3cd manila-drmmp impl meeting report

7/25/2019 3cd Manila-DRMMP Impl Meeting Report

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Disaster Risk Management Master Plan

(DRMMP) implementation in

Metropolitan Manila

In partnership with

MMDA PHIVOLCS and

Quezon, Makati and Marikina Cities

Field Trip Report - Summary

April 17-22, 2005

M IEE a r t h q u a k e s a n d

M e g a c i t i e s In i t i at iv e


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Purpose of the Fieldtrip

To initiate discussions with the Metropolitan Manila Development Authority (MMDA) andother city stakeholders on a consensus draft work plan and the components of a DRMMP

for Metro Manila, based on a 10-point framework proposed by the 3cd Team.

To report back to the cities, particularly Makati and Quezon Cities, about the findings fromprevious work carried out by the 3cd Team, especially on the Disaster Risk ManagementCity Profile and compilation of Sound Practices.

To invite the City of Marikina to become the third case study city as part of the 3cdProgram in Metro Manila.

To request and obtain commitments from the 3 cities in Metro Manila and otherinstitutions such as PHIVOLCS and MMDA to review and comment on the DRM city

profile and sound practices compiled so far, as well as submit new ones.

To promote the use of e-learning and on-line tools, such as the knowledge base and themap viewer, as useful and efficient risk communication tools.

Background

Metro Manila, a complex urban area that encompasses a population close to ten milliondistributed in 13 cities and 4 municipalities, is one of the three pilot cities in Asia where the

3cd Program is currently being implemented.

Starting in July 2004, the Earthquake and Megacities Initiative (EMI) in cooperation with theEarthquake Disaster Mitigation Center (EdM) in Kobe, Japan, introduced its Cross-CuttingCapacity Development -3cd- Program, in the cities of Quezon and Makati. In January 2005,EMI and the Metropolitan Manila Development Authority signed a cooperative agreement forthe implementation of the 3cd Program in the capital region.

In August 2004, initial fieldwork and a bi-city workshop were carried out with the participationof delegates from Makati City, Quezon City and MMDA that permitted understanding thecurrent structures and framework for disaster risk management (DRM) in Metro Manila1and

identifyied several relevant DRM sound practices mainly aimed at reducing the impact offlooding and earthquakes.

In November 2004, the Pacific Disaster Center, PDC, joined EMI in a collaborative effort topromote shifting the vision from response management to risk management and acceleratingthe process of implementating a Disaster Risk Management Master Plan (DRMMP) inMetropolitan Manila, by building on the significant work already accomplished by differentnational and international initiatives in this city.

1EMI-EdM, Metro Manila Philippines, Disaster Risk Management Profile, December 2004


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Given the previous work done by the Pacific Disaster Center through the multi-hazard urbanrisk assessment project for Marikina City and its guidelines for implementing a risk reductionstrategy2, and the excellent relationship developed by those two organizations, it wassuggested to invite Marikina to become part of the case-study cities under the 3cd Program.

In this next phase, the 3cd Implementation Team, along with city officials and other interestedstakeholders will look in detail at the main issues that have prevented the realization of therecommendations of different projects and will assist the cities and the Metropolitan ManilaDevelopment Authority (MMDA) in structuring a comprehensive implementation plan thatturns existing risk analysis studies into risk management instruments.

Resource Group

The unique composition of the 3cd Team facilitates the progress of the different activitiesplanned for the city. There is a mixture of skilled local and international professionals withdifferent backgrounds who provide strong leadership and an enhanced vision by combining

the local and global perspectives.

The active and dedicated participation of the EMI secretariat based in Metro Manila, the localinvestigator PHIVOLCS represented by its director and his team, members of the LocalWorking Group who bring in their individual knowledge but also that from their organizationssuch as MMDA, the Universities and Professional Associations all have assisted during thefieldtrip organization or providing logistics, but most importantly, by guiding the team to betteraccomplish the objectives.

EMI and its partners, the Pacific Disaster Center -PDC- based in Maui, and the Earthquakeand Disaster Mitigation Center EdM- of Kobe, provide partial financial support for the

investigative and consultative work, as well as provide guidance for the research andimplementation process.

Methodology

Meetings, structured discussions, power point presentations, interviews and an evaluationquestionnaire designed to get feedback from the participants were among the tools usedduring this field trip; details can be seen on the attached final agenda for the whole weekactivities.

Individual meetings with the cities

Each one of the three case-study cities engaged in the 3cd Program, Quezon, Makati andMarikina, has a different geographical setting, varies in size and population and has differentcharacteristics in terms of its Disaster Risk Management Organization and Development.

2PDC, Multi-hazard Urban Risk Assessment for Marikina City and guidelines for implementing multi-hazard risk

reduction strategies, December 2004


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The following chart shows some of the most relevant characteristics of each one of thesecities.

Quezon Makati MarikinaSize 166.2 Km2 27.36 Km2 21.5 Km2Population 2,390,688 est. 2005 471,379 c. 2000 437,000 in 2004

# Barangays 142 in four districts 33 in two districts 14 in two districtsPop. Growth 1.92% -0.5%CityRevenues

Small to mediumscale businessServices provisionFinished productdistribution

Financial andBanking SectorBusiness &Commerce

LargeManufacturingFirms

Land Use 45.5% residential 38% residentialRelevantPolicy

Construction ofmajor transport andinfrastructure to

reactivate theeconomy

DRM criteria isintroduced in thecity planning

procedures

Tax incentivesystem to promoteindustrial sector

investment

RelatedPrograms

Reducing InformalSettlers Programs

Saving the Streamsin QC (Sagip Batis)

Barangay disasterbrigades (SouthTriangle)

Health NetworkingProgram

MedicalEmergencyServices

Public-PrivateSafety Program

Urban RenewalProgram

Home Along theEstero

Review DM and

DevelopmentPlans

The SafetyProgram, 2004.

A ComprehensiveLand Use Plan,2003;

Long-Term MasterPlan, 2003;

Invest in MarikinaProgram, 2004

The Flood

MitigationStrategy, 2004.

Holding individual city meetings or workshops is an approach that helps the 3cd team keeptrack of particular activities in the cities, promote documentation and exchange of soundpractices and other inter-city cooperation instruments, achieve a closer contact with cityofficials, facilitate one-on-one discussions and address specific needs of the city. At thesame time, the team looks for effective means to integrate those lessons in the megacitycontext of Metropolitan Manila.

Therefore, a 1/2 session with the senior staff of both Quezon and Makati was hosted by each

one of these cities on Tuesday, April 19 and Friday, April 22, respectively. One key objectivewas to report on the major findings from the August 2004 bi-city workshop held in Quezonand the current state of sound practice collection in Metro Manila and the other EMI citiesengaged in the 3cd Program. On Monday, April 18, Marikina City was visited and invited to

join the program, and at the same time city officials made a general presentation related tospecific actions implemented in relationship to disaster risk management. Finally, theusefulness of the knowledge base and a map viewer for Metro Manila was also introduced inthe discussion.


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The approach for the implementation of a comprehensive DRMMP and its expected processwas also described in these meetings in order to get the participants reactions to thisinitiative. In each one of the cities, city officials received the 3cd Team and the mayors of thecities briefly joined the workshops as to show of their support to the project.

Joint Workshop with MMDA and other Stakeholders

On Wednesday, April 20 and Thursday, April 21, the authorities and staff of MMDA receivedthe 3cd team, while representatives of the three above-mentioned cities, the Office of CivilDefense (OCD), PHIVOLCS and Professional Associations also participated in this meeting,which included 42 attendees.

Concepts such as the mainstreaming model and the Disaster Risk Management Master Plan(DRMMP) tool were explained and discussed with the participants, along with a suggested10-point framework prepared by the program director, Ms. Shirley Mattingly, for the purpose

of this field trip. See attachments for details.

Mainstreaming Model: Disaster reduction actions can actually take place with theinvolvement of all stakeholders if mitigation and preparedness are regularly included on theoperations and functions carried out by the cities and municipalities.

DRMMP:a tool to enable local governments to establish a process and to systematically andsystemically implement a comprehensive Disaster Risk Management Agenda.

10-Point Framework: 3cd Team proposed a collective review of some of the key actionssuggested by previous studies, particularly MMEIRS and its experience from other cities.Participants at this meeting were welcome to endorse, dismiss or change them, incorporatingwhat, according to their understanding, is more relevant.

The moderator walked the participants through each one of the 10 action items and promotedtheir discussion based on the following aspects: (1) Relevance and Viability, (2) Importance,(3) Resources and Constraints, (4) Implementation Process and (5) timeframe andOwnership; inquiries were also made related to current status and impediments forimplementation.

Once the 10 action items were discussed, participants were asked to rank them according tothe priority given by the entire group.

Table No. 1

Ranking of the 10 action items

No.1. Strengthen Metropolitan Manila DisasterCoordinating Council (MMDCC)

10+

No.2. Promote Adoption of Disaster ManagementOrdinance by each City and Municipality

8


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No.3. Promote the reorganization and revitalization ofcity/municipal and Barangay Disaster CoordinatingCouncils

9

No.4. Institutionalize Local Government Framework andFinancing for Disaster Management

6

No.5. Enhance lateral and vertical inter-agency and

inter-governmental communication and coordination

7

No.6. Enhance legal basis for disaster Riskmanagement at national level by updating/ replacingPD1566

10+

No.7. Promote policies that encourage implementationof DRR measures

4

No.8. Promote local government mitigation planningthrough use of existing planning tools

5

No.9. Conduct training needs assessment and developcapacity building programs

10

No.10. Strengthen Barangay level preparedness fordisaster response and relief 10

Note: 10= most important; 1= least important

3cd Team Daily Monitoring and Evaluation Meetings

Debrief sessions to evaluate the response and major findings of the day, as well as a shortplanning exercise for the next days activities were implemented as a means to facilitatecoordination and focus on the specific groups that were addressed during this visit.

Interviews

Every possible opportunity was used to request the participants in the different meetings toread the DRM city profile and provide feedback, as well as request additional informationregarding DRM sound practices, either to complete the existing ones or to add new ones.

In this context one-on-one meetings were also scheduled with representatives of Quezon andMakati Cities and conducted by Antonio Fernandez-EdM (as a follow up from the field workdone in December 2004), and in Marikina City by Jim Buika-PDC.

Workshop Evaluation

Participants in the MMDAs full day discussion were asked to fill out the attached evaluationquestionnaire to obtain their feedback in order to enhance future workshops. The participantswere asked to use a 1 (NO, not at all satisfied) to 5 (YES, definitively satisfied) scale to gradethe presentations, the discussions, their interest and knowledge of the topics, etc.

Preliminary results of the evaluation forms show only a 36.5% (14 respondents from 41attendees) return of the questionnaires but an overall evaluation close to a mean value ofover 4. Antonio Fernandez-EdM Team 4 will provide final evaluation.


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Relevant Findings

Political will and advocacy at regional and local levels in Metro Manila. MMDAauthorities and the Mayors of each one of the case study cities showed their personalinterest, and engagement in the project; which indicates a high level of concern and

awareness for Disaster Risk Management organization and delivery in Metro Manila fromhigh level policy makers. Hence, political willingness is a positive factor in the success ofthe 3cd Program and the successful implementation of the DRMMP Pilot Application inMetropolitan Manila. Nonetheless, it was also noted that additional awareness raisingeffort is needed to further educate policy makers and push the DRM agenda at all levelsin Metro Manila. There is a high-level of commitment too from key stakeholders, asdemonstrated by the efforts of the Local Investigator, PHIVOLCS, and the local team ofadvisors to the project. A more formal structuring of the local advisors was suggested.

DRM efforts need a boost at the local level.According to OCDs statistics (Ref. FrankCastillo OCD at the MMDA meeting), out of the 14 cities and 3 municipalities in Metro

Manila, only eight count on active DRM offices, five of them have operationaldepartments/sections/offices that count on legal support (i.e. an approved ordinance).From the 1645 barangays in Metro Manila, only 220 have a BDCC or similar organization.

DRM efforts need stronger coordination at the metropolitan and national level. Theneed to re-organize and strengthen the MMDCC as a key coordination agency was noted.

Also a better organization of the coordination between state agencies, metropolitanagencies, and local agencies.

A city-wide initiative to disseminate and explain the findings and recommendationsof the MMEIRS project have resulted in a better understanding of the risk. Through a

combined effort, MMDA and PHIVOLCS have undertaken a sustained process ofdissemination of the findings and tools (Local Government Handbook and Guidelines)generated through the MMEIRS project as means to provide guidelines andrecommendations to Local Governments on how to implement and improve their DRMcapacities in their localities; at present, only seven LGUs remain to be briefed on theMMEIRS results. At the same time, PHIVOLCS and MMDA recommend to use a similarprocess to disseminate this information at the barangay level and use informationtechnologies to provide a wider access, for example through the web pages of differentlocal institutions. NDCC has been also briefed and updated about the MMEIRSrecommendations; this has triggered the interest at the National level on DRM. The needto continue the awareness raising efforts and to find ways to develop ownership at all

levels was considered to be an important task.

Potential for support for development of Disaster-resistant communities inMetropolitan Manila is sought.MMDA and JICA have put together a new proposal forthe Government of Japan to develop the next phase of the MMEIRS Project, which willfocus on developing community-based disaster management plans. It may take severalmonths before a response to the proposal is provided.


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The three pilot cities are proactively implementing and planning DRM practices.

o Marikina implements concrete DRM activities. Marikina is in the process ofimplementing some of the recommendations provided through the EqTapproject and shows its interest to enhancing education and awareness amongthe kids and the community by establishing an interactive earthquake

educational center and promoting the use of information technology to bettercommunicating the risks. Relocation of illegal settlements has been a strongissue for the city, along with orientation programs to the home owners andbusiness communities to better inform about the requirements of the buildingcodes for new constructions, a matter of concern are the existing structuresgiven the high cost of retrofitting measures.

o Quezon City is actively planning its DRM agenda. The City of Quezoninformed the 3cd team about a very successful economic exercise that allowedsurplus to be used on reactivating the construction sector by redoing roads toconcrete. Additional resources will be partially spent on improving the DRM

capacity of the city. Also the city is putting in place some programs to reducethe informal settlements and requested to review and update the figures shownin the DRM city profile of Metropolitan Manila prepared by the 3cd Program.

o Makati City introduces DRM criteria in city planning procedures. The city ofMakati is currently engaged in a process to review its DRM system, they havefelt the need for a special legislation to boost their efforts to reducing the effectsof disaster since PD 1566 and Republic Act 8185 are too broad to provide therequired legal support. A new ordinance is being promoted with the assistanceof one of the City Chancellors. Hazards are being integrated into theEnvironmental Planning for the city, mainly those related to earthquakes,

flooding and soil liquefaction. The city is interested in uploading the GIS mapsproduced by MMEIRS in their own GIS system for planning purposes.

An opportunity exists to strengthen DRM training modules for Metro Manila. OCDand PHIVOLCS are conducting some capacity building and training programs at theBarangay and school levels, in an effort to improve the BDCCs capabilities andperformance. There are some other initiatives trying to work along the same line, so theimplementation of some mechanisms to standardize the training modules were suggestedby the participants.

Metro Manila DRM process can benefit from greater private sector involvement.

There is little participation of the private sector, NGOs and professional associations inthe DRM process in Metro Manila; therefore looking for means to meet their interest injoining these efforts could bring higher benefit to all; the reaching out process is a taskthat may be best undertaken by the local and regional organizations.


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Potential collaboration opportunities between the

3cd Program and Metro Manila.

While a detailed work plan is being developed, five potential areas of intervention for the 3cdProgram seem to have emerged. They concern:

Integration of risk factors in land use and urban planning

Implementation and enforcement of construction codes and standards

Training and DRM capacity building

Use of technology for risk communication

Social and welfare aspects including how to reduce population vulnerability,alternatives to deal with informal settlements and enhance the health sector.

Dr. Antonio Fernandez of EdM-Team 4 has taken the lead to process the informationcollected during the discussions and briefings and to further collect input from keystakeholders and the 3cd Team, with the goal of providing a draft workplan. This plan will be

evaluated by the 3cd Implementation Team and reviewed by the 3cd Program WorkingGroup. The outcome (An Initial Work Plan for Metro Manila) will be submitted to MMDA, thecities, the Local Investigator and the Local Advisory Group for review and comments. Basedon this consultation process a Final Work Plan will be developed to define the 3cd programfor Metro Manila.

3cd manila-drmmp impl meeting report

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