Disaster Preparedness
Disaster Preparedness
Disaster Preparedness
Abstract
This paper measured the organizational effectiveness of the Barangay Disaster Risk
Reduction and Management Committees (BDRRMCs). It focused on the flood-prone
barangays of Cabanatuan City, Philippines. The study used the Goal Model of
Organizational Theory to measure the effectiveness of BDRRMCs. The effectiveness of
BDRRMCs was measured against the goals and objectives of Republic Act 10121 also
known as Philippines Disaster Risk Reduction and Management (DRRM) Act. The study
used as a research tool the Checklist of Disaster Preparedness divided into four
thematic areas namely; a) Disaster Prevention and Mitigation, b) Disaster
Preparedness, c) Disaster Response, and d) Disaster Rehabilitation and Recovery. The
resulting scores were described by the use of Disaster Preparedness Effectiveness
Index. The study showed the need for periodic evaluation of the effectiveness of
Barangay Disaster Risk Reduction and Management Committees (DRRMCs) and to set
the standard of performance not only for the purpose of policy evaluation but also for
measuring community involvement in disaster risk reduction.
Keywords
Organizational Effectiveness, Disaster Risk Reduction and Management, Flood Prone
Barangays, Organizational Evaluation
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Cuya-Antonio, O. and Antonio, H. (2017) Effectiveness of the Barangay Disaster Risk
Reduction and Management Committees (BDRRMCs) in Flood-Prone Barangays in
Cabanatuan City, Philippines. Open Access Library Journal, 4, 1-16.
doi: 10.4236/oalib.1103635.
1. Introduction
The Philippines is exposed to disasters and hazards because of its geography and
geology [1] . It has been ranked third (3rd) among 173 countries in terms of exposure
to hazards, such as typhoon, earthquake, flooding, landslide, volcanic eruption, and
tsunami, according to the World Risk Index 2012 released by the United Nations
International Strategy for Disaster Reduction (UNISDR).
On the R.A. 10121 Orientation Seminar conducted by the Office of Civil Defense, it has
been presented that the Philippines’ location along the Pacific Typhoon Belt made it
prone to typhoon or hydrometeorological hazards. Based on the 2002 to 2012 data of
the National Disaster Risk Reduction and Management Council (NDRRMC), the country
experiences an average of twenty (20) typhoons a year, and 50% of it have damaging
effects to lives and properties. At the same time, Philippines is also situated along the
Pacific Ring of Fire that made it susceptible to earthquake and volcanic eruptions. These
risks made the Philippine Disaster Management System to undergo a paradigm shift.
From Presidential Decree 1566 to Republic Act 10121, from reactive to pro-active, from
top-down and centralized management to bottom-up and participatory disaster risk
reduction process.
Republic Act 10121, also known as the Philippines Disaster Risk Reduction and
Management (DRRM) Act of 2010, is an Act focusing on strengthening the Philippine
Disaster Risk Reduction and Management System [2] . Through this Act, the National
DRRM Framework (NDRRMF) and National DRRM Plan (NDRRMP) were developed. Both
the NDRRMF and NDRRMP foresee a country which has “safer, adaptive and disaster-
resilient Filipino communities toward sustainable development”. Together with the
paradigm shift is the creation of the four thematic areas namely; a) Disaster Prevention
and Mitigation, b) Disaster Preparedness, c) Disaster Response, and d) Disaster
Rehabilitation and Recovery. Each area has long term goals and activities which will
lead to the attainment of overall vision in DRRM. According to the NDRRMF, resources
invested in the four thematic areas must prioritize disaster prevention and mitigation,
disaster preparedness and climate change adaptation to be more effective in attaining
its goal and objectives [3] . All of these were cascaded from national government to the
barangay, the smallest political unit in the archipelago; and the nearest to the people in
the localities serving as the primary planning and implementing unit of government
programs, projects and activities [4] . As the political unit in the grassroots level, the
Barangay Disaster Risk Reduction and Management Committee (BDRRMC) was
mandated to implement RA 10121 (Sec. 12 (a)).
Flooding is the primary hazard in Cabanatuan City. Despite the importance of reducing
risk during manmade or natural made calamities, there is an observable gap in
knowledge on how to measure the effectiveness of government unit in-charged of
lessening the impact of disasters. At present, there is no standard tool to measure their
effectiveness in the performance of functions. On the contrary, programs intended to
measure the performance of the entire Local Government Unit is well in placed. The
Seal of Good Governance and the “Gawad Kalasag” are programs to measure
performance of the LGU.
The SGLG was implemented by the Department of Interior and Local Government
(DILG). It is an improvement of the Seal of Good Housekeeping that was launched on
2010, and integrated with the Seal of Disaster Preparedness that was released on 2012.
The SGLG recognizes good performance of the LGUs, not only on financial
housekeeping, but also on areas that directly benefit the people, including disaster
preparedness [5] . While Gawad KALASAG (Kalamidad at Sakuna Labanan, Sariling
Galing ang Kaligtasan) was implemented by the National Disaster Risk Reduction and
Management Council (NDRRMC) through the Office of Civil Defense (OCD). It is a
Search for Excellence in DRRM and Humanitarian Assistance, which recognizes
exceptional contributions of DRRM practitioners in strengthening the resilience and
adaptive capacities of nations and communities on disaster risks [6] .
These national programs have their own limitations. They cannot measure the
effectiveness of the Disaster Risk Reduction Management System at the Barangay level.
Thus, the study is designed to fill the Gap in terms of performance evaluation at the
barangay level. This would in turn assess the effectiveness of the policies enacted by
the national and the effectiveness of its implementation in the grassroots level.
Performance measurement and program evaluation have been used and is essential for
a more efficient, effective and accountable public sector [7] . Thus, an assessment at
the barangay level is vital in the performance management of the local governments.
Either way, according to Walker and Andrews (2013) a focus on service-delivery is
important in the local government because local government represents the public face
of the state and is where citizens experience of government is derived on a day-to-day
basis [8] .
Objectives of the Study
The main objective of the study is to measure the organizational effectiveness of the
BDRRMCs of the flood-prone barangays in Cabanatuan City based on Disaster
Prevention and Mitigation, Disaster Preparedness, Disaster Response, and Disaster
Rehabilitation and Recovery.
The study is aimed at measuring the organizational effectiveness of the flood prone
barangays in Cabanatuan City, Philippines along the areas of:
1) Disaster Prevention and Mitigation using as parameters:
a) Risk Assessment
b) Plans, Policies, and Budget
c) Early Warning System
d) Risk Financing
e) Environmental Management
f) Infrastructure Resilience
2) Disaster Preparedness in terms of:
a) Presence of a functional Barangay Development Council (BDC)
b) Presence of an institutionalized Barangay DRRM Committee
c) Approved Plans
d) Capacity development activities conducted:
e) Partnership Mechanisms
3) Disaster Response;
4) Disaster Rehabilitation and Recovery;
5) The overall organizational effectiveness of the flood-prone barangays measured
based on the four thematic areas of disaster risk reduction management.
6) To propose policy recommendation.
2. Research Methodology
Study Locale
The study locale is in Cabanatuan City, a component city of the province of Nueva Ecija,
situated in the heart of Central Luzon which is one of the main islands in the
Philippines. It is a landlocked city with 89 barangays and a population of 302,231, as of
August 2015, according to the Philippine Statistics Authority (Figure 1).
Study Design
The study is both qualitative and quantitative in design. The quantitative aspect
involved the use of Checklist of Disaster Preparedness while the qualitative part
involved the description and determination of effectiveness through the use of
observation, interview and analysis of the data observed. Furthermore, the
Figure 1. Location of Cabanatuan City. Source: Google Maps. 2017.
qualitative side of the study focused on describing the how and why of the subject of
inquiry using the Goal Model, objectives, and the policies cited. While the quantitative
side highlights the measurement of the effectiveness of the BDRRMCs through the
relative value of its components, the four thematic areas.
Provided on the checklist are the four thematic areas. Prevention and Mitigation were
given 35 points, Preparedness has 30 points, Response has 20, and 15 points was
apportioned to Rehabilitation and Recovery. Each thematic area has supporting
activities with corresponding points that would meet the objectives set in this study.
The point system would be all or nothing. Every maximum point specified is based on
the weight or importance of the activity. The first two thematic areas were given large
points to satisfy the provisions of the laws and policies cited earlier, the NDRRMF, and
NDRRMP. The points from the four thematic areas are totaled using the Microsoft Excel
to derive the effectiveness. Thus, the Effectiveness Index yielded the following Score
and its Verbal Description, to wit;
Verbal Description Score
Most Effective: 91% - 100%
Much Effective: 81% - 90%
Effective: 71% - 80%
Least Effective: 51% - 70%
Ineffective: 0% - 50%
Respondents
The respondent-barangays are the flood-prone barangays of Cabanatuan City. The
flood-prone barangays were selected based on the information gathered from the
Cabanatuan City Disaster Risk Reduction and Management Office (CDRRMO). According
to the CDRRMO, out of 89 barangays in Cabanatuan City, thirty nine (39) are high risk
to flooding, seventeen (17) are medium risk, and the rest are low risk to flooding.
Based on a 50% normal distribution, with 95% Confidence Level, 15% Margin of Error,
and a population sample of 89 barangays, the sampling yielded a sample size of 30
barangays. They are the following:
1 Aduas Centro 11 DS Garcia 21 Pamaldan
2 Aduas Norte 12 Isla 22 Rizdelis
3 Aduas Sur 13 Imelda 23 San Josef Norte
4 Bagong Sikat 14 Kapt Pepe 24 San Josef Sur
5 Barrera 15 Mabini Homesite 25 San Juan Accfa
6 Bonifacio 16 Matadero 26 San Roque Sur
7 Calawagan 17 MS Garcia 27 Sta Arcadia
8 Caudillo 18 Nabao 28 Sto Nino
9 Communal 19 Pagas 29 Talipapa
10 Daan Sarile 20 Palagay 30 Valdefuente
These barangays are high-risks and medium-risk in terms of flooding in the city. And
they are the barangays that are easily affected of Pampanga River runoffs, which is the
major cause of flooding in the city.
The respondents of the study were seventeen (17) Barangay Captains and thirteen (13)
Barangay Secretaries. The Barangay Captain, as chief executive, is the one enforcing
laws and ordinances which are applicable within the barangay for the general welfare of
the community [9] . While the Barangay Secretary, as an appointive barangay official,
is the one in charge of all barangay records. Thus, the Chairperson and or the Secretary
are the appropriate respondents of this study to ensure validity of the data gathered.
Theoretical Framework
This study is guided by the principles of Organization Theory. There have been several
studies regarding organizations, its functions and systems, which led to organization
theories. Őnday (2016) and Yang, et al. (2013) cited Zhu (1999) and defined
organization theory as, “knowledge systems which study and explain organizational
structure, function and operation and organizational group behavior and individual
behavior” [10] [11] [12] . Under organization theories is the measure of organizational
effectiveness. And one of the earliest models of organizational effectiveness is the Goal
Model. Hall (1980) and Henri (2004) referred to Goodman et al. (1977) and stated that
Goal Model is a rational model or set of arrangements and assumptions oriented toward
the achievement of goals of the organization [13] [14] [15] . Meanwhile, Etzioni (1977)
described effectiveness as the degree to which an organization accomplishes its goals
or outcome [16] . The focus of this model is exclusively on the end result or output
which is the achievement of goals, objectives, and targets [15] . Hence, the measure of
effectiveness is the outcome of organizational activities in terms of measurable outputs
[17] . This implies that organizational effectiveness is based on quantifiable
activities/outcomes as a result of the BDRRMCs observance and implementation of
policies.
Research Paradigm
The figure below shows the research paradigm of this study. It posits that the
Organizational Effectiveness is measured by the number of activities fully implemented
by the BDRRMC for every thematic area (Figure 2).