phi pda: building disaster-resilient communities in flood-prone areas: a demonstration and pilot...

8/9/2019 PHI PDA: Building Disaster-Resilient Communities in Flood-Prone Areas: A Demonstration and Pilot Testing of Local Design Innovations for Housing and Small …

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PROJECT MID-TERM REPORTBuilding Disaster-Resilient Communities in Flood-Prone Areas: a demonstration and pilot testing of local

design innovations for housing and small community infrastructures

TAO-Pilipinas (Technical Assistance Organization), Inc. page 1 of 10

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

The next stage, Formulation of Community Disaster Preparedness and Mitigation/AdaptationPlan, covers development of plans to address identified hazards and strengthen communityvulnerabilities. The project assumes that the community, SAMASAISIP, will remain in the sitein spite of the in-situ hazards and vulnerabilities identified. The mitigation measures, therefore,shall address identified in-situ vulnerabilities.

Furthermore, this stage involves the generation of indicative proposals to enhance communitydisaster preparedness, mitigation or adaptation in the pilot site taking into consideration: planneddevelopments in the surrounding area; the extent and duration of flooding; flood controlmechanisms; and lack of security of tenure. The proposal may include use of space, concepts formovement systems and linkages, open space systems (if applicable), adaptation measures anddesigns, activities, and services.

1.1 ObjectivesThis stage has the following objectives:

• Identification and consideration of government policies into physical and spatialallocation of proposed activities within the pilot site, such as economic growth,community and social needs, betterment of the neighborhood environment, conservationand protection of the natural environment, and the disaster mitigation and adaptationplans of the local government.

• Drafting of a site framework plan for the pilot area showing the site (the informalcommunity) as an integral part of the barangay and its development.

• Formulation of the community disaster preparedness and mitigation/adaptation planderived from the users’ assessment and requirements. This includes the physicalconstraints, design considerations, architectural and engineering criteria, andenvironmental limitations. Consultation workshops with target community are likewiseincluded.

• Identification of community disaster adaptation measures• Preparation of proposed site layout for a disaster-resilient community and plans for

community infrastructure and house retrofitting.

2.0 Development Perspective of The City of Navotas

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

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






governed by a transparent, dedicated, responsive and financially self-sufficient localGovernment.'' 1

The City endeavors to “ harness all resources to serve the needs of its constituency towardsindustrialization and urbanization through the dedicated and accountable public officialand empowered citizenry.'' 2

As a marina city, the coastal shores of Navotas play a significant role in its development towardsa regional fishing hub through industrialization and urbanization. However, for the island of SitioPulo, industrialization is not the option. From the City’s old land use plan, Sitio Pulo is plannedas part of the 6.25 hectares parks and open spaces scattered in the city. Planning along thedesignated land use, Sitio Pulo has a strong potential as a recreational island with a local

community serving as custodians or stewards of the development. Refer to Figure 1. Land UsePlan of Barangay Tanza (taken from the old Comprehensive and Land Use Plan of Navotas).

Figure 1. Barangay Tanza Land Use Plan

1 Official Website of Navotas. http://navotas.gov.ph/2 Ibid.

Manila Bay

FISHPONDS

SitioPulo

Malabon

BarangayTangos

Medium-density Residential

Low-density Residential

High-density Residential

Commercial

Institutional

Industrial

Parks and Open Spaces

Fishponds

Existing road dike






The proposed development of Sitio Pulo should take into consideration local site conditions,community activities, and movement systems. It should reduce current vulnerabilities due tonatural and human-made hazards and improve the physical condition of the site, structures,access to services and utilities, mobility, and opportunities to earn. The proposed development isdivided into three zones: the buffer and conservation zone, residential zone and evacuation zone.

Refer to Figure 3. Zoning of Sitio Pulo.

The buffer and conservation zone includes a mandatory 20m easement measured from thehighest waterline. A 10m deep mangrove strip/reforestation area planted along the coastline shallserve as buffer against strong winds especially during southwest monsoon season.

The mangrove strip can expand seaward to widen and strengthen the buffer and facilitaterecovery of local marine resources. The mangrove strip shall be conserved and cannot beexploited. Subsistence fish gathering within the mangrove area may be allowed but it shouldcarefully follow a set guidelines. Access from the Bay will be provided by three entry points thatcould accommodate small fishing boats during good weather. Infrastructure for docking may beprovided to ensure proper docking of boats. The mangrove can also serve later as an eco-tourismto promote its conservation and appreciation more with the locals.

The buffer and conservation zone shall serve as the first line of defense against natural hazardslike typhoons, storm surge, strong winds, and the accretion or erosion of coastal land broughtabout by the periodic sea level rise and fall.

The residential zone shall accommodate the existing 120 families and basic communityfacilities to provide adequate and humane living condition. Planning of the existing settlementarea shall take into consideration the following:

a. Adequate circulation system and access to housing units;b. Faster evacuation in times of calamity;c. Safety from human-made hazards such as fire, disease outbreak, water and air pollution;d. Equal area of housing units for all occupants;e. Allocation of adequate space for community facilities; andf. Removal of non-conforming uses (charcoal-making).

Housing density shall be maintained or if possible lessened and shall by no means be increased.The present residents shall serve as custodians/stewards of the island, including the conservationof the mangrove and buffer zone. The existing condition of the island and its surroundingsprevent it from accommodating future population growth or expansion thus the residents of Puloshould agree on the maximum number of families that should stay in the island and enforce it.The maintenance of density in the island should also be regulated by the Barangay.

The evacuation zone is composed of the inner channel that could serve as shelter for smallfishing boats during inclement weather and a faster and safer route than Manila Bay, to evacuatepeople from the island in case of calamities; a multi-purpose hall that could serve as evacuation






2.2 Disaster Risk Reduction in Navotas

The main hazard recognized in Navotas is flooding. In response to flooding, the City andNational Government implemented major flood control projects to address flooding allthroughout Navotas. The Department of Public works and Highways reported completion of theKAMANAVA Area Flood Control and Drainage System Improvement Project in 2009. SitioPulo however, is located outside the polder dike.

Budget allocation for flood control activities and equipment for rescue and relief operations arethe priority items of the city’s disaster risk reduction management (DRRM) plan.

Fire drills and rescue exercises were conducted among members of the city’s Local Disaster RiskReduction and Management Office (LDRRMO) and rescue team. Disaster risk reduction andpreparedness orientation however, has not reached the level of vulnerable communities.Barangay Tanza has yet to formulate its own local DRRM plan. Refer to Figure 4. KAMANAVAFlood Control and Drainage System Improvement Project, Table 1. Plan of Activities for 2011.

Figure 4. Map showingKAMANAVA Area Flood Controland Drainage System ImprovementProject

Source: http://jica-ri.jica.go.jp/publication/assets/Impacts%20of%20Climate%20Change%20to%20Asian%20Coastal%20Areas%20The%20Case%20of%20Metro%20Manila%20%20.pdf






Table 1. Plan of Activities for 2011Areas of Concern Programs/Activities Period of

ImplementationBudgetary

RequirementsProvision of gasoline oiland lubricants

To provide gasoline/oil and lubricants toall rescue vehicles

Jan – Dec 2011 315,000.00

Payment of overtimeservice for rescuers

To provide overtime pay to allemployees involved in rescueoperations

Jan – dec 2011 200,000.00

Food supplies for stockpile To maintain stockpile of food suppliesfor quick response operations

Jan – Dec 2011 1,000,000.00

Drugs and medicine To maintain stockpile of durgs andmedicine for quick response

Jan – Dec 2011 500,000.00

Trainings and Seminars To conduct trainings for all rescue teams Jan – Dec 2011 315,000.00Lack of rescue vehicle To purchase one unit rescue vehicle Jan – Dec 2011 1,400,000.00Lack fo disasterequipments and other

logistics

To purchase disaster equipments andother logistics for rescue operations

Jan – Dec 2011 2,300,000.00

Infrastructure facilities fordisaster

To repair/maintain/constructinfrastructure facilities for disasterpreparedness

Jan – Dec 2011 12,600,000.00

Lack of office supplies to purchase office supplies for thedelivery of LDRRMO services

Jan – Dec 2011 110,000.00

Financial assistance To provide financial assistance to allvictims of disaster/calamities

Jan – Dec 2011 705,000.00

Travelling expenses Tp provide travelling expenses toLDRRMO

Jan – Dec 2011 5,000.00

Quick response operations To allocate funds for quick responseoperations

Jan – Dec 2011 10,000,000.00

Evacuation centers To allocate funds for maintenance ofevacuation centers

1 st quarter of CY2011

750,000.00

Other activities for disasterpreparedness

To allocated funds for other activities ofdisaster preparedness

Jan dec 2011 351,707.00

Total (PhP) 30,551,707.00

2.3 Sitio Pulo Disaster Risk Reduction and Management Plan

As part of the PDA, a one-day workshop was conducted in 17 December 2011 to draw out thecommunity’s ideas and formulate a disaster preparedness and mitigation plan. Taking-off fromthe outputs of previous workshops on disaster risk assessment, inputs on bridge design weregiven to guide the community in planning their identified priority projects: bridge repair, dikerepair and house improvement.

Actions identified from the previous workshops (conducted in November) were classified intostructural and non-structural measures. Two focus group discussions (FGDs) discussingstructural and non-structural measures as part of disaster preparedness and mitigation planformulation were conducted.

In planning structural measures, discussion groups were asked to draw and locate proposedinfrastructures or any physical improvements in the site, specify dimensions, materials andmethod of installation according to the local knowledge of the community and basic inputsprovided for bridge design. Three groups were formed and three schemes were developed.Finally, the community decided on one scheme (Scheme 2) as the basis for the implementation






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

Proposed detail of dike repair to beadopted.

Figure 5. Selected Scheme - Scheme 2.

Schedules for the implementation of priority structural measures were then set. The top twopriorities—wooden bridge retrofitting and dike repair, were scheduled in January 2012 and

February 2012 respectively.

Non-structural measures were mainly social preparations for the implementation of the structuralmeasures which included fund raising, gathering of materials, design of the structures; gettingthe agreement and support of the whole community, the barangay and the city government;awareness-building and re-echo of the workshops participated by the leaders to the wholecommunity. Refer to Annex 1. Disaster Preparedness and Mitigation Plan Workshop Results

2.4 Priority Structural Measures

2.4.1 Wooden Bridge Retrofitting

The wooden bridge retrofitting was scheduled on 20 January 2012. An inventory of useablematerials from the existing bridge was made and additional materials were purchased tocomplete the needed materials for the retrofitting. Concrete foundations were provided with theuse of square tin cooking oil cans filled with concrete. Good lumber posts (4” x 4”) wereembedded in concrete foundations to support the bridge at 2.4m (8 feet) intervals (span). Planksfrom the old bridge were used for the flooring and additional 2” x 2” lumber for handrails wereprovided to improve the safety of pedestrians crossing the bridge.






Figure 7. Dike Retrofitting Options

3.0 Issues and Concerns

During the project implementation, some delays were encountered due to unresolved issuesconcerning the tenure situation of the benefiting community, SAMASAISIP. The ADBrequires that the community be allowed to stay in the site for 3-5 years to allow for thetesting of building components to be applied in the site.

3.1.1 Supreme Court Order

A certification attesting to the temporary tenure of the community in Sitio Pulo was sought fromthe Local Government of Navotas in compliance with the ADB requirement. However, theNavotas LGU cannot give the needed certification citing the Supreme Court order to clear alldanger areas which covers all waterways. Furthermore, a mandamus was issued by the SupremeCourt to clear all danger areas by 2015. Hence, the needed tenure of 3-5 years can not beassured.

The LGU confirmed that they do not have immediate plans to clear the site but owners ofadjacent fishponds must be consulted to determine whether they have plans that might affect thecommunity.






Further consultation with the barangay yielded conflicting information. The barangay confirmsthat Sitio Pulo is a public land. But implementing infrastructures such as the repair of the earthdike needs the agreement of the adjacent fishpond owner/s. The Barangay Chairman consultedthe fishpond owner/s for their agreement and possible share to the infrastructure project. A draftagreement was submitted to the barangay for negotiations with the fishpond owner/s. Feedbackstill have to be received from the Barangay to date.

A possible option being considered was to move to another LGU/city to a new pilot site.However, it is expected that the problem will be the same given that most if not all flood-proneareas are located in danger areas subject to clearing as per Supreme Court order.

3.1.2 Tenure of Sitio Pulo

In the latest consultation with ADB, the project is advised to proceed in Sitio Pulo. However, itmust be clarified with the community, SAMASAISIP, that in the event that they are resettledoutside of Navotas, the technology and materials will remain in Navotas and will be donated to acommunity in similar flood-prone condition.

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

The next stage will be the selection of a common facility for the application of disaster-resilienttechnology. A consultation will be held to gather ideas for improvement of the selected facilityand determine building components to be developed.

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Annex 1Disaster Preparedness and Mitigation Plan Workshop Results






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