Building Community Resilience to Hazards from Kanlaon … · tools (such as 3-D models for the map understanding session) developed specific for the barangay. ... records of barangay

GeoCon 2010, Martinez-Villegas and others 1

Building Community Resilience to Hazards from Kanlaon Volcano:

The Case of Barangay Biaknabato, La Castellana, Negros Occidental

Ma. Mylene Martinez-Villegas1, Lucille Rose C. del Monte

1, Ruben C. Lamela

1,

Benjamin P. Tanatan2, Nelson A. Mondia

3 and Joel R. Arellano

2

1Geologic Disaster Awareness and Preparedness Division-Philippine Institute of Volcanology and Seismology (PHIVOLCS) 2Kanlaon Volcano Observatory, Kanlaon City- PHIVOLCS

3Kanlaon Volcano Observatory, La Carlota- PHIVOLCS

Reducing people’s vulnerability and enhancing community resilience are the main

goals of the Work Package 5 (Developing community-based disaster risk management) of the

MIAVITA project implemented by PHIVOLCS in collaboration with select pilot community,

Biaknabato at Kanlaon Volcano.

Initial activities undertaken in Barangay Biaknabato include introduction of the project

to key officials, collection of available demographic data, structured key informant interviews

to determine available information and needs, and preliminary assessment of vulnerabilities

and capacities. Analysis of initial available data gathered at the first stage of the project

implementation was followed by detailed documented interviews of residents for hazards and

risks perceptions. This is important for the community profiling to be able to understand the

socio-economic and cultural environments before embarking on the details of the project

planning and implementation.

Participatory approach was applied in the conduct of consultation meetings to discuss

the working schedule for the project implementation. Several focus group discussions were

undertaken to validate information gathered during interviews. Participatory approach was also

applied for the community risk and resource mapping, wherein information provided by the

participants were used for putting on the map all identified locations of resources and elements

at risk. Information, education and communication activities were done in various forms- from

production of localized information materials to conduct of capacity building activities such as

trainings and seminars to specific target audiences from barangay officials, teachers and

residents. Training content or design was based on assessed needs with materials and teaching

tools (such as 3-D models for the map understanding session) developed specific for the

barangay. Capacity enhancement was done through step-by-step process, ensuring that each

activity undertaken is in accordance to the assessed gaps and builds up from results of previous

meetings and activities. One of the end outputs expected include updated barangay risk and

resource map and documented Barangay Disaster Risk Reduction and Management Plan. A

major outcome expected is a community mobilized towards ensuring that it is ready and able to

cope with natural hazards specifically volcanic eruptions.


1. Introduction

Increased resiliency or 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” is the desired outcome of Disaster Risk Reduction (ISDR, 2009). In this

approach, effort is focused on what the community can do for themselves and how to enhance

their capacities, instead of focusing on their vulnerability to disaster (Twigg, 2007).

The state of a community’s capacity to face and overcome disasters is deeply affected

by its physical/environmental, economic, socio-cultural and political factors (Polotan-dela Cruz

and Ferrer, 2010). There are just too many variable factors that contribute to shaping a

community’s level of resiliency or vulnerability to disaster risks. Some of these include

physical environment, people’s access to different forms of information, resources and assets,

beliefs, norms and practices, lack of awareness and participation in promoting safer

communities (Polotan-dela Curz and Ferrer, 2010).

Scientific data on Kanlaon Volcano such geology, hazard map with identified 4-km

danger zone, Alert Level Scheme and historical eruptions have long been available. Many are

living around the volcano slopes because of its rich soil that is excellent for agriculture. Based

on geological studies and hazards assessment conducted on Kanlaon Volcano, Biaknabato is

one of the barangays on the slope with sitios/puroks within 4-6 km from the volcano’s current

active vent. This paved the way for the selection of the barangay as pilot site.

The principles of community-based disaster risk reduction (CBDRR) is being applied

for this pilot community in Kanlaon Volcano area. This is an ongoing project for a volcano

area and takes a look at the socio-cultural, economic dimensions of preparing for a volcano

disaster by increasing resiliency and effectively reducing vulnerability. The aim is for

community participation and engagement in planning for disaster on the basis of combined

available scientific information and well as indigenous local approaches..

1.2. Background of the project

In mid 2009, PHIVOLCS embarked on a 3-year collaborative program funded by the

European Union called Mitigate and Assess Risks from Volcanic Impact on Terrain and

Human Activities (MIAVITA). One of the studies under this program is on socio-economic

vulnerability and resilience on select pilot communities which aims to (1) draw a profile of

communities living in volcanic hazard prone areas; (2) assess people’s vulnerability and

capabilities in facing volcanic hazards (3) anticipate people’s behaviour in the event of a

volcanic eruption; (4) appraise communities’ resilience in the event of volcanic eruption and

(5) develop community-based disaster risk management to reduce people’s vulnerability and

enhance community resilience.

When the project was launched in the Bacolod City, Philippines sometime August 2009,

a shortlist was made to select possible pilot implementation site in Canlaon City, La Castellana,

La Carlota and Bago City. For the selection, proximity to the volcano (which means higher

risk in terms of exposure to volcanic hazards), population, interest and cooperation of the

barangay and assessed needs were main considerations. Barangay Biaknabato, La Castellana

was finally selected as one of the pilot sites in December 2009.


Rapid Rural Appraisal (RRA) activities (Librero and others, 1997) such as direct

observation for the different candidate sites, structured interviews with key informants, and

collection of secondary data in the form of written documents that are available from the

barangay records (population, Barangay Disaster Coordinating Council-BDCC structure,

Disaster Preparedness Plan-DPP, records of barangay minutes and resolutions, etc) were

conducted as starting point to gather indicators of the local situation. Barangay leaders were

interviewed initially and this was followed by interviews with residents and series of focus

group discussions during the project implementation.

1.3. Barangay Biaknabato Profile

Biaknabato has 680 households/ (705 families) with a total population of 3398 (Table

1). The barangay covers an area roughly 12.6 km2 and is composed on 11 sitios/puroks

namely- Barangay Proper, Nahanunga, Luho, Balucanag, Calapnagan, Buyon/Sapwa,

Tamburong, Tinago, Cabatuan, Pinulakan and Batang.

Table 1. Population data of Brgy Biaknabato (RBI, 2009) Sitio/Purok Households Families Male Female Population

1. Brgy Proper 120 134 300 291 591

2. Nahanunga 128 134 357 325 682

3. Luho 29 32 88 77 165

4. Balucanag 97 97 266 241 507

5. Calapnagan 22 23 49 46 92

6. Buyon/Sapwa 101 101 253 259 512

7. Tamburong 125 125 293 276 569

8. Tinago 11 11 22 30 52

9. Cabatuan 21 21 61 55 116

10. Pinulakan 10 11 24 30 54

11. Batang 16 16 29 26 55

Total 680 705 1742 1656 3398

Situated on the south-southeast slope of Kanlaon Volcano, agriculture is the major

source of livelihood of Biaknabato residents. From its rugged terrain with rich soil derived

from the volcanic origin of its rocks, major agricultural produce include sugar cane, fruits such

as banana (cadisnon, saba, balangon, tordan), langka, papaya, avocado, mango, coffee, root

crops (camote, camoteng kahoy, cassava, gabi), corn and coconut.

Based on the Biaknabato 2009 Record of Barangay Inhabitants (RBI), out of the total

3398 population, 28.369% (964) is the total identified workforce. A total of 463 (48%) of the

workforce are farmers while 31% (294) are laborers (mostly in the fields), 6.7% are drivers of

transport services such as jeepneys, tricycles, and multicabs that transport vegetables, and the

rest either hold small-scale businesses, are employed, among others.

The barangay has 1.625 M budget with 55% for Personnel Services, 20% for

Development Fund, 10% for Sangguniang Kabataan and 5% Calamity. Eighty percent (80%)

of the budget is sourced from the national government while 20% is from local income

(community tax, public market, land tax, real property tax).


2. Introducing the project to the community

During the visit and initial interviews conducted in August 2009, the project scope was

introduced to the barangay officials. A main issue that was settled is the agreement of the

barangay to participate in this pilot project if selected. It was made clear that this will entail

commitment in terms of human, physical resources and time. It was also made clear that the

project will not bring in any new advance equipment of any kind into the community, as

expected activities will be more focused on harnessing indigenous knowledge and developing

capacities that will lead towards developing and emplacing a system that will increase

community resilience during a volcanic crisis.

As initial groundwork to determine strengths and weaknesses and identify needs, a

survey using guided pre-designed questionnaire was conducted for Biaknabato officials. Initial

findings suggest that the barangay is good at filing documents (Barangay Minutes of Meetings

and Resolutions) but majority of information related to disaster preparedness that we are

seeking are not present in the barangay records of documents, which suggests nonexistent

disaster risk reduction activities.

Detailed interviews were conducted in January 2010, for both barangay officials (19

respondents) as key informants and residents (42 respondents) covering questions on current

level of awareness and preparedness for volcanic hazards. We focused on the following: (1)

current strengths that can be tapped (2) weaknesses that need to be addressed and (3) needs of

the barangay. In addition to physical factors such as types of volcanic hazards the area is

exposed to, and status of preparedness, the socio-cultural and economic landscape are

influences on how the community is able to integrate disaster risk reduction (DRR) into their

planning and development so an understanding of the interplay of various factors that shall be

identified is very important.

2.1. Interviews with officials and residents: Result of Preliminary surveys

A thorough study and understanding of residents’ perceptions on volcano hazards,

disaster, risks, their prevailing beliefs, attitudes and current general knowledge on DRR is

prerequisite before any ground work strategic planning of activities to increase resilience and

reduce vulnerability can be undertaken. Interviews were conducted covering all puroks, with

respondents ages ranging from 24 to 74 years old. (Figure 1)

Figure 1. Documentation of perceptions of residents, Barangay Biaknabato


2.1.1. People’s perceptions on volcano disaster risk: prevailing beliefs, attitudes;

knowledge on DRR

Interestingly, when asked for three (3) natural hazards that they experienced frequently

and recently, the topmost answers of residents are earthquake, typhoon and volcano eruption.

Earthquakes of tectonic origin are commonly felt in Negros Island and so it is not ironic that

earthquake came first on the list. The respondents are aware of the presence of a volcano but

most do not have much experience due to infrequent occurrence of major volcanic activity.

When asked for the 3 natural hazards that they think are likely to occur in the future, the

respondents answered are volcano eruption, earthquake and fire.

Majority of the respondents (63%) remember the 1969 eruption as the “worst type of

eruption” that Kanlaon displayed in their lifetime. Respondents consider all the other activities

(1980s-1990s) as mere “pagsungaw” (steaming) and not exactly “paglupok sang bulkan”

(volcanic eruption)- therefore not so dangerous. To most, as the volcano has not shown any

explosive or violent eruptions in the last 40 years, such that they think the volcano’s future

activities will be of this mild type only.

Most respondents think that the danger from Kanlaon is ashfall only and quite a number

(most specially those who had actual experience of the 1969) know that one needs to cover the

nose and mouth using wet towel to protect oneself from inhaling the ash particles. Local

observations of “sulfur smell” (pagpaminaho sang asupre) and “discoloration of water in

springs or stream” (paglubog sang tubig sa tuburan o suba) occurred after heavy ashfall was

noted during the 1969 event. Most respondents who are farmers have a good sense of

understanding the effects of ash to agriculture during volcano eruption. Several cited how

ashfall is not good for the vegetables for they become wilted when hot ash covers the land. But

most recognize that in time, the soil becomes richer and becomes good for most crops. Some

farmers have identified crops that flourish on ash.

Although the residents are aware that Kanlaon Volcano is just within their backyard,

they have very limited knowledge of its volcano eruptive history due to infrequency of major

events. Most do not think of Kanlaon Volcano eruption as a serious threat owing to this limited

experience, and it is unimaginable to most how and what is meant by “major eruption”.

When asked “what if” it erupts far bigger and more violently than they have experienced (mas

malaki at malakas pa po sa pagputok na nangyari nuong 1969) many of the reactions and

expressed response is “maybe not” (hindi naman siguro). Notably, the residents are not

familiar with “pyroclastic flows” and the dangers that accompany this type of event.

2.1.2. Capacities and needs assessment

Capacities. Human and physical resources have been identified (water source,

constructed water tubs, sources of other supplies), and other elements such as schools, markets

place, among others have also been identified but all these need to be presented in a map for

the purpose of planning and response during emergencies.

One major observation about Biaknabato is the showed interest and commitment of its

kagawads (council members) and their active hands-on participation in most of the activities

conducted for the barangay (programming of activities for the year, purok mapping). One of

the potential problems we initially identified during the reconnaissance survey in August 2009

is the limited accessibility with sitios/puroks in the upper slopes (those near the 4 kilometer


Permanent Danger Zobne) owing to the steep, rugged, dusty (when dry) or muddy (when it

rained) trails. But the kagawad in-charge in these upper areas knows the area and the residents

well and can identify each and every house. Also, the Barangay Leader/Captain commands

respect and all kagawads confer to him for final decisions, but the kagawads have shown

individual capacities to express ideas, ask questions, give suggestions and facilitate discussions

(Figure 3). An example of demonstrated leadership of kagawads was during the purok/sitio

mapping exercise as individual purok/sitio maps were made by groups composed of the

kagawad, BHW and some residents. It was also the kagawads who facilitated the discussion in

January for the planning of schedule of activities related to MIAVITA.

Identified needs. The interviews and discussions in August 2009 and January 2010

including review of documents reveal the need to strengthen the BDCC- from its

reorganization, its committee make up, and defined roles and responsibilities of identified

committees. The barangay immediately took action after the January meeting by coming up

with a Barangay Executive Order (E.O. 2 series 2010, February 2010) (Figure 2). By August

2010, the barangay has come up with an expanded version of the BDCC structure which

includes a set of defined roles and responsibilities for each identified committee. However,

much is still needed to be done. One of the main activities that need to be undertaken is writing

down the Barangay Disaster Risk Reduction Plan.

Another need clearly seen out of the interviews with respondents is on information

about Kanlaon Volcano’s past eruptions and possible scenarios in case of a major eruption in

the future. A discussion with barangay officials also revealed very limited exposure to

seminars and trainings on disaster risk reduction (Figure 4).

Figure 2. Reorganized Barangay Disaster Coordinating Council (to be renamed, Barangay Disaster Risk Reduction and ManagementCouncil by

virtue of the new RA 10121 enacted in May 2010.

Figure 3. Biaknabato kagawad facilitates discussion on strengths and weaknesses of the barangay and Planning of

MIAVITA-related activities for 2010.


2.2. Participatory approach to building community resilience

Participatory workshops with officials and residents were conducted so that Biaknabato

could organize their local information and knowledge, learn to systematically document these

and be able to develop their own volcano disaster risk reduction management plan (VDRRMP,

formerly Barangay Disaster Preparedness Plan- DPP). This initial phase lays down the

groundwork for community participation

2.2.1. Volcano Awareness and Capacity Development

Bearing in mind the lack of experience in terms of major volcanic events, the project

communication strategy should be designed to constantly remind residents on the dangers of

Kanlaon Volcano- with emphasis on the possibility that it may erupt bigger that it has exhibited

in the last 40 years. Disseminating information is one thing, convincing people to believe is

another. Modifying current beliefs and expecting that people will act to be prepared for

something they have not even experienced is the final outcome and is not an easy task ahead.

To raise community awareness as part of the strategy to be able to modify current belief

that Kanlaon will only do “pagsungaw”, major activities can be subdivided into two:

production of localized material and capacity building activities such as barangay

orientation/seminar/workshops. Communication campaign is focused on possible hazards not

only phreatic explosion and ashfall but the more dangerous pyroclastic flows

Figure 4. A discussion on training needs of the barangay

Figure 5. a. Participants

translate the poster into Ilonggo

b. Teachers from La Castellana take a look at the draft of material for comments and suggestions


Production of localized material. PHIVOLCS produced many brochures and flyers

about Kanlaon Volcano since 2004, each material covering topics such as Kanlaon History,

Kanlaon Hazards and Kanlaon Monitoring. However, most of these materials contain very

technical information and are written in English language. Reviewing the material again, it is

also clear that the important information on Kanlaon’s past eruptions are not highlighted.

Production of localized information material was prioritized as it was recognized that

there is need to highlight information on local observations of volcanic unrest. The aim is to

visually show people what is meant by the various local observations, This will be a good set

of tools considering the short disaster history known to current residents. The existing

PHIVOLCS information materials on what to observe during volcanic unrest (Figure 5a) was

presented to the participants during the orientation in January 2010. The participants were

asked to identify which among the listed observations are applicable for Kanlaon Volcano,

based on their past experiences. As the original material is in English, the participants were

also asked in what language they prefer to have the final product. The participants then

translated the material to Ilonggo. (Figure 5b). To add more “local” design, the illustration of

the volcano was also modified to make the volcano look more “Kanlaon.” A series of

consultation to solicit comments and suggestions about the draft poster was conducted with

barangay officials, residents and school teachers in March, before the poster was finally printed

in May 2010 (Figure 7).

Figure 7. The original poster design and the translated and localized poster

Community Seminars and Group Discussions. Several capacity building activities

were conducted with specific target audiences in mind: barangay officials, residents and

teachers. Orientation for the barangay officials and residents focused on knowledge building

(concepts and theories on disaster management, volcanic hazards and monitoring and

Philippine Disaster Management System) and skills building (using maps, how to read maps,

mapping elements in the community) (Figure 8). For better visualization, especially on how to

relate the lines on the topographic map into reality, a 3D clay model was prepared specifically


for the workshop. (Figure 9- 3D). Each barangay workshop devoted discussion time for

participants. The list of topics discussed in each community-level focus group discussion is

presented in Table 2. These are also validations of interviews and secondary data gathered.

Table 2. Major topics during focus group discussions January-September 2010 Focus Group Discussions

Phases Topics Questions

1 Status of BDCC Is there written/ documented disaster plan? Is it effective? Is there a detailed plan specific for a volcano disaster? If there is none, what do you inted to do about this?

Strenghts and weaknesses What are the stregnths of your barangay in terms of preparedness for volcano emergencies? How can you use these identified stregnts? What are your weaknesses/ needs in terms of preparedness for volcano emergencies? What are your alternative solutions?

2 Training needs assessment Trainings related to disaster preparedness attended by barangay officials

3 Disaster history Year/Type of disaster/Effects/Areas affected

Products of barangay What are the main products of your barangay?

Pangunahing hanapbuhay What are the main occupation of residents in your barangay?

Risk Identification

What do you think are the risks for your barangay if volcanic eruption occurs Which groups of people in your barangay would potentially be at greatest risk of being harmed What should people in your community do to prepare themselves so that they reduce the risk of harm?

4 Preparing the Purok Maops How to make an inventory and present the elements on a map

5 Constructing the Updated barangay map

Consolidation of all purok maps

Recognizing the importance of the education sector in our DRR efforts, a seminar for

teachers organized for DepEd La Castellana focused on giving out supplementary information

materials that can be utilized by teachers in their class. (Figure 10). The training at Biaknabato

Figure 8. Participants are taught the concept of map, understand and read maps, relate features on ground and how this is represented on a map. Tools such as compass to orient oneself and the map is also introduced

Figure 9. For better visualization in 3-dimension, we used various teaching aids. For teaching purposes, a slice area of the barangay was chosen and a 3-D

model was prepared.


Elementary School focused on the following topics: earthquake and earthquake hazards,

volcanoes and volcanic hazards and Kanlaon Volcano overview. A session was devoted to

discussion of content and how to use the various information materials: (1) the existing

PHIVOLCS print information materials such as the How to Predict Volcano eruption and the 3

kanlaon flyers (2) IAVCEI Video on volcanic hazards (film showing)- (3) volcanic hazards

(from Tales of Disasters by No Strings International)

2.2.2 Community participation- mapping of resources

Each purok (a sub group within a barangay), with the leadership of a kagawad was

given assignment to prepare their own purok map between April until May (the period that the

PHIVOLCS team returned to Manila). The exercise aims to capacitate participants to be able to

record on a map and present important elements of the barangay. The maps were presented

during another community exercise in May. The maps are still not drawn to scale and the

legends of elements used varied from one purok map to another. But part of the upcoming

activities is the field verification of elements plotted on the map, and consolidation of

information as plotted on this map using similar legends for all the maps to come up with an

updated Barangay Spot Map that will be used for the barangay disaster risk reduction

management.

Figure 10. The teachers were oriented on the basics of volcanoes and volcanic hazards, and how to use PHIVOLCS materials as supplementary information in their classes. Map reading was also introduced using tools such as a 3-d

model of an area in Biaknabato, topographic maps, and compass.


Future Work

Our communication strategy after analysis of local situation includes highlighting a key

message- that although Kanlaon Volcano has shown relatively small type of explosions in the

last 40 years, it is still capable of erupting violently in the future.

Another important aspect that needs to be covered is the analysis of existing geological

and hazards data, use these information for scenario building activities in order to initiate the

drafting of the Barangay DRRM.

This is an ongoing work of PHIVOLCS until end of 2011. Success indicators identified

include documented DRR activities, extract from barangay discussions a program that will

sustain this initiative long after the project has ended. Activities to further capacitate the

community, and an emplaced community-based EWS for volcano emergency are some

expected major outputs of this project.

Aside form items already mentioned above, activities in 2011 must adjust to take into

consideration provisions of RA10121 on the project. This will also explore sustainable

programs such as long-term livelihood protection, in case of major eruption.

References:

Gaerlan, Kistina (editor) (n.y.) Building Resilient Communities: Good Practices in Disaster

Risk management in the Philippines; Oxfam Great Britain Philippines Programme, 92 pages.

Libredo, F., M.M. Suva, M.S.C. Tirol (1997). Communication Research and Evaluation, UP

Open University, 280 pages

Polotan-dela Cruz, L., and Ferrer, E,.M. (2010). Our Journey: Towards Building Disaster-

Resilient Communities, in Building Disaster-Resilient Communities: Stories and Lessons from

the Philippines, pages 1-8.

Barangay Biaknabato Executive Order no 02- series of 2010

Figure 11. The barangay officials and residents prepare their group purok map. Diagram showing the process of creating the barangay Spot Map from inputs of purok as well as GPS data of locations.


Martinez-Villegas, Bornas, M.A.V., Abigania, M.I.T., and Listanco, E.L., (2001). Geology and

Geochemistry of Canlaon Volcano, Negros Island, Philippines. Journal of Geological

Society of the Philippines, v 56, nos 3-4, pp163-183.

Acknowledgement

This PHIVOLCS study, Work Package 5- Developing Community-based resiliency) is being

implemented under the European Union-funded project Mitigate and Assess Risks from

Volcanic Impact on Terrain and Human Activities (MIAVITA).

Documents

Building Community Resilience to Hazards from Kanlaon … · tools (such as 3-D models for the map understanding session) developed specific for the barangay. ... records of barangay