disaster risk preparedness program · disaster risk reduction and management (pdrrm) act of 2010...

SLOW IMPLEMENTATION OF PROJECTS AND ACTIVITIES ON DISASTER PREPAREDNESS HINDERED LOCAL GOVERNMENT UNITS FROM FULLY ATTAINING THE RESPECTIVE PROGRAM GOALS AND OBJECTIVES

Performance Audit Report

DISASTER RISK PREPAREDNESS PROGRAM BY QUEZON CITY AND MALABON CITY – CASE STUDIES

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December 2017

Why COA Did This Study The Philippines stands as one of the most disaster prone areas in the world. According to the Emergency Events Database (EM-DAT) data, over the last decade, the Philippines had a record of 565 disaster events with 69,724 fatalities and roughly USD 23.0 billion in damages. These disaster events affected around 186 million people from calendar years 1900 to 2014. According to the Philippine Disaster Risk Reduction and Management (PDRRM) Act of 2010 and the Local Government Code of 1991, Local Government Units (LGUs) are expected to be at the frontlines in the aftermath of disaster events to provide immediate relief and assistance to those in need. Hence, the ability of the LGUs to respond to disasters plays a crucial role in the Disaster Risk Reduction and Management Framework of the National Government. To assess whether disaster risk preparedness programs of LGUs in the National Capital Region (NCR) for CY 2016 are already in place and implemented, and the goals and objectives of the program are achieved, two cities were selected as case studies: Quezon City and Malabon City. This report focused on: (1) the goals and objectives of the Disaster Risk Preparedness Program of the two LGUs; (2) the extent these LGUs met the funding requirements of the Local Disaster Risk Reduction and Management (LDRRM) Fund; and (3) the extent the LGUs achieved the programs’ goals and objectives for CY 2016.

COA reviewed relevant laws, rules and regulations to determine the program’s goals, objectives and key performance indicators. It also looked into the CY 2016 data from the LGUs to assess the extent the program achieved its goals and objectives, including the requirement for the LDRRM Fund. Lastly, COA interviewed LGU officials and performed ocular inspections of the projects implemented.

What COA Recommends

We recommend that LGUs perform regular monitoring of the implementation of the projects and activities related to Disaster Preparedness Program. And in doing so, each LGU must at the minimum adopt the indicators provided in the NDRRM Plan. Should any LGU prefer to adopt more, these indicators should be specific and measurable.

DISASTER RISK PREPAREDNESS PROGRAM BY QUEZON CITY AND MALABON CITY – CASE STUDIES

SLOW IMPLEMENTATION OF PROJECTS AND ACTIVITIES ON DISASTER PREPAREDNESS HINDERED LOCAL GOVERNMENT UITS FROM FULLY ATTAINING THE RESPECTIVE PROGRAM GOALS AND OBJECTIVES What COA Found

Republic Act No. 10121 or the PDRRM Act requires Local Disaster Risk Reduction and Management Councils (LDRRMCs) of LGUs to: (1) integrate disaster risk reduction and climate change adaptation into local development plans, programs and budgets and (2) approve, monitor and evaluate the implementation of the LDRRM Plans and regularly review and test the plan consistent with other national and local planning programs. In order to operationalize the same, not less than five percent (5%) of the estimated revenue of each LGUs from its respective regular sources shall be set aside as the LDRRM Fund to support disaster risk management activities such as, but not limited to, pre-disaster preparedness programs including training, purchasing life-saving rescue equipment, supplies and medicines, for post-disaster activities, and for the payment of premiums on calamity insurance.

Quezon City and Malabon City have integrated disaster risk reduction and climate change adaptation into its respective local development plans, programs and budgets. Both cities formulated medium term Disaster Risk Reduction and Management Plans. Quezon City’s Plan covers the period from 2014-2020 while Malabon City’s Plan covers 2014-2024. Both plans aimed at establishing and strengthening the capacities of communities to help them anticipate, cope, and recover from the negative impacts of emergency occurrences and disasters, consistent with the National Disaster Risk Reduction and Management Plan. However, both LGUs committed lapses in monitoring which contributed to the low implementation rate of planned projects and activities related to Disaster Risk Preparedness.

As to funding, Quezon City raised enough revenues to meet the fund requirement of the LDRRM Fund. It has generated a total amount of P536,227,129 for its CY 2016 LDRRM Fund. With the total unexpended amount of P1,088,209,998 coming from the 2011-2015 LDRRM Fund, Quezon City has a total fund allocation of P1,624,437,127 for disaster risk reduction activities. On the other hand, Malabon City was not able to meet the LDRRM Fund requirement for CYs 2012, 2013, and 2014 due to inaccurate reconciliation of unutilized LDRRM Fund under the City’s General Fund. It only generated P41,283,703 for its 2016 LDRMM Fund. With the unexpended amount of P84,598,244 in the 2011-2015 LDRRM Fund, Malabon City has a total fund allocation of P125,881,947 for disaster risk reduction activities.

Accomplishment reports of Quezon City and Malabon City revealed that each city was only able to accomplish 25% of their respective Disaster Risk Preparedness Program’s Projects and Activities for CY 2016.

Implementation of Planned Projects and Activities for Disaster Risk Preparedness Program for CY 2016

Source: COA Analysis of Quezon City and Malabon City Data

This is attributable to the following reasons: (1) failure to regularly monitor and evaluate the implementation of the program, activities, and projects related to Disaster Preparedness; (2) non-use of the performance indicators prescribed by the NDRRM Plan, which are specific, measurable, achievable, realistic and time-bound; (3) absence of mandatory members in DRRM Council; (4) prolonged procurement process; and (5) unreconciled records of equipment and emergency supplies.

25%

75%

Quezon City

25.00%

37.50%

37.50% FullyImplemented

Not FullyImplemented

Not Implemented

Malabon City

Audit Highlights

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Disaster Risk Preparedness Program

Contents

Page i PAO-2017-03

Letter 1 Background 3 LGUs Should Always Be Guided By the PDRRM Act, NDRRM

Framework, and NDRRM Plan in Crafting Their Respective LDRRM Plans

6

Quezon City’s Disaster Preparedness Program Quezon City’s LDRRM Plan is Generally Compliant With the

Laws, Rules and Regulations Governing Disaster Preparedness; However, the Deficiencies Identified Affect Quezon City’s Ability to Accurately Monitor the Implementation of its LDRRM Plan

12 Quezon City Met the Funding Requirement of the LDRRM

Fund as Actual Revenue Collections Surpassed Total Budget

18 Backlog in the Procurement Process and Having a Newly

Appointed DRRMO Action Officer Caused the Delay and Non-implementation of Disaster Risk Preparedness Program’s Projects and Activities

20 Lapses in the Monitoring Process 23 Malabon City’s Disaster Preparedness Program Malabon City LDRRM Plan is Also Generally Compliant with

the Laws, Rules and Regulations Governing Disaster Preparedness; However, the Deficiencies Identified Affect Malabon City’s Ability to Accurately Monitor the Implementation of its LDRRM Plan

26 Malabon City Set Aside Insufficient LDRRM Fund Due to

Inaccurate Reconciliation of Unutilized Funds Transferred to Trust Fund for Three Years

30 Non-alignment of AIP and LDRRMFIP, and Overlapping

Mandates of the Malabon City DRRMO Caused the Delay and Non-Implementation of Disaster Risk Preparedness Program’s Projects and Activities

33 Lapses on GSD and CPDO Monitoring Procedure, and

Malabon City DRRMO Not Having its Own Monitoring Tool

34 Conclusions

Recommendations Agency Comments

36 36 37

Appendix I Scope and Methodology 38 Appendix II Quezon City Implementation of Disaster Risk Preparedness

Program’s Project and Activities

40 Appendix III Malabon City Implementation of Disaster Risk Preparedness

Program’s Project and Activities

42 Appendix IV Ocular Inspections of Emergency Supplies and Equipment of

Quezon City DRRM

44 Appendix V Ocular Inspections of Emergency Supplies and Equipment of

Malabon City DRRM

47 Appendix VI Quezon City Management Comments 50 Appendix VII Malabon City Management Comments 51 Appendix VIII COA Contact and Staff Acknowledgments 52


Contents

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Tables Table 1: Key Areas for Mainstreaming DRR and the DRRI 13 Table 2: Summary of Results of the DRRI – Disaster

Preparedness

14 Table 3: Mitigation Fund (70% of LDRRM Fund) in Quezon

City

18 Table 4: Implementation Status of Quezon City’s Planned

Projects and Activities

21 Table 5: Mitigation Fund (70% of LDRRM Fund) in

Malabon City

31 Table 6: Provision of Funds Set Aside for Transfer from

General Fund to Trust Fund

33 Table 7: Implementation Status of Malabon City’s Planned

Projects and Activities

34

Figures Figure 1: Top 5 Countries by Number of Reported Events in 2015

2

Figure 2: The Philippine Population: 2015 5 Figure 3: National DRRM Plan Thematic Areas 7

Figure 4: Composition of the LDRRM Council (Section 11(a) of RA No. 10121)

17

Figure 5: Allocation of Quezon City’s LDRRM Fund (CY 2016 and Unexpended CYs 2011 to 2015) in Four Thematic Areas

18 Figure 6: Allocation of Quezon City’s LDRRM Fund-

Disaster Preparedness’ Projects and Activities

19 Figure 7: Quezon City’s Estimated Revenue vis-à-vis

Actual Revenue Collection

20 Figure 8: Monitoring and Evaluation Strategy Template 24 Figure 9: Allocation of Malabon City’s LDRRM Fund (CY

2016 and Unexpended CYs 2011 to 2015) in Four Thematic Areas

31 Figure 10: Allocation of Malabon City’s LDRRM Fund-

Disaster Preparedness’ Projects and Activities

32 Figure 11: Malabon City’s Estimated Revenue vis-a-vis

Actual Revenue Collection

32


Abbreviations

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AADMER ASEAN Agreement on Disaster Management and Emergency Response

AFP Armed Forces of the Philippines AIP Annual Investment Plan ARO Allotment Release Order Brgy. Barangay C4iSR Command, Control and Communications, Computers,

Intelligence, Surveillance and Response CAD City Accounting Division CCA Climate Change Adaptation CDP Comprehensive Development Plan/ City Development

Plan CNN Cable News Network COA Commission On Audit CPDO City Planning Development Office CRED Centre for Research on the Epidemiology of Disasters CSO Civil Society Organization CSWD City Social Welfare Development CY Calendar Year DBM Department of Budget and Management DILG Department of Interior and Local Government DPOS Department of Public Order and Safety DPWH Department of Public Works and Highways DRR Disaster Risk Reduction DRRI Disaster Risk Resiliency Indicators DRRM Disaster Risk Reduction and Management

Disaster Risk Reduction and Management Council DRRMO Disaster Risk Reduction and Management Office ELSAROC Earthquake Landslide Search and Rescue Orientation

Course Training EMI Earthquakes and Megacities Initiative EM-DAT Emergency Events Database EPWMD Environment Protection and Waste Management

Department GAD Gender and Development GADRCO Gender and Development Resource and Coordinating

Office GIS Geographical Information System GSD General Services Division HFA Hyogo Framework for Action HVRA Hazards, Vulnerabilities and Risk Assessment ICS Incident Command System IEC Information and Education Campaign ISSAI International Standards of Supreme Audit Institutions IFD Intensity-Frequency-Duration IT Information Technology JMC Joint Memorandum Circular KRA Key Results Areas LDC Local Development Council LDRRM Local Disaster Risk Reduction and Management LDRRMC Local Disaster Risk Reduction and Management Council


Abbreviations

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LDRRMFIP Local Disaster Risk Reduction and Management Fund Investment Plan

LDRRMO Local Disaster Risk Reduction and Management Office LGU Local Government Unit MDG Millennium Development Goals M&E Monitoring and Evaluation MOA Memorandum of Agreement MOU Memorandum of Understanding MOOE Maintenance and Other Operating Expenses NCDA National Civil Defense Administration NCR National Capital Region NDCC National Disaster Coordinating Council NDRRM National Disaster Risk Reduction and Management NDRRMC National Disaster Risk Reduction and Management

Council NDRRMOC National Disaster Risk Reduction and Management

Operations Centers OCD Office of Civil Defense OIC Officer-in-Charge PAR Philippine Area of Responsibility PBM Pagamutan Bayan ng Malabon PD Presidential Decree PDAD Parks Development and Administration Department PDRRM Act Philippine Disaster Risk Reduction and Management Act PHIVOLCS Philippine Institute of Volcanology and Seismology

Purchase Order POI Programs of Instruction PPMP Project Procurement Management Plan PPP Public-Private Partnership PR Purchase Request PSTMO Public Safety and Traffic Management Office QC DRRM Plan

Quezon City Disaster Risk Reduction and Management Plan

QCPD Quezon City Police District RA Republic Act RDRRMC Regional Disaster Risk Reduction and Management

Council RPCPPE Report on Physical Count of Property, Plant and

Equipment RPT Real Property Tax SNAP DRR Strategic National Action Plan for Disaster Risk

Reduction SSDD Social Services Development Department SWRT Swift Water Rescue Training TWG Technical Working Group USD United States Dollar US GAO United States Government Accountability Office WASAR Water Search and Rescue Training

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Republic of the Philippines

COMMISSION ON AUDIT Commonwealth Avenue, Quezon City

November 24, 2017 HON. ANTOLIN A. ORETA III City Mayor Malabon City Dear Mayor Oreta: In line with its vision to become an enabling partner of the government in ensuring a better life for every Filipino, the Commission on Audit (COA) conducted performance audits to help government agencies better perform their mandate and achieve program goals and objectives more economically, efficiently, and effectively. Pursuant to Section 2 (2), Article IX-D of the 1987 Constitution which vests COA the exclusive authority to define the scope of its audit and examination, and establish techniques and methods required therefor, the COA created audit teams to conduct performance audits on selected priority programs/projects of the government. COA has identified the Disaster Risk Preparedness of LGUs as one of the priority programs to be audited. According to the Annual Disaster Statistical Review 2015 published by the Centre for Research on the Epidemiology of Disasters (CRED), over the last decade, Philippines is included in the top five countries that are most frequently hit by natural disasters together with China, the United States, India and Indonesia.1 Furthermore, the Philippines recorded 565 disaster events with some 69,724 fatalities and roughly USD 23.0 billion in damages. These disaster events affected around 186 million people from calendar years 1900 to 2014.2 Pursuant to Republic Act No. 10121, otherwise known as the Philippine Disaster Risk Reduction and Management Act of 2010 (PDRRM Act), Local Government Units (LGUs) have the primary responsibility of being the first disaster responders3 during disaster events. Even as early as the enactment of the Local Government Code of 1991, LGUs are already expected to be at the frontline of emergency measures in the aftermath of disasters to ensure the general welfare of its constituents.4 Hence, the ability of the LGUs to respond to disasters plays a crucial role in the Disaster Risk Reduction and Management Framework of the National Government. Figure 1 shows the number of reported events in 2015 among the top five countries frequently hit by natural disasters. As shown on the next page, the Philippines encountered 15 disaster events. Of the 15, ten events are meteorological in nature, four hydrological, and one climatological. According to the PDRRM Act, “it shall be the policy of the State to recognize and strengthen the capacities of the LGUs and communities in mitigating and preparing for,

______________________________________________________________________________

1 Debarati Guha-Sapir, et al., Annual Disaster Statistical Review 2015: The Number and

Trends 1 (2016). 2 Commission on Audit, Assessment of Disaster Risk Reduction and Management Act at the Local Level 7 (2014). 3 An Act Strengthening The Philippine Disaster Risk Reduction And Management System, Providing For The National Disaster Risk Reduction And Management Framework And Institutionalizing The National Disaster Risk Reduction And Management Plan, Appropriating Funds Therefor And For Other Purposes, [Philippine Disaster Risk Reduction and Management Act of 2010] Republic Act No. 10121, § 15 (2010). 4 Michael Bueza, The role of LGUs, local councils during disasters, Rappler, December 6, 2014, available at http://www.rappler.com/newsbreak/44026-role-lgu-local-councils-disasters, (Last accessed: July 31, 2017).


Page 2 PAO-2017-03

responding to, and recovering from the impact of disasters.”5 We conducted this audit to assess whether disaster risk preparedness programs of LGUs in the NCR for CY 2016 are already in place and implemented, and the goals and objectives of the program are achieved. We selected Quezon City and Malabon City for this audit since these cities are located in areas prone to different kinds of disaster events due to its demography and geographical location.6

Figure 1: Top 5 Countries by Number of Reported Events in 2015

Source: Annual Disaster Statistical Review 2015 – The numbers and trends, p. 13

This audit focused on the following: (1) the goals and objectives of the Disaster Risk Preparedness Program of Quezon City and Malabon City; (2) the extent these LGUs met the funding requirements of the Local Disaster Risk Reduction and Management (LDRRM) Fund; and (3) the extent the LGUs achieved the programs’ goals and objectives for Calendar Year (CY) 2016. To identify the goals and objectives of the Disaster Risk Preparedness Program of both LGUs, we obtained and reviewed relevant laws and regulations governing Disaster Risk Preparedness Programs, including the National Disaster Risk Reduction and Management (NDRRM) Plan, and the medium-term and CY 2016 LDRRM Plans of the respective LGUs. To determine the extent of how these LGUs met the funding requirements of the LDRRM Fund, we obtained, reviewed and analyzed documents such as Approved Annual Budget and Disbursement Vouchers. We also interviewed responsible LGU personnel to identify additional methods and sources of revenue, and also the factors that affected the non-realization of the LDRRM fund. To determine the extent of how the goals and objectives for Disaster Preparedness Programs are achieved, we reviewed CY 2016 data pertaining to the program. We also interviewed concerned agency officials and performed ocular inspections7 of equipment and supplies.

We conducted this audit from January 2017 to June 2017 in accordance with the Fundamental Principles of Performance Auditing as embodied in the International Standards of Supreme Audit Institutions (ISSAI) 300. The standard requires that we plan and perform the audit to obtain sufficient, appropriate evidence to provide a reasonable basis for our findings and conclusions based on our audit objectives. We believe that the evidence obtained provides a reasonable basis for our findings and conclusions based on our audit objectives.

______________________________________________________________________________

5 Philippine Disaster Risk Reduction and Management Act of 2010, § 2 (l). 6 Appendix 1: Scope and Methodology. 7 Ibid.

0 5 10 15 20 25 30 35 40

Philippines

United States

China P Rep

India

Indonesia

PhilippinesUnitedStates

China PRep

India Indonesia

Climatological 1 4 1 0 2

Geophysical 0 0 5 3 1

Hydrological 4 5 13 11 7

Meteorological 10 19 17 7 0


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Background Over the past decades, the Philippines has been labelled as one of the most disaster-prone countries in the world mainly because of its geographic and geologic location and physical characteristics. The country lies along several active fault lines and have active, inactive and potentially active volcanoes all over the country. We record an average of 20 earthquakes per day and around 100-150 earthquakes felt per year. Also, the country lies within the Western Pacific Basin, a generator of climatic conditions such as monsoons, thunderstorms, inter-tropical cyclones annually, nine of which makes a landfall. Climate risks bring with it exposure to super typhoons, El Niño-related droughts, projected rainfall change and projected temperature increase. In addition, flooding is another hazard facing the country due to rains brought about by

typhoons and the monsoon.8

From 1970-2013, the National Disaster Risk Reduction and Management Operations Centers (NDRRMOC) listed 856 tropical cyclones that entered the Philippine area of responsibility (PAR), 322 of which, or 38 percent were destructive. In 2013, the country placed third in the World Risk Index. It is subjected to an average of 20 tropical cyclones per year and is highly vulnerable to disasters resulting from extreme natural events like tropical cyclones, monsoon rains, earthquakes, tsunamis, and volcanic eruptions. This is aggravated by a rapidly increasing population density, environmental degradation due to urbanization and industrialization, and climate change.9

On May 27, 2010, consistent with the adoption of the Hyogo Framework Action in 200510, Congress enacted the PDRRM Act, which shifts the government’s approach from disaster relief and response to disaster risk reduction and management.11 Among its significant provisions are the institutionalization of the new NDRRM Framework signed on June 16, 201112 and the NDRRM Plan approved on February 7, 2012 and launched on October 10, 2012.13 The NDRRM Framework will serve as a set of criteria for benchmarking the effectiveness of disaster risk reduction measures and as a tool for monitoring and evaluating the progress. In particular, the Framework serves to provide a basis for political advocacy as well as practical action and implementation. It also highlights the areas where capacities need to be developed and provide a basis for setting goals, objectives, and targets adapted to various circumstances, against which progress can be measured and gaps identified.14 The National Disaster Risk Reduction and Management Council (NDRRMC) developed the NDRRM Framework as mandated by the PDRRM Act.15

______________________________________________________________________________

8 National Disaster Risk Reduction and Management Council, National Disaster Risk Reduction and Management Framework 6 (2011). 9 National Disaster Risk Reduction and Management Council, Y (It Happened) 2 (2014) 10 Commission on Audit, supra note 2, at 10. 11 National Disaster Risk Reduction and Management Council, supra note 9, at 3. 12 Ibid, at 4. 13 Ibid, at 5. 14 National Disaster Risk Reduction and Management Council, supra note 8, at 6. 15 Philippine Disaster Risk Reduction and Management Act of 2010, § 6 (a).


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The NDRRM Plan, on the other hand, serves as the DRRM road map that includes building adaptive capacities of communities, increasing the resilience of vulnerable sectors, optimizing disaster mitigation opportunities, and promoting people’s welfare and security towards gender-responsive and rights-based sustainable development. The Plan outlines the programs and projects, timelines, lead and member-agencies for specific thematic areas, and resources needed. It highlights the importance of mainstreaming DRRM and climate change adaptation (CCA) into developmental processes such as policy formulation and socio-economic development planning.16 The Office of Civil Defense (OCD) has been designated by the PDRRM Act to formulate and implement the NDRRM Plan and ensure that the physical framework, social, economic and environmental plans of communities, cities, municipalities and provinces are consistent with such plan.17 The NDRRM Plan has four thematic areas, namely: Prevention and Mitigation, Preparedness, Response, and Rehabilitation and Recovery.18 This audit will be concentrating on Disaster Preparedness of LGUs, specifically Quezon City and Malabon City.

______________________________________________________________________________

16 National Disaster Risk Reduction and Management Council, supra note 9, at 5. 17 Philippine Disaster Risk Reduction and Management Act of 2010, § 9 (b). 18 Office of Civil Defense, National Disaster Risk Reduction and Management Plan (NDRRMP) 2011-2028 Executive Summary (2011).


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CAR, 1.71%

I, 4.98%

II, 3.42%

III, 11.11%

NCR, 12.75%

IV-A, 14.27%

IV-B, 2.93%V, 5.74%

VI, 4.43%

VII, 5.98%

NIR, 4.37%

VIII, 4.40%

IX, 3.59%

X, 4.64%

XI, 4.85%

XII, 4.50%

ARMM, 3.74%XIII, 2.57%

Figure 2: The Philippine Population: 2015

Source: Philippine Statistics Authority, 2015 Census of Population

The National Capital Region (NCR) has an area of 619.5 sq. km. Figure 2 shows that the NCR has a population of 12,877,253, making it the second most populous region in the Philippines, as well as the fifth most populous metropolitan area in Asia.19 The region is the center of culture, economy, education and government of the Philippines.20 Quezon City is the biggest and most populated City in NCR21 exposed to the West Valley fault line22 while Malabon City is a coastal city prone to flooding.23 These LGUs, based on its respective geographic and geologic location and physical characteristics, are exposed to different types of disaster events. Hence, we believe that these LGUs are the most suitable areas for this

______________________________________________________________________________

19 World Atlas, Largest Cities In Asia available at http://www.worldatlas.com/ articles/the-largest-cities-in-asia.html (Last accessed: September 27, 2017). 20 Local Government Academy, National Capital Region, available at http://lga.gov.ph/region/national-capital-region (Last accessed: September 25, 2017). 21 Philippine Statistics Authority, Highlights of the Philippine Population 2015 Census of Population, available at https://psa.gov.ph/content/highlights- philippine-population-2015-census-population (Last accessed: May 19, 2017). 22 Quezon City Government and Earthquakes and Megacities Initiative, Building a Disaster Resilient Quezon City Project - Disaster Risk Reduction and Management Plan 2014-2020 42 (2013). 23 Malabon City Government, Malabon City Disaster Risk Reduction and Management Plan 2014-2024 15 (2014).

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National Capital Region’s Cities and Municipality

Population

Quezon City 2,936,116

City of Manila 1,780,148

Caloocan City 1,583,978

Taguig City 804,915

City of Pasig 755,300

City of Paranaque 665,822

City of Valenzuela 620,422

City of Las Pinas 588,894

City of Makati 582,602

City of Muntinlupa 504,509

City of Marikina 450,741

Pasay City 416,522

City of Mandaluyong 386,276

City of Malabon 365,525

City of Navotas 249,463

City of San Juan 122,180

Municipality of Pateros 63,840

Region Population

CAR Cordillera Administrative Region 1,722,006

I Ilocos Region 5,026,128

II Cagayan Valley 3,451,410

III Central Luzon 11,218,177

NCR National Capital Region 12,877,253 IV-A CALABARZON 14,414,774

IV-B MIMAROPA 2,963,360

V Bicol Region 5,796,989

VI Western Visayas 4,477,247

VII Central Visayas 6,041,903

NIR Negros Island Region 4,414,131

VIII Eastern Visayas 4,440,150

IX Zamboanga Peninsula 3,629,783

X Northern Mindanao 4,689,302

XI Davao Region 4,893,318

XII SOCCSKSARGEN 4,545,276

ARMM Autonomous Region in Muslim Mindanao

3,781,387

XIII Caraga Region 2,596,709

NCR, 12.75%

https://en.wikipedia.org/wiki/List_of_metropolitan_areas_in_Asia

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https://en.wikipedia.org/wiki/Economy_of_the_Philippines

https://en.wikipedia.org/wiki/Education_in_the_Philippines

https://en.wikipedia.org/wiki/Government_of_the_Philippines

http://www.worldatlas.com/

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https://psa.gov.ph/content/highlights-


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audit for the purpose of presenting the appropriate measures in responding to various types of disaster events. Furthermore, many LGUs are still unable to fully comply with the provisions of the PDRRM Act. According to the 2015 COA Annual Financial Report for local government on the audit of the Disaster Risk Reduction Management Fund, 22 failed to allocate funds to the LDRRM Fund, as mandated by Section 2124 and 57 LGUs failed to create LDRRM Offices in their respective jurisdictions, as mandated by Section 12.25 The results of this audit may serve as a guide for LGUs in complying with the rules on disaster preparedness. 26

LGUs Should Always Be Guided By the PDRRM Act, NDRRM Framework, and NDRRM Plan in Crafting Their Respective LDRRM Plans

In determining the disaster preparedness of Quezon City and Malabon City, this audit looked at how these LGUs complied with the provisions of the PDRRM Act, NDRRM Framework, and NDRRM Plan. The PDRRM Act defines “Disaster Preparedness” as the knowledge and capacities developed by governments, professional response and recovery organizations, communities and individuals to effectively anticipate, respond to, and recover from, the impacts of likely, imminent or current hazard events or conditions. Preparedness is based on a sound analysis of disaster risk and good linkages with early warning systems, and includes such activities as contingency planning, stockpiling of equipment and supplies, the development of arrangements for coordination, evacuation and public information, and associated training and field exercises. These must be supported by formal institutional, legal and budgetary capacities.27 At the local level, Local Disaster Risk Reduction and Management Councils (LDRRMCs) are in-charge of implementing the provisions of the PDRRM Act. Local Chief Executives head the LDRRMCs as its Chairpersons.28 In this case, it is the City Mayors of Quezon City and Malabon City. The LDRRMCs are tasked to: (1) approve, monitor and evaluate the implementation of the LDRRM Plans and regularly review and test the plan consistent with other national and local planning programs and (2) ensure the integration of disaster risk reduction and climate change adaptation into local development plans, programs and budgets as a strategy in sustainable development and poverty reduction.29

______________________________________________________________________________

24 Commission on Audit, 2015 Annual Financial Report: Local Government Volume II 768 (2016). 25 Ibid, at 767. 26 Appendix I: Scope and Methodology 27 Philippine Disaster Risk Reduction and Management Act of 2010, § 3 (j). 28 Ibid, § 11 (a) (1). 29 Ibid, § 11 (b) (1-2).


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The PDRRM Act also mandated the creation of Local Disaster Risk Reduction and Management Office (LDRRMO) in every province, city, and municipality. The LDRRMOs are directly under the office of the governor, city or municipal mayor. Among its various functions is to formulate and implement a comprehensive and integrated LDRRM Plan in accordance with the national, regional and provincial framework, and policies on disaster risk reduction.30 For Disaster Preparedness, the NDRRM Framework aims to establish and strengthen capacities of communities to anticipate, cope and recover from the negative impacts of emergency occurrences and disasters. In order to measure the progress, NDRRM Framework also provided four Key Result Areas (KRAs), namely: (1) Community Awareness and understanding Risk Factors; (2) Contingency Planning at the local level (to include Incident Command System, Early Warning Systems, Pre-emptive evacuation, stockpiling and equipping); (3) Local drills and simulation exercises; and (4) National disaster response planning. Once the KRAs are completed through the various strategies of each of the DRRM aspect, the result will be the attainment of the expected outcome.31

Figure 3: National DRRM Plan Thematic Areas

Source: National DRRM Plan 2011-2028, p.1532

As graphically shown in Figure 3, the goals of each thematic area lead to

the attainment of the country’s overall DRRM vision. To achieve this vision, the NDRRM Plan sets down, among others, the expected outcomes, outputs, key activities, indicators, and timelines. For Disaster Preparedness, the following are the expected outcomes: 1. Increased level of awareness and enhanced capacity of the

community to the threats and impacts of all hazards, risks and vulnerabilities;

2. Communities are equipped with the necessary skills and capability to cope with the impacts of disasters;

3. Increased DRRM and CCA capacity of LDRRM Councils and Offices at all levels;

______________________________________________________________________________

30 Philippine Disaster Risk Reduction and Management Act of 2010, § 12. 31 National Disaster Risk Reduction and Management Council, supra note 8, at 16. 32 Office of Civil Defense, supra note 18, at 15.


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4. Developed and implemented comprehensive national and local disaster preparedness and response policies, plans and systems; and

5. Strengthened partnership and coordination among all key players and stakeholders.33

For Outcome 1, Increased level of awareness and enhanced capacity of the community to the threats and impacts of all hazards, the NDRRM Plan provided the following indicators:

Number of information, education and communication (IEC) materials developed

Number of IEC campaigns conducted

Target Population reached

Outputs Activities

Per cent completion

Timeline 2011-2013

2014-2016

2017-2028

1. A comprehensive local DRRM IEC program developed and implemented

1.1 Develop DRRM and CCA IEC and advocacy plan and program

30% 60% 100%

For Outcome 2, Communities are equipped with necessary skills and

capability to cope with the impacts of disasters, the NDRRM Plan provided the following indicators:

Number of communities trained on disaster preparedness and response

Number of teams with specialized training trained for response

Number of DRRM managers and key decision makers trained

Number of DRRM training institutions established at various levels/ areas

Number of DRRM and CCA materials developed for formal education and training programs

Outputs Activities

Per cent completion

Timeline 2011-2013

2014-2016

2017-2028

1. Increased understanding and application of risk reduction measures and better prepared communities

1.1 Formulation of standard programs of instruction (POIs), training modules 1.2 Conduct trainings and simulation exercises on disaster preparedness and response

30% 60% 100%

2. DRRM is mainstreamed and taken into

2.2 Customized capacity building activities for disaster

30% 60% 100%

______________________________________________________________________________

33 Office of Civil Defense, supra note 18, at 23-26.


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Outputs Activities

Per cent completion

Timeline 2011-2013

2014-2016

2017-2028

consideration in decision making

risk managers and key decision makers

3. Sustained DRRM education and research through permanent training institutions

3.1 Establishment of DRRM Training Institutes to conduct education, training, research and publication programs

50% 50%

4. Increased awareness of students through DRRM and Climate proofing of educational materials and equipment

4.1 Integrate DRRM and CCA school curricula, textbooks and teachers’ guides and manuals 4.2 Conduct of DRRM and CCA education and training for the public and private sectors

30% 60% 100%

For Outcome 3, Increased DRRM and CCA capacity of Local DRRM

Councils and Offices at all levels, the NDRRM Plan provided the following indicators:

Number of operational and self-reliant local DRRM council

Number of fully-functioning local DRRM offices

Outputs Activities

Per cent completion

Timeline 2011-2013

2014-2016

2017-2028

1. Self-reliant and operational local DRRM Council

1.1 Accreditation of NGOs

100%

2. Fully-functioning, adequately staffed and financially capable DRRM Offices

2.1 Develop the local DRRM plan 2.2 Conduct risk assessments, contingency planning, knowledge management and training activities 2.3 Inventory of resources 2.4 Stockpiling and prepositioning of resources 2.5 Establish the DRRM Operations Center

100%


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For Outcome 4, Developed and implemented comprehensive national and local preparedness and response policies, plans, and systems, the NDRRM Plan provided the following indicators:

Number of approved disaster risk preparedness and response plans

Number of Incident Command Systems (ICS) institutionalized at all levels

Number of DRRM Preparedness Teams Institutionalized

Number Integrated Information system, protocols and procedures established

Continuity of operations of essential services plan integrated

Outputs Activities

Per cent completion

Timeline 2011-2013

2014-2016

2017-2028

1. Enhanced preparedness and response strategies, including coordination mechanisms and Infrastructure

1.1 Develop and/or enhance and simulate scenario-based preparedness and response plans

30% 60% 100%

2. Increased coordination through the incident command systems

2.1 Develop and/or enhance ICS coordination and communication systems 2.2 Develop and/or enhance a standard manual of operations for Operations Centers

30% 60% 100%

3. Better prepared citizenry

3.1 Develop and/or enhance guidelines for emergency response teams

30% 60% 100%

4. Increased coordination, complementation and interoperability of work in DRRM

4.1 Develop and/or enhance agreed protocols for information gathering and reporting 4.2 Develop and/or enhance common integrated response assessment tools and mechanisms (i.e. SOPs for deployment for and coordination with rapid assessment teams, SRR, evacuation)

30% 60% 100%


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Outputs Activities

Per cent completion

Timeline 2011-2013

2014-2016

2017-2028

5. Integrated operations and essential services ensured

5.1 Conduct an inventory of existing resources and services

30% 60% 100%

And for Outcome 5, Strengthened partnership and coordination

among all key players and stakeholders, the NDRRM Plan provided the following indicators:

Number of MOUs/MOAs signed with CSOs and the private sector

Increased participation of CSOs in preparedness activities

Number of coordination mechanisms formulated

Partnership mechanisms are included in the contingency plan

Outputs Activities

Per cent completion

Timeline 2011-2013

2014-2016

2017-2028

1. Partnership arrangements among stakeholders established

1.1 Creation, maintenance and update of a directory or database of key players and stakeholders 1.2 Formulate coordination mechanisms and guidelines for partnership arrangements in the contingency plan

30% 60% 100%34

Further, the NDRRMC, Department of Budget and Management (DBM),

and Department of the Interior and Local Government (DILG) issued Joint Memorandum Circular (JMC) No. 2013-1 to guide LGUs in the allocation and use of the LDRRM Fund and to enhance transparency and accountability in the use of the LDRRM Fund. Section 3 of the aforementioned JMC states that the recently approved NDRRM Plan 2011-2028 shall become the basis in the preparation of LDRRM Plan to be validated and accustomed to the local need for prevention and mitigation, preparedness, response, rehabilitation and recovery. Section 6.2 further states that projects and activities to be charged against the LDRRM fund shall be incorporated in the LDRRM Plan, and integrated in the Annual Investment Plan (AIP) of the LGU.35 In order to operationalize the LDRRM Plan, Section 21 of the PDRRM Act requires that not less than 5% of the estimated revenue from regular sources of income shall be set aside for LDRRM Fund to support disaster

______________________________________________________________________________

34 Office of Civil Defense, supra note 18, at 23-26 35 Allocation and Utilization of the Local Disaster Risk Reduction and Management (LDRRM) Fund, NDRRMC, DBM and DILG Joint Memorandum Circular No. 2013-1, §§ 2, 3 & 6.2 (2013).


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risk management activities. In addition, unexpended LDRRM Fund shall accrue to a special trust fund solely for the purpose of supporting disaster risk reduction and management activities of the LDRRMCs within the next five years.36 Based on the above mentioned timelines, LGUs should already be at least 50% or 60% compliant with the listed indicators by the end of CY 2016.

Quezon City’s Disaster Preparedness Program

Quezon City’s LDRRM Plan is Generally Compliant With the Laws, Rules and Regulations Governing Disaster Preparedness; However, the Deficiencies Identified Affect Quezon City’s Ability to Accurately Monitor the Implementation of its LDRRM Plan

Quezon City’s Disaster Risk Preparedness Program’s Goals and Objectives

Consistent with the PDRRM Act, the LGU of Quezon City integrated disaster risk reduction and climate change adaptation into its local development plans, programs and budgets through the issuance of the Disaster Risk Reduction and Management Plan (QC DRRM Plan) 2014 to 2020 on August 22, 2013. Upon evaluation, we found that the LDRRM Plan of Quezon City is aligned with the NDRRM Plan in terms of the goals and objectives of the Disaster Risk Preparedness Program. Under the Disaster Risk Preparedness thematic area, the following are Quezon City’s goals and objectives: Quezon City’s Goal: Effectively anticipate, respond to, and recover from the impacts of likely, imminent of current hazard conditions. Build capacities needed to efficiently manage all types of emergencies. Quezon City’s Objectives:

Strengthening Quezon City’s Emergency Management System

DRRM Geospatial Database Development

Preparation of Contingency Plan for Each Department and Function of Quezon City

Stockpiling of basic emergency supplies ______________________________________________________________________________

36 Philippine Disaster Risk Reduction and Management Act of 2010, § 21.


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Procurement of Communication Equipment to strengthen the Quezon City DRRMC’s communication resources and capacity for disaster risk management on the ground.37

Performance Measures to Demonstrate the Effectiveness of Disaster Risk Preparedness Program

The QC DRRM Plan 2014-2020 contains its own set of indicators which are called Disaster Risk Resiliency Indicators (DRRI) for Monitoring and Evaluation Performance on DRRM. The DRRI was developed by the Earthquakes and Megacities Initiative (EMI) which establishes initial benchmarks to measure the extent of risk reduction approaches mainstreamed in the organizational, functional, operational and development systems and processes of local governments. The DRRI is divided among five key areas as follows:

Table 1: Key Areas for Mainstreaming DRR and the DRRI

Key Areas for Mainstreaming DRR

Disaster Risk Resiliency Indicators

Legal and Institutional Processes and Policies

Effectiveness of Legislative Framework

Effectiveness of Institutional Arrangements

Public Awareness and Capacity Building

Training and Capacity Building

Advocacy, Communication, Education and Public Awareness

Critical Services and Infrastructure Resiliency

Resiliency of Critical Services

Resiliency of Infrastructure

Emergency Preparedness, Response, and Recovery Planning

Emergency Management

Resource Management, Logistics, and Contingency Planning

Development Planning, Regulation and Risk Mitigation

Hazard, Vulnerability and Risk Assessment

Risk-Sensitive Urban Development and Mitigation

Source: Building a Disaster Resilient Quezon City Project, Disaster Risk Reduction and Management Plan 2014-2020, p. 113-11438

Among the above listed DRRIs, four are related to Disaster Preparedness, which are: (1) Training and Capacity Building, (2) Advocacy, Communication, Education and Public Awareness, (3) Emergency Management and (4) Resource Management, Logistics, and Contingency Planning. Upon evaluation of the QC DRRM Plan 2014-2020, we found that the DRRIs, related to Disaster Preparedness, are aligned with the indicators provided by the NDRRM Plan. However, the DRRIs are broad and immeasurable. This is inconsistent with the Implementation Guidelines for Performance Auditing under ISSAI 3000, which states that performance measurement must focus on whether a program has achieved its objectives or requirements, expressed as measurable performance standards.39

______________________________________________________________________________

37 Quezon City Government, supra note 22, at 96. 38 Ibid, at 110-114. 39 International Standards of Supreme Audit Institutions (INTOSAI), ISSAI 3000 Implementation Guidelines for Performance Auditing: Standards and Guidelines


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To highlight, Quezon City provided an example of the results of its self-assessment using the DRRI in the QC DRRM Plan 2014-2020. In conducting the self-assessment, members of the QC Technical Working Group (TWG) were tasked to allocate a 1-5 ranking for each of the ten indicators under the DRRI.40 Below are the scores received by Training and Capacity Building, Advocacy, Communication, Education and Public Awareness, Emergency Management, and Resource Management, Logistics, and Contingency Planning.

Table 2: Summary of Results of the DRRI – Disaster Preparedness

DRRI Tool Component

November 15, 2012 July 19, 2013

Training and Capacity Building

2.59 3.10

Advocacy, Communication, Education and Public Awareness

2.74 3.50

Emergency Management

3.03 3.10

Resource Management, Logistics, and Contingency Planning

2.76 3.00

Source: Building a Disaster Resilient Quezon City Project, Disaster Risk Reduction and Management Plan 2014-2020, p. 11441

As can be gleaned from the method used, the results are purely based on the professional judgement of the members of the QC Technical Working Group. Though the NDRRM Framework and the NDRRM Plan do not restrict LGUs from formulating their respective performance measurements, adopting the prescribed performance indicators would have been easier to implement since these are already specific and measurable.

For example, based on its accomplishment reports, Quezon City has been tracking a variety of data, including the number of participants/ personnel who attended the DRRM trainings, seminars, workshops and drills. In 2016, there were 70 to 120 participants from the Technical Working Group and Disaster Action Teams who attended several trainings, seminars, workshops, and drills such as: (1) Water Search and Rescue Training (WASAR), (2) First Aid and Basic Life Support, (3) Earthquake Landslide Search and Rescue Orientation Course (ELSAROC) Training, and (4) Swift Water Rescue Training (SWRT). Had the Quezon City adopted the indicators provided by the NDRRM Plan, e.g., number of communities trained on disaster preparedness and response and/ or number of teams with specialized training trained for

______________________________________________________________________________

for Performance Auditing Based on INTOSAI’s Auditing Standards and Practical Experience 22. 40 Quezon City Government, supra note 22, at 111. 41 Ibid, at 114.


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response under Outcome 2, Communities are equipped with necessary skills and capability to cope with the impacts of disasters, it would have been easier to determine whether or not they have achieved their goal. All they have to do is to set a target number of communities to be trained at the start of the year. Hitting that goal by the end of the year would be a clear indicator of the programs’ success in terms of equipping communities with the necessary skills and capabilities to cope with the impacts of disasters. Another example would be Quezon City’s data on the development of IEC campaign and information sharing between LGUs/ communities and national government. In 2016, there were 70,221 participants from various barangays, schools, business establishments, hospital, home owners, in Quezon City who attended trainings, seminars, and drills on Disaster Preparedness, First Aid/ Basic Life Support, and Fire and Earthquake. However, these data were not used in the Accomplishment Report to measure the rate of implementation of the NDRRM Plan. Had Quezon City adopted the indicators provided under the NDRRM Plan, the data could have been used to measure the extent the program increased the level of awareness and enhanced capacity of the community to the threats and impacts of all hazards under Outcome 1 of the NDRRM Plan. Furthermore, Quezon City has not established baselines for its performance indicators. Thus, even if Quezon City was able to conduct regular assessments, it would still be difficult to determine Quezon City’s progress.

Frequency and Timeliness of Performance Measurement of Disaster Risk Preparedness Program

Pursuant to Section 11 (b) (1) of the PDRRM Act, LDRRMCs has the mandate to approve, monitor, and evaluate the implementation of the LDRRM Plans and regularly review and test the plan consistent with other national and local planning programs.42 However, Quezon City accomplishment reports reveal that Quezon City has not assessed the implementation of its Disaster Preparedness Program on a regular and timely manner. As mentioned in the previous subsection, the Quezon City TWG conducted self-assessments using the DRRI, the first in November 2012 and second in July 2013. The next one was conducted by the Quezon City DRRMC TWG in April 2017 or almost four years later. Upon presentation of these observations, Quezon City DRRMC acknowledged the necessity to assess the performance of the program regularly.

Quezon City’s CY 2016 LDRRM Plan’s Projects and Activities for Disaster Risk Preparedness Program’s Alignment With LDRRM Plan 2014-2020 as well as with the Timeline of Implementation of Activities

Section 12 (c) (6) of the PDRRM Act requires DRRMOs to formulate and implement a comprehensive and integrated LDRRM Plan in accordance with the national, regional and provincial framework, and policies on disaster risk reduction in close coordination with the local development councils (LDCs).43 We found that the timeline of implementation/ accomplishment of projects and activities on CY 2016 LDRRM Plan and LDRRM Plan 2014-2020 were aligned. In 2016, Disaster Preparedness projects and activities in the LDRRM Plan 2014-2020 are Stockpiling of Basic Emergency Supplies, and Procurement of Communication Equipment to strengthen the QC DRRMC’s communication resources and capacity for disaster ______________________________________________________________________________

42 Philippine Disaster Risk Reduction and Management Act, § 11 (b) (1). 43 Ibid, § 12 (c) (6).


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risk management on the ground. We reviewed the CY 2016 LDRRM Plan and found that it also included projects and activities parallel to that of LDRRM Plan 2014-2020, i.e. Storage and Logistic Requirements/ Resources which involves stockpiling and inventory of available resources needed and available to carry out emergency response functions; and Early Warning, Communication and Possible Evacuation Systems which involves the strengthening of Department of Public Order and Safety (DPOS) Communication resources and capacity for disaster risk management on the ground. The NDRRM Act also requires that LDRRM Plans must be regularly reviewed and updated to consider current vulnerabilities. We found that Quezon City was able to consider and reflect lessons from recent disaster events in its CY 2016 LDRRM Plan. Quezon City prepared Situational Reports for every occurrence of calamities like typhoon and earthquake. These Situational Reports show the overview of the calamity, the effects of the calamity in Quezon City, the preparedness activities, and the response actions undertaken. For example, the CY 2015 Situational Report documented Quezon City’s experience during typhoons and tropical depressions/storms “Egay”, “Falcon”, “Kabayan”, “Nona” and “Lando”. The report noted that activities such as public awareness and early warning advisories, clearing and rescue operations and evacuation were needed during the typhoons that occurred in CY 2015. These observations in the situational reports were duly incorporated in the CY 2016 LDRRM Plan.

Inclusion of the Gender and Development (GAD) Aspect in the Disaster Risk Preparedness Program

Section 2 (j) of the PDRRM Act provides that it shall be the policy of the State to ensure that disaster risk reduction and climate change measures are gender responsive, sensitive to indigenous knowledge systems, and respectful of human rights.44 A reading of the QC LDRRM Plan 2014-2020 would reveal that GAD aspect is not visibly identifiable in the projects and activities under Disaster Risk Preparedness Program. Projects and activities should have been expressly included in the LDRRM Plans to ensure its implementation. These may include, among others: 1. Stockpiling of supplies for children (e.g. milk) and women (e.g.

sanitary napkins); 2. Prepositioning of wheelchair for elderly, disabled persons and/or

pregnant women; and 3. Provision of separate functional and well-lit latrines for men and

women with locks, and bathing facilities with privacy in evacuation centers.

In response to our analysis, Quezon City committed to consider the requirements and standards for GAD mainstreaming in the updating of Quezon City DRRM Plan and its programs, projects and activities. Quezon City officials further mentioned that the GAD Resource and Coordinating Office (GADRCO) is a member of the TWG, which developed/ formulated the LDRRM Plan for 2014-2020. One of the objectives of the Plan is the application of gender-responsive DRRM approaches and strategies in managing hazards and risks. Under the Recovery and Rehabilitation thematic area (Development of Sheltering,

______________________________________________________________________________

44 Philippine Disaster Risk Reduction and Management Act of 2010, § 2 (j).


Page 17 PAO-2017-03

Relocation, and Rehabilitation Plans), it clearly specified the need to establish sheltering to be gender-sensitive and to attend to the most vulnerable such as children, the handicapped and others based on the developed parameters using the HVRA. Expected output would be disaggregated data on population (e.g., by sex, age, age-group, etc.).

Quezon City also cited the good practices in their implementation of the program, projects and activities under its LDRRM Plan for 2014-2020 and these are as follows:

1. The DRRMO Building is provided with separate functional and well-lit latrines, shower rooms, and quarters for men and women employees.

2. The DRRMO with the assistance of the OCD is continuing the conduct of Incident Command System (ICS) training programs participated by both men and women of various departments/ offices of Quezon City.

Mandatory Members Required Under RA No. 10121 in the Quezon City DRRMC

Quezon City Executive Order No. 11 Series of 2016 dated July 20, 2016 enumerated the composition of Quezon City DRRMC; however, upon checking, it does not include the following members as required by Section 11 (a) of RA No. 10121 (Figure 4):

a. The Head of the GAD Office, b. The Head of the Local Veterinary Office, c. The highest-ranking officer of the Armed Forces of the Philippines

(AFP) assigned in the area, d. One private sector representative, member.

The absence of the above cited mandatory members in the Quezon City DRRMC might have impacted on the conceptualization and planning of programs and activities. In particular, the non-inclusion of GAD aspects in the LDRRM Plan may be attributed to the non-inclusion of GAD office representative in the DRRMC. Quezon City committed to take this into consideration in updating its existing Executive Order involving its council’s membership.

Figure 4: Composition of LDRRM Council (Section 11 (a) of RA No. 10121)

Source: Primer on the Disaster Risk Reduction and Management (DRRM) Act of 2010, p. 1045

______________________________________________________________________________

45 Atty. Eunice Agsaoay-Saño, Primer on the Disaster Risk Reduction and Management (DRRM) Act of 2010 10, (Allan Vera, 2010).


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42%

30%

22%

6%

Disaster Prevention and Mitigation

Disaster Preparedness

Disaster Response

Disaster Rehabilitation and Recovery

Quezon City Met the Funding Requirement of the LDRRM Fund as Actual Revenue Collections Surpassed Total Budget

Sufficiency of Funding/ Budgetary Requirement for DRRM Programs, Projects and Activities

To support disaster risk management activities, the PDRRM Act requires that not less than five percent (5%) of the estimated revenue from regular sources shall be set aside as the LDRRM Fund.46 For CY 2016, the Disaster Risk Reduction Management Program for Mitigation in Quezon City was financed as follows:

Table 3: Mitigation Fund (70% of LDRRM Fund) in Quezon City

LDRRM Fund Amount

CY 2016 Appropriations 5% LDRRM Fund

P536,227,129

Unexpended LDRRM Fund 2011-2015

1,088,209,998

Total P1,624,437,127

Source: COA Analysis of LDRRMFIP CY 2016, Consolidated AIP CYs 2011 - 2014 and PPMP Unexpended CY 2015

The graph below shows the allocation of the LDRRM Fund.

Figure 5: Allocation of Quezon City’s LDRRM Fund (CY 2016 and Unexpended CYs 2011 to 2015) in Four Thematic Areas

Source: COA Analysis of LDRRMFIP CY 2016, Consolidated AIP CYs 2011-2014 and PPMP Unexpended CY 2015

Figure 5 shows the allocation and distribution of the LDRRM Fund of Quezon City. Each KRA provided under NDRRM Plan have a corresponding item of appropriation. For example, for outcome 1, increased level of awareness and enhanced capacity of the community to the threats and impacts of all hazards, risks and vulnerabilities, Quezon City allocated P3,300,000 for the development of Information, Education and Communication campaign and information sharing between LGUs/ Communities and National Government. For

______________________________________________________________________________

46 Philippine Disaster Risk Reduction and Management Act of 2010, § 21.


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4,000,000

429,795,913

3,903,000

3,300,000

27,500,000

2,000,000

500,000

23,096,315

Stockpiling of Basic Emergency Supplies

Central Emergency Command, Control and Communications,Computers, Intelligence, Surveillance and Response (C4iSR)

Central Information System

Procurement of Communication Equipment

Development of Information, Education and Communication (IEC)Campaign and Information Sharing Between LGUs/ communities

and National Government

Conduct Vulnerability Analysis and Risk Assessment for CriticalFacilities and Infrastructure

Conduct of Community Risk Assessment and SimulationExercises

Development and Conduct of Regular Review of ContingencyPlans

Conduct of Trainings on Disaster Preparedness and Response,Search and Rescue and Retrieval Operations

Quezon City

Outcome 2, Communities are equipped with necessary skills and capability to cope with the impacts of disasters, a portion of P23,096,315 was allocated for trainings on Disaster Preparedness and Response. For Outcome 3, Increased DRRM and CCA capacity of Local DRRM Councils and Offices at all levels, the amount of P27,500,000 and P4,000,000 were allocated for the conduct of vulnerability analysis and risk assessment for critical facilities and infrastructure, and stockpiling of basic supplies, respectively. For Outcome 4, Developed and implemented comprehensive national and local preparedness and response policies, plans, and systems, the amount of P3,903,000 and P429,795,913 were allocated for procurement of communication equipment, and Central Emergency Command, Control, and Communications, Computers, Intelligence, Surveillance, and Response Central Information System, respectively. And for Outcome 5, Strengthened partnership and coordination among all key players and stakeholders, there is no particular budget allocated for this item. However, during CY 2016, Quezon City entered into various agreements with stakeholders such as Advance Science and Technology Institute; ACF International, CARE Philippines and Plan International Philippines; Philippine Red Cross and Department of Education – Division of Quezon City, among others, to work together for disaster risk management activities.

Even though in Figure 5, only 30% of the entire LDRRM Fund is categorically allocated for Disaster Preparedness, most of the item of appropriation may still be considered part of the LGUs’ compliance with the requirements of Disaster Preparedness since “thematic areas overlap with no clear distinctions over time as it mutually reinforce each other and interoperable.”47

Figure 6: Allocation of Quezon City’s LDRRM Fund - Disaster Preparedness to Disaster Preparedness’ Projects and Activities

Source: COA Analysis of LDRRMFIP CY 2016, Consolidated AIP CYs 2011 - 2014 and PPMP Unexpended CY 2015

______________________________________________________________________________

47 National Disaster Risk Reduction and Management Council, supra note 9, at 2-5.


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Figure 7 shows the estimated revenue of Quezon City vis-a-vis actual collections for CYs 2012 to 2016. As can be seen from Figure 7, actual revenue collections surpassed the estimated total budget for CYs 2012 to 2016. Quezon City attributed this to its revenue collection strategies, exercise of its revenue raising powers as provided by RA No. 7160 or the Local Government Code of 1991, and consideration of additional methods and revenue sources. This enabled Quezon City to meet the funding requirement of the LDRRM Fund of 5% of the estimated revenue from regular sources for CY 2012 to CY 2016.

Figure 7: Quezon City’s Estimated Revenue vis-à-vis Actual Revenue Collection

Source: COA Analysis of Annual Budget from CYs 2012-2016

Having met the CY 2016 LDRRM fund requirement, Quezon City’s CY

2016 LDRRM Fund Investment Plans (LDRRMFIPs) have full fund allocation. Quezon City acknowledges the requirement of Section 21 of RA No. 10121 and will continue its compliance in the subsequent years.

Backlog in the Procurement Process and Having a Newly Appointed DRRMO Action Officer Caused the Delay and Non-implementation of Disaster Risk Preparedness Program’s Projects and Activities

Implementation of Planned Projects and Activities for Disaster Risk Preparedness Program

Even with full fund allocation, Quezon City was only able to fully implement two out of eight planned projects and activities for Disaster Risk Preparedness Program in CY 2016. The rest remained incomplete due to delays in implementation.

-

2.00

4.00

6.00

8.00

10.00

12.00

14.00

16.00

2012 2013 2014 2015 2016

Estimated 10.08 11.00 12.40 13.52 15.16

Actual 10.65 11.66 12.72 14.11 15.49

Am

ou

nt

(in

bil

lio

n)

QUEZON CITY


Page 21 PAO-2017-03

Table 4 shows Quezon City‘s planned project and activities with their individual implementation status.48

Table 4: Implementation Status of Quezon City’s Planned Projects and Activities

Projects and Activities Implementation

Status

Stockpiling of basic emergency supplies; and other programs or projects of similar nature and considered necessary

50%

Central Emergency Command, Control and Communications, Computers, Intelligence, Surveillance and Response (C4iSR) Central Information System

72%

Procurement of communication equipment 28%

Development of IEC campaign and information sharing between LGUs/communities and National Government

100%

Conduct vulnerability analysis and risk assessment for critical facilities and infrastructure

2%

Conduct of community risk assessment and simulation exercises at various levels to test plans and skills

25%

Development and conduct of regular review of contingency plans

100%

Conduct of trainings on disaster preparedness and response, search and rescue and retrieval operations

47%

Source: COA Analysis of LDRRMFIP CY 2016, Consolidated AIP CYs 2011 - 2014 and PPMP Unexpended CY 2015 PAPs for Disaster Risk Preparedness Program Implementation Status

The factors affecting the full implementation of planned projects and activities are the following:

Failure to indicate the technical specification. Failure of Quezon City DRRMC to indicate the technical specifications49 caused delays in the procurement process. This made it difficult for Quezon City to meet the desired implementation schedule as indicated in the Project Procurement Management Plan (PPMP)/ AIP.

Prolonged processing of procurement. Purchase Orders (POs) and Purchase Requests (PRs) take months to process. Here are some examples:

1. Quezon City took almost eight months to process the PO and PR for the procurement RC30-1 Rough Terrain Crane as planned in the AIP LDRRM Fund Unexpended 2011-2014.The PR was submitted on August 11, 2016. However, the corresponding PO No.

______________________________________________________________________________

48 Appendix II: Quezon City Implementation of Disaster Risk Preparedness Program’s Project and Activities. 49 Technical specification refers to the physical description of the goods or services, as well as the LGU’s requirements in terms of the functional, performance, environmental interface and design standard requirements to be met by the goods to be manufactured or supplied, or the services to be rendered. The technical specifications must include the testing parameters for goods, when such testing is required in the contract.


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133825 awarding the contract for the delivery of the procured items was only perfected on May 4, 2017.

2. Same situation happened with Automated External Defibrillator as planned in CY 2015 Unexpended LDRRMFIP. The PR was submitted on August 10, 2016 but PO No. 133696 awarding the contract for the delivery of requested items was only perfected on January 30, 2017.

These planned projects were initiated by Department of Public Order and Safety (DPOS) for implementation during the year but the meticulous procurement process took months, before the procured items were delivered. Furthermore, these delays also caused the following planned project cancellations:

1. Procurement of two units of Mobile treatment Purifier amounting to P40,000,000 for the C4iSR Central Information System;

2. Procurement of 14 units of Satellite Phones amounting to P2,100,000. The Purchase Request (PR) was returned to the end-user; and

3. Conduct of vulnerability analysis and risk assessment for critical facilities and infrastructure - Infrastructure Audit/ inspection Equipment (Scan Station P40) amounting to P27,000,000. This project was cancelled after incurring two years of delay.

Since LDRRM Funds for these projects were earmarked at the time the procurement was initiated, these were reported as “Unpaid” in the Utilization Report for CY 2016. Through this, we were able to determine that the non-implementation of the project during the year was caused by the delay in the procurement process. According to Management the delay in procurement including the execution of the approved LDRRMFIP, is largely attributable to RA No. 9184 or the Procurement Act which prescribes a specific period before any proposed procurement can be considered a successful procurement. To make matters worse, the insistence of the Sangguniang Panlunsod that every procurement activity should bear their stamp of approval or authority in spite of the City’s adoption of the item budgeting process and approval of the LDRRMFIP by the LDRRMC delay the procurement process. Quezon City DRRMO is in its transition phase. Section 1 of Quezon City Executive Order No. 23 series of 2010 dated September 2, 2010, specified that the Head of DPOS shall be the Action Officer and Secretariat of Quezon City DRRMC.50 This was amended by Executive Order No. 11 Series of 2016 dated July 20, 2016 that specified the Local DRRMO V or as may be designated by the Chairman, in a separate order be the Action Officer of the Quezon City DRRMC. 51 Pursuant to the

______________________________________________________________________________

50 Executive Order No. 23 Series of 2010, Quezon City Mayor, Organizing The Quezon City Disaster Risk Reduction And Management Council (QCDRRMC), Redefining Its Functions, Providing For Its Composition And For Other Purposes, Pursuant To Republic Act No 10121 Otherwise Known "Philippine Disaster Risk Reduction And Management Act of 2010", [Executive Order No. 23 Series of 2010], § 1, September 2, 2010. 51 Executive Order NR 11 Series of 2016, Quezon City Mayor, Reorganizing The Quezon City Disaster Risk Reduction And Management Council (QCDRRMC),


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aforementioned Executive Order, Quezon City DRRMO has just appointed its new Action Officer/ Secretariat of DRRMC. Hence, Quezon City DRRMO is still in its transition period. To address these challenges, Quezon City committed to review current procurement processes in consideration of possibly streamlining the steps involved in procurement under Disaster Preparedness activities or other PPAs that are equally urgent. Quezon City departments/ offices will work together in identifying specific bottlenecks and coming up solutions to address them.

Lapses in the Monitoring Process

Quezon City failed to regularly monitor and evaluate the implementation of its programs, projects and activities. As a result, the data gathered has some inconsistencies rendering them unreliable. This affected its ability to immediately address the problems that had arisen during implementation.

Quezon City summarized the progress of implementation using the Status of Implementation Report for CY 2016 LDRRMFIP. According to the report, the Stockpiling of Basic Emergency Supplies for CY 2016 has already been accomplished. Verification of the related financial documents and supporting PO, PR and PPMP, however, revealed that it was a CY 2015 LDRRMFIP stockpiling activity, which was the one contemplated as accomplished in the CY 2016 report. Thus, the planned stockpiling activity for CY 2016 was not implemented. Stockpiling of Basic Emergency Supplies for CY 2016 has a budget allocation of P2,000,000.

Another example would be the planned project and activity for Communication Equipment. The procurement of Handheld Radio and Base Radio worth P370,000 and P314,500, respectively was tagged as accomplished in Status of Implementation Report for CY 2016 LDRRMFIP. However, validation revealed that the actual accomplishment refers to the same description of planned activities programmed and funded from CY 2011-2014 Unexpended LDRRM Fund as incorporated in Consolidated AIP.

These data inconsistencies in the Status of Implementation Report for CY 2016 LDRRMFIP raise questions as to its reliability. Regular monitoring, inventory and ocular inspection would readily reveal that these activities have not been implemented yet.

______________________________________________________________________________

Pursuant To RA10121, Ordinance NR SP-2290 Series of 2014 And Ordinance NR SP-2424 Series of 2015, Redefining Its Functions, Providing For Its Composition And For Other Purposes, [Executive Order NR 11 Series of 2016], § 1, July 20, 2016.


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Figure 8: Monitoring and Evaluation Strategy Template

Source: Building a Disaster Resilient Quezon City Project, Disaster Risk Reduction and Management Plan 2014 - 202052

Figure 8 shows that Quezon City has already designed its own Monitoring and Evaluation (M&E) Strategy Template. However, upon investigation, the Quezon City DRRMO failed to use the aforementioned template. Quezon City responded that this tool has yet to be translated by Quezon City and OCD into a customized tool since guidelines for a standard template must also be aligned with the template that the OCD will generate for use of LGUs. Moreover, Quezon City will tackle the formulation of an M&E tool during their planning along with the updating of the Quezon City DRRM Plan within the year with the OCD. Monitoring53 and Evaluation54 provide information to decision makers but differ in the types of information they provide. Properly utilized, both information are mutually reinforcing such that monitoring can provide quantitative and qualitative data that can serve as inputs to evaluation and vice versa:

A well-functioning monitoring system can greatly reduce the need for in depth evaluation as problems are revealed and resolved in a timely manner;

Monitoring can indicate the need for in-depth evaluation of problems and issues; and

In-depth evaluation may show the need for a new and improved monitoring system.55

Regular monitoring and evaluation using the above mentioned template will provide Quezon City a comprehensive view of its progress in terms of Disaster Preparedness. To highlight the importance of having a

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52 Quezon City Government, supra note 22, at 111. 53 Monitoring– a continuous process of data collection and analysis to check whether a project is running according to plan and to make adjustments if required. It is an evaluative study directed to the short term. 54 Evaluation– a systematic process of collecting and analyzing information about activities and results of a project in order to determine the project’s relevance and/or to make decisions to improve the efficiency and effectiveness of a project. 55 Quezon City Government, supra note 22, at 105.


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comprehensive monitoring and evaluation process, here are some examples of the effects of sporadic monitoring: Not fully implemented planned projects and activities for Disaster Risk Preparedness Program. Quezon City has fully implemented only two out of eight planned projects and activities for Disaster Risk Preparedness Program in CY 2016. The remaining six planned projects and activities have not been fully implemented during the year. Discussion about the implementation of planned projects and activities can be found on the implementation part of this report. Unreconciled Records of Quezon City DRRMO for Equipment and Emergency Supplies. Based on our ocular inspection, Quezon City have unreconciled records for equipment and emergency supplies. This may be attributed to weak monitoring and internal controls, as shown below: 1. Properties acquired in CY 2016 worth P307,148,623 were not

included in the inventory list of Quezon City DRRMO but reported in Report on Physical Count of Property, Plant and Equipment (RPCPPE) of General Services Division (GSD) and/or Utilization Report of City Accounting Division (CAD).

2. The DRRM Equipment and Emergency Supplies acquired in CY 2016, inventoried and prepositioned in Environment Protection and Waste Management Department (EPWMD), Parks Development and Administration Department (PDAD), and City Engineering Department disclosed variance when compared with the Inventory List provided by Quezon City DRRMO.

3. Uncompleted transfer of documents/ records from DPOS to Quezon City DRRMO since the Quezon City DRRMO was a newly created office and DPOS was the one formerly handling DRRM activities.

Based on the above cited findings, Quezon City failed to comply with the requirements of Section 12 (12) of RA No. 10121, which directs the LDRRMO to maintain a database of equipment.56 Quezon City committed to ensure the correctness of the lists used to monitor the properties and supplies of all member offices, and records will be reconciled with GSD and among the other council members.

Unorganized Storage Room where DRRMO Supplies and Equipment are stored. Quezon City’s DRRMO and EPWMD storage rooms were not well-maintained and well-organized during the ocular inspection conducted last March 24 and 27, 2017 respectively. The QCDRRMO assumed its responsibility from DPOS only in CY 2016 and the newly built DRRMO Building still needs the organization of the facilities for storage. EPWMD’s one storage room needs storage racks where inventory can be piled and organized. Storage rooms are not organized due to limited space. Section 2 of PD No. 1445 or the Government Audit Code of the Philippines provides that all resources of the government shall be safeguarded against loss or wastage through illegal or improper

______________________________________________________________________________

56 Philippine Disaster Risk Reduction and Management Act of 2010, § 12 (12).


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disposition, with a view to ensuring efficiency, economy and effectiveness in the operations of government57 is to be observed. In response to our observation, Quezon City committed to organize the storage rooms where the DRRM equipment and supplies are located. Also, Quezon City DRRMO will propose the procurement of racks in its Maintenance and Other Operating Expenses (MOOE) in the next budgeting period. Upon re-inspection on June 7, 2017 Quezon City’s EPWMD storage room was already organized. On the other hand, DPOS lent racks to Quezon City DRRMO to organize the DRRMO supplies and equipment.

Malabon City’s Disaster Preparedness Program

Malabon City LDRRM Plan is Also Generally Compliant with the Laws, Rules and Regulations Governing Disaster Preparedness; However, the Deficiencies Identified Affect Malabon City’s Ability to Accurately Monitor the Implementation of its LDRRM Plan

Malabon City’s Disaster Risk Preparedness Program’s Goals and Objectives

Malabon City also integrated disaster risk reduction and climate change adaptation into its local development plans, programs and budgets with the issuance of the Malabon City Disaster Risk Reduction Management Plan 2014 - 2024. Upon evaluation, we found that the LDRRM Plan of Malabon City is also aligned with the NDRRM Plan in terms of the goals and objectives of the Disaster Risk Preparedness Program. Under the Disaster Risk Preparedness thematic area, the following are Malabon City’s goals and objectives:

Malabon City’s Goal: Reduce the impact of natural disasters on vulnerable communities and maintain the safety of the population from the dangers of calamities.

______________________________________________________________________________

57 Ordaining And Instituting A Government Auditing Code Of The Philippine, [Government Auditing Code Of The Philippines] Presidential Decree No. 1445, § 2.


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Malabon City’s Objectives:

Capacity building thru training, orientation, drills and exercises

Establish and operate an end-to-end early warning system

Conduct of IEC / Advocacy campaign

Maintain a database of DRRM resources, location of critical infrastructures and their capacities such as hospitals and evacuation centers

Strengthen Public-Private Partnership (PPP)

Organize, train, equip and supervise local emergency response teams and Accredited Community Volunteers

Promote and raise public awareness of compliance with PDRRM Act.58

LDRRM Plans Section 12 (c) (6) of the PDRRM Act requires DRRMOs to formulate and

implement a comprehensive and integrated LDRRM Plan in accordance with the national, regional and provincial framework, and policies on disaster risk reduction in close coordination with the local development councils (LDCs).59 In compliance with the aforementioned mandate, Malabon City published its comprehensive plan, the LDRRM Plan 2014-2024. However, this Plan mostly dealt on the operational flow charts and existing resources of various Committees involved in its DRRM Program. Other information which will make the LDRRM Plan more comprehensive, such as project and activities, its expected outputs, the responsible department / office, and timeline, were not considered. Hence, it fell short from the aforementioned requirements of Section 12 (c) (6). Malabon City pointed out, however, that the supposed projects and activities are included in its three-year City Development Plan. Section 12 (c) (7) of the PDRRM Act requires DRRMO to prepare and submit to the local Sanggunian through the LDRRMC and the LDC the annual LDRRMO Plan and budget, the proposed programming of the LDRRM Fund, other dedicated disaster risk reduction and management resources, and other regular funding source/s and budgetary support of the LDRRMO.60 Malabon City has no Annual LDRRM Plan for CY 2016. Instead, Malabon City prepared and submitted LDRRMFIP which specifies the projects and activities for the Disaster Risk Preparedness under the DRRM Program. To address the mentioned deficiencies, Malabon City committed to improve the LDRRM Plan 2014-2024 and to develop its annual LDRRM Plan.

Performance Measures to Demonstrate the Effectiveness of Disaster Risk Preparedness Program

Malabon City’s LDRRM Plan 2014-2024 does not contain performance indicators. Hence, evaluation of performance in terms of achieving the Disaster Risk Preparedness Program’s goals and objectives cannot be gauged or measured. We found that Malabon City has taken some initial steps to measure the performance of its Disaster Risk Preparedness Program by collecting

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58 Malabon City Government, Malabon City Disaster Risk Reduction And Management Plan 2014-2024 (2014). 59 Philippine Disaster Risk Reduction and Management Act of 2010, § 12 (c) (6). 60 Ibid, § 12 (c) (7).


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data on program activities. For example, Malabon City prepared Accomplishment Reports which tracks a variety of data on the program activities, including data on the numbers of participants/ personnel who attended the DRRM trainings, seminars, workshops and drills. If Malabon City will adopt the performance indicators prescribed by the NDRRM Plan then it will be able to produce data on the extent of its disaster preparedness. For example, in the CY 2016 Accomplishment Report of Malabon City, 1,478 participants like barangay health workers, day care staff, community relations officer, students and faculty, traffic enforcers, attended trainings, seminars, and drills on Disaster Preparedness and Response, Basic Emergency Response for Disaster Preparedness and Awareness, Mass Casualty Management and Basic First Aid. In addition, 17 participants from the DRRMO attended several trainings, seminars, workshops and drills such as Local Disaster Risk Reduction and Management Officers Conference, Vehicle Extrication and Stabilization of Collapse Structure Training, Disaster Response Challenge, Strategic Mapping Seminar Workshop for Malabon. By adopting the performance indicators prescribed by the NDRRM Plan, the aforementioned information will help Malabon City determine the extent its Disaster Preparedness Program equipped communities with necessary skills and capability to cope with the impacts of disasters consistent with Outcome 2 of the NDRRM Plan. Furthermore, Malabon City has not established baselines for its performance indicators. Thus, even if Malabon City was able to conduct regular assessments, it would still be difficult to determine Malabon City’s progress. Malabon City responded that this will be taken into consideration in the enhancement of their existing LDRRM Plan.

Malabon City’s CY 2016 DRRMFIP’s Projects and Activities for Disaster Risk Preparedness Program’s Alignment with CDP/ AIP Projects and Activities’ Timeline of Implementation for Activities

As there were no projects and activities in its LDRRM Plan and there was no separate LDRRM Plan for CY 2016, we evaluated Malabon City’s City Development Plan (CDP), in lieu of the comprehensive LDRRM Plan and the Local Disaster Risk Reduction and Management Fund Investment Plan (LDRRMFIP), in lieu of the annual LDRRM Plan in order to determine Malabon City’s compliance with the rules on disaster preparedness. CDP consolidates the programs and projects necessary to carry out the objectives of the different development sectors, including the DRRM Program. Some of these programs and projects are implemented through the annual investment program (AIP) in which projects and activities to be charged against the LDRRM Fund are integrated. On the other hand, LDRRMFIP contains the 30% allocation for the Quick Response Fund in lump sum, the allocation for disaster mitigation, prevention and preparedness with details as to projects and activities to be funded, and the list of projects and activities charged to the unexpended LDRRM Fund of previous years.

After comparing the projects and activities in the CY 2016 AIP and CY LDRRMFIP of Malabon City, we found that there were three planned projects and activities in the CY 2016 AIP, which were not included in the CY 2016 LDRRMFIP, namely: (1) Establishment of Flood-Proof Malabon


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City Safe and Gender-Sensitive Evacuation Center; (2) Enlistment/ Accreditation of Community Disaster Volunteers and Capacity Building; and (3) Creation and institutionalization of Malabon City DRRMO. The Creation and Institutionalization of Malabon City DRRMO which was budgeted in CY 2016 AIP sourced from the General Fund (LDRRM Fund) in the amount of P40,000,000, was not carried in the CY 2016 LDRRMFIP. Although Management asserted that Malabon City DRRMO was institutionalized on February 3, 2011, with funding sourced from the General Fund at that time, still, another funding for the same project/ activity was programmed during the year.

The Enlistment/ Accreditation of Community Disaster Volunteers and Capacity Building which was budgeted in CY 2016 AIP sourced from the General Fund (LDRRM Fund) in a total amount of P1,000,000, was not carried in the CY 2016 LDRRMFIP. According to Management, the planned activity was implemented and programmed under “Training Workshop, Education, Seminar” of the LDRRMFIP Programs, Projects and Activities and the participants in one of the trainings were volunteers. The proof of accreditation of volunteers was not provided due to lack of accreditation requirements.

The Establishment of Flood-Proof Malabon City Safe and Gender-Sensitive Evacuation Center which was budgeted in CY 2016 AIP sourced from the General Fund (LDRRM Fund) in the amount of P20,000,000, was not carried in the CY 2016 LDRRMFIP. According to Management, this project is to be funded out of the transferred funds from the Department of Public Works and Highways (DPWH) in the amount of P24,000,000. The City proposed and submitted a design of the evacuation center with multipurpose center, gender sensitivity center, child-friendly space, women’s space and breast feeding space for women; and in the process of locating for a more strategic area which is safe and flood risk free.

The inconsistencies between the AIP and LDRRMFIP resulted in the non-implementation of the essential projects and activities, which is in violation of Section 6.2 of NDRRMC, DBM and DILG JMC No. 2013-1 stating that projects and activities to be charged against the LDRRM fund shall be incorporated in the LDRRM Plan, and integrated in the AIP of the LGU.

Inclusion of the GAD Aspect in the Disaster Risk Preparedness Program

The GAD aspect was not visibly identifiable in the projects and activities under the City’s Disaster Risk Preparedness Program. Projects and activities should have been expressly included in the LDRRM Plans to ensure that its implementation will not be overlooked. These may include, among others: 1. Stockpiling of supplies for children (e.g. milk) and women (e.g.

sanitary napkins); 2. Prepositioning of wheelchair for elderly, disabled persons and/or

pregnant women; and 3. Provision of separate functional and well-lit latrines for men and

women with locks, and bathing facilities with privacy in evacuation centers.


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Malabon City responded that GAD aspect was considered in its LDRRM Plan and in the implementation of the DRRM projects and activities. In the AIP for CY 2016, conduct of lectures, trainings/ seminars include handling women and children during disasters. The establishment of flood-proof Malabon City Safe and Gender Sensitive Evacuation Center was also included in the AIP for possible funding from other sources. Even though GAD-related activities were included in the AIP and conducted by Malabon City in the implementation of the DRRM projects and activities, incorporating these in the LDRRM Plan will further improve it and make it compliant with the provisions of Section 2 (j) of the PDRRM Act, which requires disaster risk reduction measures to be gender responsive.61

Mandatory Members Required Under Section 11 of RA No. 10121 in the Malabon DRRMC

The composition of the Malabon City DRRMC outlined under Malabon City Ordinance No. 1 Series of 2011 lacked the mandatory member required in Section 11 (a) of RA No. 10121. The Malabon City Ordinance does not include the Head of the GAD Office62 as mandatory member of LDRRMC. Malabon City DRRMC Resolution No. 2017-002, dated May 23, 2017 recommend the amendment of the existing composition of the LDRRMC of Malabon City to include the head of the GAD Office as one of its members.

The absence of above cited mandatory member in the Malabon City DRRMC might have impacted on the conceptualization and planning of programs and activities. In particular, the non-inclusion of GAD aspects in the LDRRM Plan may be attributed to the non-inclusion of GAD office representative in the DRRMC. In response to this observation, Malabon City DRRMC recently passed a resolution amending the existing composition of LDRRMC to include the Head of the GAD office.

Malabon City Set Aside Insufficient LDRRM Fund Due to Inaccurate Reconciliation of Unutilized Funds Transferred to Trust Fund for Three Years

Sufficiency of Funding/ Budgetary Requirement for DRRM Programs, Projects and Activities

To support disaster risk management activities, the law requires that not less than five percent (5%) of the estimated revenue from regular sources shall be set aside as the LDRRM Fund. 63 For CY 2016, the Disaster Risk Reduction Management Program for Mitigation in Malabon City was financed as follows:

______________________________________________________________________________

61 Philippine Disaster Risk Reduction and Management Act of 2010, § 2 (j). 62 Malabon City Ordinance No. 01-2011, An Ordinance Creating the Malabon City Disaster Risk Reduction and Management Office and the Malabon City Disaster Risk Reduction and Management Council, as Mandated by Republic Act 10121 Otherwise Known as the Philippine Disaster Risk Reduction and Management Act of 2010 [Malabon City Ordinance No. 01-2011], § 5, February 3, 2011. 63 Philippine Disaster Risk Reduction and Management Act of 2010, § 21.


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1%

30%

29%

40%

Disaster Prevention and Mitigation

Disaster Preparedness

Disaster Response

Disaster Rehabilitation and Recovery

Table 5: Mitigation Fund (70% of LDRRM Fund) in Malabon City

LDRRM Fund Amount

CY 2016 Appropriations 5% LDRRM Fund

P41,283,703

Unexpended LDRRM Fund 2011-2015

84,598,244

Total P125,881,947


The graph below shows the allocation of the LDRRM Fund.

Figure 9: Allocation of Malabon City’s LDRRM Fund (CY 2016 and Unexpended 2011-2015) in Four Thematic Areas


Figure 10 shows the allocation and distribution of the LDRRM Fund of Malabon City. Almost all KRA provided under NDRRM Plan have a corresponding item of appropriation in the Malabon City LDRRM Fund. For example, for outcome 1, increased level of awareness and enhanced capacity of the community to the threats and impacts of all hazards, risks and vulnerabilities, Malabon City allocated a portion of the P7,000,000 for Information, Education and Communication materials. For Outcome 2, Communities are equipped with necessary skills and capability to cope with the impacts of disasters, a portion of P5,000,000 was allocated for Training Workshop and Education Seminars. For Outcome 3, Increased DRRM and CCA capacity of Local DRRM Councils and Offices at all levels, the amount of P5,000,000 and P1,000,000 were allocated for the procurement of Food Supply for Stockpile and Procurement of Drug and Medicine for Stockpile, respectively. For Outcome 4, Developed and implemented comprehensive national and local preparedness and response policies, plans, and systems, an amount of P13,437,149 was allocated for the procurement of Communication Equipment, IT Equipment and Software. And for Outcome 5, Strengthened partnership and coordination among all key players and stakeholders, there is no particular budget allocated for this item. However, during CY 2016, Malabon City entered into various agreements with stakeholders such as ACF International, CARE Philippines and Plan International Philippines, among others, to work together for disaster risk management activities.


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Figure 10: Allocation of Malabon City’s LDRRM Fund - Disaster Preparedness to Disaster Preparedness’ Projects and Activities

Source: COA Analysis of LDRRMFIP for CY 2016 and Unutilized Fund CYs 2011-2014

Figure 11 shows the estimated revenue of Malabon City vis-a-vis the

actual collections for CYs 2012 to 2016. As can be seen from Figure 11, actual revenue collections fell below the estimated total budget for CYs 2012 to 2016, except for CY 2013. Despite Malabon City’s shortfall in revenue collections, still the funding allocation for LDRRM was given priority as supported by Allotment Release Order (ARO).

Figure 11: Malabon City’s Estimated Revenue vis-à-vis Actual Revenue Collection

Source: COA Analysis of Annual Budget from CYs 2012-2016

As shown in Table 6, Malabon City was not able to meet the funding

requirement of the LDRRM Fund in CYs 2012, 2013 and 2014. Actual fund provision of Malabon City for CY 2016 could not be determined since financial reports for the period were not completed. Malabon City explained that inaccurate reconciliation of unutilized LDRRM Funds under the City’s General Fund during these years led to insufficient amount transferred to Trust Fund. Details are shown on the next page.

13,437,149

5,000,000

7,000,000

1,000,000

5,000,000

6,650,000

Procurement of Communication Equipment, and IT Equipmentand Software

Training Workshop, Education Seminar

Procurement of Medical and Non-Food Materials/ Supplies andPrinting and Binding, IEC Materials

Procurement of Drug and Medicines for Stockpile

Procurement of Food Supply for Stockpile

Other Expenses Charged to LDRRM Fund

Malabon City

-

0.20

0.40

0.60

0.80

1.00

1.20

2012 2013 2014 2015 2016

Estimated 0.97 0.87 1.00 1.10 1.18

Actual 0.84 0.88 0.97 1.08 1.17

Am

ou

nt

(in

bil

lio

n)

MALABON CITY


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Table 6: Provision of Funds Set Aside for Transfer from General Fund to Trust Fund

Particulars CY 2015 CY 2014 CY 2013 CY 2012

Actual Fund Provided for LDRRM Fund:

General Fund P39,090,052 P23,875,208 P24,258,682 P30,243,832

Trust Fund 15,891,590 20,337,370 18,974,022 23,208,921

Total 54,981,642 44,212,578 43,232,704 53,452,753

Appropriation for LDRRM Fund

54,981,642 50,503,623 43,844,700 54,301,079

Overage (shortage) from the minimum LDRRM fund requirement

P– (P6,291,045) (P611,996) (P848,326)

Source: COA Analysis of Malabon City’s Utilization Report; Bank Statement and Annual Budget from CYs 2012-2015

Malabon City adopted a Geographical Information System (GIS) that could increase collection efficiency, but the system has yet to be implemented. Another strategy employed by Malabon City was the collection of arrearages on Real Property Tax (RPT). Legal remedy for delinquent tax on RPT through auction of real property was last conducted in CY 2014. Malabon City is planning to conduct another auction in the second quarter of 2017.

Non-alignment of AIP and LDRRMFIP, and Overlapping Mandates of the Malabon City DRRMO Caused the Delay and Non-Implementation of Disaster Risk Preparedness Program’s Projects and Activities

Implementation of Planned Projects and Activities for Disaster Risk Preparedness Program

Malabon City has fully implemented only two out of eight planned projects and activities for Disaster Risk Preparedness Program in CY 2016. The rest remained incomplete due to delays in implementation. Table 7 shows Malabon City’s planned project and activities with their individual implementation status.64

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64 Appendix III: Malabon City Implementation of Disaster Risk Preparedness Program’s Project and Activities.


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Table 7: Implementation Status of Malabon City’s Planned Projects and Activities

Projects and Activities Implementation

Status

Procurement of communication equipment (early warning system, emergency response and monitoring system)/ Procurement of Information Technology (IT) equipment and software

89%

Training Workshop, Education Seminar 61%

Procurement of medical and non-food materials/ supplies and printing and binding, IEC materials

88%

Procurement of drug and medicine stockpile 100%

Procurement of food supply for stockpile 100%

Creation and institutionalization of Malabon City DRRMO

0%

Establishment of flood-proof Malabon City Safe and Gender-Sensitive Evacuation Center

0%

Enlistment/ accreditation of community disaster volunteers and capacity building

0%

Source: COA Analysis of LDRRMFIP CY 2016 and Unutilized Fund CYs 2011 - 2014 PAPs for Disaster Risk Preparedness Program Implementation Status

Based on our evaluation, the factors affecting the full implementation of

planned projects and activities are: Non-alignment of Malabon City’s CY 2016 AIP and LDRRMFIP. As previously discussed, Malabon City was not able to implement three projects and activities because of the non-inclusion of these in the CY 2016 LDRRMFIP. Delay in the Procurement Process of Malabon City. Malabon City failed to procure 30 units Mobile Responder in the amount of P1,537,149 due to delays in the canvassing and benchmarking of items. Malabon City DRRMO Officer-in-Charge (OIC) Hold Two Separate Offices in the City. Malabon City DRRMO OIC also holds the position as OIC of Public Safety and Traffic Management Office (PSTMO) in Malabon City.65 The work load and overlapping functions affected his ability to efficiently and effectively perform his designated duties.

Lapses on GSD and CPDO Monitoring Procedure, and Malabon City DRRMO Not Having its Own Monitoring Tool

Malabon City also failed to regularly monitor and evaluate the implementation of its programs, projects and activities. Malabon City DRRMO does not have its own Tool to monitor and evaluate DRRM programs, projects, and activities. Interview with the DRRMO OIC disclosed that the City’s monitoring procedure was performed by the GSD and City Planning and Development Office (CPDO). The GSD provides inspectors and prepares inspection reports to oversee implementation / accomplishment of activities, while the CPDO consolidates the accomplishment report and monitoring report of each department. CPDO encodes the actual outputs based on the monitoring report of each department which contains, beforehand, information on

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65 City Government of Malabon Official Website, Malabon City Directory, available at http://malabon.gov.ph/directory/ (Last accessed: May 26, 2017).


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the proposed activities. Comparison of the proposed output and the actual accomplishment / output will then be performed. The results of the monitoring procedure will indicate whether the proposals were accomplished / implemented. The DRRMO solely relies on the GSD and CPDO city-wide activities monitoring procedures since it does not have a monitoring and evaluation process in place. Review of CPDO monitoring report disclosed only DRRMO projects and activities related to Trainings, Workshops and Education Seminars. Malabon City DRRMO should not solely rely on the GSD and CPDO city-wide activities monitoring procedures, since there were lapses in the monitoring and evaluation process of GSD and CPDO which resulted in the following: Not fully implemented planned projects and activities for Disaster Risk Preparedness Program. Malabon City has fully implemented only two out of eight planned projects and activities for Disaster Risk Preparedness Program in CY 2016. Of remaining six planned projects and activities, three have not been fully implemented and three have not been started. Discussion about the implementation of planned projects and activities can be found on the implementation part of this report. Not properly documented distribution of DRRM equipment and emergency supplies by Malabon City DRRMO to implementing department/ office and non-maintenance of database of DRRM equipment. Upon validation of DRRMO accomplishment report, some items procured were not recorded in the inventory listing of GSD. Instead, procurements were supported only by the utilization report and POs. Furthermore, Malabon City DRRMO does not maintain a separate inventory listing of DRRM equipment and emergency supplies other than those maintained by the GSD. Subsequent distribution of equipment and emergency supplies to the implementing department (e.g. CSWD, Engineering Office and Pagamutan Bayan ng Malabon) were not documented and no documents were maintained on the status of the items (e.g. quantity, date of purchase, distribution list, stock on hand). Malabon City DRRMO failed to comply with the requirements of Section 12 (12) of the PDRRM Act, which directs the LDRRMO to maintain a database of equipment.66 Unorganized Storage Room where DRRMO Supplies and Equipment are stored. During our ocular inspection conducted last April 3, 2017, we found that the City Social Welfare Development (CSWD) storage room of Malabon City located at Oreta Sports Complex was not well-maintained and well-organized. The unorganized storage room was attributable to insufficient human resource. The supply officer said that he is the only person arranging the storage room. Section 2 of PD No. 1445, which provides that all resources of the government shall be safeguarded against loss or wastage through illegal or improper disposition, with a view to ensuring efficiency, economy and effectiveness in the operations of government67, is to be observed.

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66 Philippine Disaster Risk Reduction and Management Act of 2010, § 12 (12). 67 Government Auditing Code Of The Philippines, § 2.


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In response to our observation, Malabon City organized the supplies storage of CSWDD in which food and non-food supplies were segregated.

Conclusions

Both Cities did not fully implement their planned projects and activities for CY 2016 Disaster Risk Preparedness Program. Out of eight planned projects and activities of both Cities, only two were fully implemented. The remaining six planned projects and activities for Quezon City have not been fully implemented; while for Malabon City, three projects and activities have also not been fully implemented and another three have not been started during the year. Hence, the goals and objectives for CY 2016 were not fully achieved. This problem should have been promptly addressed in the course of implementation of projects and activities had the LDRRMCs of the two LGUs established and implemented a monitoring system. Though the Disaster Risk Preparedness Program was not fully implemented, disaster preparedness actions were actually undertaken and still being undertaken to reduce disaster risks. As to the effectiveness of the Disaster Risk Preparedness Program of the two LGUs, we cannot attest yet to its effectiveness since behavioural change created by preparedness aspect of DRRM is eventually measured by how well people respond to disasters.

Recommendations

To better ensure the effectiveness of Quezon City and Malabon City’s Disaster Preparedness Program, we recommend both cities to take the following actions: For Both Quezon City and Malabon City: Planning:

Expressly specify GAD aspects in the projects and activities of LDRRM Plan, if applicable.

Comply with the requirement of the PDRRM Act with regard to the mandatory composition of the DRRMC.

Implementation:

Comply with the duties and responsibilities mandated in the respective Executive Order and Ordinance notwithstanding the fact that for Quezon City, 2016 is still the transition period for the LDRRMO; i.e., from a section in DPOS to the created DRRMO; and for Malabon City, the DRRM Officer is handling both PSTMO and DRRMO.

Monitoring:

Establish performance baseline for all measures to better evaluate progress made and whether or not goals are being achieved.

For Quezon City only: Planning:

Regularly review the annual LDRRM Plan and revise the same if deemed necessary.

Ensure performance indicators are specific, measurable, and aligned with the NDRRM Plan.

Put into use monitoring and evaluation tool that would help monitor the progress of each planned project and activity’s implementation


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Appendix I: Scope and Methodology

COA has refocused its efforts by conducting performance audits to help government agencies better perform their mandates and achieve program goals and objectives more economically, efficiently and effectively. It identified the Disaster Risk Preparedness by LGU as one of the priority programs, which will be audited. Accordingly, the team’s audit focus was only directed to two LGUs namely Quezon City, being the most populated City in NCR68; and Malabon City being a coastal town69 and a city rich in waterways and rivers, i.e., 12 rivers, three creeks and three canals, which made it prone to frequent flooding70 especially during high tides and heavy rains. Both cities are located in the NCR, which is second to the most populated region in the Philippines.71 Furthermore, NCR was specifically warned by the PHIVOLCS about the upcoming magnitude 7.2 earthquake.72 The results of this audit may serve as a guide for LGUs in complying with the rules on disaster preparedness. The audit aimed at determining the following: 1) the goals and objectives of the two LGUs for CY 2016 Disaster Risk Preparedness Program; 2) the extent these LGUs achieved the LDRRM fund requirement; and 3) the extent they achieved their goals and objectives for Disaster Risk Preparedness Programs for CY 2016. To identify the goals and objectives of the sampled LGUs’ Disaster Risk Preparedness Program, we obtained, reviewed, and analyzed documents such as Quezon City LDRRM Plan 2014-2020, Malabon City LDRRM Plan 2014-2024, NDRRM Plan 2011-2028; and selected relevant laws, rules, and regulations governing the Disaster Risk Preparedness Program such as RA No. 10121, NDRRMC, DBM and DILG Joint Memorandum Circular No. 2013-1 dated March 25, 2013, and DILG Memorandum Circular No. 2015-76 dated July 21, 2015. In addition, we compared and analyzed NDRRM Plan stated goals and objectives with the LDRRM plans’ stated goals and objectives to determine the extent the goals and objectives of the Disaster Risk Preparedness Program in LDRRM Plan alignment to NDRRM Plan. Further, we identified national and local laws and regulations governing the Disaster Risk Preparedness Program, reviewed Disaster Risk Preparedness Program in the LDRRM plans. Then, we compared and analyzed these to determine the extent of compliance of the Disaster Risk Preparedness Programs in LDRRM Plan with the relevant national and local laws and regulations. Finally, we reviewed documents gathered to identify performance indicators for each objective of Disaster Risk Preparedness Program in LDRRM Plan and to determine whether GAD aspects were considered in the LDRRM Plans. ______________________________________________________________________________

68 Philippine Statistics Authority, supra note 21. 69 Malabon City Government, supra note 23, at 2. 70 Ibid, at 15. 71 Philippine Statistics Authority, supra note 21. 72 Jay Nelz, Phivolcs Warns Metro Manila To Prepare For A Magnitude 7.2 Earthquake, Philippine News, February 14, 2017, available at https://philnews. ph/2017/02/14/phivolcs-warns-metro-manila-prepare-magnitude-7-2-earthquak e/ (Last accessed: May 26, 2017).

https://philnews/


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Appendix I: Scope and Methodology

To determine the extent on how the LDRRM fund requirement was achieved, we reviewed the budget documents such as Annual Budget of sampled LGUs that were reviewed by DBM for CYs 2012 to 2016, and RA No. 7160 for the sources of the LGUs’ revenues and the basis for the allocation. We analyzed the data gathered such as Utilization Reports and transactions pertaining to transfer of unexpended fund balance to Trust Fund from CY 2012 to CY 2015 to determine whether the LDRRM fund requirements have been achieved. We also analyzed sampled LGU’s Annual Budget and interviewed the responsible LGU personnel to identify the additional methods and revenue sources. To determine the extent on how the LGUs’ goals and objectives for Disaster Risk Preparedness Programs are achieved, we obtained, reviewed, and analyzed documents such as Executive Orders/ City Ordinances creating and organizing DRRMO and DRRMC to determine the agencies’ roles and responsibilities to ensure achievement of the program’s goals and objectives, and implementation of programs project and activities. Further, we obtained, reviewed, and analyzed documents such as Situational Report for CY 2015 for the needed program, projects and activities for Disaster Preparedness, Quezon City LDRRM Plan 2014-2020, Quezon City CY 2016 LDRRM Plan, CDP of Malabon City and Malabon City LDRRMFIP for CY 2016 to determine the extent of CY 2016 LDRRM Plan alignment with the long-term LDRRM Plan and whether recent events were taken into consideration/ reflected in their LDRRM Plans. We also obtained, reviewed and analyzed documents such as Accomplishment Report with Implementation Status, Utilization Reports, PO, PR and Inventory Reports to determine the extent of implementation of the planned Disaster Risk Preparedness Programs in CY 2016. We also conducted physical/ ocular inspection of movable assets and emergency supplies procured during CY 2016 and interviewed DRRMO and different City Department personnel involved in the implementation of DRRM program, projects and activities. Finally, we consolidated all the findings we had found to determine factors that hinder the achievement of Disaster Risk Preparedness Program’s goals and objectives. We conducted the audit from January 2017 to June 2017 in accordance with the Fundamental Principles of Performance Auditing as embodied in the International Standards of Supreme Audit Institutions (ISSAI) 300. The standard requires that we plan and perform the audit to obtain sufficient, appropriate evidence to provide a reasonable basis for our findings and conclusions based on our audit objectives. We believe that the evidence obtained provides a reasonable basis for our findings and conclusions based on our audit objectives.


Appendix II: Quezon City Implementation of Disaster Risk Preparedness Program’s Project and Activities

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Projects Planned Activities* Implemented Activities** Percentage of

Implementation Items Amount Items Amount

Stockpiling of basic emergency supplies; and other programs or projects of similar nature and considered necessary

3 4,000,000 1 2,000,000 50% (2,000,000/4,000,000)

C4iSR Central Information System

70 429,795,913 61 309,119,323 72% (309,119,323/429,795,913)

Procurement of communication equipment

6 3,903,000 2 1,100,000 28% (1,100,000/3,903,000)

Development of IEC campaign and information sharing between LGUs/ communities and national government

2 3,300,000 2 3,300,000 (based on

accomplishment report*** not on

utilization report)

100% (3,300,000/3,300,000)

Conduct vulnerability analysis and risk assessment for critical facilities and infrastructure

2 27,500,000 1 500,000 2% (500,000/27,500,000)

Conduct of community risk assessment and simulation exercises at various levels to test plans and skills

3 2,000,000

2

500,000 25% (500,000/2,000,000)

Development and conduct of regular review of contingency plans

1 500,000 1 500,000 100% (500,000/500,000)

Conduct of trainings on disaster preparedness and response, search and rescue and

29 23,096,315 11 10,800,000 47% (10,800,000/23,096,315)


Appendix II: Quezon City Implementation of Disaster Risk Preparedness Program’s Project and Activities

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Source: *Project Procurement Management Plan CY 2016, Unexpended CY 2015/ Consolidated Annual Investment Program 2011-2014 Unexpended/ LDRRM Fund Investment Plan CY 2016 **Accomplishment Report CY 2016/ Ocular Inspection Report/ Inventory Report/ Report of LDRRM Fund Utilization for the period January 1- December 31, 2016, Trust Fund for CY 2011-2015 ***Quezon City Disaster Control Division/ DRRMO Accomplishment Report from January 2015-December 2016, p. 3

The amount shown in the Implemented Activities were based on budgeted amount; same with the amount presented in the Planned Activities. Items in the Implemented Activities were based on the information gathered through vouching POs that supports Utilization Report. Items refer to the different inventory/ equipment items to be procured not the quantity of the inventory/ equipment to be procured. Since the quantities shown in the PPMP that served as the basis for procurement were strictly being followed in the procurement process no difference in the planned and actual quantity of items to be procured were noted. Development of IEC campaign and information sharing between LGUs/ communities and National Government; Conduct of community risk assessment and simulation exercises at various levels to test plans and skills; and Conduct of trainings on disaster preparedness and response, search and rescue and retrieval operations were activities for disaster risk preparedness program that were included in the LDRRMFIP CY 2016, Consolidated AIP unexpended LDRRM Fund 2011-2014 and LDRRM Fund unexpended 2015. This means these were funded using the LDRRM fund but some of the accomplishments were completed without utilizing the LDRRM fund of the City. To validate whether said activities were really implemented, we reviewed accomplishment reports.

retrieval operations


Appendix III: Malabon City Implementation of Disaster Risk Preparedness Program’s Project and Activities

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Projects Planned Activities Implemented Activities* Percentage of Implementation Items Amount Items Amount

Procurement of communication equipment (early warning system, emergency response and monitoring system)/ Procurement of I.T equipment and software**

10 13,437,149 9 11,900,000 89% (11,900,000/13,437,149)

Training workshop, education seminar**

18 5,099,292 10 3,114,003 61% (3,114,003/5,099,292)

Procurement of medical and non-food materials/ supplies and printing and binding, IEC materials**

123 7,300,000 112 6,400,000 88% (6,400,000/7,300,000)

Procurement of drug and medicine stockpile**

48 1,000,000 48 1,000,000 100% (1,000,000/1,000,000)

Procurement of food supply for stockpile**

51 5,000,000 51 5,000,000 100% (5,000,000/5,000,000)

Creation and institutionalization of Malabon Disaster Risk Reduction and Management Office***

Not specified

40,000,000 0 0 0%

Establishment of flood-proof Malabon City Safe and Gender-Sensitive Evacuation Center***

Not specified

20,000,000 0 0 0% (0/20,000,000)

Enlistment/ accreditation of community disaster volunteers and capacity building***

Not specified

1,000,000 0 0 0% (0/1,000,000)

Source: *Accomplishment Report CY 2016/ Ocular Inspection Report/ Inventory Report


Appendix III: Malabon City Implementation of Disaster Risk Preparedness Program’s Project and Activities

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**Project Procurement Management Plan CY 2016, Unexpended CY 2011, 2012, 2013 and 2014, and LDRRM Fund Investment Plan CY 2016 ***City of Malabon Annual Investment Program 2016, p. 7

The amount shown in the Implemented Activities were based on budgeted amount; same with the amount presented in the Planned Activities. Items in the Implemented Activities were based on the information gathered through vouching POs that supports Utilization Report. Items in the Planned Activities that were not found in the POs were considered as not implemented. Items refer to the different inventory/ equipment items to be procured not the quantity of the inventory/ equipment to be procured. Since the quantities shown in the PPMP served as the basis for procurement were strictly being followed in the procurement process, no difference in the planned and actual quantity of items to be procured were noted.


Appendix IV: Ocular Inspections of Emergency Supplies and Equipment of Quezon City DRRM

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QC DRRMO STORAGE ROOM

QC EMERGENCY OPERATION CENTER



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QC DISTRICT IV ENGRNG OFFICE EQUIPMENT

QC PDAD DRRM EQUIPMENT

QC DPOS DRRM EQUIPMENT



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QC EPWMD STORAGE ROOM

QC SSDD STORAGE ROOM

QCPD SEARCH AND RESCUE KIT


Appendix V: Ocular Inspections of Emergency Supplies and Equipment of Malabon City DRRM

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MC DRRMO STORAGE ROOM

MC DRRMO PARKING AREA



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CSWD STORAGE ROOM

MC ENGRNG STORAGE ROOM

PBM STORAGE ROOM



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BRGY. LONGOS, MALABON CITY

BRGY. TUGATOG, MALABON CITY


Appendix VI: Quezon City Management Comments

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Appendix VII: Malabon City Management Comments

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Appendix VIII: COA Contact and Staff Acknowledgments

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COA Contact Alexander B. Juliano (Assistant Commissioner), (02) 952-5700 local 2022 or [email protected]

Staff Acknowledgments

In addition to the contact named above, Emelita R. Quirante (Director IV), Michael L. Racelis (Director III), Rosa A. Dela Cruz (Team Supervisor) and Roberto D. Mabagos Jr., supervised the audit and the development of the resulting report. Rosella T. Mirasol (Audit Team Leader), Julieta M. De Joya, Policarpo L. Silva Jr., Erwin R. Llave, and Charmaine L. Chua (All Team Members) made key contributions to this report.

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