Region9 Siay - Community Based Flood Preparedness, Response and Prevention

Siay,

Zamboanga Sibugay

Community-Based FloodPreparedness, Response and

Prevention

Community-Based Flood Preparedness, Response and Prevention Copyright © 2005 Philippines-Canada Local Government Support Program (LGSP) The Philippines-Canada Local Government Support Program encourages the use, translation, adaptation and copying of this material for non-commercial use, with appropriate credit given to LGSP. Although reasonable care has been taken in the preparation of this book, neither the publisher and/or contributor and/or editor can accept any liability for any consequence arising from the use thereof or from any information contained herein. Printed and bound in Manila, Philippines Published by: Philippines-Canada Local Government Support Program Unit 1507 Jollibee Plaza Emerald Ave., Pasig City 1600 Philippines Tel. Nos. (632) 637-3511 to 13 www.lgsp.org.ph This project was undertaken with the financial support of the Government of Canada provided through the Canadian International Development Agency (CIDA).

Community-Based Flood Preparedness, Response and Prevention Siay, Zamboanga Sibugay

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Philippines-Canada Local Government Support Program (LGSP)

Documentation of LGU Exemplary Practices

Replicable Practice

COMMUNITY-BASED

FLOOD PREPAREDNESS, RESPONSE AND PREVENTION IN SIAY, ZAMBOANGA SIBUGAY

(4TH Class Municipality)

CONTENTS

Summary

2

Project Description: Facing nature’s challenges

2

History: Awakening a response to disaster

3

Results: Stemming the flood

4

Key Implementation Steps 5

Analysis and Lessons Learned: A long-term solution to flooding

11

Annexes: Annex A – Relevant Provisions of RA 8185

Annex B – Siay Flood Contingency Plan

14 15


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SUMMARY The flood preparedness, response and prevention program in Siay, Zamboanga Sibugay is a noteworthy example of how a local government can effectively prepare and respond to natural calamities. Perenially flood-prone due to the collapse of the Sibuguey river’s mouth in 1976, Siay – a 4th class municipality of 33,640 people – has had more than its share of flooding and the resulting loss of lives and property damage. This finally prompted the Siay local government unit (LGU) to institute a flood preparedness program in February 2004. After conducting a flood-related needs assessment, Siay formulated a flood contingency plan, allocated funds for its implementation and undertook institutional procedures and physical measures to address its flooding problem. These included strengthening the Municipal Disaster Coordinating Council (MDCC); organizing multistakeholder municipal and community-based Flood Disaster Response Sectors (FDRS); networked with national and international agencies to generate additional resources; and constructed needed flood control infrastructure -- a river rechanneling dam and dike improvements. Communities in flood-prone barangays were also mobilized through information campaigns and capacity development activities on early warning and communication, search and rescue, evaluation, and relief and rehabilitation operations. After a year of program implementation, these efforts have resulted to improved capacities of the LGU and local communities to respond to flood-related calamities. Flooding has been significantly reduced, and displacement and property/crop damage have been significantly minimized. These achievements earned Siay a citation as Outstanding Provincial Disaster Preparedness Awardee for 2004. Project Description: Facing nature’s challenges Sibuguey, the largest river in the province of Zamboanga Sibugay, has long been a major water source for Siay and the rest of the province, providing irrigation for rice lands, water for fishponds and a habitat for mangroves. In 1976, however, an earthquake caused a landslide that effectively closed the river’s mouth, turning Sibuguey into Siay’s worst enemy. Being only a few inches above river level and located at the river’s drainward portion, Siay frequently bore the brunt of rampaging flood waters that spilled over from the obstructed river during heavy rains.


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In the past five years (2000-2004), 880 families were displaced and Php 44 million worth of crops and infrastructure destroyed due to floods in Siay, one of the major rice producing areas in the province. This has caused many Siay farmers to abandon their farms, losing their main source of livelihood; those who remained faced the daunting task of cultivating silted lands and the risk of future floods. At the same time, Siay also proved ill-equipped to respond to the flooding problem, hindered as it was by limited resources, skills and knowledge. A Php 2.5 million flood control structure built in 1998 turned out to be too low, too short and too weak. Though it eliminated flooding for two years, floods destroyed it at the end of the period. Finally in early 2004, upon the urging of the Office of Civil Defense (OCD), the municipal government finally began to work towards a solution, launching the Siay Flood Disaster Preparedness, Response and Prevention program. Project Objectives Siay formulated the following objectives for the program:

1. Organize, train and mobilize stakeholder teams at the municipal and

barangay levels to quickly respond to flood-related emergencies 2. Formulate disaster-responsive policies, plans, systems and procedures for

observance by the teams in emergency situations 3. To access external funding for the construction of flood control

infrastructure

History: Awakening a response to disaster

At the start of 2004, the OCD Region IX urged the Siay municipal government to undertake a flood-related needs assessment as a first step to addressing its flooding problem. The suggestion was welcomed by Siay Mayor Arthur Luspo, who readily provided the logistics and invited all heads of departments and offices, legislators, line agencies, and representatives from barangays, civil society, business, academe, and religious sectors to participate in the exercise. The results of the assessment enabled the LGU to formulate a contingency plan, as well as flood-related policies and procedures for disaster management.

Basic Profile: Siay, Zamboanga Sibugay Location: Zamboanga Sibugay province Land Area: 31,336 hectares Population: 33640 Population growth: 2.96% Ave. HH size: 5 Income class: 4th class Local Revenues: Php 3.46 M No. of barangays: 29. Land use: mostly agricultural land on rolling terrain Major industries/economic activities: agriculture (with rice grown in the lowland and rubber and calamansi on higher terrain); 3600 hectares of brackish water fishponds produce approximately 198 metric tons of prawns and 576 metric tons of bangus (milkfish) annually


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Siay was also able to formally constitute its MDCC and municipal-level disaster teams with community-based representatives. Aside from building its response capacity, Siay also sought a more lasting solution to its flooding problem – the installation of flood-control infrastructure. This led to more aggressive lobbying for resources to reopen the closed Sebuguey river mouth and rehabilitate and expand the existing dike network. The result was a two-pronged approach to flood management, with emergency measures as well as permanent physical infrastructures being pursued hand in hand. (See Table 1 for a list of institutional and physical measures undertaken by Siay). Table 1. Measures undertaken by Siay under the program Institutional Measures Physical Measures Formulated a flood contingency plan and policies emphasizing community participation

Construction of a water channeling dam to reopen the closed river (funded by the national government through the Sibuguey Valley Management Council)

Organized and trained flood response sectors/teams on the following areas: warning and communication search and rescue transport and security evacuation, rehabilitation relief, water and sanitation health and medication

Sebuguey river dike improvement, elevation and extension to prevent water overflows to outlying ricefields (funded by the Japanese Embassy through its Grassroots project) (Php 5M)

Mobilized support for relief operations in coordination with the Office for Civil Defense (OCD), Department of Health (DOH), Department of Agriculture (DA), Bureau of Fisheries and Aquatic Resources (BFAR), and the Department of Public Works and Highways (DPWH)

Institutionalized a calamity budget allocation from 5% of the regular LGU revenues as mandated by Republic Act 8185

Results: Stemming the flood After a year of implementing the program, Siay found itself more equipped to respond to flooding, and able to look forward to a brighter, flood-proof future. Below are some of the benefits that the program has brought about for the municipality. Enhanced LGU capacities for flood preparedness, response and prevention. The

flood-related interventions instituted by Siay’s LGU has turned formerly ill-equipped MDCC members and LGU personnel into active, capable and coordinated response teams that know exactly what to do when floods occur. The program has also been institutionalized through an annual budget allocation amounting to 5% of


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total revenues as mandated by Republic Act 8185 (See Annex A for copy of RA 8185), disbursed as calamity funds through the different disaster teams. Effective policies, plans and procedures for flood preparedness and emergency response have also been put in place.

Enhanced understanding and

capacities of communities to respond to disaster. Local communities, especially in vulnerable barangays, have also been transformed from flood victims unable to help themselves to community-based teams able to undertake flood warning and communication, evacuation and search and rescue operations.

Construction of permanent flood control structures through external fund

sourcing that are envisioned to eliminate flooding completely in Siay. Through aggressive networking and lobbying, Siay has been able to access funds from the national government through the Sibuguey Valley Management Council (SVMC) and even international institutions such as the Japanese Embassy, to construct its flood control structures.

Recognition as Outstanding Provincial Disaster Preparedness awardee for 2004

after only one year of program implementation Key Implementation Steps Below are the key implementation steps followed by Siay in implementing their program. These steps can serve as guideposts for LGUs wishing to replicate Siay’s experience or undertake similar projects in their localities. 1. Assessing flood preparedness, response and prevention capacity As a first step, Siay conducted an assessment of the current capacity of the municipality for flood/disaster preparedness, response and prevention. With technical assistance from the OCD, the assessment was conducted by potential MDCC members (before Siay formally constituted its MDCC), LGU department heads, and representatives of other sectors. Prior to the assessment, the OCD also conducted a training of MDCC members to prepare them in conducting the various methodologies of the assessment.


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The assessment made use of data from field reports, historical records and municipal records from LGU departments on agriculture, health, engineering social welfare and development, planning and the assessor’s office. An environmental and field survey was also conducted to supplement available data. First hand information from affected residents was also obtained through informal interviews. The assessment’s findings then enabled the group to identify barangays and areas at greatest risk, determine the limitations of the MDCC in flood response, and acquire a clearer perspective of what needed to be done to respond to flooding. Two major findings were: Flooding can only be permanently eliminated with the construction of two major infrastructure – the reopening of the Sibuguey river’s mouth through a channeling dam and the improvement and extension of the existing dike network Danger to lives and property can be mitigated through the formulation and implementation of a flood contingency plan

Siay’s mayor and the MDCC also consulted with flood prevention experts from DPWH and NEDA on the possible need for physical infrastructure. These consultations firmed up the LGU’s decision to construct a water channeling dam to open the closed Sebuguey River mouth and rehabilitate, elevate and extend the old Sebuguey River dike to prevent water overflow during heavy downpours. 2. Organizing/Reviving the Municipal Disaster Coordinating Council (MDCC) and

Flood Disaster Response Sectors/Teams (FDRS) Besides issuing an Executive Order formally constituting the MDCC, Siay’s mayor also designated a Municipal Disaster Management Coordinator and organized Flood Disaster Response Sectors (FDRS) or Teams. FDRS were composed of LGU department heads and personnel, barangay officials, community leaders as well as local NGOs and other civic organizations. They were selected based on their functions/offices in the LGU (Municipal Social Welfare, Health, Budget and Finance, Engineering, Planning and Development and Police, etc) and their proven active involvement in past flood disaster response experiences (for NGO and civil society members). Six teams were organized to cover 6 identified aspects of the program: Warning and communication Search and rescue Transport and security Relief, evacuation, rehabilitation Water and sanitation Health and medication


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All MDCC members, except the chair, also became de facto members of the different sectors. All flood-prone barangays were likewise represented in the MDCC. 3. Formulating the Flood Contingency Plan From the findings of the flood-related needs assessment, Siay conducted a contingency planning session facilitated by the OCD and participated in by the MDCC, FDRS, LGU department heads and staff, and other local stakeholders. Local legislators also observed the process, which facilitated the plan’s adoption later by the council. The planning resulted in the formulation of the Siay Baha Policies and Contingency Plan, which details the municipality’s flooding situation and the LGU flood policies and response plan. (See Annex B for Siay’s Flood Contingency Plan) 4. Obtaining executive and legislative support and budget for the plan The plan was then submitted to the Sangguniang Bayan (SB; local legislative council) which issued resolutions adopting the Siay Baha Policies and Contingency Plan and approving an annual budget allocation of 5% share of revenues from regular sources for plan implementation or a sum of Php 1.91 million annually as calamity fund. 5. Developing the capacities of the MDCC, FDRS and their community-based

counterparts Siay then designed and implemented a capacity development program with the help of OCD. MDCC and FDRS members underwent the following training: briefing on and internalization of the Siay Baha Policies and Contingency Plan orientation to gain thorough knowledge of the local flood situation and the needs of communities in flood prone areas skills training on their specific roles and responsibilities

Barangay officials and community leaders who participated in the training then conveyed their learnings to purok leaders and other residents through re-echo sessions. Purok officials next took charge of disseminating relevant information to their respective purok. This process also allowed the LGU to save on costs it would otherwise have had to shoulder had it opted for massive training activities for large numbers of people. Periodic reorientations on flood preparedness and response were also undertaken during program implementation to ensure that knowledge and skills of concerned personnel remained up to the task.


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6. Establishing systems and procedures Based on the Siay Baha Policies and Contingency Plan, flood management procedures were instituted by the MDCC with guidance from the OCD Region IX. Each of the FDRS came up with procedures to follow in cases of flood emergencies with corresponding resources and facilities provided for the purpose. Each sector computed a budget for the team’s needs, given its roles and responsibilities, and submitted this to the mayor as MDCC chair, which then approved and released the funds. At the same time, a Disaster Operations Center was installed at the municipal hall to coordinate all response activities during emergencies. The center was set up to receive early warnings of imminent flooding from community monitors trained in observing river water behavior (speed by which the water level rises) as a signal to prepare response measures. Table 2. Siay’s Emergency Response Teams and Procedures Emergency Response Procedure

a. Warning – Residents are warned of impending floods and made familiar with measures they should undertake before and during floods to ensure their safety. This is conducted by the Warning and Communication Sector, with the use of 9 VHF radios, 30 cellular phones and 14 telephone lines. b. Search and Rescue - Locating missing and stranded persons, bringing them to safety and providing first aid is the function of the Search and Rescue Sector. The sector is equipped with 2 motorboats, 2 axes and 1 searchlight. c. Security and Transport- Providing security and land and water transport services to victims and other teams in need are tasks undertaken by the Transport and Security Sector. This sector has the use of 3 dump trucks, 2 boats and 12 security people. d. Evacuation and Rehabilitation – The Evacuation and Rehabilitation Sector provides and maintains shelter facilities for flood affected/displaced residents. Temporary shelters have also been identified beforehand that can be readily converted at need. These include: the Catholic Church and its Formation Center in the town center 2 elementary schools The municipal gym

Livelihood development is also undertaken by sector members among flood survivors and displaced families by linking them with institutions offering livelihood assistance. This is to address the loss of livelihood and incomes from lost crops and property.

e. Relief – The Relief Sector takes charge of registering flood victims and distributing relief goods such as food and clothing.

f. Health and Medical Treatment - Providing immediate medical treatment and potable water to victims and maintaining hygiene and sanitation in the evacuation centers and in other areas is the responsibility of the Health and Medical Sector using medical kits and medicines provided by the LGU.


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7. Developing and implementing plans for resource accessing Technical design plans and project proposals were developed by the LGU with the help of the SVMC headed by NEDA. Such documents were then submitted to national agencies such as DPWH and prospective donors such as the Japanese Embassy through its Grassroots Project, accompanied by requests for fund support. (Another option replicating LGUs may undertake is to link up with neighboring LGUs in accessing resources, since flood and disaster management often cuts across territorial boundaries. Siay found out that DPWH had already approved a river water channeling dam for neighboring Diplahan so it decided to meet with the DPWH, Diplahan officials as well as four other municipalities to advocate that the project be relocated to Siay. Siay campaigned that the move would result in the project benefiting not just one but five municipalities. Siay also argued that relocating the project in their municipality would mean undertaking less work for less cost as it would only entail reopening the river’s mouth. All five LGUs and the DPWH were convinced and the project was transferred to Siay.) 8. Constructing needed flood control infrastructure The DPWH constructed the river water channeling dam that reopened the mouth of the Sebuguey river. Funds amounting to Php 5 million were also accessed from the Japanese Embassy with the help of NEDA and were used to construct the dike improvement and extension project. (Before construction, measures may need to be undertaken for social preparation to a) prepare communities that will be affected by the construction on possible temporary inconvenience or more long-term displacement and b) installing mitigating and safety measures to ensure that communities and the natural environment will not be endangered by the construction of the structures.) 9. Installing and implementing monitoring and evaluation mechanisms Siay conducts annual planning and assessment sessions as well as monthly and quarterly monitoring activities. Monitoring and evaluation may be focused on the following critical areas: the effectiveness and durability of the infrastructures that were built the effectiveness of the contingency plan and policies the implementation of the systems and procedures for disaster response the level of capacities of the MDCC and FDRS in responding to flood emergencies the extent to which needs of affected communities and flood victims are addressed


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10. Ensuring sustainability The project’s sustainability has been considerably improved by the adoption of long-term solutions, such as the construction of flood control structures. While these solutions required substantial resources, Siay actively networked with the national government and financing institutions and successfully acquired the funds for the project. Siay’s local government now plans to include costs for the repair and maintenance of these flood control structures as permanent items in its annual budget. The LGU is also working on getting barangay councils to allocate funds for sustaining the program. Matrix of Key Implementation Steps

Key Implementation Steps

Expected Outputs Time- frame

Person/ Agency

Responsible

Budget/ Resources Required

1. Assessing flood preparedness, response and prevention capacity of the LGU

Flood-related needs assessment findings/report

One month

MDCC, mayor, local stakeholders

• Logistics and budget from the conduct of the various activities; personnel to conduct the assessment; technical assistance, which can be obtained from the OCD

2.Organizing/ Revitalizing the Municipal Disaster Coordinating Council and Flood Disaster Response Sectors/Teams

MDCC structure, municipal and community based response teams

Mayor, department heads

• competent and committed personnel/ individuals to comprise the team; budget for salaries/honoraria of FDRS (may be optional as FDRS members may serve on a volunteer capacity; budget for MDCC activities/meetings

3. Formulating the Flood Contingency Plan

Flood contingency plan

Mayor , MDCC, barangay officials, local stakeholders

• team to conduct the planning, technical assistance in facilitating the planning may also be required; logistics/budget for the activity

4. Obtaining executive and legislative support

Supporting SB ordinances and resolutions, executive orders

may vary

Mayor, MDCC, SB

• political will of the LGU leadership, SB support, budget/logistics for SB lobbying

5. Developing the capacities of the MDCC, FDRS and their community-based counterparts

improved capacities of disaster response and management teams

Mayor, MDCC, barangay officials

• budget for capacity development activities; technical expertise/assistance may be required in the conduct of some capacity development activities is such expertise is not available within the LGU


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Key Implementation Steps

Expected Outputs Time- frame

Person/ Agency

Responsible

Budget/ Resources Required

(OCD may be tapped for such activities)

6. Establishing systems and procedures

systems and procedures for flood response and management

During emergencies

Mayor, MDCC, disaster teams

• budget for the implementation of flood response procedures, including funds for the purchase/rental and maintenance of vehicles, communication and other equipment; teams to undertake the procedures

7. Developing and implementing plans for resource accessing

Plans for accessing resources Project proposals resources accessed

Mayor, MDCC • budget for lobbying activities, meetings with prospective donors, individuals to undertake resource accessing

8. Constructing necessary flood control structures

Built flood control infrastructure

depends on the size of project

Mayor, MDCC,

• funds for project construction

9. Conducting monitoring and evaluation

monitoring and evaluation reports; changes made to address areas for improvement

periodically

Mayor, MDCC • budget for monitoring and evaluation; personnel to conduct monitoring and evaluation; monitoring and evaluation tools

10. Ensuring sustainability

Continuing

Analysis and Lessons Learned: A long-term solution to flooding After a year, Siay’s flood preparedness, response and prevention program was ready to take on the challenges of nature. Equipped with flood control structures and trained in disaster response, Siay’s LGU and communities are also optimistic about completely eliminating their flooding problem. This is an especially significant achievement in a country where many provinces and municipalities have to deal with perennially-occurring natural disasters and calamities. Siay’s program also succeeded in putting in place important features of the program, which may be seen by other LGUs interested in replicating the project as critical ingredients for success: Multistakeholder and community participation was encouraged and realized

through information dissemination, transfer of knowledge and skills by barangay and community leaders who underwent training, and institutional representation of residents of flood-prone barangays in the MDCC and flood response teams


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Pushing for the Institutionalization of the flood preparedness, response and prevention program through the approval of a contingency plan, construction of flood control infrastructures, legislative appropriation of calamity funds from the annual LGU budget and creation of permanent organizational structures at the municipal and barangay levels (MDCC and FDRS)

Successful accessing of external resources made possible the construction of

identified and needed flood control structures Viable partnerships and linkages were formed by the LGU with the OCD, other

local government units, line agencies, and international resource institutions, which made possible the realization of many of the plans and projects designed by the LGU. Most significantly, Siay was able to convince five other LGUs and the DPWH to relocate an approved project in Diplahan in favor of Siay, given its more advantageous location and the greater benefit it will give to all.

Putting in place a systematic and multipronged approach to disaster management,

starting with a needs assessment and involving planning, capacity development and social mobilization as well as featuring both physical infrastructure and emergency response measures. This approach also ensures a long-term solution to the flooding problem, as Siay recognized that they would not be able to stop the flooding without this infrastructure; thus, the strong efforts towards accessing external resources.

Replicating the practice LGUs facing perennial problems of flooding and other disasters may replicate or adapt Siay’s program; significant resources, however, will be required if an LGU identifies the need for physical flood control structures. At the same time, even a 4th class municipality like Siay can build costly infrastructure if it is able to network and generate funds from the national government or international donors. Thus, while an LGU may not need to put up the capital for flood control structures, it does need to have the ability to generate resources from outside. Likewise, the processes involved in Siay’s program may possibly be adapted for other types of calamities/disasters/emergencies such as fire, earthquakes, typhoons and other natural catastrophes. Another replication concern is that the project may entail more than one-two years to complete if flood control structures are included in the plan. LGUs, however, may opt to start with the first aspect of the program, which is developing local capacities for responding to flooding emergencies. The installation of physical structures, if needed, may be pursued later.


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LGUs may utilize legal provisions of RA 8185 which authorizes LGUs to set aside an annual appropriation of 5% of its estimated revenue from regular sources for flood/disaster response. Given the usually limited budget of LGUs, this mandate can enable an LGU to prioritize budget allocation for flood disaster response concerns. Other LGUs wishing to replicate this practice may also need to keep in mind Siay’s multi-pronged approach to disaster preparedness which resulted from a careful study of the local situation. While contingency or emergency measures are important to put in place, more permanent/long-term solutions may also be needed, such as flood control infrastructures. Though more costly, a resourceful LGU can find external support from a variety of sources, including line agencies, international donor agencies, or through linking up with other LGUs. Finally, a long-term perspective on disaster management would ensure that a flood-control program should consider the continual rise in population in allocating funds, resources and assistance to disaster-prone communities. As such, plans and budgets need to be regularly reassessed to ensure that they remain responsive to the needs of growing populations. Who to contact if interested in replication: Mayor Arthur W. Luspo, MD: 0920-9264072 Annexes A. Republic Act 8185 B. Siay Flood Contingency Plan


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Annex B: Siay Flood Contingency Plan (Excerpts)


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Documents

Region9 Siay - Community Based Flood Preparedness, Response and Prevention