disaster risk management initiatives for selected

DISASTER RISK MANAGEMENT INITIATIVES FOR SELECTED AREAS IN CAGAYAN DE ORO CITY: MICRO-SCALE APPROACHES

Dexter S. Lo XU Engineering Resource Center, Xavier University - Ateneo de Cagayan, Cagayan de Oro City, Philippines E-mail: [email protected] | [email protected]

Abstract : Disasters are serious events that disrupt the normal and functional operations of a community. They arise from either natural or man-made hazards; but these hazards only result to disasters when they affect people who cannot cope with the damaging impacts. The term Disaster Risk refers to the likelihood of this loss or harm. However, disaster risk is not only dictated by the strength and frequency of a hazard, but also on how vulnerable the community is. Vulnerability may be quantified as to how resistant the existing environment is when the specific hazard strikes. This multi-parameter approach can help better extract, assess and even improve the community’s mitigation measures, and thus enhance resiliency against potential risks. Micro-scale is the term used to mean that the basic unit of analysis is either the village if city-wide, the zone if village-wide, or household if zone-wide, depending what best fit for the analysis of a specific hazard. Three major studies were conducted by XUERC in the last three years, using different scales against various potential hazards. Results suggest that to reduce the community’s vulnerability, it is highly recommended that a committed and conscientious effort in implementing strict code compliance and laws implementation must be done. In addition, the population development, especially the poor communities in these areas must be given careful attention and decisive action. To empower these economically marginalized members of society may also give them a chance to build structurally sound infrastructures, and having the option to avoid slopes and flood-prone areas.

Key words : Disasters, Earthquake, Fire, Flood, Risk

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INTRODUCTION

According to a 2009 joint report of the United Nations International Strategy for Disaster Reduction (UN ISDR) and the Centre for Research and the Epidemiology of Disasters (CRED), more than 98% of the people killed in 2008 due to natural disasters were in Asia; and nine of the ten countries with the highest disaster deaths were also in Asia. The Philippines happens to be geographically located in one of the most geologically and meteorologically dynamic territories in Asia. It lies within the Pacific Ring of Fire where 80% of the world's earthquakes occur. At least 22 of the country's 200 volcanoes are considered active and are scattered all over the archipelago. Average of 20 typhoons ravage the country every year affecting millions of lives. Disaster damages are also worsening because of the alarming degradation of the country’s environment. In 2007, a total of 236 disaster events happened in the country, affecting more than 4 million people and damaging closely to 30,000 houses (CDRC, 2008). As a response to the global socio-economic challenges of the times, many urban cities and barangays (villages) in the Philippines experience rapid development growth. However, a common consequence of this rush growth is the triggering of haphazard urban development which may increase risks

37th PICE National Convention

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of fatalities during disasters. The growth of informal settlements and inner city slums has led to growth of unstable living environments because these settlements are often located at ravines, on steep slopes, or along flood plains. It is widely recognized that one of the factors that enhances the rise of disaster losses throughout the world in recent times is the population explosion combined with demographic change and movements leading to unplanned urbanization (Baas, et. al., 2008). Disasters are events that disrupt the normal and functional operations of a community; and the term Disaster Risk refers to the likelihood of this loss or harm. Few projects on disaster risk estimation have been done in the Philippines, but these are either on provincial or metropolitan level (Manila Observatory, 2005; Fernandez et. al., 2006). These studies can be useful in disaster management plans in the national or regional levels; however as often the case, these are not clearly translated at the more basic component of society (e.g., barangays, zones) since the results are rather generalized. Thus, a localized or micro-scaled approach is needed so that local actors who are directly affected of their jurisdiction’s development programs are able to respond more appropriately. Three major studies were conducted by the Xavier University Engineering Resource Center (XUERC) in the last three years, using different scales against various

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potential hazards in selected areas of Cagayan de Oro City (CDOC). The city is considered the gateway to Mindanao, one of the three largest islands in the Philippine archipelago. CDOC is currently experiencing rapid commercial, residential, and industrial expansions. It is an economic hotspot which links agro-based products of neighboring provinces to the country's central economic institutions in metropolitan cities like Manila, Cebu, and even abroad. This paper showcases the different methodologies and locally and thematically appropriate approaches used in these three case studies presented below.

greater levels of loss. However, this also means that to be able to reduce disaster risk, it is important to reduce the level of vulnerability and to keep exposure as far away from hazards as possible by relocating populations and property. The reduction of vulnerability can be achieved through such measures as mitigation, adaptation and preparedness strategies. The United Nations Development Program (UNDP, 2004) quantifies disaster risk in terms of the equation: Risk = Hazard x Population x Vulnerability

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CONCEPTUAL FRAMEWORK

Disasters are serious events that disrupt the normal and functional operations of a community. They arise from either natural or man-made hazards; but these hazards only result to disasters when they affect people who cannot cope with the damaging impacts. Natural disasters are caused by hazards due to the natural dynamic systems of the earth like floods. While man-made or technological disasters are caused by consequences of human actions like fire, industry and transport accidents, etcetera. The term Disaster Risk, or oftentimes referred as the Disaster Risk Index (DRi) estimates the likelihood of this loss or harm. Pacheco (2004) summarized the Asian Disaster Reduction Center’s database of natural disasters in the Philippines and its damages from 1901-2000. It is shown that flood ranks 3rd with respect to the amount of economic damage, next to wind storm and earthquake. However in terms of frequency, flood ranks 2nd. In the local scene, records from the Bureau of Fire Protection (BFP) show that in 2007 there are 58 fire incidents in CDOC costing millions of pesos in damages. A hazard, like flood or fire or earthquake, is defined as a process or event that is potentially damaging to the community, in that it may result to loss of life or damage to property. On the other hand, vulnerability may be quantified as to how resistant and efficient the existing environment is in that area when a specific hazard strikes. More so, the density of the exposed population, their age structure and prevalent socio-economic condition also influence the assessment of disaster risk (ADRC, 2007; UNDP, 2004; Dilley, et. al., 2005; Kriemer, et. al. 2003). Integrating this complex interplay of hazard, exposed population and vulnerability is the underlying principle used in the analyses of the three studies conducted by XUERC. Therefore in general, disaster risk is defined as the expectation value of losses (deaths, injuries, property) that would be caused by a hazard. Disaster Risk Index (DRi) can therefore be seen as a function of Hazard (H), Exposure (E) and Vulnerability (V) as follows: DRi = function (H, E, V)

(1)

This suggests that growing exposure and delays in reducing vulnerabilities result in an increased number of disasters and


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(2)

expressing that disaster risk assessment includes relationships between the strength and frequency of a given hazard, the exposed population density, the socio-economic status of the community, and the hazard-specific vulnerability of the built environment. Mathematically, it simply translates that the level of disaster risk is very low or zero even if there is an occurrence of strong hazard intensity but there is no population exposed or the infrastructures can withstand the damage. It is therefore clearly shown that disaster risk arises only when there is a vulnerable population. This multi-parameter approach can also help better extract, assess and even improve the community’s disaster risk management and reduction strategies, and thus enhance resiliency against potential risks. All of the above parameters are explored at the micro-scale and in partnership with stakeholders (local government unit, line agencies of the government). Micro-scale is the term used to mean that the basic unit of analysis is either the barangay (village) if city-wide, or the sitio (zone) if barangay-wide, or household if sitio-wide, depending what best fit for the analysis of a specific hazard. With this approach, the case studies also showcase the better promise of community-based disaster risk management hopefully leading to a more well-accepted risk-sensitive land use plan and development for the community.

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CASE STUDIES

3.1 Case Study 1: “Disaster Risk Mapping of Barangay Carmen: Flood, Fire and Earthquake” (2009) Highlights: The objective of this study is to generate Disaster Risk Maps due to Flood, Fire and Earthquake for Barangay Carmen. The basic unit of analysis is the barangay’s political zone since it is the most fundamental unit in government where policy change may be enacted. Carmen is the most populated barangay in CDOC. With a total land area of more than 560 hectares in 13 political zones, it is home to more than 10 educational institutions, more than 10 regional government agencies, various landmark institutions and major commercial establishments.


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It is where two of the five major bridge abutments lie making the barangay of critical importance for the city’s operations. It also hosts the controversial dumpsite which caters the solid waste generated by the city. Carmen is also an interesting pilot area because of its varied geographic landscape. To the east, a long stretch of communities is bounded by the Cagayan de Oro River; while on the south are ranges of plateau where major residential and commercial developments cloud. However, amidst these seemingly escalating developments, in the 2004 Barangay Carmen Development Plan, it is noted that households whose monthly income above poverty line is only 1,115 and 8,935 still lives below poverty threshold. It is not surprising that informal settlements presently swarm on sloped landscapes and public open-creeks; while multimillion residences are also in full-blown construction in some parts. This alarming disparity not only places a gap in social and economic standards and lifestyle of the residents, but may also have critical impacts to disaster resiliency of the barangay; and may therefore adversely affect the operation of the city and the region as well. Results of this study include GIS-based maps indicating the critical areas (sitio or zones) which express the gravity of the situation as well as the level of risk against flood, fire and earthquake (Figures 1 for flood; 2 for fire; and 3 for earthquake).

Fig. 2 Fire Risk Map of Barangay Carmen

Fig. 1 Flood Risk Map of Barangay Carmen

Fig. 3 Seismic Risk Map of Barangay Carmen


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The identified high risk sites for flood have been validated by the historical January 2009 Cagayan de Oro floods. The high risk sites for fire were identified to have structures with no defined road access, dominantly made from combustible materials and were very closely built to each other. While for earthquake, high risk zones are areas which are swarmed with structures of which many are non-engineered and are built on slopes. 3.2 Case Study 2: “Flood Risk Profile of Sitio Cala-cala, Barangay Macasandig” (2010) Highlights: The objective of this study is to determine the relative level of risk against flood for Sitio Cala-cala. The basic unit of analysis is the household level since all of Cala-cala is generally flooded when the Cagayan de Oro River inundates. In January 2009, CDOC was terribly devastated by series of floods. More than 21,000 families were affected within the city alone; and roughly 20,000 families more in neighboring municipalities within the province. Barangay Macasandig, where Sitio Cala-cala is located, is one of the heavily hit riverine communities in CDOC; with approximately 2,500 residents affected by the said floods. The damage in Barangay Macasandig has been heavy due to the many settlements located at the natural floodplain areas; particularly at Sitio Cala-cala. In Cala-cala, many of the houses were left only with portions of the structures standing while others were reduced to rubble or totally washed away during the height of the floods. The aftermath was that there were hundreds left homeless; and desperately waiting for humanitarian aid. However, despite the devastating floods, the residents persisted in rebuilding their houses on the same sites. This has halted humanitarian agencies to proceed the granting of funds due to lack of well-planned and more sustainable long-term development programs. Thus, it was deemed necessary to conduct series of engineering, medical, and sociological studies related to flood risk of this area. For the engineering component, a detailed analysis involving various factors such as elevations and contours, proximity to the river and river metamorphosis, as well as some inherent socio-economic factors was done. Similarly, results are displayed through GIS-based maps indicating which households are at critical levels of risk against devastation when the area is flooded. The map also shows the often misconstrued notion that the households closest to the river, although probably most vulnerable in terms of floodwater depth, may not necessarily be the most at risk in terms of population count and capacity to withstand the stresses vis-à-vis economic resiliency (as indicated in Figure 4). Thus, relief operations may be also be reviewed for a more efficient impact.


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Fig. 4 Flood Risk Map of Sitio Cala-cala 3.3 Case Study 3: “Disaster Risk Reduction Program for Poblacion, CDOC: Fire and Earthquake” (2011) Highlights: The objective of this study is to recommend mitigation measures and preparedness strategies for a comprehensive Disaster Risk Reduction Program for the Poblacion area of CDOC. The hazards considered are Fire and Earthquake since these are the potential threats of the area. The basic unit of analysis is the street block since it generally serves as a barrier against fire or aggravated damage due to collapse of adjacent buildings due to strong earthquakes. The Poblacion area of CDOC is composed of 40 barangays (out of the 80 barangays that composed the city). It is the heart of historical and cultural developments, as well as the hub for business, education, and government operations. The Poblacion area covers more than 340 hectares of mostly developed land (commercial districts, institutional buildings, industrial facilities, public parks, formal and informal residences). Old houses built before modern structural and fire codes were implemented are still found within the area; existence of non-engineered structures are also evident.


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Results are likewise displayed through GIS-based maps indicating which blocks are at risk against fire and against earthquake (Figures 5 and 6, respectively).

And since road networks are easily overlaid on these maps, possible emergency routes can be plotted for more effective and coordinated response operations; possible evacuation sites may also be clearly identified (Figure 7).

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CONCLUDING REMARKS

The paper showcased three case studies that offer better promise of community-based disaster risk management; by exploring the risk parameters at micro-scale. The experience teaches us that involving the locals in the exercise enhances a warmer acceptance of the results and recommendations. Also very instrumental in these endeavors was to capacitate the locals with the science of disasters in a language most fitting, familiar and particularly tailored for their work or role as public servants or simply as residents. Technically, the results generally suggest that to reduce the community’s vulnerability, it is highly recommended that a committed and conscientious effort in implementing strict code compliance and laws implementation must be done. In addition, the population development, especially the poor communities in these areas must be given careful attention and decisive action. To empower these economically marginalized members of society may also give them a chance to build structurally sound infrastructures, and having the option to avoid slopes and flood-prone areas. In turn, the majority of the community will have a better share of the promise of truly beneficial sustainable development.

Fig. 5 Fire Risk Map of Poblacion

ACKNOWLEDGMENT The author would like to thank the people of Barangay Carmen and Sitio Cala-cala for being very supportive of the projects. Deep gratitude is also warmly extended to the Office of Civil Defense - 10, the Mines and Geosciences Bureau - 10, the Bureau of Fire Protection - 10, and the Cagayan de Oro City Planning and Development Office. Special citations are due to the author’s research associates and staff in the XUERC: (1) DM Achas and MA Sabines for GIS; (2) MMagallona, DRCahanap, SGulde and JMacarat for the Carmen study; (3) PDAkut, MCorre, SDayyo, DFPagapulaan, JSabuero, DTaboada, KFlores and JKGialogo for the Cala-cala study; (4) LBAngeles, JOAquino, LCurig, RJEbuña and FLaVictoria for the Poblacion study; and (5) AWOreta for Seismic Risk.

Fig. 6 Seismic Risk Map of Poblacion

Fig. 7 Possible Evacuation Map of Poblacion


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