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FLOOD DISASTER RISK REDUCTION AND RISK MANAGEMENT OF PASIG CITY

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FLOOD DISASTER RISK REDUCTION AND RISK MANAGEMENT OF


PASIG CITY
Robert John O. Robas¹

Introduction

The World Risk Report 2011 assessed the vulnerability of 173 countries to natural hazards and
their ability to handle the aftermath of natural disasters based on exposure, susceptibility of the
population, coping capacity and adaptation strategy. This report from the United Nations University
Institute for Environment and Human Safety (UNU-EHS) revealed that the Philippines was the third most
vulnerable worldwide because of the frequency of calamities, such as typhoons, floods, landslides and
earthquake, combined with the country’s ineffectual disaster preparedness programs (Mucke, 2011).

Being one of the most disaster-prone September 2009 where Philippines was badly hit
countries in the world, the Philippines had long and many of the cities and provinces like Pasig City
experiences in dealing with, responding to and flood was as high as eight meters or eight hundred
managing disasters. Since the 1970s, the country centimeters approximately.
has shifted its approach from disaster preparedness
and response to disaster management in the 1980s During Typhoon Ondoy, the Pasig City
to disaster risk management in the 1990s and government incurred huge damages in
disaster risk reduction in the years 2005 and infrastructures: buildings (P11,800,000,000-
beyond. This evolution paved the way to the US$3B); Roads/drainages(P1,500,000,000-US
paradigm shift in the way people, communities and $36B); Government buildings schools, health
government think, act and respond to the current centers, playgrounds (P800,000,000 or US$20 B);
and emerging risks that continually face them. Government vehicles, equipment and facilities
(P14, 609, 791or US$3.5M); not included were the
In 1978, the National Disaster Coordinating many innocent people who died during the
Council (NDCC) was established through catastrophe (Porio, 2011).
Presidential Decree (PD) 1566 as the highest policy
making body and the focal organization for disaster The adverse disaster happened again last
management in the country. This law also provided August 2012 when deadly floods brought by
for the establishment of regional, provincial, city, southwest monsoon (Habagat) have swamped
municipal and barangay disaster coordinating Metro Manila and other provinces. The amount of
councils. These DCCs were formed primarily to rainfall brought by southwest monsoon surpasses
advice the President and/or the local chief typhoon Ondoy that prompted some local
executive on all natural disaster preparedness and government to declare state of calamity. From the
management plans; recommend the declaration of records of NDRRMC, a total of forty nine (49)
state calamity and the release of calamity funds for cities/municipalities in Region I,III, IV-A, IV-B, XII
relief and rescue operations, among others. (PD. and NCR was declared under State of Calamity
1566; NDRRMF, 2011) wherein the Pasig City were included. The total cost
of damages of southwest monsoon for
In 2005, President Gloria Macapagal infrastructure is Php 639,128, 230.00 and for
Arroyo approved the implementation of the National agriculture is Php1,624,410,815.14 or combined
Disaster Coordinating Council (NDCC) Four Point damages for infrastructure and agriculture
Plan of Action for Preparedness (4PPAP) which amounting of Php. 2,263,539, 045.14 (NDRRMC,
aimed to increase public awareness and 2012).
involvement in measures put in place by the
government to minimize the impact of disasters in In the Local Government of Pasig the
the future. (NDRRM, 2011) Republic Act No. 10121 affected places of southwest monsoon are twenty
was also legislated as continuous policy prior to four barangays (24), seven thousand one hundred
SNAP program. However, despite such progress, fifty (7,150) families or thirty three thousand two
problems were still seen during Bagyong Ondoy in hundred eighty (33,280) persons (NDRRMC, 2012).
2

Data do not include those unreported statistics of In the Metro Manila structure, Pasig is
affected families recorded from each barangay of located at the eastern boundary of Metro-Manila
Pasig. and within the intermediate core, together with
Muntinlupa, Valenzuela, Las Piñas, Paranaque,
People who live in poverty and adverse Marikina, Taguig, Pateros. In the national structure,
socio-economic conditions are highly vulnerable to it lies within the Laguna de Bay basin and between
disasters. The most vulnerable sectors include the two coastal growth centers of Metro Manila and
poor, the sick, people with disabilities, older MARILAQUE. It lies approximately on the southern
persons, women and children. Although many end of Pasig River and is bounded by Quezon City
people may be affected, these sectors will have the and Marikina City on the North; the City of
least capacity to recover from the impact of Mandaluyong on the West; Pateros, Tagig and
disasters. This situation is exacerbated by rapid Makati City on the South; and Rizal towns of Cainta
urbanization, environmental degradation and the and Taytay on the East.
increasing risk of environmental disasters, whether
as a result of direct human impact and or from The city is the catch basin of all excess
climate change. The risks induced by these hazards water from Marikina river, Pasig river, Napindan
have big effects on the country’s economic Channel, human made Manggahan floodway. The
development targets and programming as well as in Manggahan floodway is created by the national
the overall welfare of the people and their government to catch water from the mountain due
properties, especially on the poor and most to diminished forests in Antipolo and Rizal province.
vulnerable groups. Cited to PAGASA (2012), the capacity of river and
the flow rate during Ondoy the Marikina river has a
The milestone towards disaster risk current capacity of 2,900m³/second, Pasig river with
reduction- disaster risk management preparedness 500m³/second, Napindan Channel with
is prevention rather than recovery. The protection 35m³/second, and Manggahan Floodway with
and security of houses, properties, and the life of 2,400m³/second.
every human individual, during a disaster, must be
given utmost attention by the government. The The risk is further exacerbated by
researcher is very much interested to know the inappropriate human practices contributing to still
flood disaster risk management-disaster risk higher levels of natural hazards, such as
reduction of the city government of Pasig, This deforestation, lack of drainage systems, and
study will serve as a wake-up call to the community concrete and asphalt paving, all of which lessen the
and officials to formulate or improved necessary absorption capacity of the plant layer. For these
disaster management measures to reduce the reasons, disaster risk management means not only
vulnerability in risk reduction, risk recovery, relief intervention in and control of natural phenomena,
and rehabilitation plan and the like. In addition, the but also (and especially) modification of existing
vigilance of the public regarding disaster land use practices, occupation practices, and
management preparedness and other related economic activities that generate hazards and
measures to protect their rights are the main vulnerabilities; it also means strengthening the
concerns of the researcher because this will application of risk reduction criteria in development
warrant saving and protecting life, property and planning.
conserving properly the natural environments.
Expert such as Palafox Associates and Dr.
Britton, suggested that Ondoy and Habagat
Flood Abstract & Situation in Pasig City floodings is as a result of poor urban planning
coupled with poor environmental management.
Pasig City is one of the highly developed People built houses along the riverbanks most
cities in the Metropolitan Manila area due to rapid especially in floodway that block the water flowing
development and its accessible location is suited for to the Laguna De Bay. Poor solid waste
doing business like the Ortigas area. The growth management is also factor despite the mandate of
and political stability of city encourage many people R.A. 9003 (Solid Waste Management Act) the
to migrate within the city to find opportunities. As a garbages clogged the water ways and causes flood.
result, city became highly industrialize and polluted The man made Manggahan Floodway built in
by permanent structure such as buildings and 1980’s cuts across the city, from the Marikina river
houses to accommodate the needs of the city for bend in Brgy. Rosario down to Laguna Bay. About 3
progress. km. of Manggahan floodway traverse the city, in
particular barangay Rosario, and Maybunga. The
3

Manggahan floodway is part of Metro Manila flood resulted to flooding in Sto. Tomas, Sta Cruz, and
control program that prevents flooding in Manila City hall and other parts of the city.
and its vicinity through diversion of about 70% of
the water coming from Marikina River to flow
towards the Laguna de Bay and only 30% to flow to Bautista et al. (2011) summarized Dr.
the Pasig River. (Pasig City Profile,2010) Figure 4 Lagmay’s presentation entitled “Flood Risk
the map shows that the city is highly susceptible to Mitigation: Learning from Ondoy” presented during
flood based on Mines and Geo Science Bureau the NDRRM planning workshop conducted by OCD
(PIA, 2012) that there is a consensus that the intensity and
volume of Ondoy was unusually high; it was beyond
Aside from two natural bodies influencing the capacity of existing drainage systems, natural or
flood in the city (Marikina River and Pasig River), man-made, in Metro Manila. However, events of
the drainage lines within the City of Pasig have a greater magnitude may have happened in the past.
total aggregate length of 104 kilometers consisting According to Taiwanese experts, typhoon Morakot
of open canal, covered canal and underground brought three times as much rain as Ondoy
reinforced pipes. This represents the drainage delivered. There are also human activities
facilities installed in private subdivision which are contributory to the mishap. One is groundwater
mostly underground reinforced concrete pipes. subsidence. There are areas in Valenzuela,
Almost all thoroughfares and residential areas have Rosario, Las Piñas, and Dasmariñas showing land
underground drainage facilities, while most high subsidence which are believed to have been
density residential areas are provided with open or caused by excessive extraction of groundwater.
closed canal to relieved the city of storm flooding. In The areas are subsiding at 5cm/year (Bautista et al,
total, sixteen (17) other creeks serve as the city’s 2011).
drainage outfall. A total of 26 km. of creeks runs
through the territory and periphery of Pasig. At
present, Pasig has three (3) pumping stations Statement of the Problem
located on both ends of the Parian Creek in Ilugin,
Pinagbuhatan and Kapasigan and at San Agustin It is the purpose of this study to evaluate the
creek, Barangay Pinagbuhatan with combined flood disaster management program of Pasig City,
pumping capacity of 10 gallons/minute (Pasig City a local government unit in the National Capital
Profile, 2010). Region, during calendar year 2012.

The City of Pasig created a Comprehensive Specifically, the study sought answers to the
Land Use Plan that identified the existing flood following sub problems:
situation and listed the current status of creeks
within the city which Table 3 shows. The status of 1. What is the demographic profile of the Pasig City
seventeen creeks reveals one reason for the flood local government officials who respond to disasters
on the last typhoon Ondoy of September 2009 and in terms of:
Habagat of August 2012. Most of the creeks were
dried-up, silted or totally lost due to infrastructures 1.1. age,
built within, such as houses by squatters or illegal 1.2. gender,
settlers, commercial establishments etc. the 1.3. government affiliation,
development of the city paved way to look for 1.4. position held, and
vacant place that shall be utilized for industrial, 1.5. length of service
business or houses occupation. Hence, since the
city is highly urbanized vacant area for commercial 2. What is the evaluation of Flood Disaster Risk
consumptions are very limited. As result, water Management- Disaster Risk Reduction (DRM-DRR)
ways was converted and sacrifice. programs of the Pasig City?

For instance, the Parian creek (Bitukang 3. Is there any significant relationship between
Manok) that serves as outlet of water within the city socio demographic profiles and evaluation on the
to Marikina river which was culvert and filled, from flood Disaster Risk Management- Disaster Risk
Plaza Bonifacio to Marikina River, 400 meters and Reduction (DRM-DRR) programs in terms of;
occupied by structures of Rio de Pasig Linear Park,
Brgy Out-post, Brgy Multipurpose Hall, San Jose 3.1. government affiliation,
Barangay Hall, commercial establishments, and 3.2. position held, and
houses which eventually in absence of water ways 3.3. length of service
4

of September 2009 and South West Monsoon


4. What are the problems encountered in the (Habagat) of August 2012. These are the Barangay
implementation of Flood Disaster Risk Chairmen, Councilors, and the Head of the
Management-Disaster Risk Reduction program in Barangay Disaster Coordinating Councils of
the City of Pasig? Barangay Manggahan, Maybunga, Pinagbuhatan,
Rosario, San Miguel, Santolan, Sta. Lucia, Bagong
5. What are the Flood Disaster Risk Management- Ilog, Bambang, Caniogan, Kalawaan, Malinao,
Disaster Risk Reduction (DRM-DRR) program Palatiw, Pineda, Sagad, San Joaquin, Sto. Tomas,
needs in terms of: Santa Cruz, and Ugong. Also the key personnel of
the planning division, Committee in Disaster
5.1. Program objectives, Management and Department of Engineering of
LGU-Pasig City Hall that are directly in task in
5.2. Program resources, disaster management implementation shall also be
included as participants of the study.
5.2.1. staff, These respondents sought to answer the
5.2.2. physical resources, and questions and framework of PDRRMF on national
5.2.3. budgetary allocation policy for disaster management pursuant to
Republic Act No 10121 also known as “Philippine
5.3. Program activities, Disaster Risk Reduction and Management Act of
2010″ and to other mainstream policy context for
5.3.1.prevention and mitigation, disaster management program specifically the
5.3.2. emergency preparedness and risk Philippine Development Plan, Millennium
reduction, Development Goals (MDG), Hyogo Framework for
5.3.3. emergency response, and Actions (HFA), Asean Agreement on Disaster
5.3.4. rehabilitation and recovery management and Emergency Response
(AADMER), International Disaster Response Law
6. Is there any significant difference between the (IDRL), Kyoto Protocol, and United Nations (UN).
responses of barangays to the implementation of All policy context and DRRMF focuses in disaster
DRR-DRM program in their respective area? risk management on (1.) prevention and mitigation,
(2.) emergency preparedness and risk reduction,
(3.) emergency response, and (4.) rehabilitation and
Hypotheses recovery. These four areas will be the key
assessment areas of the study for disaster
1. There is no significant relationship between the management preparedness of Pasig City.
socio-demographic profiles of respondent and the
disaster risk management-risk reduction DRR-DRM The study utilized the descriptive method of
program of Pasig City for flood. research employing quantitative and qualitative
approach. Hence, a researcher made questionnaire
2. There is no significant difference between the is used employing purposive sampling to gather
responses of barangays to the implementation of data from respondents and interview schedule was
disaster risk reduction- risk management program employed to collect data from groups of
in their respective area. respondents. Likert scale was utilized to interpret
the data and Percentage, Weighted Mean, Chi
Square, and F test was employed to treat the data
Methodology gathered. Henceforth, the study is collaborated by
the literatures, records, and data examined by the
The study was conducted to assess and researcher and the observation conducted to the
evaluate the flood disaster risk reduction and places affected by the floods.
management program of Pasig City, a local
government unit in the National Capital Region Out of the 180 survey questionnaires, only
using the fundamentals of program/project/activities 151 were retrieved, considered and used in the
(P/P/A) designed and implementation, taking into study. The study is collaborated by the literatures,
consideration the input-process-output linkages in records, and data examined by the researcher and
the series of activities. the observation conducted to the places affected by
the floods.
The study focused on the nineteen (19)
barangays severely affected by the Typhoon Ondoy
5

Summary of Findings 5.3. Flood DRR-DRM Program Activities

1. The respondents are predominately 5.3.1. In terms of program activities


males mostly affiliated with the barangay with the in prevention and mitigation, the respondents
position of barangay councilors and had been agree that the needed plans are hazard mapping
serving as officials for 4 to 7 years. More than 1/3 of and urban planning, education and awareness,
the respondents have ages 46 years old and above sufficient shelter food & cloths, antibiotics and
while only 6% have ages as young as 18 to 25 medical kits, transportation to help the effected
years old. people, community involvement and participation,
infrastructure, de-clogging of water ways and
2. On the overall the respondents assessed canals, dredging of rivers, and early warning
the Flood Disaster Risk Management- Disaster Risk mechanism.
Reduction (DRM-DRR) programs of the Pasig City
as effective. 5.3.2. In terms of program activities
in emergency preparedness and risk reduction, the
3. There is no significant relationship respondents assessed that the community level are
between the variables government affiliation, responsive and aware of the disaster risk factors.
position, and length of service and the respondents First, the communities organize themselves to
on the overall assessment of the flood DRR-DRM. monitor potential disaster. Second, there are
warning systems in place to the community level.
4. The respondents disagree that they Third, communities are ready and understand
encounter problems in lack of disaster management official warning and react. Fourth, community
plan, lack of coordination between LGU, NGO,NG & vulnerable has evacuation plans/maps. Fifth, there
other agency, and delayed implementation of are training, simulation exercise, or local drills
project. However, the respondents moderately conducted, at the community level. Sixth, the
agree that they encounter problems in budget, training conducted at the community level is
Awareness thru education & information, relevant. Lastly, there is disaster awareness and
Community participation, Political will (Leadership public information projects or programmes being
of Officials), Community resistance, manpower, undertaken to the community
poor implementation of law, and insufficient
assistance from National Government. 5.3.3. In terms of program activities
in emergency response, the respondents assess
5. Flood Disaster Risk Management- that the plan for life preservation and supply of the
Disaster Risk Reduction (DRM-DRR) program. basic needs of affected population during the actual
and immediate after the disaster are responsive
5.1. In terms of program objectives, the and effective. The program for relief operation,
respondents assessed the flood DRR- DRM search and rescue, dissemination/information
program to be effective. sharing of disaster related information,
development/provision of temporary shelter, health
5.2. Flood DRR-DRM Program service, psycho social support, early recovery
Resources mechanism, management of dead and missing,
evacuation management, social protection
5.2.1. In terms of program intervention, and civil & uniformed services
resources, the respondents assessed that the city coordination are responsive.
has a sufficient physical resources in the life
savings jacket, life saving buoys, rescue boat, 5.3.4. In terms of program for
search light, water proof battery, generators, diving rehabilitation and recovery, the respondent assess
suit, ambulance, vehicles (transportation), early, that the government action taken to restore and
warning device, portable toilets, evacuation area, improved the living conditions of the affected
fire alarm system, telephone services, and health residents are efficient. The program for livelihood
facilities. for affected victims, search and retrieval,
5.2.2. The respondents assessed shelter/relocation for affected victims, psycho social
that the city has a sufficient funding in prevention counseling, infrastructure and relocation plan, post
and mitigation, emergency preparedness and risk disaster need assessment, and environmental
reduction, emergency response, rehabilitation and protection are efficient.
recovery.
6

6. Significant Difference between the awareness thru education & information,


Responses Per Barangay and DRR-DRM Program. community participation, political will
(Leadership of Officials), community resistance,
6.1. There distinction on responses per manpower, poor implementation of law, and
barangay and the objectives of flood disaster risk insufficient assistance from National
reduction-risk management program. Hence, the Government. On the other hand, the
null hypothesis regarding the assessment by the respondents disagree that they encounter
officials of different barangay in terms of program problems in lack of disaster management plan,
objectives is rejected. lack of coordination between LGU, NGO,NG &
other agency, and delayed implementation of
6.2. There is disparity on the assessment project.
of flood DRM-DRR programs in terms of program
resources for staff, physical resources, and 5. It attested that the program objectives of flood
budgetary allocation and the officials of different Disaster Risk Management- Disaster Risk
barangay of Pasig City. Therefore, the null Reduction (DRM-DRR) program are effective.
hypothesis regarding the assessment by the Further, program resources for physical needs
officials of different barangay in terms of program and funding for DRR-DRM are sufficient.
resources is rejected.
6. It shows that the DRR-DRM program activities
6.3. There is divergence on the in prevention and mitigation needed the plan
assessment of Flood DRM-DRR programs in terms for: First, hazard mapping and urban planning.
of program activities and the officials of different Second, education and awareness. Third,
barangay of Pasig City. All computed F’s for sufficient shelter food & cloths. Fourth,
prevention and mitigation, emergency antibiotics and medical kits. Fifth, transportation
preparedness and risk reduction, emergency to help the effected people. Fifth, community
response, and rehabilitation and recovery are involvement and participation. Sixth,
exceeding the critical value thus the null hypothesis infrastructure. Seventh, de-clogging of water
is rejected. ways and canals. Eighth, dredging of rivers.
Lastly, early warning mechanism. Moreover, the
Conclusions program activities in emergency preparedness
and risk reduction resulted to be responsive.
Based on the above findings, the following Likewise, the program activities in emergency
conclusions are stated: response emphasized to be effective and
responsive. Similarly, in terms of program for
1. The respondents are predominately males rehabilitation and recovery confirmed to be
mostly affiliated with the barangay with the efficient.
position of barangay councilors and had been
serving as officials for 4 to 7 years. More than 7. It shows on F computation that there is
1/3 of the respondents have ages 46 years old distinction on responses per barangay and
and above and 6% have ages as young as 18 DRR-DRM program for objectives, program
to 25 years old. resources, and program activities in prevention
and mitigation, disaster preparedness and risk
2. The Flood Disaster Risk Management- reduction, emergency response, and
Disaster Risk Reduction (DRM-DRR) programs rehabilitation and recovery.
of the Pasig City for prevention and mitigation,
disaster preparedness and risk reduction,
emergency response, and rehabilitation and Recommendations
recovery are effective.
Based on the findings and conclusions, the
3. It found out that there is no significant following recommendations are made to improved
relationship between the variables of the current flood DRR-DRM program and for future
government affiliation, position, and length of research.
service, and the responses of barangay
officials on the overall assessment of the flood
DRM-DRR. Prevention and Mitigation

4. It resulted that respondents moderately agree 1. Carry out more comprehensive


that they encounter problems in budget, vulnerability assessments to identify the risk and
7

hazard. Mapping is very effective as mitigation Emergency Preparedness and Risk


measures. Assessment of all physical Reduction
infrastructures, number & classification of people at
risk, and hazard areas is very significant to reduce 11. Encourage the community to
risk build their own capacity by establishment
community disaster group link to barangay and
2. Incorporate the study of Disaster Risk LGU that will monitor disaster in their area.
Reduction in formal school as part of the
curriculum, so that at a young age students will be 12. Conduct more trainings, seminars, and
educated on environmental awareness and its drills to the community base about the disaster risk
harmful effect. reduction. Information dissemination of leaflets,
journal, caricature, and cartoonist is significant.
3. Encourage multi-sectoral participation in
DRR-DRM program and activities. Ex. School to 13. Encourage the community to participate
conduct socio-civil activities about flood disaster. in the activities and training conducted in the
Companies to participate in tree planting or community level. Most likely required member (at
environmental activities. least one per family) to undergo training on first aid
and basic life support.
4. Educate the barangay officials and
volunteers about the DRR and their role in the 14. Encourage the people to volunteer in
community. Further, encourage them to participate disaster risk reduction and disaster risk
in the training about DRR. Training must be management.
periodic and barangay must have an evaluation,
assessment and inventory of human physical 15. Develop a policy of coordination among
resources. departments and agency involved in LDRRMC.
Emphasize a bottom up decentralized approach
5. Aside from the CCTV installed in the about DRM-DRR program.
community the LGU and barangay is also
encouraged to put up a visible public address 16. Build a coordination capacity from the
system (i.e. megaphone) that will serve as early Pasig City local government to other neighboring
warning device at the community level. cities, communities and national government. We
remember that Local government code give local
6. Installations of flood control system in autonomy to each LGU, these hampered the
strategic areas are encouraged. Most especially on coordination due to different policies and strategies
those low lying barangays near the main water imposed in each city. However, links between the
ways. cities is very important in order to notify each other
of the plan about DRR. “No one can stand on their
7. The purchased and installations of own” disaster needs a multi sectoral and
disaster management medical kits and box to partnership approach in order to lessen the
barangays are suggested. vulnerability.

8. The continuous programs of the city in 17. The flood management plan must
reclogging of canals, drainage and sewerage specifically identify the source of fund and the
systems should be encouraged. process how it should be tap.

9. The rehabilitation and reclamation of


Bitukang Manok River are strongly suggested or the Emergency Response
creation of new water ways connected to Marikina
river are suggested to reduce the impact of floods 18. Secure of master list of areas families
within the city. and individuals that are in high risk or prone to
disaster.
10. Activation, formation and empowerment
of BDRRCC, BDRRCO, and volunteers are strongly 19. It is suggested to have an annual
suggested to each barangay. inventory of physical resources and capacity of all
barangay to determine their needs in disaster
response and preparedness.
8

20. Purchase of necessary equipment to Technological University and currently studying


barangays based on their respective needs in PhD in Developmental Studies at De La Salle
disaster phase. University under the scholarship apprenticeship
program of DLSU - Jesse M. Robredo Institute of
21. Purchased of additional vehicles that Governance (JMRIG). He is speaker, policy
shall be used for transportation and emergency. developer, consultant and active in community
organizing and development.

Rehabilitation and Recovery


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Endnotes Citizens’ Disaster Response Center (CDRC). 72-
ATimes St., West Triangle Homes, P.O. Box
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