cainta local action plan disaster risk reduction and climate change adaptation
DESCRIPTION
This is the Governance Innovation Report of Mayor Ramon Ilagan, Cody Cavestany and Lester CavestanyTRANSCRIPT
CREATION OF AN INTEGRATED LOCAL ACTION PLAN FOR DISASTER
RISK REDUCTION AND CLIMATE CHANGE ADAPTATION
FOR THE MUNICIPALITY OF CAINTA
RAMON A. ILAGAN
CODY R. CAVESTANY
LESTER G. CAVESTANY
SUBMITTED TO THE FACULTY OF THE
ATENEO SCHOOL OF GOVERNMENT
IN PARTIAL FULFILLMENT OF THE
REQUIREMENTS FOR THE
DEGREE OF
MASTER IN PULIC MANAGEMENT
APRIL 2013
ii
The Governance Innovation Report attached hereto, entitled "CREATION OF
AN INTEGRATED LOCAL ACTION PLAN FOR DISASTER RISK REDUCTION
AND CLIMATE CHANGE ADAPTATION FOR THE MUNICIPALITY OF
CAINTA" prepared and submitted by RAMON A. ILAGAN, CODY R.
CAVESTANY and LESTER G. CAVESTANY in partial fulfillment of the
requirements for the degree of Master in Public Management, is hereby accepted.
DR. ANTONIO G.M. LA VIÑA, JSD DR. MARY JEAN CALEDA
Adviser Faculty Coordinator
__________________________
____________________________
Date signed Date signed
Accepted as partial fulfillment of the requirements for the degree of Master in
Public Management.
ANTONIO G.M. LA VIÑA, JSD
Dean, School of Government
Ateneo de Manila University
__________________
Date signed
iii
ACKNOWLEDGEMENTS
We, RAMON A. ILAGAN, CODY R. CAVESTANY and LESTER G.
CAVESTANY, would like to express our heartfelt gratitude to the following persons who
have made the completion of this Governance Innovation Report (GIR) possible:
Our esteemed adviser, Dean ANTONIO G.M. LA VINA, J.D., for inspiring us to
work in the area of climate change and disaster preparedness and for his vital support in
this Governance Innovation Report.
Our faculty coordinator, Assistant Dean, MARY JEAN A. CALEDA, PH. D., for her
constant reminders about deadlines and for the much needed motivation to graduate on
time.
Associate Dean MARIO C. VILLAVERDE, MD, for giving us permission to work
on this GIR as a team.
Our GIR readers, MS. JESSICA BERCILLA and MR. ANGELO APOSTOL, for
helping us revise and improve the initial drafts of our GIR.
MRS. VERON S. ILAGAN, for sharing with us your vision of creating a more
progressive and flood-free Cainta.
All the heads and staff of the various Offices and Departments of the Municipality of
Cainta, for assisting us in the collection of valuable data and information.
Since this GIR signifies the culmination and completion of our graduate studies at
the Ateneo School of Government, we would like to also take this opportunity to express
our indebtedness to all our Professors who have provided the necessary teachings and
iv
learning experiences for us to achieve the completion of our Master in Public Management
degree program.
PROF. CYNTHIA G. CASTEL (Understanding the Bureaucracy)
PROF. CORAZON ALMA G. DE LEON (Power, Ethics and Accountability)
FR. PATRICK Z. FALGUERA, S.J. and PROF. MARIDES C. FERNANDO
(Leadership in Public Service)
PROF. EDNA ESTIFANIA A. CO (Public Policy Development and Analysis)
PROF. ENRICO C. MINA (Applied Economics for the Public Sector)
DEAN ANTONIO G. LA VIÑA (Climate Change and Sustainable Development)
PROF. ALFREDO F. DIAZ, JR. (Organizational Development and Change
Management)
PROF. MILWIDA M. GUEVARA (Public Finance and Budgeting)
PROF. GILBERT G. LOZADA (Local Planning and Development)
PROF. VIRGINIO P. FULGENCIO (Local Investment and Enterprise Development)
PROF. MARY JANE C. ORTEGA and PROF. AURMA M. MANLANGIT
(Modern Management in Local Government)
PROF. AMELIA C. ANCOG (Governance Innovation Seminar)
Special thanks to the staff and “frontliners” of the Ateneo School of Government:
MR. MANUEL “MANOLO” GREGORIO, MS. ANNA KARMELA ZABAT, MS.
MARICEL “ISEL” V. DE GUZMAN, MRS. VENUS VINLUAN and MR. TOM
SAWYER.
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To our families and parents for their invaluable support. Words will never be enough
to express our gratitude to you for always being there for us, MRS. CRISTETA
CAVESTANY and MRS. CORAZON S. RABE. To the next generation of Cainteños,
especially to BERNICE, CHARICE, JONAH, NIKKI and LEX. LINDSAY JOY
CAVESTANY, LEANDER CAVESTANY, and EDDIE RABE, JR. who kept on
believing in us.
Our batchmates, the MPM BATCH 2010, for all the wonderful memories, yummy
merienda and food breaks, parties and get-togethers, hirits, loveteams, never-ending chain
of recitations, and most importantly, the friendships forged that had led to family-like ties
and lifelong bonds. Special thanks to our groupmates in TEAM M.I.: Atty. Ricardo
“Oying” Angeles, Paolo Daleon, Dennis de la Torre, Mayor Angelito “Dondon”
Dimacuha, Diana Lumauig, Peter “Tonypet” Mallari and Nette Reyes.
Finally, we would like to praise and thank the Lord, our God, for making everything
fall into place, in accordance with your Divine Will. All these we have done, and more we
shall do, in the name of public service, and for your greater glory! Ad majorem Dei
gloriam!
vi
TABLE OF CONTENTS
PAGE
Title Page i
Approval Page ii
Acknowledgements iii
Table of Contents vi
List of Acronyms viii
List of Tables xiii
List of Figures xv
List of Appendices xviii
Abstract xix
CHAPTER
I INTRODUCTION 1
Background of the Study 1
Rationale of the Study 1
Statement of the Problem 4
Objectives of the Study 5
Significance of the Study 6
Scope and Limitations of the Study 7
II REVIEW OF RELATED LITERATURE 10
The Natural Hazards in the Philippines 10
Disaster Risks and Effects in the Philippines and in the
Municipality of Cainta
21
The Legal Mandate of the Local Government 25
III RESEARCH FRAMEWORK 27
Conceptual Framework 27
Theoretical Framework 36
Operational Framework 37
Operational Definition of Terms 40
IV RESEARCH METHODOLOGY 47
Research Design 47
Locale of the Study 58
Data Collection Methods and Analysis 71
vii
V RESULTS AND DISCUSSION 80
Plans, Policies and Programs 80
Hazard and Climate Change Impacts 92
Vulnerability and Capacity Assessment 106
Disaster Resilient Cainta 121
VI SUMMARY OF FINDINGS, CONCLUSIONS AND
RECOMMENDATIONS
130
Summary of Findings 130
Conclusions 135
Lessons Learned and Recommendations 140
REFERENCES 148
APPENDICES 154
viii
LIST OF ACRONYMS
ACRONYMS
ADB Asian Development Bank
AIP Annual Investment Plan
ASoG Ateneo School of Government
BDPW Barangay Disaster Planning Workshop
BFP Bureau of Fire Protection
BPO Business Process Outsourcing
CBDRRMP Community-based Disaster Risk Reduction and Management Program
CBFEWS Community-based Flood Early Warning Systems
CCA Climate Change Adaptation
CCC Climate Change Commission
CDP Comprehensive Development Plan
CIDA Canadian International Development Agency
CLUP Comprehensive Land Use Plan
CMDRRMO Cainta Municipal Disaster Risk Reduction Management Office
COP Climate Conference
CRI Climate Risk Index
CSO Civil Society Organization
CY Calendar Year
DENR Department of Environment and Natural Resources
ix
DepEd Department of Education
DILG Department of Interior and Local Government
DILG-MLGOO Department of Interior and Local Government – Municipal Local
Government Operations Officer
DOST Department of Science and Technology
DR Disaster Risk
DRA Disaster Risk Assessment
DRM Disaster Risk Management
DRR Disaster Risk Reduction
DRRM Disaster Risk Reduction Management
DRRMF Disaster Risk Reduction Management Fund
DRRMP Disaster Risk Reduction Management Plan
DTI Department of Trade and Industry
ELA Executive and Legislative Agenda
FGD Focus Group Discussion
GAA General Appropriations Act
GDP Gross Domestic Product
GIR Governance Innovation Report
GIS Geographic Information System
HDI Human Development Index
HFA Hyogo Framework for Action
HOA Homeowners Association
x
IEC Information and Education Campaign
IPCC Intergovernmental Panel on Climate Change
ISDR International Strategy for Disaster Reduction
LAP Local Action Plan
LAP-DRR-CCA Local Action Plan for Disaster Risk Reduction and Climate Change
Adaptation
LCCAP Local Climate Change Action Plans
LDRRM Local Disaster Risk Reduction Management
LDRRMO Local Disaster Risk Reduction Management Office
LDRRMP Local Disaster Risk Reduction Management Plan
LG Local Government
LGSAT Local Government Self-Assessment Tool
LGU Local Government Unit
LRT Light Rail Transit
MCM Management or Evacuation Center Management
MDCC Municipal Disaster Coordinating Council
MDRRMC Municipal Disaster Risk Reduction Management Council
MENRO Municipal Environment and Natural Resources Office
MEO Municipal Engineering Office
MOU Memorandum of Understanding
MPSO Municipal Public Safety Office
MSME Micro, Small and Medium Enterprises
xi
MSWDO Municipal Social Welfare and Development Office
NCCAP National Climate Change Action Plan
NDRRMC National Disaster Risk Reduction and Management Council
NDRRMP National Disaster Risk Reduction and Management Plan
NEDA National Economic and Development Authority
NFSCC National Framework Strategy on Climate Change
NGO Non-Government Organization
OCD Office of Civil Defense
OTOP One Town, One Product
PAGASA Philippine Atmospheric, Geophysical & Astronomical Services
Administration
PAR Philippine Area of Responsibility
PAR Pressure and Release Model
PDRRMO Philippine Disaster Risk Reduction and Management Organization
PEZA Philippine Economic Zone Authority
PHIVOLCS Philippines Institute of Volcanology and Seismology
PIDS Philippine Institute for Development Studies
PPA Programs, Projects and Activities
PWD Persons with Disabilities
RA Republic Act
REDAS Rapid Earthquake Damage Assessment System
SCRM Save Cainta River Movement
xii
UN United Nations
UNDP United Nations Development Program
UNFCCC United Nations Framework Convention on Climate Change
UNISDR United Nations International Strategy for Disaster Reduction
V-ALERT Versatile Alliance of Local Emergency Response Team
xiii
LIST OF TABLES
TABLE PAGE
1 Total Damages by Top 5 recorded Natural Disaster Types in the
Philippines (1901-2009)
22
2 GIR Timetable 48
3 Sectoral Representation of DRR CCA Summit 50
4 Population per Barangay 59
5 Land Areas of the Seven Barangays 61
6 Slope Category 63
7 Target Income and Annual Revenues (2004-2011) 65
8 Commission on Audit's 2009 Annual Financial Report For Rizal 66
9 Goal Achievement Matrix Scale 73
10 Sample Hazard Assessment Matrix 77
11 Scoring Scale - Level of Progress (Local Government Self-Assessment
Tool for Disaster Resilience)
79
12 Excerpt from LGSAT
79
13 Hazard Assessment Summary 94
14 Flood Prone Areas and Number of Affected Families 95
15 Hazard Sensitivity of the Seven Barangays of the Municipality of Cainta 105
16 Agricultural Crops by Area, 2011 109
17 Livestock and Poultry Production, 2011 110
18 Evacuation Centers 115
xiv
19 Number of Respondents, by Age Group and Gender 118
xv
LIST OF FIGURES
FIGURE PAGE
1 The Philippines 11
2 Philippines in the Pacific Typhoon Belt 12
3 Annual number of serious earthquakes, volcanic eruptions and typhoons
between 1900-2002
13
4 Monthly Average Frequency of Occurrence of Tropical Cyclones 16
5 Frequency of Tropical Cyclone Passage Over Each Geographical Zones in
the Philippines
17
6 Geographical Zones and Tropical Cyclone Paths 18
7 Distributions of Active Faults and Trenches in the Philippines 19
8 Philippine Natural Hazard Map 20
9 Pressure and Release Model (PAR) 32
10 The Access to Resource Model 33
11 Pelling's Human Vulnerability Framework 35
12 The LAP-DRR-CCA Planning Framework 36
13 Operational Framework for the Creation of Municipality of Cainta's LAP-
DRR-CCA
38
14 Operational Framework Toward a Disaster Resilient Municipality of Cainta
39
15 Milestone and Activity Timeline 48
16 Drafting the LDRRMP of the Municipality of Cainta 55
17 Geographic Location of Cainta 59
18 Seven Barangays of Cainta 60
xvi
19 Cainta River Network Map 62
20 Ground Shaking Map 64
21 Wealthiest Municipalities in the Philippines (2009 COA Report) 67
22 Expenditure Program (Distribution by Sector) 2011 Budget Year 67
23 Expenditure Program by Sector Comparative Trend, 2009-2011 68
24 DILG's Rationalized Local Planning System 75
25 Hyogo Framework for Action: 2005-2015 Building the Resilience of
Nations and Communities to Disasters
84
26 Cash for Work in Cainta 86
27 Typhoon Incidence 92
28 Projected Rainfall Change (Dry Season) 93
29 Projected Rainfall Change (Wet Season) 93
30 Cainta Elevation Map 97
31 Hazard Map of the Province of Rizal 97
32 Flood Hazard Map 98
33 Earthquake Prone Areas in the Philippines 99
34 Cainta in the Distribution of Active Faults and Trenches in the Philippines 100
35 Cainta Valley Fault System 101
36 Valley Fault System Earthquake Scenario (Cainta) 103
37 Valley Fault System Earthquake Liquefaction Scenario (Cainta) 103
38 Liquefaction Map of Cainta (Wet Season) 104
39 Combined Risk to Climate Disasters 105
xvii
40 Vulnerability to Disasters of the Philippines 106
41 Land Use Map of the Municipality of Cainta 108
42 Human Development Index, 2000 111
43 Population Density, 2000 112
44 Populated Places 112
45 Settlement Areas 113
46 Aggregate Map of Informal Settlers in Metro Manila (2000) 114
47 Self-Assessment for Disaster Resilience Sectoral Representation 117
48 Gender Representation 117
49 Representation by Age Groups 118
xviii
LIST OF APPENDICES
APPENDIX
1 King Country Questionnaire for Preliminary Assessment of Climate
Change Impacts and Adaptation Barriers
2 LAP-DRR-CCA (Program, Projects, Activities)
3 Local Government Self-Assessment Survey Tool
4 List of CBDRRM informants
5 Key Findings on the Municipality of Cainta's Self-Assessment for Disaster
Resilience
xix
ABSTRACT
Given its geographical location and geophysical characteristics, the Municipality of
Cainta is vulnerable to the risks of natural hazards and the impacts of climate change
which cause disasters that lead to loss of lives, disruptions in livelihoods and damage to
properties. Thus, strategic local planning, anchored on international frameworks and
national policies, is a critical first step to build safer and more climate and disaster-resilient
communities through the efficient utilization of public resources and the effective
implementation of a climate and disaster risk reduction program.
This Governance Innovation Report created an integrated and multi-sectoral local
action plan for disaster risk reduction and climate change adaptation mainstreamed into the
Annual Investment Plan of the Municipality of Cainta. Using the four-fold themes of
mitigation, preparedness, response and recovery, this local action plan addressed the
Municipality’s vulnerabilities to natural hazards and climate change impacts. It also
utilizes capacity-building strategies at the barangay level for disaster risk reduction and
management and climate change adaptation.
To strengthen the resilience of the entire Municipality, the proponents studied
international, national and local policies, plans, practices and programs in disaster risk
reduction and climate change adaptation; characterized natural hazards and climate change
impacts; assessed vulnerability and capacity; and recommended programs, projects and
activities to be funded and implemented in 2013.
CHAPTER I
INTRODUCTION
Background of the Study
This study, referred to as the Governance Innovation Report (GIR), is the capstone
achievement of the graduate students’ academic requirements in the Master in Public
Management of the Ateneo School of Government. The Manual in the Preparation of
Governance Innovation Report (Ateneo School of Government, 2011) described this form
of GIR as an “Action Plan,” wherein the proponents analyzed the problems of natural
disasters and climate change in areas where the residents of Cainta are vulnerable and
formulated an integrated plan of action that would assist the local government to reduce
disaster risks and enhance the climate change adaptive capacity in the Municipality of
Cainta.
Rationale of the Study
The Ondoy Experience
On the 26th
of September 2009, Cainteños were awakened by the rush of
floodwaters inside their homes caused by the nightlong rain of Tropical Depression
Ketsana, more popularly known as “Super Typhoon Ondoy.” More than 90% of
2
Municipality of Cainta was flooded, causing the death of 15 people and inflicting
damages worth over PHP100 million. But the tragedy in Cainta was just a tiny part of a
much larger disaster. Ondoy’s record-breaking rainfall, which was greater than the
average rainfall for the whole month of September, caused widespread flooding all over
Metro Manila, Central and Southern Luzon, and some areas in the Visayas and Mindanao,
directly affecting about 5 million people in 2,018 barangays, 172 municipalities, 16 cities
of 26 provinces in 12 regions, including the National Capital Region. In the aftermath, the
damage to infrastructure and agriculture was estimated at PhP11 Billion, 15,798 families
had to evacuate their homes, 529 people were injured, 37 went missing, and 464 died.
(National Disaster Coordinating Council, 2009)
Through Ondoy, Mother Nature sent the leaders in the capital city of Manila and its
surrounding areas a catastrophic wake-up call to the harsh realities of natural hazards,
exacerbated by climate change. The Philippine government finally saw how vulnerable
we were and the Filipino people started to become more aware of the findings and
warnings of global warming scientists. And there was no choice but to respond and to
prepare for future disasters.
Policy Response
Less than a month after Ondoy, Republic Act 9729 or the “Philippine Climate
Change Act of 2009” was signed into law, which recognized that the “State shall integrate
disaster risk reduction into climate change programs and initiatives.” R.A. 9729 mandated
the Climate Change Commission to formulate a National Climate Change Action Plan
3
(NCCAP), which would serve as a guide for local government units (LGUs) in writing
their own Local Climate Change Action Plans.
In addition, Republic Act 10121 or the Philippine Disaster Risk Reduction and
Management Act was enacted in May 2010, affirming the State’s duty to “uphold the
people's constitutional rights to life and property” by addressing the root causes of
vulnerabilities to disasters, strengthening the country's institutional capacity for disaster
risk reduction and management and building the resilience of local communities to
disasters including climate change impacts. R.A. 10121 required the development and
implementation of a comprehensive National Disaster Risk Reduction and Management
Plan (NDRRMP) that would serve as a template for the LGUs in crafting their own Local
Disaster Risk Reduction and Management Plan (LDRRMP).
With President Benigno S. Aquino III’s signing of the first NCCAP on November
22, 2011 and with the finalization of the NDRRMP in September 2012, governors and
mayors were expected to formulate and implement two separate local action plans, one
for climate change and another for disaster risk reduction and management.
However, seeing the linkages and commonalities between both policies and
advocacies, it was the humble opinion of the proponents that both plans could be
integrated into a single Local Action Plan for Disaster Risk Reduction and Climate
Change Adaptation (LAP-DRR-CCA). This integrated plan of action is in line with the
Memorandum of Understanding signed in February 2011 by National Disaster Risk
Reduction and Management Council (NDRRMC) and Climate Change Commission
(CCC) to “support the implementation of disaster and climate risk reduction measures
4
identified by local government units through joint disaster and climate risk information
coordination and knowledge.” The formulation of the LAP-DRR-CCA for the
Municipality of Cainta, which is what this Governance Innovation Report is all about,
would be an effective tool for building safer and more resilient communities in Cainta.
Statement of the Problem
This study was conducted to provide answers to the following questions:
1) What were the international, national and local policies, plans, practices and
programs in disaster risk reduction and climate change that had to be considered
in the creation of the Local Action Plan for Disaster Risk Reduction and
Climate Change Adaptation (LAP-DRR-CCA) of the Municipality of Cainta?
2) What were the natural hazards and climate change impacts which distressed the
communities in the Municipality of Cainta and their vicinities that should be
addressed in the LAP-DRR-CCA?
3) How did the local government officials assess the vulnerabilities of the exposed
areas and the capacities of the communities in the Municipality of Cainta in
terms of disaster risk reduction and climate change adaptation?
4) What were the programs, projects and activities that should be included in the
LAP-DRR-CCA of the Municipality of Cainta to strengthen the resilience of the
entire Municipality, in coordination with government and development
agencies, the private sector, civil society organizations and other stakeholder?
5
Objectives of the Study
The main objective of this study was to create an integrated and multi-sectoral
LAP-DRR-CCA that would be mainstreamed into the Annual Investment Plan of the
Municipality of Cainta to help address the vulnerabilities to natural hazards and climate
change impacts, to build the local capacity for disaster risk reduction and climate change
adaptation, and to strengthen the resilience of the entire Municipality, in coordination
with government and development agencies, the private sector, civil society
organizations, marginalized groups and other stakeholders. To achieve this, the
proponents used a 4-step approach:
1) Studied the international, national and local policies, plans, practices and
programs in disaster risk reduction and climate change that had to be considered
in the creation of the Local Action Plan for Disaster Risk Reduction and
Adaptation (LAP-DRR-CCA) of the Municipality of Cainta;
2) Characterized the natural hazards and climate change impacts, which distressed
the communities in the Municipality of Cainta and their vicinities and which
should be addressed in the LAP-DRR-CCA;
3) Assessed the vulnerabilities of the exposed areas and the capacities of the
communities in the Municipality of Cainta in terms of disaster risk reduction
and climate change adaptation; and
6
4) Recommended programs, projects and activities in the LAP-DRR-CCA that
should be included in the development and investment plans of the Municipality
of Cainta.
Significance of the Study
Disasters happen when natural hazards, such as typhoons and earthquakes, affect
places and communities that are not able to cope with the forces of nature, directly
causing the loss of lives and damages to property. (United Nations International Strategy
for Disaster Reduction, 2008) According to the 2011 World Disaster Report, disasters
from 2001 to 2011 increased five times as there were 7,070 disasters across the
continents, affecting 2.7 billion people, leaving 1.3 million dead. Not surprisingly, ninety
percent of the disasters occurred in the Asia Pacific region, which is susceptible to
earthquakes and weather-related catastrophes, exacerbated by climate change and the high
incidence of poverty in the region.
The Philippines, in particular, is classified as being at ‘extreme risk’ to the impacts
of climate change and weather-related disasters since we ranked 10th
in the world in the
2012 Climate Change Vulnerability Index and the Global Climate Risk Index. Our
country’s average of 19 typhoons will not only increase in quantity, but also in severity.
(International Federation of Red Cross and Red Crescent Societies, 2010) Eighty-five
percent of our Gross Domestic Product (GDP) comes from areas that are experiencing the
increasing frequency and intensity of heat waves, floods, droughts and typhoons. These
7
impacts of climate change affect our productivity in the agricultural and aquatic sectors,
thus creating havoc in our food supply. These changes reduce the availability of water,
making it harder to access clean water. These impacts increase the incidence of climate-
sensitive diseases, exposing our countrymen to a dengue epidemic.
With the overwhelming evidence of climate change and the tragic experiences of
natural disasters, local governments should focus on the translation of global problems
and national concerns into local plans to be implemented by local government units
toward more effective risk governance. If the Philipine government does not come up
with a plan of action that would reduce our risks and vulnerabilities, then more deaths and
losses will occur when natural disasters strike. Strategic planning is a critical first step to
build safer and more disaster-resilient communities through the efficient utilization of
public funds and resources and through the effective implementation of a climate and
disaster risk reduction program. The age-old adage, “He who fails to plan, plans to fail,”
holds true today as it always has.
Scope and Limitation
This Governance Innovation Report, in the form of an Action Plan, was an
analytical study of an existing problem where the proponents provided management
advice and professional support through a plan of action. (Ateneo School of Government,
2011).
In the case of the Municipality of Cainta, the existing problem is two-fold:
8
1) The threats of natural hazards and climate change impacts that distress the
Municipality of Cainta and its vicinity - This study limited itself to the threats
of earthquakes, typhoons and floods and their corresponding impacts.
2) The vulnerabilities of the exposed areas and communities – The researchers
included a Community-Based Disaster Risk Assessment to study the
vulnerability to risks and the capacity of the communities to cope with the
hazards.
The professional support from the proponents was done through the design and
facilitation of a participatory planning process in creating the LAP-DRR-CCA by
conducting seminars, workshops and group discussions for the local stakeholders. The
first draft of the LAP-DRR-CCA, containing the consolidated proposals and
recommendations from the communities in the different barangays, also included
management advice from the proponents which reflected their findings in their study of
international, national and local policies, plans, practices and programs in disaster risk
reduction and climate change adaptation.
The draft of the LAP-DRR-CCA was submitted to local government officials who
are involved in creating the Local Development Plan and the 2013 Annual Investment
Plan (AIP) of the Municipality of Cainta. The inputs from the department heads and
heads-of-office in the local government were used to revise and finalize the LAP-DRR-
CCA.
The final output of this Governance Innovation Report served as the foundations of
the Municipality of Cainta’s Local Climate Change Action Plan and the Local Disaster
9
Risk Reduction and Management Plan, which were both required under the law. The
LAP-DRR-CCA could also serve as a supporting document of the Municipality of Cainta
to be nominated for the Sasakawa Award of the United Nations’ 2010-2015 World
Disaster Reduction Campaign “Making Cities Resilient: My City is Getting Ready.”
The LAP-DRR-CCA was presented to the public on September 26, 2012, as a way
of commemorating the third anniversary of the Ondoy Tragedy.
10
CHAPTER II
REVIEW OF RELATED LITERATURE
This part of the study reviewed the various sources that relate to the objective of
creating an integrated Local Action Plan for Disaster Risk Reduction and Climate Change
Adaptation (LAP-DRR-CCA) for the Municipality of Cainta, in the following areas:
Understanding the natural hazards in the Philippines and in the vicinity of the
Municipality of Cainta;
Recognizing the disaster risks in the Philippines and in the Municipality of Cainta;
and
Describing the legal mandate of the local government.
The Natural Hazards in the Philippines
The first part of this review dealt with research on the natural hazards that affect the
Philippines, with particular emphasis on earthquakes, typhoons and floods. This served as
the background in our characterization of the hazards that distress the country. Here it is
important to note an important distinction, as pointed out by Alcantara Ayala (2002),
between “natural hazards” and “natural disasters.” “Natural hazards” are threatening
events brought about by forces of nature, such as volcanic activity, earthquakes, cyclones,
floods and others. On the other hand, “natural disasters” are tragic incidents that occur
11
when natural hazards have catastrophic consequences on human systems due to their
economic, social, political and cultural vulnerabilities.
Geographically speaking, the
Philippine archipelago has 7,107
islands scattered across 1.3 million
square kilometers of oceanic water
between 116° 40' and 126° 34' East
of Greenwich and 4° 40' and 21° 10'
North of the Equator. It lies on the
southwest of the Pacific Ocean and
off the eastern coast of the Asian
continent and is considered part of
South East Asia with such
neighbors as Vietnam to the east,
Indonesia and Malaysia to the south, and Taiwan in the north. The Philippine archipelago
forms a sovereign nation officially known as the “Republic of the Philippines,” also
called “home” by the 94 million inhabitants.
Alongside the abundant natural resources of the Philippines, there are also natural
hazards that have frequented the tropical islands since the ancient silk trade of the Malay
sailors. Two primary reasons cause these natural hazards: the country is on the western
Figure 1 The Philippines (in red)
Source: http://www.wpmap.org/category/asia-maps/page/2/
12
rim of the Pacific Ring of Fire, a region of active volcanoes and major earthquakes; and
the Philippines in the Pacific typhoon belt which is often struck by tropical cyclones.1
Bankoff (2003) presented a historical account of natural hazards in the Philippines
written by chroniclers from the time of the Spanish colonization to the modern times
describing the high exposure of the Philippines to geophysical hazards including
earthquakes and volcanoes, meteorological hazards, specifically tropical cyclones, and
hydrological events such as floods.
The Philippine Development Plan 2011-2016 (2011) enumerated the natural
hazards experienced by the country including 20 earthquakes per day, 22 active volcanoes
out of 300, and the 20 tropical cyclones that enter the Philippine Area of Responsibility
every year. The frequency of these natural phenomena in the Philippines is relatively
1 From pictures taken above the earth, a tropical cyclone resembles a huge whirlpool of white clouds.
Tropical cyclone is the general term for all storm circulations that originate over tropical waters. It is called
hurricane over the Atlantic Ocean, cyclone over the Indian Ocean and typhoon over the Pacific Ocean.
Tropical cyclone signals: bracing for the wind, Economic Issue of the Day, PIDS, December 2005, Vol.5
No.4
Figure 2 Philippines in the Pacific Typhoon Belt
13
stable, according to Gaillard, et. al. (2005 ). He showed that the annual average number of
tropical cyclones, the number of earthquakes with a magnitude of 6 or higher, and the
incidences of volcanic eruptions remained roughly the same in the 20th
century. As shown
in Figure 3, earthquakes with a magnitude of 6 or higher and volcanic eruptions also
maintained a relatively stable number of occurrences. Also, tropical cyclones that cross
the Philippine Area of Responsibility (PAR) have maintained an average of twenty to
thirty per year, with about fifteen storms that cross the archipelago. However, the threats
of cyclones and the flooding it may bring could possibly get worse for us.
Figure 3 Annual number of serious earthquakes, volcanic eruptions and typhoons between 1900-2002
Philippine Atmospheric, Geophysical & Astronomical Services Administration
(PAGASA) (2005) as cited by Asian Development Bank (2009) noted the increase of 4.2
cyclones in the annual average of the frequency in cyclones entering the Philippine area
14
of responsibility during the period 1990–2003. The Philippines also had recent
experiences with super typhoons. In September 2009, Tropical storm Ketsana, locally
known as “Bagyong Ondoy” dumped 341 millimeters (mm) of rainfall in its first six
hours over land, surpassing the highest 24-hour rainfall of 334 mm in Metro Manila
recorded in 1967. (NASA, 2009) A few days later, Typhoon Pepeng, known
internationally as “Parma,” brought winds of up to 230 kilometer per hour (km/hr) and
rainfall of up to 1,000 mm in some areas. (2009) In August 2012, the weeklong monsoon
rains known as “Habagat” resulted to another flooding disaster that hit the Municipality of
Cainta and placed it under a State of Calamity.
The International Federation of Red Cross and Red Crescent Societies warned that
due to climate change, the Philippines’ average number of typhoons will not only increase
in quantity, but also in severity. (2010)
Senator Loren Legarda (2010), the principal sponsor and author of the Climate
Change Act of 2009 cited a survey in October 2007 by the Nielsen Company and the
Oxford University Institute of Climate Change in where respondents were asked, “How
concerned are you about the following environmental issues? - Climate change / global
warming?” Among the 54 countries surveyed, the Philippines topped the results with a
78% concern rating. Asian Development Bank (2009) discussed the actual and possible
impacts of the observed and expected changes in extreme events and severe climate
anomalies in Southeast Asia. The Manila Observatory (2010) discussed how climate
change would increase the magnitude and frequency of weather hazards in the Philippines
15
caused by sea level rise, increase in average surface temperatures, and more intense
rainfall.
For climate change impacts, DOST-PAGASA (2011) projected seasonal
temperature increase, seasonal rainfall change and frequency of extreme events in 2020
and 2050 under the medium-range emission scenario in Metro Manila and the Province of
Rizal.
Tropical cyclones that enter the Philippine Area of Responsibility are classified and
described by PAGASA as follows:
Tropical Depression - maximum sustained winds is from 45 to 63 kilometers
per hour (kph)
Tropical Storm - maximum sustained winds is from 64 to 117 kph
Typhoon – maximum sustained winds is 118 kph and higher
Gonzales (1994) as cited by Velasco and Cabanilla (2003), gave us an idea of the
characteristics of the tropical cyclones that enter the PAR. Figure 4 shows the Monthly
Average Frequency of Occurrence of Tropical Cyclones in the Philippine Area of
Responsibility, depicting highest occurrences in the months of July, August and
September, with three cyclones per month. October and November have about two per
month and December has one. Cyclones from January to May are rare because this is
considered the dry season. Things start to pick up again in June, which is officially the
start of the cyclone/wet season.
16
Figure 4 Monthly Average Frequency of Occurrence of Tropical Cyclones
These cyclones make landfall in different parts of the country. As Figure 5 shows,
the geographical zones of the country have different frequencies of tropical cyclone
passage. The upper parts of northern Luzon has the most frequent passage of hydrological
hazards with 5 tropical cyclones in 2 years while the Southern, Central and Western
Mindanao regions have the least number of tropical cyclone passage, with an occurrence
of 1 cyclone in 12 years. Our area of interest, the Municipality of Cainta lies in a zone
where there are 5 cyclones in 3 years. Each island group in the Philippines is divided into
regions and two regions were of particular importance to Cainta and to this study: the
National Capital Region and Region VI-A, which covers the Province of Rizal.
17
Figure 5 Frequency of tropical cyclone passage over each geographical zone in the Philippines
18
In addition, Figure 6 illustrates the various paths taken by the tropical cyclones in
the course of a year. It is apparent that the safest months for the Municipality of Cainta
would be the during the summer months starting from January to April.
Related to precipitation would be flooding. Zoleta-Nantes (2000) warned that the
total flood prone area of Metro Manila, including the urbanized towns of Cainta and
Taytay, is up to 103.6 square kilometers, directly affecting hundreds of thousands of
residents in the area. Liongson (2010) discussed the dynamics of the system of river
basins and waterways in Metro Manila and the nearby towns in their capacity to handle
hydrological hazards.
Figure 6 Geographical Zones and Tropical Cyclone Paths
19
On the topic of earthquakes, Figure 7 illustrates the Philippine Fault and other
subsidiary faults and trenches that generate seismic activity in our country, causing an
annual average of 887 earthquakes.
Figure 7 Distributions of Active Faults and Trenches in the Philippines
20
The Municipality of Cainta is exposed to
the earthquake hazards mainly because of the
Marikina Valley Fault System. Koo, et.al.
(2009) reviewed the geological and tectonic
setting for Central Manila and its surrounding
area within 500 kilometers, including Cainta,
and identified the Marikina Valley Fault
system, Philippine Fault and the Manila
Trench, formed by subduction of the Eurasian
Plate under the Philippine Island arc, as the
lead causes of seismic hazards in the National
Capital Region and its nearby towns. And these tectonic factors contributed to the July
16, 1990 Luzon earthquake which had an epicenter magnitude of 7.8 on the Richter Scale,
as discussed by Armillas, et.al. (1990). The Earthquake Impact Reduction Study for
Metropolitan Manila (2004) cited studies of Valley Fault System, which poses the
greatest threat to Metro Manila and its surrounding areas. The West Valley Fault is
approaching its active phases, with estimated magnitudes of around 7 or higher.
Given the above account of the literature about the natural hazards that pose threats
to our country and to the Municipality of Cainta, the next part of this review described the
disaster risks and impacts that these natural hazards pose.
Figure 8 Philippine Natural Hazard Map
21
Disaster Risks and Effects in the Philippines
and in the Municipality of Cainta
A distinction was made earlier between natural hazards and natural disasters,
emphasizing that the natural hazards combined, with the vulnerabilities of human
systems, often result to great catastrophic losses and damages which then constitute the
disaster. In other words, a disaster is defined in terms of how it impacts the populace and
how it disrupts the social, economic, infrastructural, environmental and/or environmental
sectors in the affected area.
But what is a disaster? De Guzman (2003) asserted that a standard universal
definition is yet to be accepted. Neil Britton supported this in the 396-page collection of
articles entitled “What is a Disaster?” (Perry, 2005). But both de Guzman and Britton
cited the Australian Emergency Manual’s definition as worthy of mention, stating that a
disaster is a “serious disruption to community life which threatens or causes death or
injury in community and/or damage to property which is beyond the day-to-day capacity
of prescribed statutory authorities and which requires special mobilization and
organization of resources other than those normally available to those authorities.”
In a similar vein, the Philippine Disaster Risk Reduction and Management Act of
2010 defined disaster as a “serious disruption of the functioning of a community or a
society involving widespread human, material, economic or environmental losses and
impacts, which exceeds the ability of the affected community or society to cope using its
own resources. Disasters are often described as a result of the combination of: the
exposure to a hazard; the conditions of vulnerability that are present; and insufficient
22
capacity or measures to reduce or cope with the potential negative consequences. Disaster
impacts may include loss of life, injury, disease and other negative effects on human,
physical, mental and social well-being, together with damage to property, destruction of
assets, loss of services, social and economic disruption and environmental degradation.”
With these definitions in mind, this review delved into the literature about
disasters in the Philippines and in particular, the Municipality of Cainta.
The Global Climate Risk Index (CRI) measured by Germanwatch analyzed to
what extent countries have been affected by the impacts of weather-related loss events
(storms, floods, heat waves etc.). In the Long-Term Climate Risk Index for the 10-year
period, from 1991 to 2010, the Philippines placed tenth in the world, with an average of
801 deaths and US$660 million in losses and damages per year. It is also worth noting
that among the ten countries most affected, all of them are developing countries. These
countries, including the Philippines, are often the ones least prepared to mitigate the risks
of disasters. (Harmeling, 2011)
Pacheco, et.al (2010), confirmed the impact of storms and floods in the
Philippines, as shown in the table below where typhoons ranked as the worst disaster-
causing hazard, followed by floods. Typhoons and floods also account for the worst
natural disasters in the Philippines, in terms of deaths and damages.
Table 1 Total Damages by Top 5 Recorded Natural Disaster Types in the Philippines (1901-2009)
23
Bankoff (2003) related the pattern of tropical cyclones to the intensity of regularity
of flooding in the Philippines, as cyclones bring 38 percent of the annual average rainfall
in the country, especially between July and November. In addition, 56 percent of all
flooding incidents were caused by typhoons, while the rest were brought about by heavy
rainfall or monsoons.
In Metropolitan Manila, floods affect at least 14 percent of the land area or 86.7
square kilometers, and if the towns of Cainta and Taytay are included, the total flood-
prone area would be 103.6 square kilometers, as noted by Zoleta-Nantes (2000), adding
that the urbanization problems and political challenges were making matters worse.
Ballesteros (2010) provided some staggering statistics on the slum population in the
Philippines, estimating the number of slum dwellers in Metro Manila to be at 37 percent
or 4 million as of 2010, and a third of them living below the poverty line. The slum areas
are scattered across Metro Manila with 43 percent on government lands, 15 percent on
private properties; and 15 percent in danger zones.
The problem has gotten the attention of the Aquino Administration. In fact, the
Philippine government, through the Philippine Information Agency has announced a P38
billion socialized housing program over the next 5 years, with an allocation of P10.55
billion in 2012 for informal settlers, prioritizing those whose homes are at-risk because
they are very near rivers, creeks and other waterways. (2011) Muto (2009) supported this
prioritization, stressing that the poorest among the urban poor are extremely vulnerable
because they do not have enough resources to relocate from danger zones and they find it
hard to cope with the consequences of frequent typhoons or floods.
24
The Annual Report Calendar Year 2010 (Department of Environment and Natural
Resources Region IV-A) stated that Cainta is “no stranger to typhoons and floods.” All of
the seven barangays in Cainta are vulnerable to floods since Cainta is a natural floodplain,
experiencing frequent floods during strong rains. Barangay San Juan in Cainta even
experienced a flood height of 5.0 meters during Typhoon Ondoy.
During the Habagat Disaster in 2012, 80 percent of Cainta was submerged in
rainwater with floods spanning from two feet to a high of ten feet. Six out of seven
barangays were badly affected. Brgy. San Juan and Brgy. San Andres had the most
number of evacuees because of the number of informal settlers in their area.
Due to the geographic low-lying location of Cainta, there are about 14,000 families
whose residences are prone to flooding. But the risk of disasters is greatly increased by
the presence of informal settlements on the banks of rivers and waterways in and around
the Municipality.
An area of concern, in particular, is the Manggahan Floodway. Vicente, et.al.
(2006) estimated that there are 1,153,726 informal settlers along the Manggahan
Floodway that spans the localities of Pasig City, Municipality of Taytay and the
Municipality of Cainta.
25
The Legal Mandate of the Local Government
Local governments have the legal duty to initiate and promote Local Economic
Development policies and programs. Section 14, Article X of the 1987 Constitution in its
declaration of Local Government principles states that “The President shall provide for
regional development councils or other similar bodies composed of local government
officials, regional heads of departments and other government offices, and representatives
from non-governmental organizations within the regions for purposes of administrative
decentralization to strengthen the autonomy of the units therein and to accelerate the
economic and social growth and development of the units in the region.”
In addition, Sections 15 of Republic Act 7160 or the Local Government Code states
“Every local government unit created or recognized under this Code is a body politic and
corporate endowed with powers to be exercised by it in conformity with law. As such, it
shall exercise powers as a political subdivision of the national government and as a
corporate entity representing the inhabitants of its territory.” And Section 16, states that
“Every local government unit shall exercise the powers expressly granted, those
necessarily implied therefrom, as well as powers necessary, appropriate, or incidental for
its efficient and effective governance, and those which are essential to the promotion of
the general welfare. Within their respective territorial jurisdictions, local government
units shall ensure and support, among other things, the preservation and enrichment of
culture, promote health and safety, enhance the right of the people to a balanced ecology,
encourage and support the development of appropriate and self-reliant scientific and
26
technological capabilities, improve public morals, enhance economic prosperity and
social justice, promote full employment among their residents, maintain peace and order,
and preserve the comfort and convenience of their inhabitants.”
27
CHAPTER III
RESEARCH FRAMEWORK
Conceptual Framework
This Governance Innovation Report gave attention to the impacts of climate change
and natural disasters in the Municipality of Cainta. The Intergovernmental Panel on
Climate Change’s (IPCC) “Climate Change 2007: The Physical Science Basis” released
its scientific knowledge on climate change and concluded that extreme weather events are
increasing and regional climate patterns are changing. Heat waves and other weather
extremes, as well as changes in atmospheric circulation patterns, storm tracks and
precipitation, can now be traced back to climate change caused by human activities.
(Intergovernmental Panel on Climate Change, 2007) It was in this context that the United
Nations Framework Convention on Climate Change (UNFCCC) was adopted as basis for
a global response to the evident effects of climate change. The UNFCCC is an overall
framework for intergovernmental efforts to confront climate change challenges in which
the Philippines is a State party, committed to its core principle of common but
differentiated responsibilities. (United Nations Framework Convention on Climate
Change, 2012)
The Bali Action Plan, decided in the Bali Climate Conference (COP 13) of
December 2007, identified adaptation as one of the key building blocks required for a
strengthened future response to climate change. (United Nations Framework Convention
28
on Climate Change, 2012) Consequently, The Delhi Declaration highlighted the
importance of adaptation as a “high priority for all countries”. The National Framework
Strategy on Climate Change (NFSCC) of the Philippines was a result of the call to
prepare a National Adaptation Program of Action by the IPCC and the Bali Conference. It
gave more emphasis and urgency on adaptation to risks in an area due to variable and
extreme climate conditions.
The NFSCC, also known as the "framework", was rooted on IPCC’s knowledge
about climate change’s serious implications on the country’s efforts to address poverty
and sustainable development. This served as the basis for a national program on climate
change and established an agenda through the National Climate Change Action Plan. This
Governance Innovation Report took off from NFSCC’s guiding principles, particularly
(Climate Change Commission, 2010):
Its vision of a climate risk-resilient Philippines with healthy, safe,
prosperous and self-reliant communities, and thriving and productive
ecosystems;
The goal to build the adaptive capacity of communities and optimize
mitigation opportunities towards sustainable development;
Make use of risk-based framework where strategies/activities shall be
formulated, with decisions made based on causes, magnitude and impacts
of risks;
Adaptation measures based on equity, in accordance with common but
differentiated responsibility; special attention must be given to ensure
29
equal and equitable protection of the poor, women, children and other
vulnerable and disadvantaged sectors;
The role of local governments as front-liners in addressing climate change;
and
The value of forming multi-stakeholder participation and partnerships in
climate change initiatives, including partnerships with the private sector,
other government agencies and the civil society, especially with
indigenous peoples and other marginalized groups who are most
vulnerable to climate change impacts.
The said framework created the National Climate Change Action Plan (NCCAP) to
guide the local government units in the preparation of their Local Climate Change Action
Plans (LCCAP). The proponents utilized the NCCAP as template for developing the
Local Action Plan for Disaster Risk Reduction and Climate Change Adaptation (LAP-
DRR-CCA) for the Municipality of Cainta. The framework also recognized a consultative
approach that seeks the consensus of stakeholders and their meaningful participation in
the formulation of the action plan.
In attempting to understand the critical concepts of disaster risk, the proponents of
this study came across several theoretical and conceptual developments that include a
hazard paradigm, a vulnerability paradigm, resilience and extended alternative
adjustments later known as adaptation.
30
Hazard Paradigm
Thirty-five years ago, a trio of scholars, Ben Wisner; Ken Westgate and Phil
O'Keefe, published a paper called “Taking the Naturalness Out of Natural Disasters.”
Their paper laid the foundation for something now widely agreed on - that nature makes
earthquakes, landslides and floods, but humans are responsible for the deaths by failure of
proper planning and putting preventive measures in place. The people most likely to die
during disasters are the poor and the vulnerable. The paper by Wisner et.al. continued to
spark debate worldwide while engineers, geographers, seismologists and academicians
tried to push governments into investing more money in preparing for natural calamities,
arguing that better building standards and policies which are more rigorously enforced
could save thousands of lives; that better education, more economic development and
greater social equity could buffer millions against deprivation and loss. (Radford, 2006)
According to Prof. Wisner and his hazard paradigm, there is no such thing as an innocent
disaster. Disaster results from the clash of two opposing forces: the socio-economic
conditions creating human vulnerability and the natural processes that create geophysical
hazards. As a result, the focus of attention has shifted to the needs of the most
disadvantaged members of society and to the importance of vulnerability assessment and
mapping in disaster risk studies, programs and projects. (Smith, 2004) This theory
became the basis for the proponents of this study to look into concepts that were critical
in performing a hazard assessment by understanding the origin and classification of
hazards as well as the different dimensions that characterize a hazard. Specifically, this
Governance Innovation Report adopted the concept of “hazardscape” that engages the
31
physical susceptibility of the Municipality of Cainta and vulnerability of its people.
Hazardscape also substitutes for the term “natural hazards.”
Pressure and Release Model
Vulnerability comprised the second important element to disaster risk. People
possess different capacities to deal with exposure by means of various strategies of action
(Chambers, 2006). To support this theory, Blaikie et al (2004) developed the Pressure and
Release Model (PAR), which is considered as the most influential thinking around
vulnerability in the disaster risk field. This model explained disaster risks from a macro
perspective and seeks to trace the progression of vulnerability from its root causes shaped
by dynamic pressures that can give rise to unsafe conditions. These three forces are
defined as follows (Schilderinck, 2009):
Root causes (or underlying causes) are a set of well-established, widespread
economic, demographic and political processes within a society that give rise to
vulnerability (and reproduce vulnerability over time) and affect the allocation and
distribution of resources between different groups of people;
Dynamic pressures are the processes and activities that transform the effects of the
root causes into vulnerability and channel the root causes into particular forms of
uncertainty related to hazards such as population growth, rapid urbanization and
deforestation;
Unsafe conditions are the specific forms in which the vulnerability of a population
manifests itself in time in conjunction with the hazard. This may occur through
32
such processes as fragile local economic conditions, lack of disaster planning and
preparedness and a fragile environment.
Figure 9 below summarizes the PAR Model and shows how disasters occur when
unsafe conditions are combined with physical exposure to hazards.
Figure 9 Pressure and Release Model (PAR)
Access to Resource Model and Human Vulnerability Framework
This study also referred to Wisner et. al.’s (2004) Access to Resource model, which
acts as a complement to their PAR model. (Benjamin, 2009) It explained how unsafe
conditions at the household level influence their capacity to cope with disasters. This
model compelled the proponents of this study to look into the level of access to resources
33
of the communities in Cainta and to gauge their capacities to respond to the impacts of
hazards. Resources referred to here could be economic (e.g. income, loans, employment),
related to health or infrastructure (including communications) or be information-based.
Figure 10 below summarizes this model. Box 1 shows the normal life of households,
whose choice of a specific livelihood is limited by the unsafe conditions (box 2) and
influenced by the household’s social relations (box 1a) and surrounding structures of
domination (box 1b). During normal times, households create a form of defense coined as
“social protection” to save their livelihoods from disruptions. Social protection is a
repeating process (expressed as t1, t2, t3 and tn) but can also operate at the public level in
the form of preparedness plans provided by the government or the community. Hazards
(Polygon 3 in Figure 10) have both spatial and temporal dimensions (Polygon 4) that can
often depend on a trigger event (Polygon 5). In Polygon 6, the event hits the households,
having different effects depending on the level of social protection. A low level can turn
the event into a disaster. The impacts of the disaster and the household’s responses to
them are iterative for a period of time (Polygon 7). After this period the households have
the choice of either passively waiting for the next disaster or to strengthen their capacities
and social protection as preparation (Polygon 8).
Improved access to resources is the key mechanism through which households
could improve their livelihoods, make them sustainable, and increase their resilience
against shocks and their capacity to restore their livelihoods after a disaster.
(Schilderinck, 2009)
34
The Access to Resources model shows a clear relation between vulnerability and
livelihoods and serves the same function of resistance as livelihood does in Dr. Mark
Pelling’s Human Vulnerability Framework. Figure 11 below further illustrates Pelling’s
Human Vulnerability Framework.
Figure 10 The Access to Resource Model
35
Since it is critical to acknowledge the importance of resilience in disaster risk, the
proponents factored in resilience in its risk assessment component. This study used the
issues around livelihood and social protection to strengthen its vulnerability assessment.
Capacity assessment, a participatory process, was used to understand how the
communities cope with and survive in times of crisis. Therefore, to generate a balanced
approach to disaster risk assessment, this study required both hazard characterization and
vulnerability and capacity assessment, using the above-mentioned context.
Figure 11 Pelling's Human Vulnerability Framework
36
Barangay / Community-Based Disaster Risk Assessment
Hazard
Characterization/ Assessment
Vulnerability and Capacity Assessment
Local Development Planning
Planning Environment
Social
Economic Environmental
Infrastructure & Land Use
Institutional
Issues/ Vision-Reality Gaps
Sectoral Goals, Objectives and Targets
Sectoral Programs, Projects, Activities
Vision
AIP
Budgeting
Threats of Natural Hazards
Impacts of Climate Change
Theoretical Framework
This Governance Innovation Report was based on the mainstreaming guidelines
framework formulated by the National Economic and Development Authority (NEDA) to
mainstream DRR and CCA in local development plans. The overall theoretical
framework presented below guided the proponents in the conduct of this study:
Figure 12 LAP-DRR-CCA Planning Framework
37
The framework illustrated in Figure 12 involved two processes and described the
steps this study went through in disaster risk assessment and identification of their entry
points in the local development planning process. (National Economic and Development
Authority, 2008) The process started with a community-based disaster risk assessment
(DRA) focusing on hazard characterization, vulnerability and capacity assessment. The
second process looked at how the results of the risk assessment were used to enhance the
aspects of the development planning process: from visioning; profiling; analyzing vision-
reality gap; transforming issues into goals, objectives and targets; and specifying the
appropriate Programs, Projects and Activities (PPAs). The PPAs should exhibit reduction
in risks by increasing resilience or reducing the vulnerability of Cainta. This paper also
highlighted the fact that good governance requires the integration of reducing
vulnerability and risk to natural hazards in order to achieve sustainable development
especially in the Municipality of Cainta. (Siebert, Mollen, & Rosales, 2008)
Operational Framework
This study used a community-based disaster risk assessment that involved a) hazard
characterization, b) vulnerability assessment, and c) capacity assessment. On the other
hand, the entry points in the plan were in the following: a) analysis of the multi-sectoral
planning environment, b) identification of issues and problems, c) formulation of goals,
objectives and targets, and d) identification of programs, projects and activities.
38
This study went through a participatory risk assessment and planning process in
four phases illustrated in Figure 13 discussed in detail in the next chapter.
To realize the adoption of appropriate and adequate countermeasures to prepare for
and reduce disaster risks, a participatory and systematic process was used to identify and
assess the hazards which threaten the community and the communities' vulnerabilities and
capacities at the barangay level. It involved an understanding of how people perceive and
measure disaster risks.
The level of understanding of the community on their natural disaster risks –
hazards, vulnerabilities and capacities –influence their level of resilience and the proper
identification of appropriate and adequate risk reduction measures. (United Nations
International Strategy for Disaster Reduction, 2012) Hence it was important to assess the
Figure 13 Operational Framework for the Creation of Municipality of Cainta's LAP-DRR-CCA
Phase 1
Convened the
Cainta DRR-CCA
Summit
Multi-stakeholder
campaign: 7 barangays
HOAs
Business Sector
Religious Sector
Youth
Academe
CSOs
NGOS
Informal Settlers
PWDs
Phase 2
Conducted
Community-
Based Disaster
Risk Assessment
& Planning
Barangay
Disaster Planning
Workshop
Multi-sectoral
approach
DRA Report
Phase 3
Developed the
Municipality of
Cainta’s LAP-
DRR-CCA
Grassroots
approach
Multi-sectoral
PPAs
2013 Annual
Investment Plan
Phase 4
Building a
Culture of Safety
and Resilience in
Cainta
Presentation of
LAP-DRR-CCA
Multi-stakeholder
(Summit
participants)
Sasakawa Award
39
people’s perception of risk, nature and behavior of hazards, elements at risk and their
survival or coping strategies and what resources they could use in disaster management
activities. This particular phase of the study, illustrated in Figure 14 showed that these
four contribute to the elements of the Municipality of Cainta’s LAP-DRR-CCA,
particularly its programs, plans and actions. This second operational framework also
shows how the components of disaster risk assessment work together to generate data for
a situational analysis needed to come up with community development projects.
INDEPENDENT VARIABLE DEPENDENT VARIABLE
PEOPLE’S PERCEPTION OF
THEIR DISASTER RISK
Socio-economic
status
Culture
Insiders (community
members) and
outsiders
Common understanding
Local knowledge plus
scientific and
technical
information
OTHER COMPONENTS OF
COMMUNITY-BASED
DISASTER RISK
ASSESSMENT
Hazard
Vulnerability
Capacity
DISASTER RESILIENT
MUNICIPALITY OF
CAINTA
No informal settlements
built on flood prone
areas
Inclusive, competent
and accountable local
government
Shared information base
Empowered people
Steps to anticipate and
mitigate disaster (and
climate change) impacts
Able to respond,
implement immediate
recovery strategies and
cope
10-Point Checklist
Figure 14 Operational Framework Toward a Disaster Resilient Municipality of Cainta
40
Operational Definition of Terms
The Local Action Plan referred to in this Governance Innovation Report ensured the
strong focus of DRR and CCA by integrating both into one local action plan. It sought to
incorporate a comprehensive risk-reducing approach in climate change adaptation in the
Municipality of Cainta’s programs, projects and activities and its Annual Investment Plan
(AIP) for 2013.
The definitions in this study were taken mainly from the IPCC (as used in the
Philippine Climate Change Act of 2009) and UNISDR combined with relevant definitions
found in the literature review.
Hazard – a potentially damaging physical event, phenomenon or human activity
that may cause the loss of life or injury, property damage, social and economic disruption
or environmental degradation. (United Nations International Disaster Reduction , 2009) It
can include potential conditions that may represent future threats and can have different
origins. For the purpose of this study, the proponents only focused on natural hazards
specifically earthquake, tropical cyclones/ typhoons, and flood. It can be characterized by
its location, intensity and probability. This study also recognized hazard as the primary
cause of human vulnerability.
Vulnerability – the degree to which a system is susceptible to, and unable to cope
with, adverse effects of climate change, including climate variability and extremes.
Vulnerability is a function of the character, magnitude, and rate of climate change and
variation to which a system is exposed, its sensitivity and its adaptive capacity. (Source:
41
IPCC) The concept of vulnerability is central to disaster risk reduction. All individuals
and communities are to varying degrees vulnerable to hazards and all have capacities to
reduce their vulnerability. There are many dimensions of vulnerabilities according to the
elements at risk – physical, social, economic and environmental. This study worked with
the physical and social dimension of the concept where physical vulnerability refers to
exposure to hazards and includes environmental elements as well as location and
standards of infrastructure while social vulnerability includes the overall organizational
system. This concept when used in the study also covered the mechanisms to address
these vulnerabilities by influencing the community’s capacity to cope with and adapt to
the changing environment.
High Risk Areas/ Danger Zones – areas at risk because they are prone to flooding
and earthquake hazards
Capacity – positive factors that increase the ability of people and the society they
live in to cope effectively with hazards that increase their resilience or that otherwise
reduce the susceptibility of a community to the impacts of hazards. (United Nations
International Disaster Reduction , 2009)
Coping Capacity – the means by which people or organizations use available
resources and abilities to face adverse consequences that could lead to a disaster. (United
Nations International Disaster Reduction , 2009) The strengthening of coping capacities
usually builds resilience to withstand the effects of natural hazards.
Resilience - this is the capacity of a system, community or society to resist or to
change in order that it may obtain an acceptable level in functioning and structure. This is
42
determined by the degree to which the social system is capable of organizing itself, and
the ability to increase its capacity for learning and adaptation, including the capacity to
recover from a disaster. (United Nations Development Program, 2006) According to
Pelling’s (2003) framework discussed previously, resilience is the ability of people to
cope with or adapt to hazard as the effect of planned preparation undertaken or
adjustments made.
Risk – the probability of harmful consequences, or expected loss of lives, people
injured, property, livelihoods, economic activity disrupted (or environment damaged)
resulting from interactions between natural or human induced hazards and vulnerable
conditions. (United Nations International Disaster Reduction , 2009) This definition
comprises both the biophysical hazard and vulnerability and was used in this study as it
assessed the impacts and identified and reduced the vulnerabilities as a result of climate
change. Climate-related risks come not only from direct exposure to natural hazards such
as floods, but also from the vulnerability of social and economic systems to the effects of
these hazards. Responses to these risks should combine two approaches: short-term
measures to react to hazards when they occur; and structural reforms that enhance the
capacities of communities to adapt. This study covered both aspects in coming up with a
comprehensive LAP-DRR-CCA for the Municipality of Cainta.
Disaster – a serious disruption of the functioning of a community or a society
causing widespread human, material, economic or environmental losses which exceed the
ability of the affected community or society to cope using its own resources. (United
Nations International Disaster Reduction , 2009) A disaster results from the combination
43
of hazards, vulnerable conditions and insufficient capacity or measures to reduce the
potential negative consequences of risk. Simply put, a disaster cannot occur if only a
hazard exists but there is no vulnerable population or vice versa (Wisner, Blaikie,
Cannon, & Davis, 2003). Thus, disaster involves the extent and types of vulnerability
produced by people’s situations and the manner by which society deals with hazard in
terms of mitigation and preparedness. (Cannon, 1994) In the case of Cainta, the onslaught
of Ondoy brought serious disruptions of the functioning of the entire municipality
involving human, material, economic and environmental losses and impacts, which
exceeded the ability of the local government to cope using its own resources. (United
Nations International Disaster Reduction , 2009)
Risk Assessment – as stated in the operational framework, risk assessment was
carried out to identify which hazards are more likely to occur and to have the biggest
impact to the community or individual resources. It has two distinct components: Hazard
assessment; and Vulnerability and Capacity assessment.
Risk Management – the systematic management of administrative decisions,
organizations, operational skills and responsibilities to apply policies, strategies and
practices for disaster risk reduction. (United Nations Development Program, 2006)
Disaster Risk - Risk to human populations is determined by the frequency of a
hazard event, its intensity and people’s vulnerability (O’Brien et al, 2006). Risk to a
disaster or “disaster risk” therefore refers to the probability of harmful consequences, or
expected losses (such as deaths, physical injuries, property damages, livelihoods and
economic activity disruption, or environment damaged) resulting from the interaction
44
between natural or human-induced hazards with the physical, environmental, social and
economical vulnerabilities of society (UNISDR, 2004 and 2005).
Disaster Risk Reduction – the systematic development and application of policies,
strategies and practices to minimize vulnerabilities and disaster risks throughout a society,
to avoid (prevention) or to limit (mitigation and preparedness) adverse impact of hazards,
within the broad context of sustainable development. (United Nations International
Disaster Reduction , 2009) It speaks of adjustments in describing a planned preparation
as a result of being resilient.
Prevention – activities to provide outright avoidance of the adverse impact of
hazards and related environmental, technological and biological disasters. (United
Nations Development Program, 2006)
Mitigation – this term refers to the measures aimed at minimizing the frequency,
scale, intensity and impact of a natural or man-made disaster on a nation or community in
terms of casualties and damages. It also referred to measures designed to prevent natural
phenomena from causing disasters or emergencies. (United Nations Development
Program, 2006) In simple terms, it means “to make less severe”.
Preparedness – this refers to pre-disaster actions and measures being undertaken in
advance to avoid or minimize loss of life and property. Measures may include community
organizing, training, planning, hazard mapping and public information and effective early
warning. (United Nations Development Program, 2006) In general, it is strengthening the
capacity of communities to withstand, respond to and recover from hazards, and of
45
government and implementing partners to establish speedy and appropriate interventions
when the communities’ capacities are overwhelmed.
Climate Change – The Philippine Climate Change Act referred to this as a change
in climate that can be identified by changes in the mean and/or variability of its properties
and that persists for an extended period, typically decades or longer, whether due to
natural variability or as a result of human activity.
Adaptation – IPCC defined adaptation as a response to (potential) environmental
stimuli that affect given entities, subjects or systems. Climate change adaptation (CCA) is
an adjustment in natural or human systems, which occurs in response to actual or
expected climatic changes or their effects. The term “adaptation” was used in this study
more than “coping,” for the latter connotes the “helpless victims” of disaster that are in
desperate need of outside relief assistance. This study moved out of the way disaster
victims in developing countries are seen and veer to a more proactive term: adaptation
which refers to the vulnerable people’s way of finding themselves in everyday disaster
situations that require them to learn to live with the situation and adjust their lifestyles
accordingly. Adaptation and DRR have similar aims – to build people’s resilience in the
face of hazards. There are also important differences to note; DRR includes non-climatic
disasters such as earthquakes, and adaptation addresses the longer-term impacts of
climate change, such as the loss of biodiversity. (Institute of Development Studies, 2008)
Mainstreaming – This refers to the integration of disaster risk reduction policies
and measures that address climate change into local development planning and sectoral
decision-making. This study noted that climate change is inevitable therefore it is
46
important for flood prone areas like Cainta to anticipate, reduce and manage disaster risks
by integrating reduction measures into sustainable development planning. The conceptual
framework in Figure 12 took off from the standard local planning process, mainstreaming
DRR and CCA in the various programs, plans and action. Hence DRR and CCA become
part of the day-to-day business of the local government of Cainta and its stakeholders.
Liquefaction –a phenomenon that pertains to the behavior of a soil’s reaction to
stressors causing it to behave like a liquid. This study referred to earthquake liquefaction
as a probable hazard applicable to the Municipality of Cainta. Earthquake liquefaction
used in this GIR refers to land instability or the cracking and movement of the ground
down slope or towards margins of river, streams or coast. (Wikimedia Foundation, Inc. ,
2013)
47
CHAPTER IV
RESEARCH METHODOLOGY
The creation of Cainta’s LAP-DRR-CCA used a participatory process, wherein the
local government worked together with key stakeholders in assessing the risks and in
planning for programs, resulting in resilient and safe communities for the constituents.
Partnership arrangements, in written form, were made between the public and the private
stakeholders, enabling the cooperation of concerned parties from the initial planning
stages to the implementation of the plans, and even to the evaluation.
Research Design
This Governance Innovation Report entailed the creation of the Municipality of
Cainta’s Local Action Plan for Disaster Risk Reduction and Climate Change Adaptation
(LAP-DRR-CCA). Throughout the process of creating the LAP-DRR-CCA, the
proponents provided management advice and professional support in guiding the local
government officials and key stakeholders in a participatory planning process using the
LAP-DRR-CCA Planning Framework (Figure 12), adapted from NEDA’s Mainstreaming
DRR Guidelines Framework.
The original timeframe meant for the phases to be done sequentially. However,
unintended and unforeseen events such as the Habagat Disaster in August 2012
48
compelled the proponents to carry out the phases simultaneously. The concurrent
activities and milestones were done to keep up with the backlog caused by the Habagat
disaster, with the purpose of achieving this study's overriding goal of including the LAP
for DRR and CCA in the Municipality of Cainta's CY 2013 budget hearing.
Table 2 GIR Timetable
FEB MAR APR MAY JUN JUL AUG SEPT OCT NOV CONCEPTUALIZATION
PHASE PHASE 1 PHASE 3
PRELIMINARY DATA
GATHERING PHASE 2 PHASE 4
APR MAY JUN JUL AUG SEPT OCT NOV
Figure 15 Milestones and Activities Timeline
GIR
Proposal
(Apr 14)
DRR-CCA
Summit
(Jun 24)
CBDRRM
Orientation
(May17)
Presentation of
LAP-DRR-CCA
(Sep 26)
BDRRM
Orientation
(Jul 26-27)
Budget
Hearing
(Sep 27-28)
Community
Survey
(May 22-31)
CBDRRM
Seminar
(Jun 13-14)
RESILIENCE
Workshop
(May 7-11)
BDRRM
Planning
(Jul 30-Aug27)
LAP
Consolidation
(Aug 27-Sep 19)
Plan
Refinement
MDRRMC
Review
49
Phase 1: Cainta DRR-CCA Summit and Data Gathering
Following the format of the Flood Summit organized in 2010, the local government
of Cainta launched a multi-sectoral campaign for disaster resiliency through the Cainta
DRR CCA Summit by inviting the officers and members of the seven barangays, the
homeowners associations, the business sector, the youth, the academic community and
people’s organizations including the non-government organizations, civil society
organizations and the religious sector. The Summit laid the groundwork for the
participatory process in the LAP-DRR-CCA. With the leadership of the local chief
executive, one of the proponents of this study, the DRR-CCA Summit became a venue for
effective communication and constituency building by involving local stakeholders as
early as possible to ensure their support and commitment in the succeeding phases of the
study.
Using the research undertaken by the proponents in rethsponse to the first objective
of this study, a presentation of the institutional and legal framework of DRR and CCA
was presented in the summit to help explain the rationale and the significance of the
creation of the LAP-DRR-CCA.
Other objectives of the summit included the establishment of baseline data and the
identification of the communities and areas, which have the need for a Disaster Risk
Assessment in Phase 2.
The Summit was held on June 24, 2012 at the Entertainment Center Phase II of Sta.
Lucia East Grand Mall in Cainta. More than 300 participants attended the event, broken
down into the following sectors:
50
Table 3 Sectoral Representation of DRR CCA Summit
SECTOR NUMBER OF PARTICIPANTS
Academe 42
Private 26
Informal Settler 22
Homeowners’ Association 51
LGU, Barangay 45
NGO 34
CSO 28
Persons with Disabilities 6
Youth 31
Religious 22
Media 5
TOTAL: 312
In the Summit Overview provided by Ms. Cecil Benavidez from the Asian Research
Center for Climate Change, it was mentioned that the summit intended to increase the
level of preparedness of the people when typhoon strikes and to lower its impact. The
summit urged the participants to do their share and not just rely on the local government
to deal with the hazards and disasters brought about by the change in climate. The speaker
called on the participants to join in the preparation to respond better to climate change.
(See Appendix 1 for PowerPoint presentation)
Mr. Rizalino Timbol, OIC-Municipal Administrator, delivered the welcome address
and his key message was to together toward making Cainta a disaster resilient
community.
The next part of the summit set the perspective of the summit through technical
presentations by experts from the government. It started by localizing DRRM, presented
by Director Vicente Tomazar, Regional Director - Office of Civil Defense Region IV-A.
His presentation differentiated hazards from disasters and enumerated their respective
effect on people's lives. He said that in terms of safety, everyone was responsible for their
51
own safety and in order to minimize the effect and damage of disasters, preparedness
plans must be in place at the soonest possible time. The plans, he said, must be
community-driven and centered on hazards. Since problems were identified per
community, solutions must also be unique to the communities. It is vital to know the
available resources before planning.
After presenting the technical definitions and descriptions of disasters, hazards and
climate change effects, they were brought down to the local setting of natural and human-
induced disasters focusing only on three: typhoons, floods and earthquakes. Director
Renato Solidum of Phivolcs emphasized the risk reduction measures that need to be
followed:
Surveillance
Safe location
Safe construction
Safe workplace, school
Safe individual, family
Simulate possible responses
Save the environment
The summit also laid the ground for the urgency of establishing DRRM and CCA
plans for Cainta. Director Josefina Castilla-Go, Regional Director - DILG IV-A, gave the
facts and figures of the damages caused by disasters in Cainta, which she said were
compelling reasons for the creation of the plans and programs for action. There is enough
mandate or advisory that serve as basis for the creation and integration of a local action
52
plan in DRR and CCA. Mainstreaming DRRM and CCA in the local development
process would allow Cainta to be proactive and not only act when there is calamity. For
this to happen, the local development plan of Cainta must be updated to incorporate the
respective DRRM plans and CCA measures. In line with this is the strengthening of the
capacity of the LDRRM office and personnel to be equipped in disaster management and
for the communities in Cainta to be ready at all times. The speaker urged all sectors to do
more than belong and participate and always work under the spirit of solidarity and
teamwork.
Mayor Ramon Ilagan, one of the proponents of this study, ended the summit by
emphasizing that everyone should face the threats of disasters and the impacts of climate
change by being prepared and ready. He said that everyone is part of the solution and that
the solution should start from each one of us.
In summary, the summit was able to achieve the following results:
1) enhanced the culture of gender-sensitivity and disaster preparedness among all
sector participants as basis for adopting measures and establishing strong
mechanisms required for effective response and early recovery.
2) promoted understanding on various aspects of DRR and CCA from
prevention/ mitigation, preparedness, response to recovery and rehabilitation.
3) determined and defined sectors' respective tasks and their contributions to
disaster preparedness efforts of the LGU.
4) prepared a Sectoral Emergency and Adaptation Plan of Action
53
Phase 2: Community-Based Disaster Risk Assessment
Using the United Nations Development Programme’s “Integrating Disaster Risk
Management in Local Governance: A Facilitator’s Guide and a Sourcebook for Barangay
Disaster Risk Management Training Workshop”, the proponents assisted the local
government in conducting community-based disaster risk assessment and planning focus
group discussions in all the seven barangays of Cainta.
Through the "Cash for Work" program of the Municipal Social Welfare and
Development (MSWD) headed by Ms. Leonor de Guzman, the proponents of this study
worked with Mr. Angelo Apostol of the Cainta Municipal Disaster Risk Reduction and
Management Office (CMDRRMO) to train ninety (90) community leaders from high-risk
areas particularly of Barangay San Andres to conduct a community survey. The activity
deemed as CBDRRM Orientation held last May 17, 2012 at the PFCI Session Hall, East
Bank Floodway, Barangay San Andres, included discussions and presentations on the
following:
Basic information on DRR and the salient provision of RA 10121 useful in
the development of community disaster risk reduction plans;
Fundamental approaches, principles and processes of DRR;
Leveling-off and establishing common understanding on DRR; and
Reviewing and analyzing the survey by area.
The Community Survey used a capture data form, which enabled the community
leaders to gather necessary information on the vulnerability level and get baseline data on
the communities' hazard and risk assessment. Data gathering commenced on May 22,
54
2012. On June 13-14, 2012, a 2-day CBDRRM Seminar was conducted to discuss the
community leaders' actual survey experience and to understand the result of the
information collected. The seminar also included the following:
Practical Tips on "What to do in times of disasters and calamities";
Workshop on "Home and Community Disaster Survival";
Workshop on Earthquake and Fire Drill - How To's; and
Community-based Flood Early Warning Systems (CBFEWS)
Phase 3: Municipality of Cainta's LAP-DRR-CCA
On May 7 - 11, 2012, officers and representatives from Cainta attended a workshop
on Local Disaster Risk Reduction And Management Plan (LDRRMP) sponsored by the
Canadian International Development Agency (CIDA) and United Nations Development
Program (UNDP) in partnership with the NDRRMC as part of Building Community
Resilience and Strengthening Local Government Capacities for Recovery and Disaster
Risk Management or RESILIENCE Project. This 5-day workshop was conducted to help
LGUs formulate or update their local DRRM Plan that served as a road map on how to
implement gender-responsive DRRM initiative and to align with the National DRRM
Framework and National DRRM Plan. The workshop was specifically designed to assist
the cities of Pasig and Marikina and the Municipality of Cainta in creating their respective
DRRM Plans. Cainta spent the whole month of May 2012 to formulate their draft DRRM
action plan termed as the Local Disaster Risk Reduction and Management Plan
(LDRRMP) of Cainta.
55
SUMMARY
On July 26-27, the proponents joined a Barangay Disaster Risk Reduction
Management Planning Workshop (BDRRMPW) for the seven barangays in the
Municipality of Cainta led by the CMDRRMO. This 2-day planning workshop held at
Sierra Madre Resort in Tanay, Rizal was done to strengthen the Local Disaster Risk
Reduction System of the local government and as technical assistance to its barangays to
be DRR-compliant Barangays. This planning workshop was as a product of the mentoring
process by the Cainta Municipal DRRM Office, in coordination with the DILG-MLGOO,
L ocal D isaster R isk R eduction & M anagement P lan of Cainta (2013-2017)
PRODUCT OF A CONCERTED
PLANNING
Represented by almost all Departments and local functionaries
Represented by various local partners (DepEd, BFP, Local Police, BJMP, Women, Youth Sector
Done in Subic under the Resilience Project on May 7-11, 2012
4 THEMATIC AREAS OF DISASTER
3. Response
4. Recovery & Rehabilitation
1. Prevention & Mitigation
Basis of Planning
LDRRMP FORMULATION FRAMEWORK
Basis of planning
Figure 16 Drafting the LDRRMP of the Municipality of Cainta
2. Preparedness
56
in order to assist each barangay in its formulating its own Barangay Disaster Risk
Reduction and Management Plan.
Specifically, the planning workshop helped the seven Barangays in the development
and formulation of policies and plans as well as implement actions and measures that
concern various aspects of DRRM, risk assessment, awareness raising, reduction of
underlying risk factors and preparedness for effective response and early recovery. Each
Barangay sent their respective BDRRMC members including duly recognized NGOs and
produced the following outputs or outcomes:
1) A common understanding on DRR as input to the BDRRM plans and
programs;
2) Increased knowledge on first hand response in times of disasters and
calamities;
3) Increased understanding on resource allocation and mobilization for DRR
specifically finding budget and means to disburse at the barangay level the
Disasater Risk Reduction Management Fund (DRRMF); and
4) Barangay Disaster Risk Reduction and Management Plan (BDRRMP) for
2013.
Using a grassroots approach to disaster resilience planning, the proponents collected
and analyzed the outputs and recommendations formulated by the various communities
during Phase 2 and the BDRRMP. Similar to the planning process in the communities, the
proponents worked with local government officials to create a multi-sectoral LAP-DRR-
57
CCA for the Municipality of Cainta taking off from the draft LDRRM Plan. In order for
the recommended Programs, Projects and Activities (PPAs) of the LAP-DRR-CCA to be
implemented, the PPAs were included in the 2013 Annual Investment Plan (AIP) of the
Municipality of Cainta, through the leadership of the local chief executive.
Phase 4: A Culture of Safety and Resilience in Cainta
The participatory planning process came full circle in this phase as the local
government invited the participants of the DRR CCA Summit to a forum where the LAP-
DRR-CCA was presented to them. More than 200 participants and guests attended the
forum held on September 26, 2012 at the People's Center at the Municipal Compound that
marked the third anniversary of Supertyphoon Ondoy. This activity served as a reminder
to the people of Cainta of the threats of natural disasters and the impacts of climate
change. The occasion was also used to rally support for the Municipality of Cainta’s
nomination to the Sasakawa Award of United Nations’ 2010-2015 World Disaster
Reduction Campaign “Making Cities Resilient: My City is Getting Ready.”
58
Locale of the Study
Geographic Location and Population
The first-class urban Municipality of Cainta in the Province of Rizal, known as the
“Gateway to the East,” is the most populous municipality in the Philippines2, with a
population of 289,833 on a land area of 4,299 hectares (26.81 sq km). With a population
density of 11,810.63 people per sq km, highest in the province of Rizal, the municipality
experiences rapid (high) urbanization that results to an expansion of informal settlers who
are more exposed to hazards and disasters brought by living in unsafe sites (i.e. flood
prone areas). An integration of DRR with CCA therefore becomes key to sustainable
development in Cainta and in attaining their vision of striving to be a prosperous,
progressive and habitable city of responsible residents.
Cainta is bounded on the north by Marikina City and San Mateo, on the west by
Pasig City, and on the east and south by Taytay. It lies in the Marikina Valley, with 10
percent rolling hills and 90 percent residential-industrial flatlands.
2 Official population data (as of Aug 1, 2007) show that Bacoor, Cavite which is now a city used to be the
most populous municipality in the Philippines. Cainta’s aspiration to also become a city has been endorsed
by the League of Cities of the Philippines, based on the requirements set by the Constitution and the Local
Government Code. (Pasaylo, 2011)
59
There are seven barangays in the Municipality of Cainta and according to the 2007
Philippine Census Information; they have the following population figures:
Table 4 Population per Barangay
BARANGAYS POPULATION
San Andres 100,147
San Isidro 47,393
San Juan 87,015
San Roque 7,802
Santa Rosa 1,589
Santo Niño 6,609
Santo Domingo 39,278
Figure 17 Geographic Location of Cainta
60
Political Subdivision
Barangay San Isidro has the largest
land area and is the third most populous
barangay in Cainta. It is situated in the
northern part bounded by the City of
Antipolo in the east, Marikina City in the
north, and Pasig City in the south.
Barangay Sto. Domingo is the second
largest barangay in terms of land area. It is
bounded by Barangays San Isidro in the
north, San Andres in the south, and portions
of Barangays Sto. Niño and Sta. Rosa in the
east.
Barangay San Juan is located at the eastern side of Cainta. It is separated from
Barangays Sto. Niño, San Andres and San Roque by the Cainta River. Barangay San
Andres, the most populous barangay, is also located at the eastern side of the
Municipality and bounded by Barangays Sto. Domingo in the north, Barangay San Juan
in the east and Pasig City in the south. Barangay San Roque is the least populous
barangay.
Barangay Sto. Niño is the second smallest Barangay with a land area of 41.14
hectares while Barangay Sta. Rosa is the smallest with a land area of only 2.77 hectares.
Figure 18 Seven Barangays of Cainta
61
Table 5 Land Areas of the Seven Barangays
BARANGAY AREA
(IN HECTARES)
Barangay San Andres 322.96
Barangay San Isidro** 2,158.90
Barangay San Juan** 675.5
Barangay San Roque 66.96
Barangay Sta. Rosa 2.77
Barangay Sto. Niño 41.14
Barangay Sto. Domingo** 1,021.29
Total 4,289.52
** areas where disputed territories are located
Source: Municipal Assessor’s Office
Rivers and Waterways
Cainta has the highest number of rivers and streams in the Province of Rizal. It is
traversed by five rivers: Cainta River (20 kilometers long), Taytay River, Buli River,
Bulao Rive and Samberga River and three creeks: Balanti Creek, Habangan Creek and
Palilingonan Creek, which all drain into the Laguna Lake.
As is evident in the river network map in Figure 19, Cainta is a natural flood-plain
since it is a low-lying area that becomes the “catch basin” of rainwater from the
mountains of Antipolo. But with the worsening state of the waterways and rivers,
combined with the urbanization problems and the impacts of climate change, the flooding
in Cainta has become a grave concern for the local government.
62
The experiences with Super Typhoon Ondoy brought many lessons to the people of
Cainta, especially the local government. Since then, the development of flooding
mitigation strategies for Cainta has been a top priority for the municipality. A 1.2
kilometer drainage interceptor in a low-lying area in Barangay San Andres was recently
constructed. Continuous dredging and desilting of major waterways such as the Cainta
River and nearby creeks and tributaries have also been ongoing simultaneously with
sewer rehabilitation and riprap construction.
Figure 19 Cainta River Network Map
63
Soil and Topography
Cainta used to be an agricultural land but due to the increase in population and rapid
urbanization, the need for residential, commercial and industrial land eventually reduced
the agricultural activities and eventually gave way to commercial, residential and
industrial establishments.
Cainta's topography is generally level to nearly level (62%) with few sloping areas.
A detailed slope category is indicated in the table below:
Table 6 Slope Category
SLOPE
CATEGORY
(%)
AREA
(HECTARES)
PERCENTAGE
(TOTAL LAND AREA
OF CAINTA)
DESCRIPTION
0 - 2.5 2,660.80 62% Level to nearly level
2.6 - 5 368.28 9% Very gently sloping
5.1 - 10 1,049.59 24% Gently sloping
10.1 - 15 105.89 2% Moderately sloping
18 - 25 115.09 3% Strongly sloping
Major Fault System
Cainta is crossed by the south - southeast trending Binangonan Fault otherwise
known as the East Marikina Valley Fault, which roughly represents the boundary between
Cainta's lowland and its hills.
64
Figure 20 Ground Shaking Map
Public Funds for Public Services
Effective fiscal management has direct impacts on the budgetary allocations of the
services provided to the public, especially in today’s decentralized government structure
where local government units are tasked to promote the general welfare and provide the
basic services and facilities for the people. To ensure that the people’s needs are
addressed and the municipality’s priority programs have sufficient funds, getting Cainta’s
financial house in order was a priority for Mayor Ilagan.
65
The Municipality of Cainta has doubled its annual revenues from PhP331 million
when Mayor Ilagan started in 2004, to PhP673 million in 2011. With the help of the
Municipal Treasurer, Mr. Ed Villanueva, who is now the treasurer of Quezon City, and
the budget head, Ms. Privada Gonzales, Cainta has consistently improved its financial
condition and performance. Table 7 below gives a glimpse of how the Municipality of
Cainta has consistently met its target income and increased its annual revenues. The
revenues are channeled directly into public services that meet the municipality’s needs.
Table 7 Target Income and Annual Revenues (2004-2011)
YEAR
TARGET
INCOME
ACTUAL
INCOME % INCREASE
ACTUAL
EXPENSES
2004 340,000,000 331,125,023.15 209,449,921.92
2005 405,000,000 399,598,162.77 20.68% 301,445,151.80
2006 450,000,000 422,325,300.13 5.69% 344,434,548.20
2007 450,000,000 476,327,566.15 12.79% 415,211,956.03
2008 480,000,000 498,854,846.52 4.73% 420,184,786.27
2009 550,000,000 563,395,321.97 12.94% 484,840,719.33
2010 600,000,000 624,623,594.56 10.87% 508,432,292.56
2011 650,000,000 673,321,327.33 7.80% 550,882,421.24
In addition, almost half of business taxes amounting to PhP474 million collected in
2010 from the municipalities by the Provincial Government of Rizal came from Cainta
with a contribution of PhP206 million. Cainta, despite being the locality with the smallest
land area of about 43 square kilometers, is also the biggest municipal contributor to the
province’s real property taxes.
The good financial standing of the Municipality of Cainta is reflected in the
“Commission on Audit’s 2009 Annual Financial Report for Local Governments,” as
detailed in the figure below:
66
With equity or net assets of P1.464 billion and a gross income of P627 million, the
Municipality of Cainta is considered as one of the richest municipalities in the country.
The graph in Figure 21 charts the equities (net assets) and gross incomes of the top ten
wealthiest municipalities in the Philippines.
Having sufficient funds meant that the LGU of Cainta is in a position to allocate
budgetary resources to serve the people. As Gov. Joey Salceda of the Province of Albay
once said, “Budget is the best articulation of public policy and instrument for its
execution.” The power of the coffers should be utilized with good judgment, in
accordance with the local government’s priority projects. The chart in Figure 22 shows
Cainta's latest expenditure program.
Table 8 Commission on Audit's 2009 Annual Financial Report for Rizal
67
General Public Services
45%
Health and Nutrition Program
15%
Social Welfare Services
22%
Economic Services
5%
Reserve for Calamity
5%
Development Projects
8%
EXPENDITURE PROGRAM (DISTRIBUTION BY SECTOR) 2011 BUDGET YEAR
General Public Services Health and Nutrition Program Social Welfare Services Economic Services Reserve for Calamity Development Projects
Figure 21 Wealthiest Municipalities in the Philippines (2009 COA Report)
Figure 22 Expenditure Program (Distribution by Sector) 2011 Budget Year
68
Figure 23 below shows the increasing allocations provided by the local government
for the various sectors:
Local Economic Development
Cainta has a competitive advantage in attracting investors and residents because of
its proximity to Metro Manila. It is like getting all the benefits of being in the metropolis
but paying for them at provincial rates. Cainta has adequate access to transportation and
communication technologies and public utilities such as electricity from Meralco and
water from Manila Water. The authorities are currently studying the Light Rail Transit
(LRT) Line 2 Extension (East/West) Project. The extension along Marcos Highway will
0.00
50,000,000.00
100,000,000.00
150,000,000.00
200,000,000.00
250,000,000.00
300,000,000.00
General PublicServices
Health andNutrition
Program
Social WelfareServices
EconomicServices
Reserve Fundfor Calamity
MunicipalDevelopment
Fund
2009 240,974,861.43 82,860,357.14 126,861,572.97 31,979,971.26 27,500,000.00 39,823,237.20
2010 274,241,996.60 83,058,196.00 136,862,705.00 27,248,586.00 30,000,000.00 48,588,516.40
2011 288,849,263.40 98,024,297.00 145,203,658.00 33,393,316.00 32,500,000.00 52,029,465.60
EXPENDITURE PROGRAM BY SECTOR COMPARATIVE TREND, 2009 TO 2011
2009 2010 2011
Figure 23 Expenditure Program by Sector Comparative Trend, 2009-2011
69
go from the existing Santolan Station to the Masinag Junction in Antipolo City, with an
Emerald Station in between, fronting Robinson’s Place Metro East in Cainta.
Cainta also aims to be the Information Technology and Business Process
Outsourcing (BPO) Hub of Rizal. According to IBM’s latest Global Locations Trend
Annual Report, the Philippines is now the number one Business Process Outsourcing
country in the world. And this industry is certainly getting bigger and stronger. It provides
not just good paying jobs, but also high-tech training to its employees. At the moment,
Cainta is home to Teletech, the Outstanding Employer of the Year for three consecutive
years since 2008 and the newest member of the Philippine Economic Zone Authority
(PEZA) Hall of Fame.
Alternative livelihood programs to generate employment in the community are also
being promoted. With the help of the women’s organization, Bangon Kababaihan Bagong
Cainta, the local government implemented the Water Lily for L.I.F.E. project, which is
supported by the Department of Trade and Industry (DTI) and Meralco Foundation, Inc.
With a budget of almost PhP700 million, the local government of Cainta is certainly
one of the biggest employers and the biggest spender in town. The local government
provides support to local businesses by patronizing their goods and services. Another kind
of affirmative action policy that is good for employment generation is that local
businesses are required to prioritize local residents in their job placements.
Another way to help businesses in the municipality is to follow the lead of Thailand
and Japan’s “One Town, One Product” (OTOP) project. It is a good way to “support
micro, small, and medium enterprises (MSMEs) to manufacture, offer, and market
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distinctive products or services through the use of indigenous raw materials and local
skills and talents.” (Department of Trade and Industry, 2008) The local government of
Cainta should take the lead in choosing and promoting a product or service that is viable
and profitable for the residents of the municipality. Cainta should be proud of its rich
heritage in making native delicacies called “kakanin” or “bibingka.” They should reclaim
the title, Bibingka Capital of the Philippines. It is common knowledge among Cainteños
that their bibingka is a localized version of the Indian/Goan dessert, “bebinca.” The
Indian Sepoys who came with the British forces that occupied Manila in the 18th Century
brought this dessert. Some of the Sepoys stayed behind after the short British occupation
of Manila and settled in Barrio Dayap in Cainta.
Aside from these areas for enterprise promotion, the local government of Cainta
already has a microfinancing project for small to medium enterprises. Through the
“Tulong Puhunan for Native Small Business Enterprises”, institutionalized by the
Sangguniang Bayan in 2005, the municipality allocated a revolving fund of PhP2.4
million to help qualified entrepreneurs to avail of loans with zero interest for livelihood
development and enhancement. Since its inception, “Tulong Puhunan” has released funds
amounting to PhP2.7 million pesos to cooperatives, worker associations, women’s
groups, and other indigenous groups.
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Data Collection Methods and Analysis
In laying the foundations of this study, a literature review was necessary. The
literature review was important for the proponents to have a foundation on the theories
and practices in DRR and CCA. The proponents utilized Internet technologies and library
resources to gain access to publications and materials from organizations such as the UN
International Strategy for Disaster Reduction (ISDR), the World Bank and national
agencies such as the Climate Change Commission and NDRRMC.
After gathering relevant literature, the proponents extracted information that helped
in the creation of Cainta’s LAP-DRR-CCA, especially in terms of research design and
implementation. The technical aspects of the Cainta DRR-CCA Summit included the
relevant policy frameworks at the international and national levels that affect the
Municipality. In addition, knowledge of the best practices in other localities drawn from
the researchers’ review of case studies was useful in writing the first draft of the LAP-
DRR-CCA.
Primary sources of data were also crucial forms of inputs from the key stakeholders.
Interviews
As an in-depth understanding of the plans and programs that are in place to address
Disaster Risk Reduction and Management and Climate Change Adaptation in Cainta, the
proponents interviewed Mr. Angelo Apostol, Head of the Cainta Municipal Disaster Risk
Reduction Management Office (CMDRRMO). As the local chief executive of Cainta for
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nine years, Mayor Ilagan was also a vital primary source of data. This is one of the most
important aspects of the data collection process of this study. Interviews are excellent
tools for understanding the complex dynamics of people and events in times of disasters
because of the depth of information that can be accessed from personal interviews.
(Wamsler, 2007) Interviews were also conducted at the barangay level since the barangay
officials and personnel are usually at the frontlines of disaster management operations.
Department Heads of MENRO, MSWD and Engineering, along with long-time3 residents
were also interviewed to find out the notable impacts of climate change and other weather
events. The questionnaire used, patterned after the King County Questionnaire for
Preliminary Assessment of Climate Change Impacts and Adaptation Barriers, (Center for
Science in the Earth System-The Climate Impacts Group, 2007) found in Appendix 2 can
be summarized into the following main questions:
What does their experience tell them about sensitivity to climate and weather
events?
What have they done within their respective departments on climate and
weather impact?
Past and present policies, planning documents and practices in disaster risk
reduction and management and climate change adaptation were also compared to the
information gathered from the interviews to determine their effectiveness and effectivity
in the real world. Other questions asked during the interviews were:
Share success and failure stories of DRRM that you have seen or experienced.
3 people who have lived in Cainta for at least 9 years
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Describe the negative effects and consequences of the natural hazards of
earthquakes, typhoons and floods.
What are the shortcomings of the local government in DRR and CCA and how
can these shortcomings be met?
Give the benefits of having an LAP-DRR-CCA.
Focus Group Discussions
Barangay officials and personnel, together with community members of all seven
barangays, were subjected to individual focus group discussions for the hazard and
vulnerability and capacity assessment as mentioned in the previous chapter.
The final draft of the LAP-DRR-CCA was presented to the Municipal Disaster Risk
Reduction and Management Council (MDRRMC) and subjected to an FGD. In this
discussion, the PPAs were refined and reviewed to determine which should be included in
the Annual Investment Plan for CY 2013. The proposed PPAs were ranked using a
similar method to the Goal Achievement Matrix, described in the “Guide to
Comprehensive Development Plan (CDP) Preparation”:
Step 1: Each member of the Municipal Disaster Risk Reduction and Management
Council (MDRRMC) and the officer of the LDRRMO ranked every PPA that required
funds using the following scale:
Table 9 Goal Achievement Matrix Scale
SCALE INTERPRETATION
3 PPA contributed greatly to building a disaster-resilient municipality
2 PPA contributed moderately to building a disaster-resilient municipality
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SCALE INTERPRETATION
1 PPA contributed slightly to building a disaster-resilient municipality
0 PPA did not contribute to building a disaster-resilient municipality
-1 PPA slightly inconsistent with the goal of building a disaster-resilient
municipality
-2 PPA moderately inconsistent with the goal of building a disaster-resilient
municipality
-3 PPA greatly contradicts the goal of building a disaster-resilient
municipality
Step 2: The scores for each PPA were added up and ranked from highest to lowest
to determine the PPAs that should be prioritized and included in the Annual Investment
Plan for CY 2013.
Workshops
To accomplish the objective of getting proposals and recommendations for Cainta’s
LAP-DRR-CCA, it was important for disaster risk assessment and planning workshops to
be conducted at the grassroots level, down to the barangays and communities. The people
who actually experienced the disasters can best describe the realities of vulnerabilities and
capacities in times of disasters. Through the guided planning sessions, they were able to
identify the gaps and issues that needed to be addressed through programs, projects and
activities.
The planning workshops at the barangay and/or community levels were crucial to
the success of this study. As stated in the Local Government Code, the barangay is “the
primary planning and implementing unit of government policies, programs, projects and
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activities in the community, and as a forum wherein the collective views of the people
may be expressed, crystallized and considered.”
Using the steps outlined in the DILG’s “Rationalizing the Local Planning System.
A Source Book 1st Ed.” and “Guide to Comprehensive Development Plan Preparation,”
the proponents guided the participants to formulate important policies, programs and
services to be included in a multi-sectoral DRR and CCA for their community.
On July 26 - 27, the proponents joined the Barangay Level DRRM Planning
(Finalization and Review) Workshop led by the Cainta MDRRMO. The proponents
Figure 24 DILG's Rationalized Local Planning System
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collected and organized all planning outputs produced by the barangays and the other
communities where the workshops were conducted. This served as the LAP-DRR-CCA
found in Appendix 3, containing the consolidated proposals and recommendations from
the communities in the different barangays, including the findings of the study of
international, national and local policies, plans, practices and programs in disaster risk
reduction and climate change adaptation.
The Hazard Assessment Matrix and the Format on Synthesis of Community Risk
Assessment Matrix found in the “Integrating Disaster Risk Management in Local
Governance: A Facilitator’s Guide and a Sourcebook for Barangay Disaster Risk
Management Training Workshop” was used as tools in gathering information for
community-based Disaster Risk Assessment through a 2-day Seminar Workshop
conducted on June 13 – 14, 2012.
The Hazard Assessment Matrix is a tool that characterized the threats and impacts
of the natural hazards that distress the community. The analysis of the matrix brought
about hazard-specific early warning system and community-based contingency plans and
disaster preparations. As described in the Voyage to Disaster Resilience in Small Islands:
A Guide for Local Leaders (2011), the participants in the community workshops were
asked the following questions:
What are the specific hazards that have hit the community?
How frequent have these hazards hit the community?
What is the magnitude of the hazard?
How strong was the hazard?
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How large was the area coverage of the damage? How long did the hazard persist?
Where did the hazard occur?
How severe was the damage brought by the hazard?
Below is a sample of the Hazard Assessment Matrix taken from the “Integrating
Gender into Community Based Disaster Risk Management Training Manual.” (2009).
The hazard assessment was followed by the assessments of vulnerabilities and
capacities. The synthesis of the community hazard risk assessment matrix and its analysis
led to a better understanding of the disaster risks in the community and their
preparedness.
The Disaster Risk Assessment helped the community identify their needs in DRR
and CCA. Program recommendations and project proposals were generated through the
discussions that led to the planning workshop.
Table 10 Sample Hazard Assessment Matrix
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Survey Questionnaires
During the Cainta DRR CCA Summit, the proponents administered a self-
assessment for disaster resilience survey to 200 participants from the various sectors to set
baselines and identify gaps in the disaster resilience of Cainta. The stakeholders
accomplished a survey that represented their views on the “Self-Assessment for the Ten
Essentials for Making Cities Resilient” (2012). The Local Government Self Assessment
Tool (LGSAT) consisted of 41 key questions, with each one phrased in a way that allows
local governments and participating stakeholders to reflect on the level of progress that
has been made to date. The proponents chose to ask 27 questions out of the 41 based on
relevance to the objectives of this study. The respondents were from the municipal and
provincial government, local academia, religious group, business community, youth,
PWDs, civil society organizations, senior citizens, homeowners, informal settlers, media
and community-based organizations.
The data below is an excerpt from the LGSAT for Disaster Resilience used by the
proponents in the group discussions (See Appendix 4 for the survey tool used):
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A community survey method was used to gather information on existing regulatory
barriers and potential climate change vulnerabilities and to measure public awareness. It
was also used to complete the community-based hazard identification and the community
risk and vulnerability assessment.
Table 12 LGSAT Scoring Scale - Level of Progress
Table 11 Excerpt from the LGSAT
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CHAPTER V
RESULTS AND DISCUSSION
Plans, Policies, Programs
International Level
As mentioned earlier, one of the proponents, Ramon Ilagan, is the incumbent Mayor
of the Municipality of Cainta. And during his nine-year term, he has been invited to four
international meetings and conferences that focus on Disaster Risk Reduction and/or
Climate Change. He identified two international organizations, the United Nations
Development Programme (UNDP) and the United Nations International Strategy for
Disaster Reduction (UNISDR), as partners in translating and transferring global policies
and programs into more concrete implementation activities at the local level. His
experiences in the two most recent international conferences he attended in Kobe, Japan
on November 21-25, 2011 and in Bangkok, Thailand on December 6-9, 2011 provided
the proponents with a glimpse on how the global movement towards disaster and climate-
risk resilience is gaining ground with local leaders.
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A. Kobe, Japan, (the birthplace of the Hyogo Framework for Action) November 21-25,
2011
The five-day conference in Japan, organized by the United Nations International
Strategy for Disaster Reduction (UNISDR) and Senator Loren B. Legarda, was a caucus
on linking disaster-risk reduction and climate change adaptation in effective risk
governance. It was held in Kobe, Japan, the city where the World Conference on Disaster
Reduction was held in 2005 when 168 member-states adopted the present Hyogo
Framework for Action 2005-2015. The other participants were Undersecretary Eduardo
Garcia Batac of the Department of National Defense; Director Susan Rachel Galang Jose
of the National Economic Development Authority; Director Ronald Ignacio from the
Office of Civil Defense; Ms. Maria Cecilia Dayot Panlilio from the Senate;
Undersecretary Corazon Tecson Jimenez of the Metro Manila Development Authority;
Quezon City Vice-Mayor Joy Belmonte; Vice-Mayor Alfredo Aranas Arquillano Jr. of
San Francisco, Camotes Island, Cebu; Plaridel Escalona Sanchez VI, former mayor and
Board Member of Pandan, Antique; DZBB’s Nimfa Ravelo and the Philippine Star’s
Edith Regalado.
The UNISDR officials, led by Yuki Matsuoka, Etsuko Okazaki, Jerry Velasquez
and Manny de Guzman, accompanied the participants as they toured the Hyogo Disaster
Management Center, the Toga River and Yakigahara Dam, and a courtesy call on Hyogo
Prefecture Governor, Toshizo Ido. The caucus highlighted the Hyogo Framework for
Action and the role of local government officials in adapting them, and this was embodied
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in the Memorandum of Agreement drafted and signed by the participants at the end of the
caucus.
B. Hyogo Framework for Action
An approach to reduce disaster risks was set out in the United Nations-endorsed
Hyogo Framework for Action (HFA), adopted in 2005. (Benjamin, 2009) The HFA is a
global policy framework that directs actions to address and reduce disaster risks and build
resilience of nations and communities by the year 2015. It is a highly influential
framework, having been most acknowledged in disaster related research and papers since
2005. It tackles disaster risks at the global, regional, national and local levels and is
considered to be the latest important intervention in the field of disaster risk reduction.
The expected outcome of the HFA by 2015 is the “substantial reduction of disaster losses,
in lives and in the social, economic and environmental assets of communities and
countries.” (United Nations, 2005) This outcome will “require the full commitment and
involvement of all actors concerned including governments, regional and international
organizations, civil society, the private sector and the scientific community” The
International Strategy for Disaster Reduction (ISDR) system provides a vehicle for
cooperation among the actors to assist in the implementation of the Framework. (United
Nations International Strategy on Disaster Reduction, 2005)
Figure 25 provides a summary of the Hyogo Framework enhancing themes, cross
cutting issues, actors involved in the implementation and the following strategic goals
(United National International Strategy for Disaster Reduction, 2005):
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1) The integration of disaster risk reduction into sustainable development policies
and planning;
2) The development and strengthening of institutions, mechanisms and capacities
to build resilience to hazards; and
3) The systematic incorporation of risk reduction approaches in the
implementation of emergency preparedness, response and recovery programs.
It sets out strategies for reducing disaster risks through five priorities for action: (United
Nations International Strategy on Disaster Reduction, 2005)
1) Ensure that disaster risk reduction is a national and a local priority with a
strong institutional basis for implementation;
2) Identify, assess and monitor disaster risks and enhance early warning;
3) Use knowledge, innovation and education to build a culture of safety and
resilience at all levels;
4) Reduce the underlying risk factors; and
5) Strengthen disaster preparedness for effective response.
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C. Economic Recovery in Post-Conflict/Disaster Situations, Thailand, December 6-9,
2011
The four-day conference in Thailand, participated in by two of the proponents,
Lester G. Cavestany and Ramon A. Ilagan, focused on workshop sessions on economic
recovery in post-conflict or post-disaster situations. Mr. Sanny Jegillos, the Regional
Program Director of the UNDP Asia-Pacific, organized the workshop to emphasize a
multi-sectoral approach in minimizing the adverse effects of conflicts or disasters on local
Figure 25 Hyogo Framework for Action: 2005-2015 Building the Resilience
of Nations and Communities to Disasters
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communities, especially the most vulnerable and marginalized in society, such as the
poor, women, children, people with disabilities, and the elderly. Mayor Ilagan presented
the economic recovery initiatives in his municipality, showcasing the Water Lily
Livelihood Program and the UNDP’s Cash for Work project. He also moderated a
dialogue between the public sector leaders and the business sector panelists from
Myanmar, Timor-Leste, Sri Lanka and Nepal about the potential challenges and
opportunities for public-private partnerships. He facilitated this dialogue with respondents
from the government, United Nations organizations and civil society groups who also
shared their insights on how the partnerships among different stakeholders in post-crisis
recovery can be strengthened to maximize benefits for communities affected by conflicts
or disasters. Ilagan was accompanied in Thailand by another proponent, Lester Cavestany
and the other delegates from the Philippines were Alma Evangelista, Team Leader of the
Crisis Prevention and Recovery Team of the UNDP Philippines; Romeo Diocolano,
Director of the Technical Management Services from the Office of the Regional
Governor of the Autonomous Region in Muslim Mindanao; and Khannapi “Sonny”
Ayao, board member of the Kadtabanga Foundation for Peace and Development
Advocates, Inc. from the Municipality of Datu Odin Sinsuat, Maguindanao.
International Initiatives for Local Action
In our study of the Municipality of Cainta, the proponents found two noteworthy
projects that have been initiated by international organizations. These are the following:
1) UNDP-led “Cash for Work Program”
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2) CIDA-funded “Resilience Project”
A. UNDP’s Cash for Work
In 2009, UNDP through the Department of Social Welfare and Development
Office Region IV-A, provided financial assistance to the victims of Typhoon Ondoy
through the Cash for Work Program. The Ondoy victims were hired and paid to do
community service. The table below provides details about the 700 beneficiaries who
cleaned-up the streets and creeks and repaired houses damaged by typhoon Ondoy in the
different barangays, with a cash total of about forty thousand US dollars. The positive
experience gained through this temporary employment program helped in scaling up
disaster recovery efforts to reach those most affected by the tragedy, especially the poor.
This initiative is an effective social protection measure that compensated for loss and
prevented further adverse effects in health, education, nutrition and productivity
especially in the marginalized sector.
Figure 26 Cash for Work in Cainta
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Following UNDP’s lead, the Municipality of Cainta, through its Municipal Social
Welfare and Development Office, has adopted the Cash for Work scheme when assisting
victims of fires, typhoons or floods, to complement the direct relief and financial
assistance measures.
B. CIDA’s Resilience Project in Cainta
The Municipality of Cainta is fortunate to have been selected as one of three LGUs
chosen by the UNDP and the Canadian International Development Agency for its
“Resilience Project”, a 2 year-project that strengthened capacities for risk reduction. Key
activities included the creation of hazard maps, the training in the Rapid Earthquake
Damage Assessment System Software, and the establishment of early warning devices for
floods in Cainta, Marikina and Pasig. This project was implemented through the national
agencies such as the weather bureau PAG-ASA, the volcanology and seismology bureau,
PHIVOLCS and the Office for Civil Defense.
National Policies and Programs towards Local Paradigm Shifts
The plenary discussions in international conferences and in the national legislature
play a vital role in addressing the impacts of climate change and natural disasters that are
immediately felt by the people, especially those who have less financial resources. While
this study was being made, the reality of natural disasters in Cainta, surfaced yet again in
August 2012 when the weeklong monsoon rains and flooding disaster wreaked havoc in
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Cainta and other areas. The Habagat disaster was comparable to “Ondoy”, prompting the
Sangguniang Bayan of Cainta to declare the entire municipality under a state of calamity.
In the aftermath, up to 5,462 families consisting of 27,094 individuals in 43 evacuation
centers were affected and the damage to infrastructure was estimated to be over a hundred
million pesos.
The proponents found the following policies and programs that evidence the
active and pro-active implementation of measures to address disaster risk and climate
change risk reduction and management:
1) Enabling laws
2) Disaster Management Roles including response, preparedness, recovery and
mitigation
3) Participatory local planning
A. Enabling laws
Less than a month after Ondoy, Republic Act 9729 or the Philippine Climate
Change Act was signed into law, which recognized that the “State shall integrate disaster
risk reduction into climate change programs and initiatives.” Months later, Republic Act
10121 or the Philippine Disaster Risk Reduction and Management Act was enacted,
affirming the State’s duty to “uphold the people's constitutional rights to life and property
by addressing the root causes of vulnerabilities to disasters, strengthening the country's
institutional capacity for disaster risk reduction and management and building the
resilience of local communities to disasters including climate change impacts.” And on
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August 16, 2012, President Benigno Aquino III signed Republic Act 10171, or the
People's Survival Fund Act of 2012, that guarantees at least P1 billion annual budget
allocated for climate change adaptation and mitigation measures. These laws ensure that
the changes are institutionalized from the national agencies and spread across the local
government units. One such institutionalized change is the mandatory creation of the local
disaster risk reduction and management office in all the local government units. This is in
line with one of the principles in government bureaucracy that one of the most effective
ways in institutionalizing change is by creating an office for the change you want to
create. And in Cainta, a priority resolution of the local council in 2012 was the creation of
the Cainta Municipal Disaster Risk Reduction And Management Office. This enabling
resolution paved the way to get the manpower and to allocate the financial resources
needed to formulate plans and to implement them.
Another effect of the enabling laws is the paradigm shift in the role of the
government, both national and local, when it comes to disasters. In the past, LGUs were
reactive first responders. And they were only allowed to use their calamity fund during
calamities. But the DRRM Act of 2010 changed the “Calamity Fund” and renamed it
“Disaster Risk Reduction and Management Fund.” And the change in name translated
into the expansion of the role of the LGU from their primary role in disaster response,
into their roles in Disaster Mitigation, Preparation, and Post-Disaster Recovery. These are
the criteria looked into by the DILG in their “Seal Of Disaster Preparedness.”
DILG Memorandum Circular 2012-73, through Sec. Jesse Robredo+, gave this
order: “All local chief executives are hereby enjoined to utilize their local disaster risk
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reduction and management fund to ensure that basic rescue and response equipment are
procured.”
The Municipality of Cainta knows too well the importance of having rescue and
response equipment. Adequate life-saving equipment must always be on standby and the
emergency response staff have to be well trained. The lesson of Ondoy was clear: lack in
the administrative and technical capacity to respond to disasters leads to a much bigger
disaster, translating to more lives lost and more damages incurred. Before Ondoy, only
coastal towns had boats. After Ondoy, almost every local government unit, including
Cainta, now has one or more rescue boats.
In the recent Habagat disaster, the rescue teams in Cainta were able to use their
emergency response training and rescue equipment to save the constituents from the
dangers of flooding in their homes. And fortunately, Cainta had zero casualties in the
Habagat disaster, due to the heroism and selfless dedication of the various rescue teams
composed of the Cainta Bureau of Fire Protection headed By Major Rosete, the Cainta
Philippine National Police headed by Col. Briones, the Cainta Public Safety Office
headed By Mr. Dinoy And Mr. Arevalo, the members of the Philippine Army and the
Philippine Navy, the Local Disaster Risk Reduction and Management Office headed by
Mr. Apostol, and other rescue volunteers and personnel who came to the aid of their
constituents.
Aside from the regular drainage clean-up programs, the local government purchased
heavy equipment for the dredging and desilting of the Cainta River and the other major
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waterways. A drainage interceptor was also constructed in one of the barangays to ease
the flow of drains and sewers.
From National Policies To Participatory Local Planning
According to Senator Legarda, the principal author of the Climate Change Act of
2009 and the Disaster Risk Reduction and Management Act of 2010, the logical step in
disaster preparedness is “to put in place proactive measures to reduce our risk to disasters.
We cannot be complacent and wait for another Ondoy or Pepeng.” Or another Habagat,
for that matter. And these proactive measures should begin with good planning. R.A.9729
mandated the Climate Change Commission to formulate a National Climate Change
Action Plan (NCCAP) which would serve as a guide for LGUs in writing their own local
climate change action plans. On the other hand, R.A. 10121 required the development and
implementation of a Comprehensive National Disaster Risk Reduction And Management
Plan (NDRRMP) that would serve as a template for the LGUs in crafting their own local
disaster risk reduction and management plan. Through this study and with the help of the
Office of Civil Defense, the Municipality of Cainta drafted a 5-year LDRRM plan and
also the contingency plan for Climate Change, formulated in September 2012.
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Hazard Assessment and Climate Change Impacts
Climate Change Impacts Risk Assessment
Among the 10,020 people randomly surveyed in the community, 6,714 of them
mentioned climate change as one of the underlying factors of the hazard they experienced
at the barangay level, garnering a high 67 percent awareness rating. In particular, they
identified heavy rainfall and increased intensity and frequency of typhoons as the main
impacts they know. This means that people at the barangay level of Cainta are generally
informed about the extreme weather events that climate change brings.
According to the maps by the Manila Observatory and the Department of
Environment and Natural Resources (DENR), the province of Rizal is identified to have a
projected medium to high level of typhoon hits during the wet season due to climate
change.
Figure 27 Typhoon Incidence
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Figure 28 Projected Rainfall Change (Dry Season)
Figure 29 Projected Rainfall Change (Wet Season)
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Hazard Identification
Based on the community disaster risk assessment conducted at the barangay level,
the community identified the following potential hazards for the municipality:
1) Severe typhoons
2) Floods
3) Landslides
4) Road accidents
5) Utility failures
6) Major fires in commercial areas and densely populated areas
7) Earthquake - Ground Shaking and Liquefaction
Table 14 below summarizes the community's assessment regarding the identified hazards.
Table 13 Hazard Assessment Summary
HAZARD LEVEL OF RISK UNDERLYING FACTORS
Typhoon High Proliferation of informal settlers
Most of the structures are made of light
materials
All seven barangays are affected
Climate change - increased typhoon intensity
and frequency
Flooding High Flood “catch-basin”
Degraded and ruined rivers and waterways
Poor drainage system
Malpractice of waste disposal – community,
people, establishments
Climate change - heavy rainfall
Landslide High Loss soil
Denuded environment
Fire High “Octupus” electrical connections that
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HAZARD LEVEL OF RISK UNDERLYING FACTORS
resulted to overload of electricity
Structures are made of light materials
Congested communities
Earthquake
(including
liquefaction)
Moderate to High Proliferation of informal settlers
Structures are made of light materials
Absence of retrofitting scheme
Soft soil
Flood Hazard Risk Assessment
According to a Geographical Information System (GIS) flood risk management case
study of Cainta by Gatchalian et.al., (2011), the geographic location of the Municipality
of Cainta and its physical conditions make it generally prone to flooding. Cainta's location
in the Marikina Valley, where its elevation is significantly lower than the neighboring
towns with rivers and water systems surrounding the municipality, makes it more
susceptible to flashfloods. Figures 27 and 28 show that Cainta is a natural flood plain
since it is a low-lying area that becomes the catch basin of rain water from the mountains
of Antipolo. Flooding is further aggravated by the presence of informal settlers occupying
the banks of the waterways, and the siltation of rivers and streams. According to
MSWDO data, 13,744 families are living in flood prone areas (i.e. near river easement)
and are highly vulnerable to flooding.
Table 14 Flood Prone Areas and Number of Affected Families
BARANGAY LOCATION/ AREA NO. OF FAMILIES
Sto. Niño Renea Compound 119 Total: 190
N.N. Fernandez 25
St. Dominic Creekside 28
C. Cruz 18
San Roque Nursery Road 225 Total: 225
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BARANGAY LOCATION/ AREA NO. OF FAMILIES
San Andres Planters Bern 1,015 Total: 5,178
Buklod Maralita 463
Lakas Tao 1,500
PFCI Berm 1,500
Kabisig Lower/Kampi I & II 700
Sto. Domingo Village East Ph. 1 50 Total: 3,834
Villarica 200
Kasibulan 200
Ascona St. 260
Cobra St. 60
Broncho St. 39
Dagat Dagatan 120
Gruar 1,300
Back of Puma (UMS) 200
San Buena 1,200
Country Homes Subd 30
Kamagong St. (St. Joseph) 41
Irma St. Marick Subd. 134
San Juan Villa Cuana Riverside 50 Total: 3,934
Arinda 1,154
Exodus Berm 140
Apras 1,300
San Franscisco Special Block 30
San Francisco Berm 130
Don Mariano Creekside 50
Tabang 45
Bagong Silang 1,000
Sitio Pag-Asa 35
San Isidro Mabolo St. 130 Total: 194
Waling-Waling 18
Isidro Avenue 21
Atis St. 20
Pasco St. 36
UE Creekside 36
Ruby St. 3
Emerald St. 1
Finance St. UE Village 2
Sampaguita St. 10
Ilang-Ilang St. 6
Easter St. St. Gregory 2
Tribu Bayanihan 28
Sitio Dagat-Dagataan 62
Signal Corp 1
Franchesca Creek 4
Macopa 3
TOTAL 13,744
PERCENTAGE OF TOTAL POPULATION 24%
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Figure 30 Cainta Elevation Map
Figure 31 Hazard Map of the Province of Rizal
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According to the incident report prepared by the Municipal Disaster and
Coordinating Council (MDCC), the rains brought about by the tropical storm Ondoy in
2009 submerged 98 percent of Cainta in flood water with heights ranging from 3 to 10
feet. It affected 45,000 families representing more or less 285,000 individuals. Figure 27
below shows the flood hazard map identifying Barangays San Andres, Sto. Domingo, San
Juan, San Roque, Sta. Rosa and Sto. Niño as high-risk barangays in flooding.
Figure 32 Flood Hazard Map
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Earthquake Hazard Assessment
Cainta is in the Rizal province, identified as an earthquake prone area having 29 to
47 projected annual earthquake hits with intensity ranging from 7.3 to 7.6 in magnitude.
Figure 30 and 31 below show that the Municipality of Cainta also lies close to the active
Marikina Valley Fault System that passes through its nearby towns, Marikina and Pasig,
making it also susceptible to experience earthquakes with strong magnitudes.
Figure 33 Earthquake Prone Areas in the Philippines
100
Figure 34 Cainta in the Distribution of Active Faults and Trenches in the Philippines
101
Figure 35 Cainta Valley Fault System
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Rapid Earthquake Damage Assessment System (REDAS) maps provided by the
Philippine Institute of Volcanology and Seismology (PHIVOLCS) and the Department of
Science and Technology (DOST) give an approximation of the scenarios in terms of
earthquake intensity and liquefaction caused by the valley fault system. Figure 32 concur
with the flood hazard map in Figure 27 in identifying the six barangays, excluding San
Isidro, as highly susceptible not only to flooding but also to experience quakes with 7.50
and above intensity due to the valley fault system. Figure 33 presents pictures of the
possible liquefaction scenario during the dry and wet seasons that could happen due to the
valley fault system. This study considered only the liquefaction effects on buildings and
other infrastructures whose foundations are held up by soil or sand, which liquefies after
experiencing pressures from many cycles of ground shaking. Possible effects of
earthquake liquefaction include structural damage (i.e. foundation cracks and building
destruction); underground utility line breakage (e.g. water pipes, electric lines);
underground water brought upward by ground pressure which may cause damage to
building contents and electrical services; open large cracks or fissures; road destruction;
and sloping ground or ground next to rivers and streams may slide on a liquefied soil.
Figure 34 gives an overview of the liquefaction hazard of the Municipality of Cainta most
significant during the wet season.
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Figure 36 Valley Fault System Earthquake Scenario (Cainta)
Figure 37 Valley Fault System Earthquake Liquefaction Scenario (Cainta)
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Figure 38 Liquefaction Map of Cainta (Wet Season)
Hazard Sensitivity
A study made by the Manila Observatory and DENR entitled “Mapping Philippine
Vulnerability to Environmental Disasters”, ranked the province of Rizal 6th
among the top
20 provinces at risk to climate change related disasters indicating a very high risk to
typhoons and projected rainfall change.
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Figure 39 Combined Risk to Climate Disasters
Table 15 summarizes the sensitivity to hazards of each barangay that this GIR
considered in the creation of an integrated LAP for DRR and CCA based on the maps
presented above and in the previous chapters. The hazard assessment which utilized both
the hazard maps and the community survey data, revealed that six barangays are highly
susceptible to all three hazards featured in the LAP, with barangay San Andres rating high
in all four.
Table 15 Hazard Sensitivity of the 7 Barangays of the Municipality of Cainta
Hazards Barangays of the Municipality of Cainta
San
Andres
San Isidro San Juan San
Roque
Sta. Rosa Sto.
Domingo
Sto. Niño
Typhoon High High High High High High High
Flooding High Moderate High High High High High
Earthquake (Ground
Shaking)
High High High High High High High
Earthquake
(Liquefaction)
High Low Moderate Moderate Moderate Moderate Moderate
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Vulnerability and Capacity Assessment
Vulnerability to Disasters
According to the Global Climate Risk Index, the Philippines is one of the worst hit
countries by the impacts of weather-related loss events because of droughts, storms,
floods, and other weather-related disasters. The country is estimated to attract 20 tropical
cyclones annually, nine of which make landfall. The figure below shows the country's
rankings in terms of vulnerability to natural disasters, compiled by the Office of the
President. (Presidential Communications Development and Strategic Planning Office)
Figure 40 Vulnerability to Disasters of the Philippines
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Land Use
The hazard sensitivity matrix in Table 15 states that out of the seven barangays in
the Municipality of Cainta, San Andres is the most vulnerable barangay from all four
hazards. Looking at the most recent land use map of the Municipality, barangay San
Andres consists of the following: a large group of informal settlements located mainly
along the Manggahan Floodway; formal settlements such as subdivisions; some heavy
industries; major commercial areas; cultural heritage sites; educational facilities;
transportation hubs; and leisure areas. It also has a number of vacant areas. Based on the
hazard assessment, the abovementioned are considered highly vulnerable to flooding,
typhoon, and ground shaking and liquefaction caused by earthquake.
Economic Vulnerabilities
Cainta has a robust economy as evidenced by several commercial and industrial
establishments that are in the area. The town continues to attract businesses because of its
proximity to Manila and the town’s burgeoning population. It is home to numerous
manufacturing firms including the Mitsubishi Motors Philippines, the largest car
manufacturer in the country, the Monde M.Y. San Corporation, one of the nation’s
leading biscuit manufacturers and BF Construction Philippines.
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Figure 41 Land Use Map of the Municipality of Cainta
109
As of 2011, the Business Permit and Licensing Office (BPLO) reported that Cainta
has 26 real estate establishments that include realtors and developers, agents and
appraisers, lessors of real property, planners, brokers, operators and managers and
builders, suppliers and contractors. Commercial activities in Cainta includes wholesale
and retail trade, transportation and communications, and other services like call centers
and BPOs. Cainta also has 42 registered financial institutions.
Despite growing urbanization in Cainta, the Municipality still has 38.02 hectares of
land devoted to agricultural production with agricultural activities as mostly rice and
vegetables. Barangay San Andres being the most vulnerable barangay has 2.79 percent of
agricultural land with rice as its main produce that is at high risk to typhoon, flooding and
earthquake.
Table 16 Agricultural Crops by Area, 2011
Major Crops Barangay Area
Hectares % of Total
Rice San Juan 9.50 1.41
San Andres 9.00 2.79
San Isidro 10.50 0.49
Vegetables San Juan 0.91 0.13
San Isidro 1.00 0.05
Sto. Domingo 7.11 0.70
Total 38.02 5.57
Every barangay in Cainta has swine and poultry industries. San Juan, San Andres
and San Isidro have the highest number of livestock and poultry production compared to
other barangays. Brgy. San Andres has a total of 830 livestock that is extremely
vulnerable to disasters.
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Table 17 Livestock and Poultry Production, 2011
Barangay Swine Cattle Goats Poultry Total
Livestock
San Juan 245 95 81 1,340 1,761
San Andres 320 510 830
San Isidro 88 21 85 1,500 1,694
Sto.
Domingo
95 8 980 1,083
San Roque 10 30 125 165
Sto. Niño 35 12 230 277
Sta. Rosa 15 35 50
Total 808 124 208 3,566 4,706
The study of the Manila Observatory and DENR also used Human Development
Index (HDI) in assessing vulnerability. HDI represents achievements of a country with
regard to life expectancy, education and income. The HDI measure used by Manila
Observatory and this study encompassed health, education and income factor and the
inverse of HDI represented the vulnerability score found in Figure 42. Simply, the lower
the HDI, the higher the vulnerability to disaster and since the province of Rizal’s HDI is
low, its vulnerability to disaster is consequently very high.
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Figure 42 Human Development Index, 2000
The Municipality of Cainta has the highest population density among all the LGUs
in the province of Rizal. Having more than a 1,000 person per square meter, it is also
considered as one of the most populated places in the entire country. This entire
population, especially the 100,147 most affected people in San Andres as seen in Table 4,
is regarded as those who are greatly vulnerable to disasters.
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Figure 43 Population Density, 2000
Figure 44 Populated Places
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Figure 45 and 46 show that the province of Rizal has a large number of settlements
including the 1,153,726 estimated number of informal settlers located along the
Manggahan floodway, according to the Manila Observatory and the Urban Research
Consortium. The community survey in this study resorted to the 10,020 informal settlers
located in the six flood prone barangays and used them as key informants to the hazard
and risk assessment conducted. (See Appendix 5 for list)
Figure 45 Settlement Areas
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Figure 46 Aggregate Map of Informal Settlers in Metro Manila (2000)
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Capacity Assessment
The previous chapter discussed the financial capacity of the local government of
Cainta to allocate resources and funds for DRRM and CCA. This situation allows Cainta
to accommodate the priority PPAs of this study's output into its CY 2013 Annual
Investment Plan.
In terms of the local government's rescue and response capacity, Cainta has a total
of 22 evacuation centers located in six barangays as seen in Table 18 below.
Table 18 Evacuation Centers
BARANGAY EVACUATION CENTER
San Andres Kabisig Elementary School
Planters Elementary School
Anak Pawis II Covered Court
Lakas Bisig/ Feliz Elementary School
Lakas Bisig Covered Court
Lakas Bisig I Day Care Center
Lakas Bisig II Day Care Center
PCFI Covered Court
Planters Day Care Center
Planters Covered Court
Mercedes PNP Outpost
San Juan San Francisco Elementary School
Exodus Elementary School
Anak Pawis I Day Care Center
Anak Pawis I Covered Courts
Anak Pawis I Multipurpose Hall
Arinda Elementary School
Sto. Niño Sto. Niño Barangay Hall
Sto. Niño Day Care Center
San Roque San Roque Covered Court
San Isidro Balanti Covered Court
Sto. Domingo Gruar Ph. 1 Covered Court
Gruar Day Care Center
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Majority of the families from the east and west Manggahan Floodway during the
Habagat disaster in 2012 voluntarily evacuated to their respective evacuation centers as
flood water started to rise. Some who refused to leave early were forced to vacate their
homes by means of the municipality's forced and pre-emptive evacuation policy.
The local government’s community-based self-assessment for disaster resilience
tool administered via an FGD during the DRR CCA Summit to the 200 participants gave
the local government of Cainta an overall average score of 3.0 in terms of status and level
of progress, which meant that there are some institutional commitments and capacities to
achieving DRR, but progress is not yet comprehensive.
A total of 198 respondents completed the survey, mostly belonging to the
Homeowners Association (34 respondents), between the ages of 26 to 59 (117
respondents) and mostly male (98 respondents). Figures 47, 48 and 49 show the
representation by sector, age and gender wherein the unidentified sector includes
responses that could not be classified (i.e. GPACI, Health, MOA, PLM, Senior Citizens,
Workers).
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Figure 47 Self Assessment for Disaster Resilience Sectoral Representation
Figure 48 Gender Representation
Academe 9%
Private 8%
Informal Settlers
1%
HOA 17%
LGU 12% NGO
11%
CSO 7%
PWD 2%
Youth 5%
Religious 4%
Media 0%
Unidentified 6%
Blank 18%
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Female
Male
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Figure 49 Representation by Age Groups
The average age of the respondents was 39 years old. Table 19 shows a breakdown
of the respondents according to age groups. The grouping was made for the convenience
of specifying the youth and senior respondents.
Table 19 Number of Respondents, By Age Group and Gender
GROUPS TOTAL % MALE % FEMALE % BLANK %
Youth (16-25) 15 8% 6 40% 9 60% 0 0%
Middle Age (26-59) 117 59% 66 56% 50 43% 1 1%
Senior Citizens
(60 & up) 34 17% 23 68% 10 29% 1 3%
Undisclosed Age
(blank) 32 17% 3 9% 3 9% 26 81%
TOTAL 198 16% 98 49% 72 36% 28 14%
Out of the ten essentials for a disaster risk reduction, the top five essentials that got
the highest average rating among the respondents were:
Youth 5%
Undisclosed 12%
Senior Citizens
12%
Male 40%
Female 31%
Middle Age 71%
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1) Essential 5: Assess the safety of all schools and health facilities and upgrade
these as necessary (with an overall average score of 2.98)
2) Essential 1: Put in place organization and coordination to clarify everyone’s
roles and responsibilities (with an overall average score of 2.79)
3) Essential 3: Update data on hazards and vulnerabilities, prepare and share risk
assessment (with an overall average score of 2.74)
4) Essential 10: Ensure that the needs and participation of the affected population
are at the center of reconstruction (with an overall average score of 2.73)
5) Essential 6: Enforce risk-compliant building regulations and land use
planning, identify safe land for low income citizens (with an overall average
score of 2.71)
However, out of the top five essentials stated above, Essential 5 got the highest
rating which reflected the efforts of the Municipality of Cainta to ensure the safety of its
public schools, hospitals and health facilities from disasters so that they have the ability to
remain operational during emergencies. It received the highest rating because the affected
population relied on the said facilities the most during disasters.
The two questions under Essential 5 likewise obtained the highest ratings. And in
terms of the core indicators of the five action priorities of the HFA that the national
government use to monitor progress, this meant that the local government of Cainta is
institutionally committed and capable to address the following HFA priority for actions:
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1) (#2) Identify, assess and monitor disaster risks and enhance early warning.
This also implied that local risk assessments based on hazard data and
vulnerability information are available and include risk.
2) (#5) Strengthen disaster preparedness for effective response at all level. This
meant that disaster preparedness plans and contingency plans are in place at
all administrative levels, and regular training drills and rehearsals are held to
test and develop disaster response programs.
Though not far behind the top rated essential, “Essential 2” - Assign a budget and
provide incentives for homeowners, low-income families and the private sector to invest
in risk reduction – received the lowest status rating of an overall average of 2.41. In terms
of the core indicators of the five action priorities of the HFA that the national government
use to monitor progress, this meant that the local government of Cainta is close to having
achievements but are incomplete, and while improvements are planned, its commitment
and capacities are limited to address HFA priority for Action 4: Reduce the underlying
risk factors. This suggested that social development policies and plans are being
implemented to reduce the vulnerability of populations most at risk and that economic
and productive sectoral policies and plans have been implemented to reduce the
vulnerability of economic activities. The LGSAT result also revealed that the local
government of Cainta rated low on the question "How much do warning systems allow
for adequate community participation?" This could be interpreted in any (or combination)
of the following ways:
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1) Early warning systems are NOT in place for all major hazards, with
outreach to communities; or
2) Early warning systems are in place BUT NOT for all major hazards, with
outreach to communities; or
3) Early warning systems are in place for all major hazards, BUT WITHOUT
outreach to communities
(See Appendix 6 for key findings)
Disaster Resilient Cainta
In the past, local government units could only use the “Calamity Fund” if and when
there was a calamity. But the DRRM Act of 2010 gave the directive not only to change
the “Calamity Fund” into “Disaster Risk Reduction and Management Fund” but also in
allocating funding to prepare for disasters. Consequently, the LAP for DRR and CCA also
shifted from being reactive to becoming proactive.
The CBDRRM and BDRRM Planning helped define the vision of the DRR-CCA
action plan intended by this study along with its mission and respective goals. The
participants agreed upon the LAP’s strategic lines and objectives and identified programs
to be developed and implemented.
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Vision
Cainta to become a more resilient municipality, a safer place to live by well
prepared residents in response to emergency.
Mission
1) To strengthen local stakeholders and become active partners in disaster risk
reduction and management and on climate change adaptation
2) To elevate the level of consciousness and awareness of each community in
Cainta and become knowledgeable to all forms hazards in the municipality
3) To continuously work on the safety of every family and become prepared in
response to the onslaught of a disaster or a calamity
4) To work intensively by empowering barangays and other various
organizations to make disaster risk management a priority
5) To advance and promote environmental protection and management through
community participation and mobilization
6) To establish strong collaboration with all local sectors and other agencies in
advancing the development thrust in relation to disaster risk management
Goals
1) Strengthen vulnerable sectors for effective response during disasters
2) Establish technology mobilization
3) Institution building for effective participation of local stakeholders on disaster
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risk management
4) Institute local emergency response groups down to the barangay level and
equip them with necessary skills and knowledge on emergency and quick
response
5) Well managed and community-based environmental management
DRR CCA Programs and Priorities
The selected programs and priorities to institutionalize and sustain the DRRM plan
and mainstream CCA were the following:
1) Strengthening Local Disaster Risk Management System - Institutionalization of
LDRRM and Leadership Structure
a) Completion of the LDRRM Office
b) Creation of Local Disaster Risk Reduction & Management Council (LDRRMC)
through SB Ordinance No. 2012-002
Organizational Functional Structure with clarity in reporting relationship
between and among Council Members
(Incident Command System) –Communication and Information Protocol was
already established before, during, and after disaster
c) Establishment of Cainta Municipal DRRM Office through SB Ordinance No.
2012-001
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d) LDRRMO Resource Management – designation of local disaster officer and
detailing of personnel while waiting for the approved plantilla positions as
provided by RA 10121
2) Establishing Strong Collaboration and Partnership with DRR Stakeholders in All
Levels
a) On-going “Resilience Project” or “Building Community Resilience and
Strengthening Local Government Capacities for Recovery and Disaster Risk
Management” Project with OCD/UNDP/CIDA
b) Active Membership – Alliance Of Seven (A7)
c) Active Membership – Philippine Disaster Risk Reduction And Management
Organization (PDRRMO) spearheaded by the Provincial Government
d) Work intensively with Barangays through strengthening the Barangay Disaster
Risk Reduction And Management Council (BDRRMC)
3) Volunteerism and Innovation
a) Strengthening the Cainta River Council
Multi-sectoral groups (LGU, Barangay, Women, Youth, Local Police, Local
Fire, Religious, Homeowners Associations – HOA, etc.)
Off-shoot to Save Cainta River Movement (SCRM)
b) Institute local emergency response group through formation of V-ALERT
(Versatile Alliance of Local Emergency Response Team)
Why “versatile” – scope is multi-hazard not just on flooding.
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Composition – minimum of 7 individual volunteers from each barangay and
already organized Emergency Response Group in Cainta like UVCOM, etc.
c) Capacity Building of emergency response group and equipping them with
necessary skills and knowledge on emergency and quick response.
Coverage of Training Programs
a. First aid and Basic Life Support
b. Search and Rescue
c. Fire rescue
d. Vehicular extrication
e. Camp Management or Evacuation Center Management (MSWD)
f. Rapid Earthquake Damage Assessment System (REDAS through
PHIVOLCS and OCD)
g. And other protective measures against Natural and Man-made
calamities
d) Continuous Simulation on Earthquake and Fire Drills with Schools, Business
Establishments and Subdivision with the Cainta Bureau of Fire Protection
4) Strong and Effective IEC - Advocacy & Development
a) Elevate the level of consciousness and awareness of every community in Cainta to
become knowledgeable to all forms of hazards in the municipality – Constant
dialogue, partnering, symposium, meetings with concerned sectors (i.e. DepEd,
HOA, Business, youth, etc.)
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b) Institutionalize effective participation of local stakeholders on disaster risk
management through summits and conferences
c) Develop materials of Cainta such as DRRM flyers and hand-outs
d) Strengthen vulnerable sectors through the conduct of a Community-based Disaster
Risk Reduction and Management Program (CBDRRMP) – West and East
Manggahan Floodway areas already done. Outputs of CBDRRMP were
“disaggregated data” (how many are children, women, elderly, people with
disabilities (PWD), etc… in the area/community?)
5) Institutionalized Planning and Budgeting For DRR CCA
a) Revisiting Cainta Contingency Plan through “resilience project” to be held on
June 25-28, 2012 at Clark, Pampanga
b) Updating of Comprehensive Land-Use Plan and Comprehensive Development
Plan (CDP) where DRR-CCA is integrated
c) Forced and pre-emptive evacuation plan & policy under review for approval
d) Stock-piling of relief goods
e) Procurement of life saving & communication equipment
f) Purchase and Maintenance of early warning system/devices (Rain-gauge devise,
flood marker)
The LDRRM Plan
The Plan went through an inter-department participatory process of identifying the
Strengths, Weakenesses, Opportunities and Challenges of the LGU before determining
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gaps and barriers. The LDRRM Plan which followed four distinct yet mutually
reinforcing thematic areas of NDRRMP namely Mitigation, Preparation, Response and
Recovery was presented by the local chief executive to the MDRRMC.
List of Cainta DRRM Plan Priority Projects
To fast track the implementation of the LDRRMP, priority projects and
demonstration sites were identified. The purpose was to either replicate good DRRM
practices or implement projects in areas which need them most. All priority projects were
to be implemented within the immediate or short term period from 2011 to 2013. The
priority projects of the LDRRMP were:
1) Development of Contingency Plans
2) Development of IEC and advocacy materials on RA 10121, DRRM and CCA
3) Development of guidelines on
a. Communications and information protocol before, during and after
disasters
b. Creation of DRRM teams
c. Criteria/standards for local flood early warning systems
d. Evacuation
e. Infrastructue redesign and/or modifications
f. Manual of operations of disaster operations centers
g. Accreditation of stakeholders including volunteer groups
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4) Establishment of
a. DRRM Training Institutes
b. Local flood early warning systems (through integrated and sustainable
management river basins and water sheds – like the Cagayan River
Basin (CRB) in Region 2
c. End-to-End Early Warning Systems
d. Establishment of local DRRM Councils and Offices and their
operations centers, as prescribed by R.A. 10121.
5) Conduct inventory of existing DRRM and CCA resources and services; and
6) Development and implementation of DRRM and CCA activities using 5
percent of government agency’s allocation from the annual national budget or
General Appropriations Act (GAA).
Monitoring and Evaluation
Feedback mechanisms are important aspects of gauging performance targets and
learning from experiences on the ground. The Cainta DRRMP, being a long term plan
which outlasts political terms, administrations and leaderships, need to be constantly
reviewed in terms of its relevance and impact on the changing situations on the ground.
Monitoring and evaluation are essential components of results-based programming
in DRRM and CCA, as these would ensure the plan’s on-time implementation and that
lessons from past experiences become input to the plan altogether. Also, through
monitoring and evaluation activities, appropriate and needed revisions and/or changes
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could be identified, from the listed activities to the implementation mechanisms, in case
more appropriate ones are realized.
Monitoring and evaluation used the indicators, targets and activities identified in
each of the four thematic areas of the DRRMP. (refer to Appendix 7 for some examples
of means of verification).
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CHAPTER VI
SUMMARY OF FINDINGS, CONCLUSIONS AND RECOMMENDATIONS
Summary of Findings
This Governance Innovation Report was able to achieve its main objective of
creating an integrated and multi-sectoral Local Action Plan for Disaster Risk Reduction
and Climate Change Adaptation for the Municipality of Cainta that was mainstreamed
into their Local Development Process. By following the four phases, the proposed LAP
was approved by the Cainta MDRRMC and the Sangguniang Bayan and adopted into the
CY 2013 Annual Investment Plan of the Municipality of Cainta.
A thorough review of the secondary data allowed the proponents to study the
international, national and local policies, plans, practices and programs in DRR and CCA
as reference materials in the creation of the LAP for Cainta. This study considered
international and national frameworks and policies such as the HFA, UNFCCC, Local
Government Code, Philippine Climate Change Act, Philippine Disaster Risk Reduction
and Management Act and NCCAP. Primary data were gathered through interviews, focus
group discussions, workshops and survey questionnaires and were used in characterizing
hazards, determining climate change impacts and assessing vulnerabilities of the exposed
areas and the capacity of the Municipality of Cainta in terms of DRR and CCA. The LAP-
DRR-CCA's purpose of strengthening the resilience of the entire Municipality was done
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in coordination with other government and development agencies, the private sector, civil
society organizations, marginalized groups and other stakeholders.
The first phase involved preparing the institutional setting and raising public
awareness by convening all actors and utilizing a participatory process. The second phase
consisted of becoming better acquainted with the Municipality’s risks by conducting
disaster risk assessments and analyzing the local environment and actors. The method
involved drew an analogy between the identified hazards and its underlying factors and
the perceived vulnerabilities based on historical data and projections. Information on
DRR from existing international, national and local frameworks, policies and programs as
well, as where the local government stands in terms of the Ten Essentials for making
cities resilient developed by the United Nations Office for Disaster Risk Reduction
(UNISDR), were collected and systematized for better knowledge about risks. The DRR
assessment process included:
Carrying out a general study or diagnosis of the Municipality of Cainta;
Community-based Hazard and Vulnerability assessment;
Prioritizing strategic actions;
Promoting discussions among all actors to reach consensus on priorities; and
Empowering local communities to generate risk assessments.
Internal and external analyses of the Municipality's strengths, weaknesses,
opportunities and challenges accompanied with an assessment of the resources and
capacities of the Municipality in relation to disaster risk reduction was also part of the
second phase.
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The third phase involved the definition of the LAP's vision and mission, objectives
and goals and identification of key DRR and CCA programs and projects. Phase three
went through the following steps:
1) Pointed out programs to be developed and implemented by the LAP;
2) Prioritized projects or programs that must be carried out immediately;
3) Prepared a DRR local action plan and convened stakeholders to validate and
integrate their observations;
4) Prepared a final plan;
5) Incorporated all elements of the DRR into the Municipality of Cainta's local
development plan; and finally
6) Disseminated the plan to ensure that the entire community is fully aware of its
content.
The fourth and last phase involved the following: a definition of responsibilities
and roles of all agencies, actors and the community; the establishment of the necessary
mechanisms and promotion of the management and mobilization of resources; and
financing for implementation of the plan's projects. It also ensured broad participation and
ownership of all stakeholders with the following purpose:
Guaranteed the validity of formal and informal institutional mechanisms that
allowed all actors to take ownership of the plan.
Established partnerships and alliances at the local, national and international
level for implementation of the plan.
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Enlisted the support of all sectors and actors in the preparation of the projects
under each of the disaster risk reduction and climate change adaptation
programs.
The community-based risk assessment done at the barangay level revealed that
among the seven identified hazards in the municipality, the risks of flooding, typhoon and
earthquake were the most recognized hazards within the Municipality. The risk
assessment also revealed that San Andres, being the most populous barangay is the most
vulnerable barangay from typhoon, flooding and earthquake.
The previous chapters also established that the local government of Cainta has
sufficient funds that put them in a position to allocate budgetary resources and serve its
people including disaster risk reduction and climate change adaptation efforts found in the
local action plan.
With regards to disaster resilience, the local government got the highest rating in
Essential 5, which revealed that in terms of the level of progress or status, the local
government is committed to ensure the safety of its main schools, hospitals and health
facilities from disasters, so that they have the ability to remain operational during
emergencies.
Essential 2 got the lowest rating, implying that in terms of level of progress, the
local government of Cainta has made achievements but are incomplete and commitment
and capacities are limited in assigning a budget and providing incentives for homeowners,
low-income families and the private sector to invest in risk reduction. The LGSAT results
also revealed that the local government of Cainta rated low on the question "How much
134
do warning systems allow for adequate community participation?" This could be
interpreted in any (or combination) of the following ways:
1) Early warning systems are NOT in place for all major hazards, with outreach
to communities; or
2) Early warning systems are in place BUT NOT for all major hazards, with
outreach to communities; or
3) Early warning systems are in place for all major hazards, BUT WITHOUT
outreach to communities.
The main purpose of the LAP-DRR-CCA, which is to make Cainta a climate and
disaster resilient municipality, is aligned to Cainta’s vision of creating a progressive,
prosperous and habitable city of responsible residents. The local chief executive, as one of
the proponents of this study, realized that the sooner they mainstream DRR and CCA in
their policies and programs, the easier it will be for Cainta to achieve their vision.
The LAP-DRR-CCA priority programs and projects generally addressed the
strategic priorities of NCCAP namely in terms of:
1) Ecosystem and environmental stability through enhanced resilience and
safety of natural systems and communities,
2) Human security through reduced risks of the population from climate
change and disasters, and
3) Knowledge and capacity development through enhanced awareness on and
capacity to address climate change.
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Conclusions
As one of the proponents of this GIR and as the local chief executive, Ramon A.
Ilagan, has had first-hand experience on why and how the Local Action Plan for Disaster
Risk Reduction and Climate Change Adaptation (LAP-DRR-CCA) of the Municipality of
Cainta has to consider the Hyogo Framework for Action and the various climate and
disaster-risk resilience initiatives of the United Nations Development Programme
(UNDP) and the United Nations International Strategy for Disaster Reduction (UNISDR).
The discussions on the UNDP-led “Cash for Work Program” and the CIDA-funded
“Resilience Project” provided a concrete glimpse of how international cooperation can
drive local action.
The national government is also pushing institutional reforms and capacity-building
through policies enacted by Congress and programs implemented by the national agencies
and local government units. The triumvirate laws of Republic Act 9729 or the Philippine
Climate Change Act of 2009, Republic Act 10121 or the Philippine Disaster Risk
Reduction and Management Act of 2010 and Republic Act 10171, or the People's
Survival Fund Act of 2012, ensure that institutionalized changes to improve disaster and
climate-risk resilience are in place. These changes are evident in the creation of the Cainta
Municipal Disaster Risk Reduction and Management Office; the expansion of the scope
of “Disaster Risk Reduction and Management Fund” to include procurements and service
contracts for disaster response, mitigation, preparation, and post-disaster recovery; and
136
the participation of national agencies and community members in the formulation of local
action plans.
Given its geographical location and geophysical characteristics, the Municipality of
Cainta regularly experience natural disasters of geological and meteorological in origin.
The voice of the community identified typhoon, flooding and earthquake, particularly
ground shaking and liquefaction, as the top hazards that affect the Municipality of Cainta
face.
These natural disasters had a considerable impact on the lives and livelihoods of the
people of Cainta. In 2009, Cainteños were awakened by the rush of floodwaters inside
their homes caused by the nightlong rain of Super Typhoon Ondoy. More than 90 percent
of Municipality of Cainta was flooded, causing the death of 15 people and inflicting
damages worth over PHP 100 million pesos. In 2012, Cainta went under a State of
Calamity again as 80 percent of the Municipality was again submerged in floods spanning
from 2 feet to a high of 10 feet. A total of 5,462 families were affected consisting of
27,094 individuals in 43 evacuation centers and the damage to infrastructure (ripraps,
bridges, silt) accounted to approximately PhP108 million.
For the Municipality of Cainta, the proponents looked at its vulnerability to
disasters through the province’s human development index, population density, number
of informal settlers per barangay and number of affected families when disaster strikes.
The province of Rizal ranked 6th most vulnerable among all the provinces in the country
with regard to HDI levels. The Municipality being part of Rizal consequently becomes
highly vulnerable in this aspect. Having a population density as high as 11, 810.63
137
persons per hectare, the people of Cainta becomes extremely vulnerable to the three
hazards identified.
Barangay San Andres was also pointed out as the most vulnerable barangay in
terms of the hazard maps and population density. It has the highest number of informal
settlers, high incidence of affected families in flooding.
This study established that the local government of Cainta is in a position to allocate
funds to serve its people due to its consistent improvement of fiscal capacity. The LGSAT
survey also revealed that the local government is generally dedicated in completing the
Ten-point checklist for disaster risk reduction with Essential 5 as its strongest suit. The
local government however, needs to improve on Essential 2 and in allowing adequate
community participation in warning systems. Having said that, the local government is
able to create, appropriate and implement an integrated local action plan for disaster risk
reduction and climate change adaptation for the entire Municipality.
As a result, the major programs, projects and activities were comprehensively
aligned to the voice of the most vulnerable members of the community, utilizing a
participatory process in the truest sense of the word. The LAP and the AIP not only
addressed the scientific concern of climate change but also considered the actual needs of
the community. The proponents considered it an achievement that a number of municipal
departments specifically MENRO, MEO and MSWDO included climate change and
disaster mitigation and adaptation programs in their AIPs. In terms of four thematic areas,
below were the thrusts of the local government regarding its LAP-DRR-CCA:
138
1) Mitigation
a. Goal: To strengthen the Local Risk Reduction and Management
System of Cainta down to the grassroots level by adopting measures
and formulating policies and plans and implementing various actions
that concern risk assessment and early warning measures.
b. Create the LDRRM Office and establish the Operation Center
c. Strengthen the Barangay DRMM Councils and Offices in all the 7
barangays
d. Assess and inspect the safety/building codes of existing structures
e. Monitor and maintain rivers and waterways
f. Mainstream DRR-CCA in the Comprehensive Land Use Plan
(CLUP)
g. Involve Multi-sectors in awareness programs
h. Enhance early warning systems
i. Finalize multi-hazard maps
j. Strengthen the Cainta River Council and partnership with other
LGUs and organizations
2) Preparation
a. Goal: To enhance the emergency response capabilities and readiness
of Cainta through strengthening its LDRRM System to become a
more resilient municipality
b. Train and build capacity of Emergency Response Team
139
c. Store enough reserves of relief goods
d. Purchase life-saving and emergency response equipment
e. Conduct Disaster Emergency and Response Drills
3) Response
a. Goal: To institutionalize the Incident Command System for effective
and efficient response
b. Recognize and continue to train the members of the Emergency
Response/ Rescue Team
c. Formulate the Evacuation Plans of the Barangays
d. Provide accessible means of transportation
e. Provide relief goods to those in need
4) Recovery
a. Goal: To enable a fast psychosocial, economic and structural
recovery of disaster-affected communities
b. Deploy clean-up teams of Municipal Public Safety Office (MPSO)
and Bureau of Fire Protection (BFP)
c. Institutionalize Cash for Work and Food for Work Program
d. Implement Rapid Damage Needs Assessment of Infrastructure
e. Distribute wooden bridges for flooded areas
Both the Christian doctrine and the legal principle state, "Those who have less in
life should have more in law". Listening to the voice of the most vulnerable then means
adopting a rights-based approach, where the less fortunate and people at-risk (elderly
140
people, children, people with disabilities, women and people living in hazard prone areas)
are given the first priority to be served.
Lessons Learned and Recommendations
This Governance Innovation Report can be considered an exercise of good
governance and accountability, as it required the local government to anticipate trends
and changes that could affect their environment, economy and the well being of the
community. The elements of participation and transparency were utilized through the
summits and community dialogues. Accountability was also established in the barangay
being the front liners in the impacts of climate change.
Social Accountability Toward Successful Planning
The success of this local action planning required the following key factors: the
leadership and involvement of the local chief executive, the participation of key
stakeholders; open communications and transparency; balanced decision-making; and
sound project management. The ease of the local planning process depended on the
degree of interest and support of the people, as is evident in the good participant turnout
in the workshops, FGDs, interviews and surveys we conducted.
Climate change is a very big issue or problem that could not be handled alone by
the local government units. They need the help of the community in the same manner as
the community needs the help of their government. Thus, it was necessary to have the
141
concepts of social accountability, a process of constructive engagement, to be applied in
every stage of the action planning for disaster risk reduction and climate change
adaptation. Social accountability required partnership and collaboration between the
public and the citizens to work.
Inclusion of the poor and the marginalized sectors was regarded to be crucial in
planning for DRR and CCA programs that are meant to come to the aid of the highly
affected population. During the formulation of the Barangay Development Plans, active
participation from all sectors in the community was solicited and all sectors were properly
represented. Vendors, business groups, the women's sector, senior citizens, the youth and
others were encouraged to attend the Barangay Disaster Risk Reduction and Management
Planning held in every community. The premise was based on the fact that people in the
community know their own needs, problems and concerns.
Social accountability also worked in an enabling environment in which the local
government’s receptivity to citizen’s participation is embodied in the combination of the
government’s advocacy and an enabling legislation. (Affiliated Network for Social
Accountability in East Asia and the Pacific, 2010) The institutionalization of DRR and
CCA into the local development planning was achieved with the support of planning
frameworks such as the Comprehensive Development Plan (CDP) and the ELA
(Executive and Legislative Agenda).
Another important element in local action planning was the political will. The
Mayor and the officials demonstrated strong and determined commitment to implement
DRR and CCA plans, without bias to any political affiliations or soco-economic
142
divisions. It was also necessary to acquire and maintain the support of local stakeholders,
local government staff and personnel, business sector, NGOs, and the public in general.
Disseminate and Promote the Plan
The proponents learned that people's awareness to climate change is crucial to allow
appreciation and ownership of the DRRM-CCA plans. Thus it is important to develop and
nurture a culture of disaster preparedness. Mayor Ilagan, through his public speeches,
conveyed the need for action but balanced the challenge with optimism and inserted
information on why local action was necessary. After developing the message of disaster
preparedness, the next step was to spread the message to everyone, through issuances of
newsletters, fact sheets, brochures, website, public meetings, press releases or public
statements, summits and workshops. An internal and external communications strategy is
necessary to inform local authorities, the community and different actors about the gaps,
problems and achievements.
Incorporate Mitigation Efforts
It is true that climate change has largely negative consequences to the economy but
the planning process revealed that it might also create economic opportunities for LGUs
especially in the long run. The proponents of this study recommend for future plans to
include mitigation or corrective measures in local action plans other than disaster risk
reduction and climate change adaptation. Mitigation is one of the pillars of addressing
143
climate change and shall be pursued as a function of adaptation. It might not be cost
effective to do now for Cainta, but in the long run, mitigation plans might produce more
savings.
Calculate Greenhouse Gas as CCA Impact Measurement
The Municipality of Cainta’s susceptibility to natural hazards due to its
geographical location and geophysical characteristics created the need to integrate the
climate change programs in the local action plan. Cainta's experiences with Ondoy and
Habagat had shown that climate change would likely lead to irreversible losses if no
action is taken. Hence, planning for the future is a must.
But in order for climate-smart development to take place in the local setting, the
local government should not only end with being climate resilient (adaptation) but also
strive for low emission development (mitigation). Greenhouse gases are the reason there
is global warming, while global warming or the increase in atmospheric temperatures is
said to force the climate to change. Therefore, climate change is indirectly attributed to
greenhouse gas emissions from the earth.
Peter Drucker, an American management consultant and educator once said, “You
can only manage what you can measure” and it is in this context that the proponents
recommend doing a quantified list of greenhouse gas (GHG) emissions and sources for
the Municipality of Cainta to account for the amount of GHG it contributes in the
atmosphere and from there build strategies to control them.
Understanding, managing and reducing GHG emissions can bring several benefits:
Knowing the present and historical GHG emissions of the locality
144
Providing (scientific) information needed to prioritize actions which results
to a reduction of waste and costs and improve on the quality of the local
environment
Providing data needed to monitor and assess the actions
Demonstrating leadership and social responsibility.
By identifying emission sources, computing emissions and setting reduction targets,
the local government would be technically equipped to implement actual climate change
initiatives or projects in their own premises. Some LGU management operations resulting
from a GHG inventory could be protection of forests and save on energy usage in
buildings, homes, vehicles, etc.
Climate Change Adaptation through Land Use Planning
The local chief executive of the Municipality of Cainta realized that the sooner
DRR and CCA programs, projects and activities are mainstreamed in the local
government’s policies and programs, the easier it will be for Municipality to achieve its
vision. There can be no progress and prosperity if the Municipality of Cainta does not
prepare for the impacts of climate change and the onslaught of natural disasters. In the
same manner, Cainteños cannot call themselves responsible residents if they do not have
the skills and resources to respond to life-threatening situations.
The Municipality of Cainta can also evolve to better adapt to climate change
through land use planning. Adaptation is a local response to a global issue that is tailored
to the vulnerabilities of the local communities. The type of planning used in LGU’s
145
comprehensive land use plan (CLUP) takes an anticipatory approach that is proven to be
less costly than reactive planning measures.
And since land use planning requires knowledge of the current state of the
landscape, land use maps needs to reflect the most accurate and most recent land cover,
with details on how it is being used. (Sanborn) The proponents recommend for the local
government of Cainta to update its land use map that was created 12 years ago.
The CLUP of the Municipality of Cainta is currently being re-developed and the
proponents of this study aspire for DRR and CCA measures to be considered in the
revisions.
Empower the LDRRMO
The Memorandum of Understanding (MOU) between the Climate Change
Commission and the National Disaster Risk Reduction and Management Council
(NDRRMC) on February 28, 2011, initiated the joint efforts of both national agencies to
combine the related issues of climate-risk and disaster-risk resilience and help address
them at the local level. According to their MOU, both agencies will work together to
support the plans and actions of the local government units around the country, especially
in each LGU’s integration of disaster risk reduction and management into climate change
action plans. These joint efforts would provide the combined disaster and climate risk
information coordination and knowledge management that local government units,
especially the disaster-prone and climate change-affected ones, need. The proponents
would like to recommend that the joint activities of the said national agencies be coursed
146
through the respective local disaster reduction and management offices of the LGUs so to
facilitate greater appreciation and application of the technical information would be
achieved. With these joint efforts in DRR and CCA, the Cainta MDRRMO should also
look into expending its mandate not also include strategies for climate change adaptation
and mitigation.
Monitor, Follow up and Evaluate the Plan
The key to an effective plan is to be able to measure its progress and submit the
plan to constant updating. During the implementation stage, it is crucial to put in place
communication mechanisms that allow the community to provide input, suggestions or
comments.
In particular, the proponents recommend the following course of actions to be
done at the implementation stage:
1) Develop a monitoring, evaluation and assessment strategy to implement the
plan.
2) Define who is responsible for follow up and monitoring, including the role
of the local community and the social or economic sector.
3) Establish indicators to measure progress and achievement of the plan’s
objectives.
4) Prepare a clear timeline for carrying out the evaluation and delivering
progress reports, including responsibility for these tasks.
147
5) Include feedback mechanisms and opportunities to consult with the
community and local authorities.
6) Improve technical content by allowing local authorities and stakeholder
institutions to provide input to the plan.
148
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APPENDICES
Appendix 1
King Country Questionnaire for Preliminary Assessment of Climate Change
Impacts and Adaptation Barriers
General Information
1. Name(s) of person(s), title(s) and division/ department completing this survey.
2. What is the natural or built resource that is the focus of this questionnaire response?
Please use above sector name:
Assessing Sensitivity
3. How is your natural or built resource sensitive to present day climate variability?
4. How is climate change likely to affect your natural or built resource? Of these
impacts, which present the greatest concern and why?
5. What additional information about climate impacts would help further your ability to
manage climate change impacts?
6 Do you know of, or can you identify, potential economic impacts from climate change?
Please state what the potential or expected impacts are and why they may occur.
Assessing the Capacity to Adapt to Climate Change
7. To what extent do current plans, policies, and regulations explicitly account for the
impacts of climate variability or change, or inherently provide a buffer against
climate impacts? Please provide examples.
8. How adequate are these existing plans, policies, or regulations for managing climate
impacts? (very good, good, fair, poor) If answering for more than one plan, policy,
or regulation, please answer for each.
9. What additional actions, authorities, policies, or regulations are needed for managing
climate change impacts?
10. If specific recommendations are not identifiable, what process is necessary to identify
adaptation strategies?
155
11. Do you have existing forums or committees to do this?
12. What recommendations can you make for near-term (less than 5 years) and longer-
term actions or next steps?
Cross-agency and Cross-sector Interactions
13. To what extent do climate change impacts and adaptation activities in other sectors
(listed above) affect your resource? Please specify.
14. To what extent do climate change impacts and adaptation activities in your resource
affect other sectors (listed above)? Please specify.
15. What other county departments or governmental jurisdictions need to be involved in
developing and implementing adaptation responses to climate change for your natural or
built resource?
16. Is there currently a process or forum in place that facilitates this type of interaction? If
so, please specify.
17. Please provide any additional information that you would like to share.
156
Appendix 2
LAP-DRR-CCA (Program, Projects, Activities)
1) PREVENTION AND MITIGATION
Programs/ Activities Targets including
Gender concerns Key Output
LGU
Budget
PS/
MOOE/
CO
IMPLEMENT
ATION YEAR
Goals: To strengthen Local Risk Reduction and Management System of Cainta down the grassroots level by adopting
measures and or formulating policies and plans as well as implementing various actions that concerns risk assessment
and early warning knowledge-building and awareness-raising.
1. Establishment of Cainta
LDDRM Office or
Operation Center-C3
Completion and
Equipping of
LDRRM Office
Fully Operationalized
LDRRM Office with
complete human resources,
required equipment and
supplies including furniture
and fixtures
7M
3M
2012-2013
2014-2017
2. Strengthening the Local
Disaster Risk Reduction
and Management
Council)
Strong and effective
coordination and
communication
mechanism in-placed
Harmonization of
PPAs of LDRRMC
members
Clear and synchronized
contingency plans for all
types of hazards and disasters
100K Yearly
3. Strengthening the
Barangay Disaster Risk
Reduction and
Management Council in
7 barangays
Strong involvement
of Barangays in
strengthening DRR-
CCA implementation
at the community
level
Synchronized DRRM-CCA
plan of LGU and barangays
DRR-CCA Focal person in
every barangay identified.
500K Yearly
4. Building Assessment
and/or inspection to
determine strength and
safety/ Implementation
of building Code or
“Retrofitting” (schools,
business, ETC) –
(ENGINEERING
CONCERN)
Commissioning of
task force that
involves men and
women in the
assessment
Safe building structures –
climate change adaptation-
compliant structures
Typhoon-resilient
2M 2013-2017
5. River Monitoring and
assessment of creeks,
roads and bridges
(MENRO CONCERN)
Strengthening &
equipping
Environment
Enforcers (EEs)
Clean rivers and safe roads
Regular assessment report on
the status of roads, bridges,
creeks and Cainta river
500K 2013-2017
157
Programs/ Activities Targets including
Gender concerns Key Output
LGU
Budget
PS/
MOOE/
CO
IMPLEMENT
ATION YEAR
6. Mainstreaming of
DRR-CCA in sectoral
plans and programs
Development &
Production of Multi-
hazards IEC
Materials for
knowledge
management
activities
Number of IEC materials
Disseminated (Flyers, Hand-
outs, leaflets etc.)
500K Yearly
Conduct of
Community-based
disaster risk
reduction and
management
programs
(CBDRRM)
No. of activities, fora,
symposia, meetings, etc.,
conducted in the identified
at-risk-communities
Increased awareness of the
community-at-risk
500K Yearly
Integration to DepEd
lessons, and related
activities like
“contest”
Increased awareness of
teachers, students, parents on
DRR-CCA
200K Yearly
Orientation
seminars,
workshops, meetings
with other sectors
(Academe, HOA,
Women, Youth,
OSCA, PWD, etc.)
No. of activities, fora,
symposia, meetings, etc.
conducted
500K Yearly
Inclusion of DRR-
CCA in updating
CLUP/CDP
Specific DRR/CCA Plans
and Programs incorporated in
CLUP & CDP
300K 2012-2013
7. Enhancement of and
Maintenance of EWS
-Rain Gauged/-Flood
Marker/
Communication
(Radio)/siren
(Note: Procurement
of EWS under 2012
budget)
Designation of
equipped personnel
Sufficient and effective
early-warning system
2M 2012-2017
8. Multi-Hazard
Mapping
a)Identification of
vulnerable areas/
identification of
hazard-prone areas
per barangay
b)Provision &
reproduction of
multi-hazard maps
Developed comprehensive
CBDRRM plan suitable for
the classification of hazards
within identified
Community-at-risk per
barangay identified
Disaggregated data based
established in at-risk-
communities
500K 2012-2017
158
Programs/ Activities Targets including
Gender concerns Key Output
LGU
Budget
PS/
MOOE/
CO
IMPLEMENT
ATION YEAR
9. Institutionalization of
local emergency
response system
through Formation &
capacitating of V-
ALERT (Versatile
Alliance of Local
Emergency Response
Team) on multi-hazard-
in partnership with
OCD (deleted)
Acquisition of legal
personality and
accreditation
Formation &
capacitating of V-
ALERT (Versatile
Alliance of Local
Emergency
Response Team) on
multi-hazard
Good quality & equipped
emergency responders to be
composed of individual
volunteers and organizations
from 7 barangays
Defined and strengthened
structure of V-ALERT
1M 2013-2017
10. Strengthening the
“Water-Lily for Life”
project for women
(GENDER-
RESPONSIVE DRR)
Expansion of “Water
Lily for Life Project”
as Livelihood
program to cater
unemployed women
at the barangay level
No. of women-beneficiaries
per barangay
500K 2013-2017
11. Strengthening of Cainta
River Council
Multi-sectoral
participation and
involvement in DRR
programs
No. of programs and projects
initiated by CRC – river
rehabilitation, effective
implementation of local
environmental ordinances
200k 2013-2017
2) PREPAREDNESS
Programs/ Activities Targets including
Gender concerns Key Output
LGU
Budget
PS/MOO
E/CO
IMPLEM
ENTATI
ON
YEAR
Goals: To enhance the emergency response capabilities and readiness of Cainta through strengthening its LDRRM
System and Structure to become more resilient municipality.
1. Capacity-building of V-
ALERT on multi-hazard
and DRR-CCA
Enhanced technical
KSA of V-ALERT
on multi-hazard (i.e
response and rescue
operations)
Good quality acquired
training
1M
2M
2.5
2013-2014
2015
2016-2017
2. Stock piling
a. Food & Non Food
Items
b. Set of Hygienic
kits & Medicines
Purchased Food & Non Food
items
MOA with business sector
“GET NOW PAY LATER”
2.5 M Yearly
159
Programs/ Activities Targets including
Gender concerns Key Output
LGU
Budget
PS/MOO
E/CO
IMPLEM
ENTATI
ON
YEAR
3. Disaster Emergency &
Response Drill
(Local, Brgys, Schools
Govt. / Private, Business
Establishment, Hospital,
H.O.A.
Conduct regular
emergency drill in
collaboration with
concerned agencies
Increased level of resilience
and climate change adaptation
300K Yearly
4. Purchase of Life-saving
and response equipment
Acquisition of
disaster equipment
in relation to the
Capacity-building
programs for V-
ALERT
(can consider other
requirements proposed or
requested by local partners)
2M
3M
2013
2014-2017
3) RESPONSE
Programs/ Activities Targets including
Gender concerns Key Output
LDRRM
F
IMPLEMENTA
TION YEAR
Goals: To institutionalize the Incident Command System (ICS) for effective response and early recovery.
1. Capacity Building of
Personnel Involved in ICS
Enhance awareness
of all personnel
under ICS structure
through series of
orientation,
coaching, and
transfer of
knowledge
Efficient streamline
operation during
time of disaster
Provide effective
response during
disaster
500K Yearly
2. Formulation of Force Pre-
emptive Evacuation Plan
w/ Barangay Officials
Formulate
guidelines for pre-
emptive evacuation
Zero casualty and
fatality
500K Yearly
3. Identification of alternate
routes, and friendship
routes between and among
subdivision - conduct
Forging of MOA
with H.O.A. to open
up their roads
Review the SB
resolution regarding
the
FRIENDSHIP
ROADS
IDENTIFIED
Availability of
heavy operational
transport services
and vehicle
Coordination
meetings with HOA
Effective Delivery /
Distribution of
Relief goods to
affected areas –
Building effective
coordinative
mechanism
300K
2013
160
4) REHABILITATION AND RECOVERY
Programs/ Activities
Targets
including
Gender concerns
Key Output LGU Budget
PS/MOOE/CO
IMPLEMENTATION
YEAR
Goals: To enable a fast psychosocial and structural recovery of disaster-affected communities
1. Development of Recovery
and Rehab Plan
2. Conduct of Study/or
Development of Effective
and Efficient Tool and
Instrument on Post damage
assessment or RDANA
(Rapid Damage Needs
Assessment)
3. Capacity-building of
Camp Managers
Localized
Instrument/Tool/
Methodology
Development for
RDANA
Enhanced KSA of
local camp
managers
2M
3M
4M
2013
2014
2015-2017
161
Appendix 3
Local Government Self-Assessment Survey Tool
Name (Optional) ___________________________Sector______________________ Age____Gender __
Local Government Self-Assessment Tool for Disaster Resilience (Adapted from the ‘Ten Essentials for
Making Cities Resilient’
TEN ESSENTIALS KEY QUESTIONS PER ESSENTIAL Score
ESSENTIAL 1:
Put in place organization
and coordination to clarify
everyone’s roles and
responsibilities
1.1 How well are local organizations (including local government)
equipped with capacities (knowledge, experience, official mandate) for
disaster risk reduction and climate change adaptation?
1.2 To what extent do partnerships exist between communities, private
sector and local authorities to reduce risk?
1.3 How much does the local government support vulnerable local
communities (particularly women, elderly, infirmed, children) to actively
participate in risk reduction decision-making, policymaking, planning
and implementation processes?
ESSENTIAL 2:
Assign a budget and
provide incentives for
homeowners, low-
income families and
the private sector to
invest in risk
reduction
2.1 To what degree does the local government allocate sufficient financial
resources to carry out DRR activities, including effective disaster response
and recovery?
2.2 What is the scope of financial services (e.g. saving and credit schemes,
macro and micro-insurance) available to vulnerable and marginalized
households for pre-disaster times?
2.3 To what extent do local business associations, such as chambers of
commerce and similar, support efforts of small enterprises for business
continuity during and after disasters?
ESSENTIAL 3:
Update data on hazards
and vulnerabilities,
prepare and share risk
assessments
3.1 How regularly does the local government communicate to the
community information on local hazard trends and risk reduction measures
(e.g. using a Risk Communications Plan), including early warnings of
likely hazard impact?
3.2 How well are local government risk assessments linked to, and
supportive of, risk assessments from neighboring local authorities and
state or provincial government risk management plans?
3.3. How well are disaster risk assessments incorporated into all relevant
local development planning on a consistent basis?
162
TEN ESSENTIALS KEY QUESTIONS PER ESSENTIAL Score
ESSENTIAL 4:
Invest in and maintain
risk reducing
infrastructure, such as
storm drainage
4.1 How far do land use policies and planning regulations for housing and
development infrastructure take current and projected disaster risk
(including climate related risks) into account?
housing
communication
transportation
energy
4.2 How adequately are critical public facilities and infrastructure located in
high-risk areas assessed for all hazard risks and safety?
4.3 How adequate are the measures being taken to protect critical public
facilities and infrastructure from damage during disasters?
ESSENTIAL 5:
Assess the safety of
all schools and health
facilities and upgrade
these as necessary
5.1. How safe are all main schools, hospitals and health facilities from
disasters so that they have the ability to remain operational during
emergencies
\
5.2 How far are regular disaster preparedness drills undertaken in schools,
hospitals and health facilities?
ESSENTIAL 6:
Enforce risk compliant
building regulations
and land use planning,
identify safe land for
low-income citizens
6.1 How well enforced are risk-sensitive land use regulations, building codes,
and health and safety codes across all development zones and building
types?
6.2 How strong are existing regulations (e.g. land use plans, building codes,
etc.) to support disaster risk reduction in your local authority?
ESSENTIAL 7:
Ensure education
programs and training
on disaster risk
reduction are in place
in schools and
communities
7.1 How regularly does the local government conduct awareness-building or
education programs on DRR and disaster preparedness for local
communities?
7.2 To what degree do local schools and colleges include courses, education
or training in disaster risk reduction (including climate-related risks) as part
of the educational curriculum?
7.3 How aware are citizens of evacuation plans or drills for evacuations when
necessary?
ESSENTIAL 8:
Protect ecosystems and
natural buffers to
mitigate hazards, adapt
to climate change
8.1 How well integrated are the DRR policies, strategies and
implementation plans of local government into existing environmental
development and natural resource management plans?
8.2 To what degree do civil society organizations and citizens participate in the
restoration, protection and sustainable management of ecosystems services,
including the Cainta river and tributaries?
8.3 To what degree does the private sector participate in the implementation of
environmental and ecosystems management plans in your local authority?
ESSENTIAL 9:
Install early warning
9.1 How much do warning systems allow for adequate community
participation?
163
TEN ESSENTIALS KEY QUESTIONS PER ESSENTIAL Score
systems and emergency
management capacities 9.2 To what extent does the local government have an Emergency
Operations Center (EOC) and/or an emergency communication system?
9.3 How available are key resources for effective response, such as
emergency supplies, emergency shelters, identified evacuation routes and
contingency plans at all times?
ESSENTIAL 10:
Ensure that the needs
and participation of the
affected population are
at the center of
reconstruction
10.1 How well are disaster risk reduction measures integrated into post-
disaster recovery and rehabilitation activities (i.e. build back better,
livelihoods rehabilitation, psycho-social assistance)?
10.2 To what degree does the Contingency Plan (or similar plan) include
an outline strategy for post-disaster recovery and reconstruction,
including needs assessments and livelihoods rehabilitation?
164
Appendix 4
List of CBDRRM Informants
Area Number of Individuals
Barangay: Sto. Domingo
1 Nagkrus Creek (St. Joseph) 39
2 Kasibulan Creek 247
3 Sitio Kangkungan 150
4 SMTI-San Buena Compound 250
5 Gruar Riverside Creek 86
6 Phase 1 Village East Creek 180
7 Cobra People's Riverside (Vill. East) 40
8 UMS Compound (PUMA) 80
9 Petron Compound 50
10 Buick Creekside (Village East) 7
11 Bronco Creekside (Village East) 270
12 Samahang Tabing Ilog 217
13 VENA (Village East) 84
Sub-total 1,700
Area Number of Individuals
Barangay: San Juan
1 L. Santos Street San Juan Heights 22
2 Masgad, Surigao 48
3 Palmera Heights Creek 42
4 JHENIL (Back of Digitel) 17
165
Area Number of Individuals
5 San Juan Heights (Motor Pool) 11
6 Riverside St. Francis 27
7 Gen. Ricarte Creek 13
8 San Francisco (BERM) 201
9 Sitio Kababan I 212
10 Apras BERM 520
11 Lower Manggahan 75
12 Samahang Magkakapitbahay (Don Mariano) 170
13 Anak Pawis Creek 200
14 Sitio Kababan II 155
15 Samahang Pinagkaisa(Don Mariano)Quil St. 120
Sub-total 1,833
Barangay: San Roque
1 Nursery Road 115
Sub-total 115
Barangay: San Andres 1 Lakas Tao 1,330
2 Planters BERM 800
3 Bagong Silang (Lakas Bisig) 92
4 Samahang Buklod Maralita 392
5 Everlasting Neighborhood 127
6 Lower Easement 1 50
7 Lower Easement II 23
8 Lower Easement III 81
9 Lower Easement 1V/Falcon Ville 140
10 Kampi I 51
11 Kampi II 25
12 BERMAI 1,577
13 United Neighborhood East 387
166
14 Special Block Kabisig 136
15 Buli Creek Neighborhood Assn. 129
16 Karlangan 110
17 Isla De Cainta 60
18 Gitnang Parola (Cemetery) 120
Sub-total 8,525
Barangay: Sto. Niño
1 St. Dominic 13
2 212 St. Dominic 14
3 Renea Compound 107
Sub-total 134
Barangay: San Isidro 1 Balanti Creek 182
2 Katahimikan (Karangalan) 9
3 V.V. Soliven (ICCT College) 43
4 Samahang Pagkakaisa ng Mahihirap (V.V. Soliven II) 70
5 Tribu (Bayanihan Village) 57
6 Emerald St. Greenpark Exec. Village 8
7 St. Gregory (Near School) 32
8 Sitio Halang 207
Sub-total 608
Grand Total: 10,020
167
Appendix 5
Key Findings on the Municipality of Cainta's
Self-Assessment for Disaster Resilience
From the Government
SECTOR LGU's STRENGTHS LGU's WEAKNESSES
SB Members,
Barangay, Local
Government
Departments,
NGAs
Ensure that the needs and
participation of the affected
population are at the center of
reconstruction (3.1)
Put in place organization and
coordination to clarify
everyone’s roles and
responsibilities (2.6)
Assign a budget and provide
incentives for homeowners,
low-income families and the
private sector to invest in risk
reduction (2.6)
Ensure education programs
and training on disaster risk
reduction are in place in
schools and communities
Protect ecosystems and natural
buffers to mitigate hazards,
adapt to climate change (2.6)
From Partner Organizations
SECTOR LGU's STRENGTHS LGU's WEAKNESSES
Academe
Put in place organization and
coordination to clarify everyone’s
roles and responsibilities (3.4)
Assess the safety of all schools
and health facilities and
upgrade these as necessary
(3.4)
Invest in and maintain risk
reducing infrastructure, such as
storm drainage (2.4)
Private/ Business Update data on hazards and Ensure education programs
168
SECTOR LGU's STRENGTHS LGU's WEAKNESSES
vulnerabilities, prepare and share
risk assessments (3.1)
Protect ecosystems and natural
buffers to mitigate hazards, adapt
to climate change (3.1)
and training on disaster risk
reduction are in place in
schools and communities (2.6)
NGOs
Assess the safety of all schools
and health facilities and
upgrade these as necessary
(2.9)
Enforce risk compliant
building regulations and land
use planning, identify safe
land for low-income citizens
(2.9)
Assign a budget and provide
incentives for homeowners,
low-income families and the
private sector to invest in risk
reduction (2.4)
Install early warning systems
and emergency management
capacities (2.4)
CSOs
Put in place organization and
coordination to clarify
everyone’s roles and
responsibilities (2.7)
Assign a budget and provide
incentives for homeowners,
low-income families and the
private sector to invest in risk
reduction (2.0)
From Other Sectors
SECTOR LGU's STRENGTHS LGU's WEAKNESSES
Youth
Assess the safety of all
schools and health facilities and upgrade these as necessary
(3.5)
Assign a budget and provide
incentives for homeowners,
low-income families and the
private sector to invest in risk
reduction (2.7)
Religious
Assess the safety of all schools
and health facilities and
upgrade these as necessary
(2.7)
Media
Update data on hazards and
vulnerabilities, prepare and
share risk assessments (3.3)
HOAs
Assess the safety of all
schools and health facilities and upgrade these as necessary
(3.1)