Disaster Risk Reduction

and Management

29 Nov 2020
A. G. Pada
 Philippines is an archipelago
state, consisting of some 7,641 islands
and islets, and covering a land area of
approximately 300,000 km2.

In terms of disaster risk,

Philippines ranked third among all of
the countries with the highest risks
worldwide according to the World Risk
Report 2018, with index value of 25.14%
(World Economic Forum, 2018). At least 60%
of the country’s total land area is
exposed to multiple hazards, and 74%
of the population is susceptible to their
impact (GFDRR, 2017).

https://www.unisdr.org
 The Philippine population has reached
more than 100 million, according to the 2015
Population Census (PSA, 2015). 57% of the
population resided in Luzon, 23% in the Visayas, and
20% in Mindanao, and in total, 51.2% of the overall
population lived in urban regions (PSA B, 2019). The
population density in the urban regions is 60 times
higher (20 785 persons/km2 ) than the national
average of 337 according to the 2015 census

Population density in the

Philippines (National Economic
and Development Authority, 2017)
https://www.unisdr.org
 Disaster | Kalamidad
A serious disruption of the functioning of a community or
society involving widespread human, material, socio-economic or
environmental losses and impacts, which exceeds the ability of the
affected community or society to cope using its own resources.

Hazard | Panganib
A dangerous phenomenon, substance, human activity or
condition that may cause loss of life and property, social and
economic disruption, or environmental damage

https://www.tampei.org/
 LOW-LYING FLOODING
AREA (ex. Typhoon Ulysses, 2020)
(ex. España Boulevard)

FAULT LINE EARTHQUAKE

(ex. Marikina Valley (ex. Mindanao series
Fault System) of earthquakes, 2019)

VOLCANIC
VOLCANO
(ex. Taal Volcano) ERUPTION
(ex. Taal Eruption, 2020)

VIRUS PANDEMIC
(ex. Corona Virus) (ex. COVID-19 Pandemic,
2020)

https://www.tampei.org/
 Vulnerability | Kahinaan

Comprises conditions determined by

physical, social, economic, and environmental
factors or processes, which increase the
susceptibility of a community, school, or certain Unsafe Poverty and Low literacy and Conflicts within
structures Social Inequality preparedness the community
area in a locality to other impact of hazards.

Capacity | Kalakasan

Are those positive resources and abilities

which are helpful to individuals which are helpful to
individuals, families and community in mitigating,
preparing for, responding to and recovering from Land security Adequate food Local Knowledge Strong
the hazard impact. and permanent and income and skills Community
housing source Support and LGU

https://www.tampei.org/
Exposure | Pagkalantad Risk | Peligro

The degree to which the elements at The potential disaster losses lives,
risk are likely to experience hazard environment, and economy which could
events of different magnitude. occur to a particular community over
some specified future time period.

Risk Formula

HAZARD x VULNERABILITY (EXPOSURE)

RISK=
A risk is a disaster that CAPACITY
hasn’t happened yet
 “There are no natural
disaster – only natural
hazard.”
Hazard
Hazard
“Hazards cannot
Disaster (always) be avoided,
Vulnerable Vulnerable disasters can.”
Population
Population

“Earthquakes do not kill

people but collapsing
buildings and lack of
urban planning do.”
 Disaster Risk Profile
The geographical location of
the Philippines makes the country
uniquely exposed to a plethora of
hazards, including:

The subduction zone between the two

tectonic plates (Eurasian and Pacific) creating Typhoons Volcanoes Earthquake
the seismic activity in the region are predicted
to have the capacity to generate major
earthquakes in the near future, and in the
vicinity of metropolitan cities.

Other hazards include:

All of which are occurring in a

frequency which has fundamentally changed
the perception of hazards in the country. Floods Tsunami Landslide
https://www.unisdr.org
Types of Natural Hazard
TOPICAL CYCLONE. intense low pressure system which is characterized by strong spiral winds towards
the center, called the “Eye” in a counter-clockwise flow in the northern hemisphere.

FLOOD. The inundation of land areas which are not normally covered by water. A flood is usually caused by
a temporary rise or the overflowing of bodies of water or caused by intense downpour.

STORM SURGE. Rise of seawater above normal sea level on the coast, generated by the action of
weather elements such as cyclonic wind and atmospheric pressure.

LANDSLIDE. A massive outward and downward movement of slope-forming materials.

EARTHQUAKE. shaking of the ground caused by sudden slippage of rock masses below or at the surface
of the earth. It is a wave-like movement of the earth’s surface.

TSUNAMI. Giant sea waves generated by earthquakes and volcanic eruptions under the sea-bed.

VOLCANIC ERUPTION. Process wherein volcanic materials such as molten or hot fragmented rocks or
gaseous materials are ejected from a volcano.
PRELIMINARY FLOOD HAZARD MAP OF METRO MANILA
PRELIMINARY GROUND SHAKING HAZARD MAP OF METRO MANILA
PRELIMINARY TSUNAMI HAZARD MAP OF METRO MANILA
PRELIMINARY LIQUEFACTION HAZARD MAP OF METRO MANILA
PRELIMINARY EARTHQUAKE-INDUCED LANDSLIDE HAZARD MAP OF METRO MANILA
 Tropical Cyclone
Tropical cyclones are warm-core low pressure
systems associated with a spiral inflow of mass at the
bottom level and spiral outflow at the top level. They
always form over oceans where sea surface
temperature, also air temperatures are greater than
26°C. The air accumulates large amounts of sensible and
latent heat as it spirals towards the center.

Tropical cyclones can only form over oceans of the

world except in the South Atlantic Ocean and the
south eastern Pacific where a tropical cyclone could
never be formed due to the cooler sea surface
temperature and higher vertical wind shears.

http://bagong.pagasa.dost.gov.ph/
 Classification of Tropical Cyclone
The classification of tropical cyclones according to the strength of the associated windsas
adopted by PAGASA as of 01 May 2015 are as follows:

TROPICAL DEPRESSION (TD) - a tropical cyclone with maximum sustained winds of up to 61

kilometers per hour (kph) or less than 33 nautical miles per hour (knots) .

TROPICAL STORM (TS) - a tropical cyclone with maximum wind speed of 62 to 88 kph or 34 - 47 knots.

SEVERE TROPICAL STORM (STS) , a tropical cyclone with maximum wind speed of 89 to 117
kph or 48 - 63 knots.

TYPHOON (TY) - a tropical cyclone with maximum wind speed of 118 to 220 kph or 64 - 120 knots.

SUPER TYPHOON (STY) - a tropical cyclone with maximum wind speed exceeding 220 kph or more than
120 knots.
http://bagong.pagasa.dost.gov.ph/
 2019 Cyclone Tracks

http://bagong.pagasa.dost.gov.ph/
 2019 Cyclone Tracks

http://bagong.pagasa.dost.gov.ph/
 2019 Cyclone Tracks

http://bagong.pagasa.dost.gov.ph/
 Damage on Tropical Cyclones

Tropical Cyclone Statistics:

1970 – 2016

Affected families : 37,697,717

Affected persons : 189,282,046
Casualties: 35,518 persons

Cost of Damages:
1970 – 2016

Agriculture : Php 302.789 Billion

Infrastructure: Php 116.307 Billio2
Properties: Php 72.289 Billion
http://bagong.pagasa.dost.gov.ph/
What went wrong in Typhoon
Haiyan (Yolanda)?
Why do good forecast result in poor response?

Many of the deaths were caused by

the storm surge that resulted from
the strong wind.

Not enough knowledge on storm

surge impacts.
08 November 2013 | 5:00AM | Landfall in Guian, Samar with maximum
sustained winds of 235 kph and gustiness of 275 kph and moving at 39 kph
6,300 casualties, 30,000 are injured | 89.598 billion estimated damage.
 Earthquake
An earthquake is a weak to violent shaking of the ground produced
by the sudden movement of rock materials below the earth’s
surface.

The earthquakes originate in tectonic plate boundary. The focus is

point inside the earth where the earthquake started, sometimes
called the hypocenter, and the point on the surface of the earth
directly above the focus is called the epicenter.

There are two types of earthquakes: tectonic and

volcanic earthquakes. Tectonic earthquakes are
produced by sudden movement along faults and plate
boundaries. Earthquakes induced by rising lava or
magma beneath active volcanoes is called volcanic
earthquakes.

https://www.phivolcs.dost.gov.ph/
 Earthquake
There are two ways by which we can measure
the strength of an earthquake: magnitude and
intensity. Magnitude is proportional to the energy
released by an earthquake at the focus. It is calculated
from earthquakes recorded by an instrument called
seismograph. It is represented by Arabic Numbers (e.g.
4.8, 9.0). Intensity on the other hand is the strength of an
earthquake as perceived and felt by people in a certain
locality. It is a numerical rating based on the relative
effects to people, objects, environment and structures in
the surrounding. The intensity is generally higher near
the epicenter. It is represented by Roman Numerals (e.g.
II, IV, IX). In the Philippines, the intensity of an earthquake
is determined using the PHIVOLCS Earthquake Intensity
Scale (PEIS).

https://www.phivolcs.dost.gov.ph/
 West Valley Fault
The fault, which has moved 4 times in the last 1,400 years,
moves roughly every 400 years, according to Phivolcs Director Renato
Solidum.

The last major earthquake generated by this fault was in

1658, or 357 years ago. This means the metro is already due for the
next big quake.

It is not the only fault line that could affect the metropolis.
The last big earthquake that caused damage in Metro Manila was the
one that destroyed the Ruby Tower in the 1960s. That earthquake was
caused by a fault line in Casiguran, Aurora, north of Metro Manila.

In the studies conducted, however, what emerged as the

worst case scenario is a magnitude 7.2 earthquake from the West
Valley Fault on a weekday and at night. Why night time? Partly because
the studies found that the buildings most at risk of damage in the
metropolis are residential buildings
https://www.phivolcs.dost.gov.ph/
https://www.phivolcs.dost.gov.ph/
 Types of Fault

https://www.phivolcs.dost.gov.ph/
 Impacts and Damages of Philippine Earthquakes

https://www.phivolcs.dost.gov.ph/
 Earthquake Hazards

https://www.phivolcs.dost.gov.ph/
Earthquake Preparedness Guide

https://www.phivolcs.dost.gov.ph/in
dex.php/earthquake/earthquake-
preparedness
Taal Volcano Eruption | 2020

Hazards and Climate Change

On average, about 20 tropical cyclones enter the
Philippines waters each year, with approximately eight or nine
making landfall (ESCAP/WMO, 2009; Bankoff, 2003).
Typhoon Ulysses | 2020
Tropical Cyclones are also the largest contributors to disaster
damage. Of all the disasters, cyclones and the accompanying landslides,
storm surges and floods have caused the largest losses of life and
property (Huigen & Jens, 2006; Bankoff, 2003), mostly because majority of the
population is living within 60km from the coast.

However, 80% of all the damages and deaths caused by

typhoons between 1970-2014 have been caused by 6 super-scale events,
Pampanga M6.3 Earthquake | 2019 Haiyan included (Espada, 2018). Based on vulnerability studies, the most
vulnerable regions to tropical cyclones in the country are the National
Capital Region (NCR), Southern Tagalog, Cagayan Valley, Central Luzon, the
Cordillera Administrative Region, and Bicol Province (Cruz, et al., 2017).
Visayas and Mindanao are likewise becoming more at risk due to an
increasing number of tropical cyclones entering the southern part of the
country. https://www.unisdr.org
 In terms of climate, the Philippines is among the top countries
at risk of adverse impacts of climate change due to sensitive ecological
systems (including reefs and marine fauna), large numbers of coastal
populations and exposure to frequent weather extremes which are
likely to grow in intensity. Climate change effects are considered to be a
key factor contributing to the occurrence of stronger typhoons, sea-
level rise, and elevated storm surges in coastal regions. Intensified
storm surges are predicted to affect more than 40% of the coastal
population living in informal settlements and they are likely to face the
first impacts of increased storm surges and flooding (CFE-DM, 2018).

Studies indicate that temperature and precipitation have

increased steadily during the past six decades, and temperature
extremes are becoming more frequent (Cinco, et al., 2014). Data also
illustrates temporal and spatial variability of rainfall which has unique
regional characteristics of increased precipitation in western and
central regions.

https://www.unisdr.org
Exposure
Nearly half of the population is residing in urban centers, 25%
of which in the capital alone. Massive urban sprawl has expanded the
metropolis of Manila into the Greater Manila Area, now covering parts of
the neighboring provinces as well. This expanded metropolitan area has a
population of about 25 million, (The Centre of Expertise on Asia, 2016).

Informal settlement and unplanned city expansion

are prevalent issues, resulting in urban congestion as well as
compounding physical, social and environmental
vulnerabilities to hazards in the National Capital Region (NCR).
Rapid urbanization, conversion of agricultural lands to
residential areas and concreting open spaces have resulted in
the loss of topsoil and destruction of the natural ecosystems,
which drastically reduce the ground’s capacity to absorb water
(OCD-NDRRMC, 2015). This will further exacerbate the impacts of
heavy rainfall and flooding.
https://www.unisdr.org
 https://www.unisdr.org

Social Vulnerability

Poverty in the Philippines is characterized

by distinct spatial and individual disparities;
poorest provinces are located in the southern
regions of the country and the poor households
are also very heterogenous in nature. The poor,
depending on their background, location and
gender, are affected by various observable
economic and natural shocks such as fuel prices,
varying rainfall, or natural hazards, and for many,
education is determining factor of future income
and economic status (Mina & Imai, 2016).

Distribution of poverty in the

Philippines by province (GSMA
Intelligence, 2014)
 The impacts of climate change and environmental degradation
do not impact the populations equally. Among various socioeconomic
groups in coastal communities, especially small-scale enterprising poor
such as fishers and shellfish gatherers, have been found to be most
vulnerable to coastal flooding, coastal erosion and saltwater intrusion
(Sales Jr., 2009). This is due to increasing coastal hazards, lack of
household resources, environmentally dependent sources of livelihoods
and exposure to frequent hazards, among other factors. Small-scale
farmers are the other most vulnerable group; household levels often
carry the brunt of disaster impacts, suffering from food insecurity other
ripple effects due to lack of diverse coping strategies (Danilo & Roehlano,
2012; Anttila-Hughes & Hsiang, 2013).

Some vulnerabilities have strong gendered characteristics,

as men’s and women’s vulnerability to disasters is influenced by
cultural norms and perceptions influencing gendered behavior. For
example, evidence from Central Philippines suggests that cultural
norms and perceptions of modesty significantly lower the swimming
capabilities of women and girls, which also has transgenerational
effect (Hunter, et al., 2016).
https://www.unisdr.org
 Physical Vulnerability
Due to growing informal urban settlements, proliferation of
substandard materials and poor construction is still observed in many
areas. It increases the vulnerability to earthquakes and flooding. Many
low-lying coastal communities are habitually exposed to flooding, and
numerous housing units are often built with wood on pile foundations,
covered by sheet metal and plastic, all of which are inadequate to
withstand typhoon (or earthquake) impacts (Morin, et al., 2016).

The mangrove ecosystems, one of the best buffers against

typhoons, coastal flooding and storm surges, have been severely
deteriorated (Ida Gabrielsson, 2018). The Philippines has lost hundreds of
thousands of hectares of mangroves in the last century, as a result of
rampant conversion of natural space to the use of agriculture, fish ponds,
aquaculture. Also, the forests have been degrading due to extensive use of
mangrove for timber and and fuel, and due to the expansion of coastal
settlements.
https://www.unisdr.org
 Disaster Risk Reduction and Climate
Action Interventions

https://www.unisdr.org
 People-centered Early Warning Systems
FOUR KEY ELEMENTS

1. Risk Knowledge 3. Effective Communication

2. Monitoring 4. Capacity to Respond

https://[email protected]
 Disaster risk reduction and climate action have been embraced
as compulsory functions of all levels of governance required to
sustain productivity, and to shelter development gains in the
Philippines. DRR and institutionalization of disaster risk management
have become permanent elements of the official governance, in
recognition of the fact that disasters and climate change are
increasingly threatening the national security. The following chapters
shed light on the process and key interventions on disaster risk
reduction (DRR) and climate change adaptation (CCA), in consideration
of the global policy frameworks: Sendai Framework for Disaster Risk
Reduction (SFDRR), Sustainable Development Goals (SDGs) and the
Paris Climate agreement.

https://www.unisdr.org
Sendai Framework for Disaster
Risk Reduction
2015-2030
https://www.unisdr.org
 Understanding the Risk
Priority 1 | Sendai Framework

Philippines has made significant progress in collecting comprehensive and updated risk information
using different technological tools including GIS, Light Detection and Ranging (LiDAR), Interferometric Synthetic
Aperture Radar (IfSAR), computer simulations, and fault mapping. Country’s assessments of hydro-
meteorological, geological, and seismic hazards as well as community vulnerabilities, especially in the urban
context, cover the parameters of hazards, exposure and vulnerability contributing to risks. However, enhanced
cross-agency collaboration will be required to optimize the use of existing databases, managed by different
government offices to generate finer scale of risk information.

At national level, technical agencies with direct and relevant mandates for conducting risk
assessments are the Philippines Institute of Volcanology and Seismology (PHIVOLCS), the Philippines
Atmospheric, Geophysical and Astronomical Services Administration (PAGASA), NAMRIA, and Mines and
Geoscience Bureau (MGB), and UP Resilience Institute. The agencies have technical expertise that complements
one another when conducting multi-hazard risk assessments.

https://www.unisdr.org
 Strengthening Disaster Risk
Governance to Manage Disaster Risk
Priority 2 | Sendai Framework

Since 1970s, Philippines has updated legal foundations for disaster risk reduction and management, emphasizing
response-centric interventions, along with disaster prevention preparedness, and mitigation activities. This has been
complemented by local risk governance legislation since 2003 to enable the use of local calamity funds for disaster
preparedness and mitigation. However, these were considered insufficient to support change at the local level (GoP, 2009).
This acknowledgement led to the enactment of the Philippine Disaster Risk Reduction and Management Act of 2010 (or
Republic Act 10121), as the country’s foremost legal instrument and guiding policy framework driving DRRM momentum
across various governance levels.

In terms of institutional arrangements, National Disaster Risk Reduction and Management Council (NDRRMC)
serves as the highest decision-making body, comprising members from different departments, government agencies,
LGUs, Civil Society Organizations and private sector. The architecture of DRM consists of multi-tiered bodies down to the
Barangay (community) level, comprising Disaster Risk Reduction and Management Office (DRRMO) in every province, city
and municipality, and a Barangay Disaster Risk Reduction and Management Committee (BDRRMC), which are responsible
for operations requiring vertical coordination, as mandated by the DRRM Act.
https://www.unisdr.org
 Priority 2
Sendai Framework
https://www.unisdr.org
 Investing in Disaster Risk Reduction
for Resilience
Priority 3 | Sendai Framework

Since 2008, National Economic and Development Authority (NEDA) has been developing and updating DRR
mainstreaming framework for addressing disaster risk issues. The local DRRM Plans (LDRRMPs) are developed by the
Local Disaster Risk Reduction and Management Office (LDRRMOs) at the provincial, city and municipal levels and the
Barangay Development Councils, to guide DRRM activities and investment. Significant efforts have been made to enhance
risk-informed spatial planning, with the OCD tasked to evaluate and ensure that disaster risk reduction measures are
incorporated into the Comprehensive Development Plan (CDP) and the Comprehensive Land Use Plan (CLUP).

While there are budgeting mechanisms in place for cities to allocate financing for disaster risk management
through the Local Disaster Risk Reduction and Management Funds, cities often face significant challenges in securing
adequate resources for post-disaster operations, including rapid access to funding to support early recovery efforts such
as the restoration of critical infrastructure, delivery of services, and support for livelihoods.

https://www.unisdr.org
 Enhancing disaster preparedness for
effective response to “Build Back Better” in
recovery, rehabilitation and reconstruction
Priority 4 | Sendai Framework

A national disaster response plan was formulated and adopted for different hazards and disaster scenarios with
the participation of stakeholders, including civil societies and the private sector. The NDRRMC Operation Center has been
established for monitoring, evaluation, and coordination of disaster response operations. The OCD conducts Pre-Disaster
Risk Assessment – Actions Programs and Protocols (PDRA-APP), and capacity building for emergency preparedness,
Incident Command System (ICS), Search and Rescue and PDNA. OCD, in partnership with other government counterparts,
including DILG, and the Philippine Public Safety College (PPSC) have continued support to LGUs on DRM. LGUs and the
members of the Regional Disaster Risk Reduction and Management Council (RDRRMC) have already set their “Oplan
Paghahanda” to properly respond to any disaster scenario, but they would need to continuously enhance their response
capabilities (Baccay, 2018). Some LGUs have also already established their own local operations center.

https://www.unisdr.org
DareMaps Resiliency Mapping Project
A safe and resilient community starts
with risk analysis… knowing our risks
help us act more effectively.
DAREMAPS, 2018