QC Disaster Risk Reduction and Management Plan 2014 to 2020

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Earthquakes and Megacities Initiative

quezon city

pr

oject

22 August 2013

Disaster Risk Reduction and

Management Plan 2014 to 2020

Earthquakes and Megacities Initiative Puno Building, 47 Kalayaan Avenue, Diliman, Quezon City, Metro Manila, Philippines 1101 T/F: +632 9279643; T: +632 4334074 www.emi-megacities.org

Building a Disaster Resilient

Quezon City Project

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Disaster Risk Reduction and

Management Plan 2014-2020

Building a Disaster Resilient

Quezon City Project

22 August 2013

Formulated as part of the Final Deliverables of the “Building a Disaster Resilient Quezon City Project”, Earthquakes and Megacities Initiative, 2013

The concepts, methodologies, and overall design of the Quezon City Disaster Risk

Reduction and Management Plan are developed by EMI; hence, the aforementioned are, and remain, intel-lectual property of EMI. Parts of the contents, data, and information contained in this report are property of Quezon City.

This document is jointly owned by the Quezon City Government and EMI. Permission to use this document is granted provided that the use of the document or parts thereof are for educational, informational, non-commercial, and personal use only. The Quezon City Government and EMI must be acknowledged in all cases as the source when reproducing or using any part of this publication.

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Message from the Mayor

The Quezon City Disaster Risk Reduction and Management Plan 2014-2020 (QC DRRMP 2014-2020) specifies the policies, priorities, and actions to reduce the disaster risks faced by Quezon City within the next six years. It emphasizes the goal of the Quezon City Government to keep Quezon City residents safe from disasters and to protect our investments from the adverse effects of geological and well as climate related catastrophic events.

With the help of our partner, the Earthquakes and Megacities Initiative (EMI), the QC

DRRMC developed a plan that is based on sound scientific information to guide us in decision-making and in prioritizing the limited resources of the City Government to address the needs of its more than 2.86 million residents. This plan is a significant accomplishment and milestone for us since we now have the tools in our hands to better manage our risks. It also allows us to focus our attention and resources to where they are most needed and highlights the need for helping populations that are vulnerable to the impact of extreme events brought about by earthquake and flooding.

I strongly encourage all city government and barangay officials, employees, development partners, and stakeholders in Quezon City to make full use the information contained in this QC DRRMP 2014-2020 in planning for their own work. Disasters is an issue that concerns us all and it is our collective responsibility to keep our families and our city safe from disasters. Finally, I wish to commend all those who worked hard into bringing this QC DRRM Plan 2014-2020 into fruition. Let us all work together to build a Disaster Resilient Quezon City.

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Message from the Vice Mayor

In the wake of recent earthquake and flooding events in the country, many local government units are now impelled to draw up and review their existing programs on disaster risk reduc-tion and management. As the largest and most populated city in Metro Manila, Quezon City is all the more compelled to ensure the safety of its constituents and protect its development gains. Through the development of the Quezon City Risk Atlas, the city has made great leaps in understanding the importance of planning effectively to mitigate, prevent and prepare for the adverse effects of earthquakes and floods. In a country that constantly deals with one disaster after another, quality and science-based infor-mation becomes the next best tool for develop-ing programs, projects and activities aimed for ensuring the safety of the city’s constituents. I commend all those who worked hard in com-pleting the Quezon City Risk Atlas. With its completion, I am looking forward to a Disas-ter-Resilient Quezon City. Kaya natin ‘to!

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Message from the Project Directors

PCSUPT (Ret.) Elmo DG San Diego,

QC DRRMC Action Officer

The partnership between the Quezon City Government and Earthquakes and Megacities Initiative(EMI) proves that the city recognizes the fact that risk reduction is the responsibility of all, not just the government. The Quezon City Disaster Risk Reduction and Management Plan 2014-2020, along with the other products of the “Building a Disaster Resilient Quezon City Project,” provides the opportunity for the city to comply with the national law and international standards of practice, thus reducing risks in the long term and enticing developmental invest-ments to come in the city.

With the available information on the city’s hazards, vulnerability and risk, the QC DRRMP provides a road map on the strategies that will help Quezon City enhance its capacity in facing the potential impacts of a disaster.

The “Building a Disaster Resilient Quezon City Project” paved way for Quezon City to envi-sion ‘a Quality City with an empowered and responsive citizenry who live in a sustainable, well planned, and structurally sound environ-ment with a vibrant economy under progressive leadership.’ Now equipped with the outputs from the Project, Quezon City now has the tools to reduce its risk and build its capacity towards a disaster-resilient city.

Dr. Eng. Fouad Bendimerad,

EMI Chairman of the Board and Executive

Director

The Quezon City Disaster Risk Reduction and Management Plan provides guidance for Quezon City to iniate investments effective in building resilience and protecting local development. The tools, methods and global experience by EMI applied to develop the plan ensures that Quezon City will meet the established international stan-dards of practice in disaster risk reduction. The QC DRRMP, along with its Annexes, is a product of several consultation and validation sessions among EMI, Quezon City Technical Working Group, Steering Committee and the City Development Council. By working together, EMI and Quezon City were able to produce a product that is scientifically sound and grounded on the real life experiences of people who are at the forefront of disaster risk reduction and man-agement activities in Quezon City.

I am confident that Quezon City will make full use of the QC DRRMP and sustain the momen-tum towards building a disaster resilient city!

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The Quezon City Disaster Risk Reduction and Management Council and Earthquakes and Megacities Initiative would like to express its great appreciation to a number of people, institutions and organizations that contributed to the development of the Quezon City Disaster Risk Reduction and Management Plan 2014-2020 (QC DRRMP 2014-2020).

The Quezon City Technical Working Group, for the support, commitment and contribution, especially the Office of the City Mayor, Office of the Vice Mayor, the City Administrator, the City Council, Liga ng mga Barangay and other departments and offices involved in the project including the Information Technology and Development Office (ITDO), City Assessor’s Office, Environmental Protection and Waste Management Department (EPWMD), Department of City Engineer, Department of Building Official (DBO), Parks, Development and Administration Department (PDAD), City Health Department, Barangay Operations Center (BOC), Community Relations Office (CRO), City General Services Office (CGSO), Housing and Community Development and Resettlement Department (HCDRD), Social Services Development Department (SSDD), Gender and Development Resource and Coordination Office (GADRCO), Radio Communications Services (RCS), Business Permits and Licensing Office (BPLO), Office of the City Secretary, QC General Hospital, Philippine Red Cross-QC Chapter, Division of City Schools, Communication Coordination Center (CCC), Public Affairs and Information Office, City Budget Office, Task Force COPRISS, and City Treasurer’s Office.

Special thanks to the Department of Public Order and Safety (DPOS), City Planning and Development Office (CPDO), and the Quezon City Disaster Risk Reduction and Management Office (QC DRRMO) for the commitment,

Acknowledgements

dedication, and support at all stages of project implementation until the completion of the QC DRRMP 2014-2020.

The Project Steering Committee, for providing guidance and in harnessing the support of key stakeholders in the city.

The Consultative Committee composed of representatives of the City Development Council Sectoral Groups, for providing pertinent

contribution and counsel to the formulation of the QC DRRMP 2014-2020.

Select barangay officials of the Quezon City Government, for their inputs and participation in the activities conducted by the QC TWG for the duration of the project.

To all individuals, organizations, and

institutions who contributed and participated in all project activities, we greatly appreciate your contributions and inputs. Our sincere apologies are extended to those we might have inadvertently failed to thank in this document.

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Executive Summary

The Quezon City Disaster Risk Reduction and Management Plan (QC DRRMP) for 2014-2020 is the concluding output of the twelve-month “Building a Disaster Resilient Quezon City Project,” which was a collaboration of the Quezon City Government (QCG) and the Earthquakes and Megacities Initiative (EMI).

Purpose and Objectives

The development of the QC DRRMP finds its principles, foundations, and structure from the following national and international acts, standards, and guides:

• Republic Act 10121 or Disaster Risk Reduction Management Act of 2010

• UN Economic and Social Council’s Number 63/1999

• Hyogo Framework for Action 2005-2015, • Emergency Management Standard by

Emergency Management Accreditation Program or EMAP

• ISO 31000 The QC DRRMP intends to support QCG fulfill its obligations and compliance in the above-listed acts, standards, and guides while at the same time provide a clear road map on actions and decisions to reach the DRRM objectives set up by national and international actors in the specific context and parameters of Quezon City.

Another purpose of the QC DRRMP is to provide the necessary and required elements to understand, communicate, and manage the various hazards and risks faced by the city through optimization of its existing capacities in reducing risks and protecting its assets and communities. Moreover, the QC DRRMP will inform policy and decision makers to optimize investments in DRRM and to guarantee commitments to integrated Disaster Risk Reduction priority programs. The specific objectives include:

a. Identification of hazards, vulnerabilities, risks and capacities;

b. Identification of mainstreaming strategies and definition of near term, mid-term and long term programs, projects, and activities (PPA’s);

c. Assessment of the local capacity to manage risk and reduce vulnerability at the local level (i.e., barangay and community); Application of a gender-responsive DRRM approaches and strategies in managing said hazards and risks;

d. The elaboration of an Emergency/Disaster Management System that is in line with international standards and national laws and guidelines

e. Identification and clarification of

department roles, responsibilities and line of authority at all government offices; f. Vertical and horizontal coordination

of DRRM in the pre-disaster and post-disaster phases; and,

g. Evaluation and monitoring tools to benchmark and measure progress. Ultimately, the QC DRRMP will aid the

institutionalization of DRRM protocols, policies, procedures, and functions within Quezon City based on the scientific knowledge and collective experience from the “Building a Disaster Resilient Quezon City Project.”

Scope

QC DRRMP is a document specifying policies, platforms, strategies, action plans and mechanisms pertaining to the implementation and institutional basis of disaster risk reduction and management in Quezon City. It describes the interests and responsibilities of all stakeholders that were developed under the concepts, mandates and principles of the NDRRMP, DRRM Act of 2010, and the Hyogo Framework for Action.

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Methodology

The development of the DRRMP adopted a fully participatory process by which stakeholders’ interests, inputs and consensus determined the outcome. Experts in various fields developed the scientific data and analyses and guided the stakeholders in the data collection, data interpretation, discussions and recommendations.

Several activities were conducted for the

completion of this report. These include primary and secondary data gathering, conduct of multi-stakeholder workshops, key informant interviews with concerned QCG authorities, desk review of existing legislative framework and other DRRM-related documents, , and various scientific analyses such as the development of the hazard, vulnerability and risk assessment. These data and information were not only aggregated but also reviewed and assessed through the organizational mapping and network analysis approach, where functional interrelationships of concerned DRRM stakeholders were drawn. Validation exercises, workshops and trainings were conducted to ensure that stakeholders made informed and consensus decisions based on factual data and cumulative knowledge.

Concerned Stakeholders

Bearing in mind that DRRM is the responsibility of all, and that safety of the people from any disasters is a priority, the Project pursued a participatory process in the development of the QC DRRMP, by engaging the government, the civil society, non-government organizations (NGOs), the private sector, service providers, international organizations and other stakeholders concerned with disaster risk management.

The QC DRRMP’s primary concerned stakeholders are the members of the QC DRRM council under the leadership of the City Mayor. It also involves all City Departments under their respective

department’s heads and the supervisors and staff, barangay leadership and senior staff and officials, ancillary and auxiliary agencies including all service providers and utility companies, national and provincial agencies involved in preparedness and response as well as in public safety, and representatives of civil society, private sector, media, international partners, and other communities and organizations which provide their knowledge, support, services for the general good.

The QC DRRMP is a public document developed to support the city’s and the nation’s effort to plan, reduce, respond and recover from the occurrence of hazardous events. Organizations and institutions are encouraged to study the plan and be familiar with its provisions as well as use the plan to develop their own DRRMP and agenda in support for the welfare and well-being of all citizens of Quezon City.

Implementation Challenge

Effective implementation of the QC DRRMP, however, requires the continuous involvement of the city, provincial, national as well as international actors. Constant collaboration and cooperation among different stakeholders in disaster risk reduction and management is crucial as well as disasters not only extend beyond administrative and territorial boundaries but also evolve through time due to the gradually changing climate. City, provincial, national and international cooperation is therefore one form of cross-jurisdictional disaster risk reduction and management that reduces risks and keeps development on track. In particular, QCG is expected to provide accessibility of facilities and infrastructure as well as adequate resources to implement the QC DRRMP. Enhanced access to all formal and informal information sources will allow for direct involvement of the community and the private

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sustaining and enhancing local and community capacity, disaster risk reduction efforts will use and empower local resources, which includes: financial resources, trainings and seminars, equipment, technology, natural resources, skills and economic and social processes.

Summary of the Plan

The discussions in this document were put

together for better appreciation of the consolidated data and information from the “Building a Disaster Resilient Quezon City Project.” This document is divided into the following eight (8) chapters:

1 Introduction

This section of the report highlights the following data and information:

Philippines as a Disaster-prone Country and the New DRRM Approach. The geographical

and geological features of the Philippines cause the exposure of Philippines to natural hazards. Recorded history suggests an increase in the susceptibility of the Philippines to the damaging effects of hazards. In fact, in 2011, the Philippines was part of the top 5 countries that are hit by natural disasters (mostly hydro-meteorological and geophysical by nature). However, within the last decade, increasing trend in disaster occurrence and loss has also been observed in various regions of the world. This led to a paradigm shift in the DRRM field: from a response-oriented approach to a more proactive- and preventive-approach.

Legal and Institutional Arrangements. Various

institutional and coordination mechanisms, including other pertinent laws and issuances on DRRM apply to Quezon City in terms of:

 Risk Framework: RA 10121 (DRRM) and RA 9729 (CCA);

 _{Fund Utilization, Sourcing, Accounting,} and Reporting: DILG Memorandum Circular No. 2012-73, DBM Local Budget Memorandum No. 66, and COA Circular No. 2012-002;

 _{QC Risk Policy and Practice: EO 23 Series of} 2010, EO 71 Series of 2011, and EO 5 Series of 2013.

QC DRRMP Rationale. The development of the

QC DRRMP marks Quezon City’s recognition of the need to shift its DRRM approach from a response-oriented to a more proactive and preventive one.

2 Development Methodology

Development Phases of the QC DRRMP. The

development of the QC DRRMP was undertaken together by EMI Experts and members of the QC Technical Working Group (TWG). The QC DRRMP development was divided into four (4) Phases:

1. Phase 1: Setting up of the formal organizational structures to implement the project activities (e.g. Project Steering Committee, Advisory Committee,

Consultative Committee, Technical Working Group, Secretariat). This is to ensure that the mechanism for project implementation, decision-making, and collaboration is not only participatory but also inter-sectoral and multi-disciplinary.

2. Phase 2: Conduct of Situational Analysis according to Legal and Institutional Arrangements (LIA), Land Use Planning – Construction Codes and Standards (LUP-CCS), Emergency Management (EM), Geographic and Information Systems (GIS), and Hazards, Vulnerability, and Risk Assessment (HVRA) were carried out to diagnose the current DRRM practice of QC.

3. Phase 3: Formulation of Narrative Scenario, conduct of Consequential Analysis, review of HVRA findings, and the identification of priority programs, projects, and activities (PPAs) aligned with the four (4) thematic DRRM sectors (Preparedness, Response,

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and Recovery) and based on urgency and importance (immediate-term: as soon as possible; short-term: within 1-3 years; medium-term: in the next 4-6 years) 4. Phase 4: Development of Monitoring and

Evaluation indicators to provide benchmark for measuring performance and effectiveness of different operational and organizational policies of the Quezon City Government and their effect on reducing the disaster risk in the different sectors analyzed in the DRRM Plan.

3 Overview and Profile of Quezon City

QC Risk Atlas Key Characteristics. The key

characteristics of Quezon City as detailed in the QC Risk Atlas is described in terms of:

 _{National and geographic conditions: population,} land area, topography, hydrography, climate zones;

 Socioeconomic conditions: demographic

characteristics (no. of households and barangays, level of education, dependency ratio, and no. of informal settlements) and land use and urban development (residents, institutions, open spaces and parks, universities, health facilities, media networks, government offices, commercial and residential spaces, transportation network, and growth centers).

Suitability of QC as a Capital City. The following

distinct qualities of QC made it one of the most suitable sites in Metro Manila to develop a City:  Extensive area of government-owned land

right in its central zone, which provided substantial active economy in the development of public infrastructures as well as more liberal assignments in parks and recreation sites;

 Desirable geologic characteristics of the city, which provided a satisfactory foundation

for buildings and structures, and at the same time, allowed the construction of underground structures.

4 Hazards, Vulnerability, and Risk Assessment (HVRA)

QC Natural and Human-induced Disaster Risk and Their Possible Impacts. Disaster risk arises from two kinds of hazard:

• Natural Hazards:

o Earthquakes (e.g. impact of surface ground rupture; fire after an earthquake; liquefaction; ground motion shaking; building damage; impacts of aftershocks; hotspots based on earthquake risk index);

o Floods (e.g. susceptibility; population affected; casualties; buildings affected; displaced population; economic losses; impact on critical and high loss potential facilities; post-flood health issues; hotspots based on the flood risk index)  _{Human-induced Hazards:}

o Sociological Hazards (crime, civil disorder, terrorism and war, hazardous material intentional release)

o Technological Hazards (fire accidents, travel/transportation accidents, and industrial accidents)

HVRA Findings. The findings from the HVRA

indicate an assessment of impacts for flood and earthquakes in terms of the following:

• Spatial severity of hazards;

• Quantifiable damage, losses and impacts to population, buildings, infrastructure, critical and high loss facilities; and • Hotspot barangays.

The data, findings, and mapping of social and physical losses provided in the HVRA report provide the city with the necessary understanding and competency to address and reduce risk from

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damage impact assessments and projections provided in the report are meant to inform the Quezon City Government on its risks from earthquakes and floods in order to help it improve its planning and policy making processes.

Risk Indicators and Urban Disaster Risk Index (UDRI). To obtain a holistic view ofrisk, a set of

indicators describing both vulnerabilities and coping capacities in Quezon City are considered in addition to physical risk indicators. The UDRI is the approach for identifying risk hotspots by combining directly the descriptors compromising both physical risks and socioeconomic factors.

Hotspots and Hotspot Analysis. Hotspots are

defined by a combination of a number of critical factors or indicators. Both the physical and socio-economic dimensions of vulnerability, risk and coping capacity, are used to identify the hotspots. Together with risk indicators, ‘Hotspot’ analysis or the determination of risk “hotspots”, or Barangays with high risk in terms of casualties, social impacts and economic losses, allows for rational and adequate planning of resources.

5 Situation and Consequential Analysis

This section of the report highlights the following information and processes utilized on the various sectors of the city’s DRRM system to gauge its institutional capacity and enhance understanding of the overall risk in Quezon City:

Situational Analysis. The situational analysis

guides the QCG in recognizing its strengths, weaknesses, opportunities, and challenges (SWOC) in terms of its institutional capacity on DRRM. The findings or results of the analysis per DRRM element were used to develop initial strategies to improve the capacity and competency of QC to address its DRRM gaps and build on existing strengths (see Chapter 5 for a complete list

of results per DRRM element).

Consequential Analysis. The consequential

analysis is used to reinforce understanding of the impacts of the scenario earthquake and

flood to the different planning parameters

(population, buildings, facilities, infrastructure and socioeconomic parameters).

6 Definition of Resiliency Strategies

Steps Undertaken to Define QC Resiliency

Strategies for DRRM. The QC Resiliency Strategies

for DRRM are as follows:

 Strategies for Improving QC Legal and Institutional Arrangements (LIA);

 Strategies for Improving QC Emergency Management (EM);

 _{Strategies for Developing and Sustaining QC’s}

Geographic Information System (GIS);

 Strategies for Mainstreaming DRRM in Land Use Planning and Construction Codes and Standards (LUP-CCS).

The key strategies per DRRM element have been identified through a revisit of the initial findings and strategies of the situational and consequential analysis and a series of SWOC workshop exercises conducted with the QC TWG. The resiliency strategies incorporate practical considerations and priorities for implementation. Furthermore, they serve as basis for developing DRRM programs, projects, and activities (PPAs) aligned along the four (4) DRRM thematic areas of prevention and mitigation, preparedness, response, recovery and rehabilitation (see Chapter 6 for a complete list of

the QC Strategies for DRRM).

7 Disaster Risk Reduction and Management Plan (DRRMP)

This section of the report discusses how the main section of QC’s DRRMP can be organized along the four (4) thematic areas as prescribed by OCD, and, at the same time, comply with the sectoral approach in order to effectively mainstream DRRM in the city’s functions.

DRRMC/DRRMO Functions, Members, Roles and Responsibilities. RA 10121 mandates the

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the city and barangay levels, the composition and functions of which are clearly defined in the law. In compliance with RA 10121, Executive Order No. 23 Series of 2010 was issued by the Mayor to organize the Quezon City DRRMC. Likewise, the Executive Order No. 5 establishes the QC DRRMO to comply with the law.

Emergency Support Function (ESF). The purpose

of the ESF is to ensure the effectiveness of the QC DRRMO’s Emergency Management by involving and asking for the support of other institutions. Emergency managers, responders, planners,

decision makers and implementers of these involved institutions are grouped according to a specified ESF based on the function/role of their respective institutions. Each ESF has a specific scope/role/ function and is comprised of a Lead Agency and is supported by a number of government (from different levels of governance) and private institutions, known as Support Agencies. This grouping of emergency support functions is captured and documented in an ESF Table and Matrix.

 ESF Table: defines roles and responsibilities for each function related to emergency management;

 _{ESF Matrix: assigns Lead Agencies and} Support Agencies.

Priority Programs, Projects, and Activities (PPAs) for 2014-2020. PPAs were developed based on the

key strategies identified by the QC TWG with EMI. The PPAs are aligned along the four thematic areas of DRRM in accordance with the National DRRM Plan and are classified into immediate-term, short-term, and medium-term to establish the investment priority of QC in terms of urgency and importance in reducing risks and building resiliency.

The table below presenting the programs guiding the projects and activities per DRRM thematic area provides a synopsis of the discussion of priority PPAs for 2014-2020 in Chapter 7.2 of this report.

Thematic Area Program

Mitigation and

Prevention Strengthening QC’s Legal and Institutional Arrangements for DRRM

Mainstreaming DRR in Land Use Planning and Land Use Management DRR for Critical and Essential Facilities Introducing Urban Rejuvenation and Urban Redevelopment for DRR Preparedness Strengthening QC’s Emergency Management System DRRM Geospatial Database Development Preparation of

Contingency Plan for Each Department and Function of QC

Response Provision of Emergency Services and Public Assistance During or After A Disaster Rehabilitation and

Recovery Development of Sheltering, Relocation, and Rehabilitation Plans

8 Monitoring and Evaluation Guidelines (M&E)

M&E is used for benchmarking and measuring performance and progress of a project. The

Department of the Interior and Local Government (DILG) advocates its undertaking and even provides manuals/guidelines for conducting M & E as a function of the local planning structure. Among these are the Local Government

Treasury Operations Manual (LGTO),

Updated Budget Operations Manual (UBOM), Rationalized Planning System Manual (RPS), and Comprehensive Development Plan – Executive Legislative Agenda Manual (CDP-ELA). Though the LGTO and UBOM are useful for M&E, they

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only include forms and reports unlike the RPS and CDP-ELA that specifically include M&E instructions/guidelines.

Disaster Risk Resiliency Indicators (DRRI) for M&E Performance on DRRM. The DRRI

developed by EMI is a set of ten (10) indicators that establishes initial benchmarks to measure to what extent risk reduction approaches have been mainstreamed in the organizational, functional, operational and development systems and processes of local governments. It captures the potential for achieving disaster resilience in particular sectors, based on pre-defined benchmarks and performance targets. DRRI is divided among 5 key areas:

 _{Legal and Institutional Processes and} Policies;

 Public Awareness and Capacity Building;  Critical Services and Infrastructure

Resiliency;

 _{Emergency Preparedness, Response, and} Recovery Planning;

 Development Planning, Regulation, and Risk Mitigation.

The DRRI was used in Quezon City to establish an initial benchmark on risk resiliency of Quezon City. From the two self-assessments of the QC TWG, on the average, there is a slight increase from the results of the first assessment with the second assessment. Overall, both assessments show a moderate level of attainment on DRM mainstreaming which could mean that Quezon City has yet to fully establish the necessary systems and policies for on disaster risk reduction. It could also be translated to a general willingness of Quezon City to invest in DRR activities while recognizing its inherent challenges for mainstreaming.

9 DRRMP Implementation and Mainstreaming Process

Recognizing Initial Gains and the Challenges of Implementation. The challenge ahead of Quezon

City Government, particularly of the QC DRRMO, is the implementation of the QC DRRMP 2014-2020. In the course of developing the DRRMP, there were significant gains that were already made that provide the foundation for a more structured and efficient approach to building the resiliency of Quezon City to disasters. However, mainstreaming DRRM remains a challenge for the city to sustain the good work that was started and to instutionalize the QC DRRMP 2014-2020 recommendations within the city’s overall plan and priorities.

Putting in Place the Mechanisms and Structures to Support the Implementation of the QC DRRMP 2014-2020. The implementation of the QC

DRRMP 2014-2020 will be made possible through setting up several mechanisms necessary for the QCG’s way forward.

The commitment of QC to undertake projects and activities recommended by the TWG as immediate actions to be incorporated in the 2014 budget paves way for the first step in institutionalizing QC DRRMP 2014-2020 recommendations within the city’s priorities.

By also identifying entry points within the City Development Plan (CDP) and City Comprehensive Land Use Plan (CLUP) and Zoning Plan

where relevant elements of the DRRMP can be incorporated, QCG will be taking a big leap to support mainstreaming DRRM in the city’s overall development plan and priorities.

Ultimately, through continued partnerships with stakeholders and partners, including technical organizations and agencies that can help carry out its mission, the newly formed QC DRRMO can carry out its mandated tasks by using the the rational and optimal approach and framework provided in the DRRMP.

The full implementation of the DRRMP would require sustained attention, institutional commitment, detailed planning, significant investments, multi-sectoral and multi-stakeholder

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partnerships, and adequate competencies. However, with the QC DRRMP 2014-2020 on hand, and the momentum and knowledge gained during the development of this project, the Quezon City Government now has the tools to reduce its risk and build a disaster resilient city.

10 Annexes

The annexes of the QC DRRMP 2014-2020 include the following:

1. Emergency Support Function (ESF) Table including the ESF Tasks and Responsibilities

2. Emergency Support Function Matrix 3. SWOC II Results

4. Situational Analysis Report

Recommendations for SWOC Strategy Validation Forms

5. Executive Order No. 23, Series of 2010 6. Executive Order No. 5, Series of 2013

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Message from the Mayor 4

Message from the Vice Mayor 5

Message from the Project Directors 6

Acknowledgements 7 Executive Summary 8 Acronyms 20 Glossary 22 I. Introduction 27 1.1 Background 27

1.2 Legal and Institutional Arrangements on Disaster Risk Reduction and Management in

Quezon City 28

1.2.1 National Framework for Disaster Risk Reduction and Management 28 1.2.2 Fund Utilization, Sourcing, Accounting, and Reporting 30 1.2.3 Institutional and Organizational DRRM Arrangements in Quezon City 30 1.3 Rationale for the Quezon City DRRM Plan 2014-2020 31

2. Methodology for Developing Quezon City’s 32

DRRM Plan 2014-2020 32

3. Overview and Profile of Quezon City 35

3.1 Natural and Geographic Conditions 35 3.2 Social and Economic Conditions 35 3.2.1 Key Demographic Characteristics 35 3.2.2 Land Use and Urban Development 40

4. Hazards, Vulnerability and Risk Assessment 41

4.1 Earthquake Risk in Quezon City 42 4.1.1 Impact of Surface Ground Rupture 42 4.1.2 Impact of Fire Following an Earthquake 42

4.1.3 Liquefaction 42

4.1.4 Ground Motion Shaking 45

4.1.5 Building Damage 45

4.1.6 Impact of Aftershocks 45 4.1.7 Earthquake Hotspots 45 4.2 Flood Risk in Quezon City 49 4.2.1 Flood Experience in Quezon City 49

4.2.2 Flood Context 50

4.2.3 Population Affected by Floods 50 4.2.4 Casualties Caused by Flood 53 4.2.5 Buildings Affected by Floods 53 4.2.6 Population Displaced by Floods 53 4.2.7 Economic Losses due to Flood 53 4.2.8 Impact on Critical and High Loss Potential Facilities 58 4.2.9 Post-Flood Health Issues 58 4.2.10 Flood Risk Hotspots 58

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4.3 Combined Earthquake and Flood Risk 61 4.4 Human-induced Disasters 61 4.4.1 Sociological Hazards 61 4.4.2 Technological Hazards 63

5. Situational and Consequential Analyses 64

5.1 Assessment of Legal and Institutional Arrangements 64 5.2 Emergency Management 65 5.3 Geographic Information System for DRRM 66 5.4 Land Use Planning and Construction Codes and Standards 67 5.5 Knowledge Management and Training and Capacity Building 68 5.6 Consequential Analysis 70 5.6.1 Consequential Analysis Output Exercise for Earthquakes 70 5.6.2 Consequences to Sector Output Exercise 2 for Earthquakes 73 5.6.3 Consequential Analysis Output Exercise for Floods 73 5.6.4 Consequences to Sector Output Exercise 2 for Floods 73

6. Definition of Resiliency Strategies 78

6.1 Strategies for Improving Quezon City’s Legal and Institutional Arrangements on

DRRM 79

6.2 Strategies for Improving Quezon City’s Emergency Management System 79 6.3 Strategies for Developing and Sustaining Quezon City’s Geographic Information

System (GIS) for DRRM 80

6.4 Strategies for Mainstreaming DRRM in Land Use Planning and Construction Codes

and Standards 80

7. Quezon City’s Disaster Risk Reduction and Management Plan 81

7.1 General 81

7.1.1 Vision 81

7.1.2 DRRMC Functions, Members, Roles and Responsibilities 81 7.1.3 DRRMO Functions, Roles and Responsibilities 82 7.1.4 Emergency Support Functions (ESF) 83 7.2 DRRM Priority Programs, Projects, and Activities (PPA) for 2014-2020 84 7.2.1 Mitigation and Prevention 84

7.2.2 Preparedness 96

7.2.3 Response 103

7.2.4 Rehabilitation and Recovery 103

8. Monitoring and Evaluation 105

8.1 DILG Guidelines 105

8.1.1 Rationalized Planning System (RPS) M&E 105 8.1.2 Comprehensive Development Plan-Executive Legislative M&E 108 8.2 Disaster Risk Resiliency Indicators for Monitoring and Evaluating Performance on

DRRM 110

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Figures

Figure 1. Top 10 Countries by Number of Reported Events in 2011 27 Figure 2. National Disaster Risk Reduction and Management Framework 28 Figure 3. EMI’s Scientific Approach for Developing the DRRMP 31

Figure 4. EMI’s DRRM Model 32

Figure 5. Workflow for Developing the DRRMP for Quezon City 34 Figure 6. Hydrography Map of Quezon City 36 Figure 7. Hydrography Map of Quezon City 37 Figure 8. Population Age Pyramid, Quezon City, 2010 (Source: National Statistics Office, 2010) 38 Figure 9. Informal Settlements Families Map of Quezon City 39 Figure 10. West Valley Fault System 43 Figure 11. Fire Following Magnitude 7.2 Earthquake for Quezon City 44 Figure 12. Liquefaction Hazard Map of Quezon City 46 Figure 13. Modified Mercalli Intensity Scale (MMI) value distribution among barangays in

Quezon City 47

Figure 14. Barangay Hotspots for Earthquake Hazard in Quezon City 48 Figure 15. Barangay Bagumbayan Hotspot for Earthquake Map 49 Figure 16. Flood Susceptibility for Quezon City 51 Figure 17. Population Affected by a 100-year Return Period Flood Map 52 Figure 18. Potential Casualties in a 100-year Return Period Flood for Quezon City 54 Figure 19. Buildings Potentially Affected by a 100-year Return Period Flood 55 Figure 20. Displaced Population for a 100-year Return Period Flood 56 Figure 21. Capital Stock Losses Caused by Flood 57 Figure 22. Projected Infection Risk Distribution for a 100-year Return Period Flood 59 Figure 23. Barangay Hotspots for Flood in Quezon City 60 Figure 24. UDRI ranking for barangays in Quezon City for combined flood and earthquake 61

the QC DRRMP 2014-2020 116

10. Annexes 117

10.1 Emergency Support Function (ESF) Table 117 10.2 Emergency Support Function (ESF) Matrix 127

10.3 SWOC II Results 132

10.3.1 Legal and Institutional Arrangements 132 10.3.2 Emergency Management 134 10.3.3 Geographic Information System for DRRM 137 10.3.4 Land Use Planning and Construction Codes and Standards 139 10.4 Situational Analysis Report Recommendations for SWOC Strategy Validation Forms142 10.4.1 Strategy Recommendations for Legal and Institutional Arrangements 142 10.4.2 Strategy Recommendations for Land Use Planning and Construction Codes

and Standards 147

10.4.3 Strategy Recommendations for Mainstreaming GIS in DRRM 154 10.4.4 Strategy Recommendations for Emergency Management 159 10.5 Executive Order No. 23, Series of 2010 172 10.6 Executive Order No. 5, Series of 2013 180

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Tables

Table 1. List of Barangays per District, Quezon City, 2013 37 Table 2: Top five barangays for each of the critical and high loss facilities 58 Table 3: Summary of the GIS Capacity Needs Assessment results and corresponding

recommendations 67

Table 4: Gaps in Risk Sensitive Land Use Planning in Quezon City 68 Table 5: Findings for Processing Development Permits 68 Table 6: DPOS-DCD (now established as QC DRRMO) Plans and Programs for 2012 69 Table 7: Trainings and Capacity Building Exercises Conducted in the Duration of

“Building a Disaster Resilient Quezon City Project” by EMI 69 Table 8: Summary of the Earthquakes Impacts to Sectors from a M7.2 Earthquake from the

West Valley Fault 71

Table 9: Summary of Consequences to Sector of a M7.2 Earthquake Including Initial Recom-mendations to Reduce the Consequences 74 Table 10: Summary of Flood Related Consequences to Sectors 75 Table 11: Summary of Consequences of Floods to Sector Including Initial Recommendations to

Reduce Consequences 77

Table 12: Criteria for Prioritizing Projects 84 Table 13: Summary of Results of the DRRI for Quezon City 114 Figure 25. Barangay Hotspots for Combined Earthquake and Flood Risk for Quezon City 62 Figure 26. Comprehensive emergency management and a few examples during each phase

where GIS plays a roles 66

Figure 27. Quezon City Disaster Risk Reduction and Management Council Organizational

Structure 81

Figure 28. Department of Public Order and Safety (DPOS) 82 Figure 29. QC DRRMO Organizational Chart 83 Figure 30. Full Blown LPDO Organizational Structure 106 Figure 31. Structure and Primary Functions of Local Development Council 107 Figure 32. Sectoral Development Planning Process 109 Figure 33. Municipal Planning and Development System 109 Figure 34. Annual/End-of-Term Accomplishment Report 110 Figure 35. M&E Strategy Template 111 Figure 36. Aims, Strategic Goals, and Key Areas for Mainstreaming DRR 112 Figure 37. Schematic Diagram of the DRRMP Formulation Process iin Comparison with Development Planning and Land Use Planning Processes 116

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Acronyms

BERT Barangay Emergency Response Team BOC Barangay Operations Center

BPLO Business Permits and Licensing Office CCA Climate Change Adaptation

CDC City Development Council CGSO City General Services Office

CPDO City Planning and Development Office DBM Department of Budget and Management DBO Department of Building Official

DEM Digital Elevation Model

DILG Department of Interior and Local Government DOST Department of Science and Technology DPOS Department of Public Order and Safety DRGS Disaster Risk Geo-Spatial

DRR Disaster Risk Reduction

DRRM Disaster Risk Reduction and Management

DRRMC Disaster Risk Reduction and Management Council DRRMP Disaster Risk Reduction and Management Plan DSM Digital Surface Model

DTM Digital Terrain Model EM Emergency Management

EMI Earthquakes and Megacities Initiative

EPWMD Environmental Protection and Waste Management Department EO Executive Order

EOP Emergency Operations Plan EQ Earthquake

ESF Emergency Support Functions

GADRCO Gender and Development Resource and Coordination Office GIS Geographic Information Systems

HCDRD Housing and Community Development and Resettlement Depart-ment

HFA Hyogo Framework of Action

HVRA Hazards,Vulnerability and Risk Assessment ICT Information Communication Technology IMPLAN Implementation Plan

ITDO Information Technology and Development Office IRA Internal Revenue Allotment

ISF Informal Settler Families

JICA Japan International Cooperation Agency KDD Knowledge Development and Dissemination

LDRRMC Local Disaster Risk Reduction and Management Council LDRRMF Local Disaster Risk Reduction and Management Fund

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LGU Local Government Unit

LIA Legal and Institutional Arrangements LUP Land Use Planning

LUP-CCS Land Use Planning and Construction Codes and Standards M & E Monitoring and Evaluation

MC Memorandum Circular

MGB Mines and Geosciences Bureau MMDA Metro Manila Development Authority MMEIRS Metro Manila Earthquake Impact Study

NAMRIA National Mapping and Resource Information Authority NDRRMC National Disaster Risk Reduction and Management Council NDRRMP National Disaster Risk Reduction and Management Plan NOAH Nationwide Operational Assessment of Hazards NSCB Philippine National Statistical Coordination Board NSO National Statistics Office

OCD Office of Civil Defense OSM Open Street Map

PAGASA Philippine Atmospheric, Geophysical and Astronomical Services Administration

PDAD Parks Development and Admin Department PHIVOLCS Philippine Institute of Volcanology and Seismology PRC Philippine Red Cross

QC Quezon City

QCG Quezon City Government QC BFP QC Bureau of Fire Protection QC GH Quezon City General Hospital QC PD Quezon City Police District QRF Quick Response Fund RA Republic Act

RDRRMC Regional Disaster Risk Reduction Management Council RSLUP Risk-Sensitive Land Use Plan

SDI Spatial Data Infrastructure

SSDD Social Services Development Department SWOC Strengths, Weaknesses, Opportunities, Challenges TCC Technical Coordinating Committee

TWG Technical Working Group UDRI Urban Disaster Risk Index UPAO Urban Poor Affairs Office WVF West Valley Fault

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Glossary

a. “Adaptation” - the adjustment in natural or human systems in response to actual or expected climatic stimuli or their effects, which moderates harm or exploits beneficial opportunities.

b. “Capacity” - a combination of all strengths and resources available within a community, society or organization that can reduce the level of risk, or effects of a disaster. Capacity may include infrastructure and physical means, institutions, societal coping abilities, as well as human knowledge, skills and collective attributes such as social relationships, leadership and management. Capacity may also be described as capability. c. “Civil Society Organizations” Or “CSOs” -

non-state actors whose aims are neither to generate profits nor to seek governing power. CSOs unite people to advance shared goals and interests. They have a presence in public life, expressing the interests and values of their members or others, and are based on ethical, cultural, scientific, religious or philanthropic considerations. CSOs include nongovernment organizations (NGOs), professional associations, foundations, independent research institutes, community-based organizations (CBOs), faith-community-based organizations, people’s organizations, social movements, and labor unions.

d. “Climate Change” - a change in climate that can’ be identified by changes in the mean and/or variability of its properties and that persists for an extended period typically decades or longer, whether due to natural variability or as a result of human activity. e. “Community-Based Disaster Risk Reduction

and Management” or “CBDRRM” - a process of disaster risk reduction and management

in which at risk communities are actively engaged in the identification, analysis, treatment, monitoring and evaluation of disaster risks in order to reduce their vulnerabilities and enhance their capacities, and where the people are at the heart of decision-making and implementation of disaster risk reduction and management activities.

f. “Complex Emergency” - a form of human-induced emergency in which the cause of the emergency as well as the assistance to the afflicted IS complicated by intense level of political considerations.

g. “Contingency Planning” - a management process that analyzes specific potential events or emerging situations that might threaten society or the environment and establishes arrangements in advance to enable timely, effective and appropriate responses to such events and situations

h. “Disaster” - a serious disruption of the functioning of a community or a society involving widespread human, material, economic or environmental losses and impacts, which exceeds the ability of the affected community or society to cope using its own resources. Disasters are often described as a result of the combination of: the exposure to a hazard; the conditions of vulnerability that are present; and insufficient capacity or measures to reduce or cope with the potential negative consequences, Disaster impacts may include loss of life, injury, disease and other negative effects on human, physical, mental and social well-being, together with damage to property, destruction of assets, loss of services, Social and economic disruption and environmental degradation.

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i. “Disaster Mitigation” - the lessening or limitation of the adverse impacts of hazards and related disasters. Mitigation measures encompass engineering techniques and hazard-resistant construction as well as improved environmental policies and public awareness.

j. “Disaster Preparedness” - the knowledge and capacities developed by governments, professional response and recovery

organizations, communities and individuals to effectively anticipate, respond to, and recover from, the Impacts of likely, imminent or current hazard events or conditions. Preparedness action is carried out within the context of disaster risk reduction and management and aims to build the capacities needed to efficiently manage all types of emergencies and achieve orderly transitions from response to sustained recovery. Preparedness is based on a sound analysis of disaster risk and good linkages with early warning systems, and includes such activities as contingency planning, stockpiling of equipment and supplies, the development of arrangements for coordination, evacuation and public information, and associated training and field exercises. These must be supported by formal institutional, legal and budgetary capacities.

k. “Disaster Prevention” - the outright avoidance of adverse impacts of hazards and related disasters. It expresses the concept and

intention to completely avoid potential adverse impacts through action taken in advance such as construction of dams or embankments that eliminate flood risks, land-use regulations that do not permit any settlement in high-risk zones, and seismic engineering designs that ensure the survival and function of a critical building in any likely earthquake.

l. “Disaster Response” - the provision of emergency services and public assistance during or immediately after a disaster in order to save lives, reduce health impacts, ensure public safety and meet the basic subsistence needs of the people affected. Disaster response is predominantly focused on immediate and short-term needs and is sometimes called “disaster relief”.

m. “Disaster Risk” - the potential disaster losses in lives, health status, livelihood, assets and services, which could occur to a particular community or a Society over some specified future time period.

n. “Disaster Risk Reduction” - the concept and practice of reducing disaster risks through systematic efforts to analyze and manage the causal factors of disasters, including through reduced exposures to hazards, lessened vulnerability of people and property, wise management of land and the environment, and improved preparedness for adverse events.

o. “Disaster Risk Reduction and Management” - the systematic process of using

administrative directives, organizations, and operational skills and capacities to implement strategies, policies and improved coping capacities in order to lessen the adverse impacts of hazards and the possibility of disaster. Prospective disaster risk reduction and management refers to risk reduction and management activities that address and seek to avoid the development of new or increased disaster risks, especially if risk reduction policies are not put m place. p. “Disaster Risk Reduction and Management

Information System” - a specialized database which contains, among others, information

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on disasters and their human material, economic and environmental impact, risk assessment and mapping and vulnerable groups.

q. “Early Warning System” - the set of capacities needed to generate and disseminate timely and meaningful

warning information to enable individuals, communities and organizations threatened by a hazard to prepare and to act

appropriately and in sufficient time to reduce the possibility of harm or loss. A people-centered early warning system necessarily comprises four (4) key elements: knowledge of the risks; monitoring, analysis and forecasting of the hazards; communication or dissemination of alerts and warnings; and local capabilities to respond to the warnings received. The expression “end-to-end warning system” is also used to emphasize that warning systems need to span all steps from hazard detection to community response.

r. “Emergency” - unforeseen or sudden occurrence, especially danger, demanding immediate action.

s. “Emergency Management” - the

organization and management of resources and responsibilities for addressing all aspects of emergencies, in particular preparedness, response and initial recovery steps.

t. “Exposure” - the degree to which the elements at risk are likely to experience hazard events of different magnitudes. u. “Geographic Information System” - a

database which contains, among others, geo-hazard assessments, information on climate change, and climate risk reduction and management.

v. “Hazard” - a dangerous phenomenon, substance, human activity or condition that may cause loss of life, injury or other health impacts, property damage, loss of

livelihood and services, social and economic disruption, or environmental damage. w. “Land-Use Planning” - the process

undertaken by public authorities to identify, evaluate and decide on different options for the use of land, including consideration of long-term economic, social and environmental objectives and the implications for different communities and interest groups, and the subsequent formulation and promulgation of plans that describe the permitted or acceptable uses. x. “Mitigation” - structural and non-structural

measures undertaken to limit the adverse impact of natural hazards, environmental degradation, and technological hazards and to ensure the ability of at-risk communities to address vulnerabilities aimed at minimizing the impact of disasters. Such measures include, but are not limited to, hazard-resistant construction and engineering works, the formulation and implementation of plans, programs, projects and activities, awareness raising, knowledge management, policies on land-use and resource management, as well as the enforcement of comprehensive land-use planning, building and safety standards, and legislation.

y. “National Disaster Risk Reduction and Management Framework” or “NDRRMF” - provides for comprehensive, all hazards, multi-sectoral, inter-agency and community-based approach to disaster risk reduction and management.

z. “National Disaster Risk Reduction and Management Plan” or “NDRRMP” - the document to be formulated and

implemented by the Office of Civil Defense (OCD) that sets out goals and specific

objectives for reducing disaster risks together with related actions to accomplish these objectives.

The NDRRMP shall provide for the identification of hazards, vulnerabilities

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and risks to ‘be managed at the national level; disaster risk reduction and management approaches and strategies to be applied m managing said hazards and risks; agency roles, responsibilities and lines of authority at all government levels; and vertical and horizontal coordination of disaster risk reduction and management in the pre-disaster and post-disaster phases. It shall be in conformity with the NDRRMF.

aa. “Post-Disaster Recovery” - the restoration and improvement where appropriate, of facilities, livelihood and living conditions. of disaster-affected communities, including efforts to reduce disaster risk factors, in accordance with the principles of “build back better”.

ab. “Preparedness” - pre-disaster actions and measures being undertaken within the context of disaster risk reduction and management and are based on sound risk analysis as well as pre-disaster activities to avert or minimize loss of life and property such as, but not limited to, community organizing, training, planning, equipping, stockpiling, hazard mapping, insuring of assets, and public information and education initiatives. This also includes the development/enhancement of an overall preparedness strategy, policy, institutional structure, warning and forecasting capabilities, and plans that define measures geared to help at-risk communities safeguard their lives and assets by being alert to hazards and taking appropriate action in the face of an Imminent threat or an actual disaster.

ac. “Private Sector” - the key actor in the realm of the economy where the central social concern and process are the mutually beneficial production and distribution of goods and services to meet the physical needs of human beings. The private sector comprises private corporations, households and nonprofit institutions serving households.

ad. “Public Sector Employees” - all persons in the civil service.

ae. “Rehabilitation” - measures that ensure the ability of affected communities/ areas to restore their normal level of functioning by rebuilding livelihood and damaged infrastructures and increasing the communities’ organizational capacity. af. “Resilience” - the ability of a system,

community or society exposed to hazards to resist, absorb, accommodate and recover from the effects of a hazard in a timely and efficient manner, including through the preservation and restoration of its essential basic structures and functions.

ag. “Response” - any concerted effort by two (2) or more agencies, public or private, to provide assistance or intervention during or immediately after a disaster to meet the life preservation and basic subsistence needs of those people affected and in the restoration of essential public activities and facilities. ah. “Risk” - the combination of the probability of

an event and its negative consequences. ai. “Risk Assessment” - a methodology to

determine the nature and extent of risk by analyzing potential hazards and evaluating existing conditions of vulnerability that together could potentially harm exposed people, property, services, livelihood and the environment on which they depend. Risk assessments with associated risk mapping include: a review of the technical characteristics of hazards such as their location, intensity, frequency and probability; the analysis of exposure and vulnerability including the physical, social, health, economic and environmental dimensions; and the evaluation of the effectiveness of prevailing and alternative coping capacities in respect to likely risk scenarios.

aj. “Risk Management” - the systematic approach and practice of managing uncertainty to minimize potential harm and loss. It comprises risk assessment and analysis, and the implementation of

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practiced by organizations to minimize risk in investment decisions and to address operational risks such as those of business disruption, production failure, environmental damage, social impacts and damage from fire and natural hazards. ak. “Risk Transfer” - the process of formally

or informally shifting the financial

consequences of particular risks from one party to another whereby a household, community, enterprise or state authority will obtain resources from the other party after a disaster occurs, in exchange for ongoing or compensatory social or financial benefits provided to that other party.

al. “State of Calamity” - a condition involving mass casualty and/or major damages to property, disruption of means of livelihoods, roads and normal way of life of people in the affected areas as a result of the occurrence of natural or human-induced hazard.

am. “Sustainable Development” - development that meets the needs of the present

without compromising the ability of future generations to meet their own needs. It contains within it two (2) key concepts: (1) the concept of “needs”, in particular, the essential needs of the world’s poor, to which overriding priority should be given; and (2) the idea of limitations imposed by the state of technology and social organizations on the environment’s ability to meet present and future needs. It is the harmonious integration of a sound and viable economy, responsible governance, social cohesion and harmony, and ecological integrity to ensure that human development now and through future generations is a life-enhancing process.

an. “Vulnerability” - the characteristics and circumstances of a community, system or asset that make it susceptible to the damaging effects of a hazard. Vulnerability may arise from various physical, social, economic, and environmental factors such as poor design and construction of

limited official recognition of risks and preparedness measures, and disregard for wise environmental management.

ao. “Vulnerable and Marginalized Groups” - those that face higher exposure to disaster risk and poverty including, but not limited to, women, children, elderly, persons with disability, and ethnic minorities.

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I. Introduction

1.1 Background

Due to its geography and geology as well as the presence of internal disputes in some areas, the Philippines is exposed to natural and human-induced hazards (DILG, 2011). Hazards (both natural- and human-induced) happen due to geological, meteorological, oceanic, biological, and technological sources, sometimes acting in combination (DILG, 2011). Recorded history tells that the Filipino people have borne loss of lives, injury and other health impacts, property damage, loss of livelihoods and services, social and economic disruption or environmental damage, and the negative effects have even risen (DILG, 2011). Communities, towns and cities have become more susceptible to the damaging effects of hazards (DILG, 2011).

Over the last decade, the Philippines constitute together the top five (5) countries that are most frequently hit by disasters (Guha-Sapir et al, 2011). Most of these disasters in the Philippines, however, are primarily triggered by natural phenomena (most frequent are hydro-meteorological and geophysical hazards such as floods and landslides, storms, volcanic eruption, and earthquake, respectively). In 2011, the Philippines even registered the highest number of natural disasters in its history (33) (see Figure 1 below) (Guha-Sapir et al, 2011).

Coinciding with the increasing trend in disaster occurrence and loss within the last decade, parallel efforts in various regions of the world called for a paradigm shift on how international organizations, nations, states, and

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and human lives. The framework shifted from a ‘response’ oriented systems towards a ‘whole of government’ approach with a focus on disaster risk reduction (DRR). The change of focus came from the United Nations Hyogo Framework of Action (HFA) to which the Philippines is signatory. In compliance with the HFA, the Philippine government enacted the Republic Act 10121 (RA 10121), the Philippine Disaster Risk Reduction and Management Act of 2010, antecedent to Presidential Decree Number 1566 of 1978 (PD 1566), An Act Strengthening the Philippines Disaster Control Capability and Establishing the National Program on Community Disaster Preparedness, to provide the legal basis for government policies, plans and programs to deal with disasters (DILG, 2011).

1.2 Legal and Institutional Arrangements on Disaster Risk Reduction and Management in Quezon City

The Quezon City Disaster Risk Reduction and Management Plan (QCDRRMP) is anchored both on the vision and legal provisions of RA 10121 and the National Disaster Risk Reduction

institutional and coordination mechanisms, including other pertinent laws and issuances on Disaster Risk Reduction and Management (DRRM) as they apply to Quezon City1_.

1.2.1 National Framework for Disaster Risk Reduction and Management

Figure 2 illustrates the paradigm shift towards a proactive and preventive approach to disaster management as legally embodied in RA 10121. This conceptual representation highlights the goal of “safer, adaptive and disaster resilient Filipino communities toward sustainable development” through preparedness, response, prevention and mitigation, and rehabilitation and recovery.

1 The Legal and Institutional Arrangements (LIA) Situational Analysis report completed as part of the “Building a Disaster Resilient Quezon City Project” provides a complete analysis of this topic with regards to the legal and institutional DRRM arrangements of Quezon City in the context of na-tional laws and regulations as well as internana-tional standards.

Figure 2. National Disaster Risk Reduction and Management Framework National Disaster Risk Reduction and Management Framework