• Recommendations under this strategy are based on the original QC Emergency Operations Center layout as presented to EMI in Figure 2, below. Comments below are alternative designs and layouts for the locations of personnel and functions in the proposed QC EOC.


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• The Operations Control Room (main room for DRRMO/SPOS/DCD noted in No. 3, above) should be organized into the mandated incident command system, to include physical locations for Administration & Training (to include Financial); Operations & Warning (largest group); and Research & Planning Sections. Proposed Timeline and Budget: Funding has been allocated for the new DRRMO facility. Equipping the EOC requires a QC funding priority for the next two years in order to fully equip the facility for decision making capabilities, not just to fund building of the physical facility. Procurement for required communications equipment, flat screen panels, computers, and furniture should be prioritized as part of the EOC development process. Each year’s Calamity Fund budget should accommodate for first fully equipping the EOC to capacity, and second, follow-on yearly budget allocations to keep the EOC at a state-of-the-art facility. Concerned Agencies:Mayor’s Office, DPOS, DCD, Building Department and Engineering Planning Department. Project Deliverables to Quezon City (1) for EOC: Six Recommended EOC Design Changes, as listed below, (with two further options provided below) and as further presented in the Training Module titled: Quezon City Emergency Operations Center Recommendations, June 27, 2013

EMI’s six recommended EOC design changes include the following: 1. Relocate the location of the proposed Media Center. Quezon City should consider modifying the EOC blue prints to switch the location of the Executive Conference Room with the Media Center.


2. Add the Radio Communications Services to the EOC. The Radio Communications Services (RCS) can be co-located with the Command Center and Emergency Support Function Room (reference is EO 23). 3. Emergency Support Functions and QC Disaster Risk Reduction and Management Council. Once the decision to use Emergency Support Functions& Operating Teams is made, modifications should include adequate space to house liaisons from the ESFs and the QCDRRMC – see expanded area in the EOC floor diagram.Ensure ESF Room will also house DRRMC members, department heads, and Emergency Support Function personnel.

4. Place an Action Officer’s Office near the Command Center and the Chairman’s Office. 5. Add security. Place the Security Corridor and Reception Area between the floor entrance and exit and the offices 6. Add Incident Command System. C3 personnel should be organized to reflect Incident Command System organization, to include Operations and Warning, Planning and Research, Administration and Training.


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• Alternative Option 1: Locate the Media Room next to the EOC Command Center Floor. Referring to slide no. 2, locate the Media Center where the Situation Room is located. Another option is to reorient the Command Center layout so that the screen is located on the opposite side of the room so the media have the ability to view through a ‘window’ (when not closed off by curtains). • Alternative Option 2: Another option is to locate the ESF Liaisons (Department Heads) on the Command Center Floor. The advantage of this orientation is that the ESF Liaisons have the ability to interact with calls and decisions that are generated on the Command Center floor.

2. Strategy 2: Emergency Support Functions Emergency Management Strategy 2:Adopt, institutionalize, activate and practice the Emergency Support Function System (ESF) to support the DRRMO C3 Center. Quezon City should

adopt and further formalize the ESF System as part of its command and control structure. The above figure shows conceptually that the ESF system supports the EOC system. Rationale: As part of the EO 23, the Mayor has begun to institute the Emergency Support Function system through the mandated nine (9) operating teams: 1) Transportation Team; 2) Rescue and Recovery; 3) Relief and Evacuation Center Management; 4) Health and Sanitation; 5) Fire; 6) Police and Security; 7) Relocation and Rehabilitation; 8) Emergency Rapid Assessment; and 9) Public Information.

Implementation Requirements: • Adopt and formalize the Emergency Support Function System for Quezon City in order to further define roles and responsibilities during disasters. Adopt the Emergency Support Function Table as an Annex to the revised Quezon City Emergency Response Operations Plan. The QCDRRMP IMPLAN must include the ESF concept. • Complete specific operational plans for each of the 13 ESFs following completion of the QC Basic Plan, by March 31, 2104. Mayor to support at least monthly half-day meetings (or as needed) for each of the planning staff per each of the 13 ESFs. • As part of this project, define roles and responsibilities for disaster functions within the international Emergency Support Function system. • In order to exercise and test the ESF system, develop policies to partially activate the ESF structure for various levels of disasters, according to required support resources to the EOC. • Rectify the incipient Operational Teams concept, mandated and expressed in EO 23, into a greater ESF system, as reflected in the ESF Table and Matrix (part of the QC-EMI project). Proposed Timeline: Adopt ESF Table as part of the planning process and DRRMP Implan by September 2013. Complete ESF specific plans following completion of the QC Basic Plan, by March 2014. Concerned Agencies: Mayor’s Office, DPOS, DCD, and all other departments with resources and personnel for disaster response and as identified in the Emergency Support Function Table, June 27, 2013, as validated by the Technical Working Group, June 27, 2013. Project Deliverables to Quezon City for ESF (4): 1) Final Emergency Support Function Table as developed by the QC Technical Working Group and validated by the Technical Working Group during the ESF Table Review, June 28, 2013Appendix 1: 1) ESF Table Validated, 2) Emergency Support Function Matrix; 3) EMI Flood Scenario Narrative based on Typhoon Ondoy and 4) EMI-developed Earthquake Scenario Narrative based on the postulated West Valley Fault Earthquake, Magnitude 7.2.;

3. Strategy 3:Incident Command System Emergency Management Strategy 3:Adopt the Incident Command System as the organizational system for the Emergency Operations Center and the Emergency Support Functions. Organize the DRRMO according to the Incident Command System and as mandated by RA 10121. Finalize staffing pattern for the DRRMO and fill positions with qualified personnel.


Further, through the QC-EMI planning process, the QC Technical Working Group has defined and validated 13 Emergency Support Functions, with Lead Agencies and Support Organizations, that comply with International Standards of Emergency Management.


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Rationale:The Incident Command Structure is mandated by RA 10121 and EO 23 for thestructure, functions and appropriate staffing of the DRRMO. To follow with international standards and RA 10121, the DRRMO should be organized under the highest level executive. Under National law and guided by international standards of practice, the DRRMO is an executive agency with a fulltime responsibility and with a key task to enable the mayor to make informed decisions during all emergency situations. Implementation Requirements: • Review the proposed QC organizational realignment to implement a more efficient command and control structure for the QC government as mandated by law. • Implement an ICS organizational structure into the EOC and the ESF systems. • Implement training programs on the ICS for all EOC and ESF personnel, as well as executives. Proposed Timeline:The ICS should be implemented in all EM systems, by July 1, 2014 and via formal training programs. Concerned Agencies:Mayor’s Office, DPOS, DCD. Project Deliverables to Quezon City for ICS (1): Powerpoint Presentation on Job Descriptions for Key Personnel at the EOC:

4. Strategy 4:Emergency Response Operation Plan Emergency Management Strategy 4:Write the Emergency Response Operations Plan that incorporates the concepts of the EOC, ESF, and ICS international standards.

Rationale: A dedicated QC Emergency Response Operations Plan can be and should be completed as a stand-alone document that compliments the DRRMP content and purpose. The current DRRMP for Quezon City is a combination of a preparedness, mitigation, and response plan, with only partial

response operations covered in the existing document.

• Training in and exercising of the updated plans should be part of the planning process. • Gain approval of the final plan by the City Mayor to make it as an officially sanctioned plan. • Strengthen planning down to the barangay level. Proposed Timeline and Funding: Complete task according to Work Flow Diagram, above, for Basic Plan, September 30, 2013 and ESF Plans by March 31, 2014. Fill mandated employees for DRRMO positions by December 31, 2013. Concerned Agencies: Mayor’s Office, DPOS, DCD, DRRMO Research and Planning Division Project Deliverables to Quezon City for EOP (2): 1) Draft Work Flow Diagram to complete the Basic Plan and the Emergency Support Function Annexes; 2) Emergency Operations Plan Template to include Table of Contents and Guidance.


Implementation Requirements: • Quezon City should institute a planning process with all key departments to create a Emergency Response Operations Plan as reflected in the Workflow Diagram below. • Reflect the seven (7) key elements of the Basic Plan, as prescribed by international standards. • Quezon City should fully reflect and incorporate the mandated DRRMO organizational structure as well as comply, as much as possible, with international standards by developing and exercising a city-level Emergency Operations Plan.

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5. Strategy 5:Systems Integration viaTraining Program Emergency Management Strategy 5:Develop and institute a formal training program under the new DRRMO organizational structure in order to strengthen Quezon City’semergency management capacity.The purpose of the training program, including Barangay training, is to

build citywide capacity in the four Emergency Management Systems as described in Strategies 1- 4, above. This training program should be managed by the Administration and Training Section of the DRRMO and should be implemented on a continual basis. Training audiences include: QC Governments, Barangays, NGOs, Private Corporations, and Utilities. Formal Training should includea prioritized selection from the following courses: 1. Disaster Management Legal and Institutional Arrangements 2. Flood, Earthquake, and Typhoon Hazards and Expected Impacts 3. Hazard Hots Spots for vulnerable populations and at-risk Barangay 4. Policies and Concepts of Operations for QC Emergency Operations Center and Emergency Operations Plan 5. Alert & Warning and EOC & ESF Activation Procedures and Calamity Declaration Protocols 6. Damage And Needs Assessment and formal damage reporting process to the EOC 7. Evacuations Procedures and Shelter/Camp Management 8. Media Protocols 9. Disaster Safety Regulations and Procedures 10. Incident Command System Training Basics for executives and ICS Multiple Courses for EOC personnel, ESF personnel 11. ICS Plans Development for the EOC (per operational period) 12. Field Operations Incident Command System for first responders 13. Emergency Support Function Plan Development for each of the 15 ESFs 14. ESF personnel training on ESF Plans and Procedures for ESF representatives 15. Disaster Financial Management Procedures 16. ESF Plan development, Exercise and evacuation for hotspots of populations at risk, drills, scenario table tops and simulations, Concept of Operations training, Rationale: A formal training program is a key to successful emergency management programs. The RA 10121 requires this formal capacity for Quezon City. International guidelines promoted by EMAP 2010 (www.emaponline.org ) emphasize the requirement for a funded, formal, and systematic training program, managed by a focal point. Training for all key stakeholders and responders must be institutionalized at both a generalized level for decision makers and specialized level for responders dealing with life safety. Training must be extended to the Barangay level and key stakeholder organizations to improve Emergency Management Systems, including representatives from utilities. Implementation Requirements: • Dedicate a training officer under the new DRRMO organization aligned with the RA 10121. • Guidance in terms of priority for training can be taken by looking at the “hotspot” barangays identified in the Hazard, Vulnerability and Risk Assessment. • Training on roles, responsibilities, job descriptions, and incident command system must

Proposed Timeline: Hire a dedicated Training Officer for the DRMMO by December 2013. Design and implement a formal EM System Training Program as required initially by March 2014 and formally by July 1, 2014. This timing will coincide with the completion of the EOC. Budget: A substantial training budget must be dedicated to train all responders and support organizations for the next five year period. Training is an essential element for implementation of the EM systems. • Define resources required for expert training in emergency management systems. Concerned Agencies: Mayor’s Office, DPOS, DCD, DRRMO Administration and Training Section, and all other departments with resources and personnel for disaster response. Project Deliverables to Quezon City for Emergency Management Training (9): Three training Modules completed for Quezon City Technical Working Group Membership include: 1. Agenda and Attendance Sheets, Training Module 1, November 2012 2. Agenda and Attendance Sheets, Training Module 2, May 2013 3. Agenda and Attendance Sheets, Training Module 3, June 24-28, 2013 4. List of Training Sessions Completed, Training Module 1 5. List of Training Sessions Completed, Training Module 2 6. List of Training Sessions Completed, Training Module 3 7. Slide Sets for Training Module 1 8. Slide Sets for Training Module 2 9. Slide Sets for Training Module 3

6. Strategy 6:Systems Integration via Exercise and Drill Program Emergency Management Strategy 6:Develop and institute a formal Exercise and Drill Program under the new DRRMO organizational structure in order to strengthen Quezon City’s emergency management capacity.The purpose of theExercise and Drill Program is to build citywide capacity

in the four Emergency Management Systems as described in Strategies 1- 4, above. This Exercise and Drill Programshould be managed by the Administration and Training Section of the DRRMO and should be implemented on a continual basis. Drills should be scheduled quarterly with a two-year exercise and drill schedule posted for all concerned organizations. Training audiences include: QC Governments, Barangays, NGOs, Private Corporations, and Utilities. Formal Training should include a prioritized selection from the following courses: Exercises should include the following: 1. Monthly Alert & Warning and EOC & ESF Activation Call-Down Procedures with testing of Calamity Declaration Protocols. Test communications equipment.


be conducted for all personnel involved with the EOC and ESFs. • Training should also be completed on knowledge of the EOP and skills and abilities required to carry out each of the 15 ESFs. • Training should extend to a yearly scheduled emergency activation drill prior to the rainy season.


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2. Monthly TWG Table Top discussions to finalize QC Emergency Response Operations Plan and each of the 13 ESF Plans. 3. Quarterly TWG Table Top Exercises based on one disaster scenario for QC and focused to test specific sections or issues in the EOP, e. g. Plan Activation Procedures, Partial Activation of ESFs, Mass Care and Shelter Group only. 4. Quarterly ESF Table Top Exercises to refine plans, allowing individual ESFs to meet. 5. Quarterly Exercise to test formal damage reporting process to the EOC for selected groups of Barangay. 6. Semi-annual Drill and Exercise of the EOP and EOC activation, based on a simulated disaster scenario focused on hot spots with selected Barangay, ESFs, media, executives, and dignitaries invited. Major test should be scheduled for April, prior to start of rainy season. Test ICS system.Field Operations Incident Command System for first responders 7. Semi-annual exercise training at EOC with Media groups, via EOC activation and mock press conferences with Mayor, Action Officer, ESFs, and QCDRRMC. 8. Annual QC evacuation and shelter drill, for Barangay Hot Spot, associated with semi-annual testing of EOC and EOP activation above. Deployment of resources to Barangay for limited ESFs. Add Camp Management elements. 9. Annually test Disaster Financial Management Procedures at EOC with ESF representatives and EOC personnel. Rationale: A formal exercise and drill program is a key to successful emergency management programs, managed by a focal point. At least semi-annual exercises and drills for all key stakeholders and responders must be institutionalized at both a generalized level for decision makers and specialized level for responders dealing with life safety. Implementation Requirements: • Dedicate a training officer under the new DRRMO organization aligned with the RA 10121. • Guidance in terms of priority exercises can be taken by looking at the “hotspot” barangays identified in the Hazard, Vulnerability and Risk Assessment. • Exercises and drills will augment and institutionalize the above training program on roles, responsibilities, job descriptions, and incident command system for all personnel involved with the EOC and ESFs, as well as at the Barangay level. Budget:A substantial annual training, exercise, and drill budget must be dedicated in order to exercise all responders and support organizations. Define competent outside consultant resources required for expert training in identified and prioritized emergency management systems. Proposed Timeline: Hire a dedicated Training Officer for the DRMMO by December 2013. Design and implement a formal Emergency Management System Training, Exercise, and Drill Program as required initially by March 2014 and formally by July 1, 2014. This timing will coincide with the completion of the EOC. Concerned Agencies: Mayor’s Office, DPOS, DCD, DRRMO Administration and Training Section, and all other departments with resources and personnel for disaster response. Project Deliverables to Quezon City for Emergency Management Drills and Exercises (0): There are no project deliverables specific to this recommendation.

1. Emergency Operations Center Deliverables

a. Training Module titled: Quezon City Emergency Operations Center Recommendations, June 27, 2013

2. Emergency Support Function Deliverables b. c. d. e.

Emergency Support Function Table Validated, Filename Emergency Support Function Matrix; EMI-developed Flood Scenario Narrative based on Typhoon Ondoy; and EMI-developed Earthquake Scenario Narrative based on the postulated West Valley Fault Earthquake, Magnitude 7.2.

3. Incident Command System Deliverables

f. Training Slide Set, filename g. Incident Command System Training Slide

4. Emergency Response Operations Plan Deliverables

h. Filename [Basic Plan Template Product validated 06 28 2013] i. Workflow Diagram for Completion of the QC Emergency Response Operations Plan

5. Project Training & Exercise and Drills Deliverables

j. Agenda and Attendance Sheets, Training Module 1, November 2012 k. Agenda and Attendance Sheets, Training Module 2, May 2013 l. Agenda and Attendance Sheets, Training Module 3, June 24-28, 2013 m. List of Training Sessions Completed, Training Module 1 n. List of Training Sessions Completed, Training Module 2 o. List of Training Sessions Completed, Training Module 3 p. Session Slide Sets for Training Module 1 q. Session Slide Sets for Training Module 2 r. Session Slide Sets for Training Module 3


Appendix 1: Listed Deliverables for Emergency Management Component


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10.5 Executive Order No. 23, Series of 2010 Organizing the Quezon City Disaster Risk Reduction and Management Council (QC DRRMC), Redefining Its Functions, Providing For Its Composition and For Other Purposes, Pursuant to Republic Act No 10121 Otherwise Known “Philippine Disaster Risk Reduction and Management Act of 2010.”



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10.6 Executive Order No. 5, Series of 2013 The Establishment of the Quezon City Disaster Risk Reduction and Management Office (QCDRRMO)



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QC Disaster Risk Reduction and Management Plan 2014 to 2020

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