Summary of Preliminary Study Result for Grant Aid Project
Date (prepared): March 17, 2008
1. Title of the Project and implementing agency
Full title of the Project: Disaster Prevention and Reconstruction for Camiguin Island
in the Republic of the Philippines
Implementing agency: Department of Public Works and Highways (DPWH)
2. Categorization and its reason
Categorization: B
Reasons:
- Relocation of a house may be necessary.
- Private properties need to be acquired or temporarily used.
- Cash crops need to be removed for the construction of access road, bridge and sabo dams.
- Some adverse impacts on traffic, water supply, air pollution, waste management, landscape,
noise and vibration are expected.
3. Outline of the Project
3-1. Background
Establishment of disaster prevention measures has been essential for the economic development
and social stability in the Republic of the Philippines. The Province of Camiguin was hit by debris
flows and flash floods due to Typhoon Nanang in 2001, which took a heavy toll of lives and
damaged houses and infrastructures including roads, bridges, water supply systems, power
transmission lines and schools. After the event, JICA Basic Study on Disaster Prevention and
Reconstruction Project for Camiguin Island was conducted in 2003 and identified 4 river basins (risk
category AA) that were considered to be most vulnerable to attack of debris flows and floods. The
study, in particular, strongly recommended construction of sabo facilities in the Pontod River basin
and reconstruction of the damaged Hubangon Bridge across Hubangon River (see Fig. 1), as urgent
structural measures because there is a huge volume of unstable and collapsible sediment remaining
on these river basins, which might renewedly cause debris flows in the event of heavy rainfall.
Construction of sabo facilities is, therefore, highly expected to improve the security in the threatened
area. The reconstruction of Hubangon Bridge is also critical to sustain economic development of the
province in view of the fact that it is one of bridges on the national highway connecting Benoni Port,
the main ferry port of the province, to Mambajao, capital of the province. Following the
recommendation of the previously conducted Basic Study, the Republic of the Philippines requested
the government of Japan for grant aid cooperation in the construction of sabo dams and
reconstruction of Hubangon Bridge in June, 2006.
3-2. Objectives
Objectives of the proposed project are as follows:
- Improvement of the living condition and standard in hazard occurrence areas
- Enhancement of the safety and reliability of the national highway, the main artery in the province
- Effective utilization of land that is protected by sabo structures
- Improvement of agriculture-based economy and tourism
1
Fig. 1 Satellite imagery of
Camiguin Island from Google
(with a registered license) showing
the location of Pontod River and
Hubangon River (white solid
lines).
3-3. Number of beneficiaries
- Direct beneficiaries
¾ Sabo dams
1,630 local residents living in the catchment area of Pontod River and Hubangon River
¾ Hubangon Bridge
74,232 residents living in the Province of Camiguin
- Indirect beneficiaries
76,504,077 people (population of the Republic of Philippines as at 2000)
3-4. Justification
The Medium-Term Philippine Development Plan (2006-2010) has recognized the disaster
prevention sector as one of the top-priority areas for the socio-economic development of the nation.
The proposed project will contribute to socio-economic development and poverty alleviation in the
Province of Camiguin by improving living conditions in hazard areas and the safety and reliability of
the national highway.
3-5. Project components
Proposed project is comprised of two components. One is construction of two sabo dams in the
Pontod River basin. The other is reconstruction of Hubangon Bridge. Figure 2 shows the locations
of 4 candidate sites for sabo dam construction. Figure 3 shows the location of Hubangon Bridge.
2
Fig. 2 Location of candidate sites for sabo dams, Sudlon, Comon, Pontod and Hopucan. Aerial photo was
taken in the JICA Basic Study in 2003.
Fig. 3 Location of Hubangon Bridge (yellow circle) and Pontod Culvert (light-blue circle). Aerial
photo was taken in the JICA Basic Study in 2003.
3
4. Outline of the location
4.1. Natural settings
Camiguin has a total land area of 238 km2 and measures 37 km at its longest and 14 km at its
widest. The island emerged from the Mindanao Sea as the result of volcanic activity and is made up
of volcanic deposits. There are active volcanoes that still have been discharging volcanic deposits.
There are about 28 major catchments that are characterized by steep slopes in the highlands and
gradually reducing gradients toward the low-lying lands.
Camiguin is a tiny island richly endowed with nature like lush forest, volcanoes, springs,
pristine beaches, waterfalls, wildlife including endemic species, endangered species, and so on.
There is one strictly protected area “Puntoong Hibok-Hibok Natural Monument” that was designated
in 2003 by the Republic Act 7586 “National Integrated Protected Areas System (NIPAS)”, which
supports a precious ecosystem together with scientifically important flora and fauna. There is no
mangrove swamp at the mouth of Pontod River and Hubangon River and no coral communities off
shore lines in the proximity of both rivers.
Annual average rainfall is 2,300 mm, and the months between October and February receive the
greatest amount of precipitation (>300mm/month), out of which October through January is the
typhoon season for the province.
4.2. Socio-economic conditions
Camiguin has a population of 74,232 in 2000, and is comprised of 5 municipalities, i.e.
Mambajao, Mahinog, Catarman, Sagay and Guisiliban. The proposed project sites are located in
Municipality of Mahinog that includes13 barangays with a population of 12,590. Population within
the basins of Pontod River and Hubangon River is 1,109 and 521, respectively.
Camiguin’s main port, Benoni, is located in south Mahinog and is the primary point of access
for the trade and arrival of people. The national highway between Benoni and Mambajao, which
Hubangon Bridge is located, is the artery supporting the main physical distribution in the Province of
Camiguin.
The present land use in Camiguin is categorized into a) commercial, b) residential, c) utilities,
d) agriculture, e) forest, f) protected agriculture, g) protected forest, h) tourism, i) institutions, j)
riceland, j) grassland/brushland, and k) perennial trees. In comparing the patterns of land use in
Mahinog on the years 1985, 1988 and 1996, there is an apparent trend of increasing agricultural,
forest and built-up lands. Similar in the province, agriculture is the dominant land use covering 75%
of the total municipality area (2,446 has).
The economy of Camiguin primarily depends on agriculture and fisheries, which support
51.5 % of the households in the province as income source. Seventy-one percent of employees are
engaged in agriculture and fisheries. Coconut, rice and lanzones are the crops with relatively high
economic values. Mahinog and Mambajao are the top rice producers with 36% and 53% contribution
to the provincial production, respectively.
Average household income in Mahinog is 43, 872 Philippine Peso (PhP) in 1996. The poverty
incidence in Mahinog is 73.21% (regional poverty threshold: PhP51, 563/year). The highest provider
of income is labor and employment with PhP43, 161, closely followed by business with PhP43, 082.
Agriculture and fishing fall almost last with only PhP11, 861 and PhP26, 581, respectively.
Camiguin has several tourist attractions ranging from natural, historical, scientific (endangered
species), religious and cultural spots and events.
4.3. Problems
Huge amounts of unstable deposit (sediment) still remain, particularly on the slope of river
basins, and would likely run off in future events of heavy rainfall. The JICA Basic Study identified
hazardous conditions of Pontod River and Hubangon River, which means that debris flow and flood
are likely to devastate the basin areas again. Identified problems are described below.
- Hubangon Bridge, one of the most vital infrastructures for physical distribution in Camiguin, was
seriously damaged by the Typhoon Nanang in 2001. The bridge must be improved as soon as
possible otherwise debris flows and/or flash floods would collapse the bridge and consequently
damage the economy of the province.
- Huge volume of deposit still remains in the catchment area of Pontod River. If debris flow
changed its present river course accidentally, huge casualties and damages would be expected in
the Barangays of Hubangon, San Jose, Catohugan, and so forth.
4
5. Legal framework of environmental and social considerations
5-1. Laws and regulations
- Environmental Policy of Republic of the Philippines
¾ PD (Presidential Decree) 984：National Pollution Control Law 1976
¾ PD 1151: Philippine Environment Policy 1977
¾ PD 1152: Philippine Environmental Code 1977
- Selected laws and regulations related to Environmental Impact Assessment (EIA) or
Environmental Impact Statement System (EIS System)
¾ PD 1586 (Philippine Environmental Impact Statement System 1978)
¾ Presidential Proclamation No. 803: Definition of Environmentally Critical Areas (ECAs)
1981
¾ Presidential Proclamation No. 2146: Definition of Environmentally Critical Projects
(ECPs) 1981
¾ Office Circular No. 3 (1983): Technical Definitions and Scope of the Environmentally
Critical Projects and Areas Enumerated in PP No. 2146
¾ DAO (DENR Administrative Order) 92-12 (Revision of PD 1586) prescribing the
notification of policy, objectives, procedures, public hearing, Environmental Compliance
Certificate (ECC) and monitoring
¾ DAO 92-21: Devolution of the EIS to the EMPAS (EMB Regional Offices)
¾ DAO 96-37: An attempt to further streamline the EIS system, to strengthen the processes
for its implementation, and to expressly give importance to meaningful public participation
and transparency of the EIS process
¾ DAO 99-37: Operationalization of the Environmental Revolving Fund (ERF)
¾ DAO 2000-05: Programmatic Compliance
¾ DAO 2000-37: Standard Costs and Fees Relative to the Implementation of the EIS System
¾ DAO 2003-30: Implementing Rules and Regulations (IRR) of the Philippine EIS System
¾ DAO 2004-61: Delegation of Authority to the General Manager of the Laguna Lake
Development Authority to Grant or Deny the Issuance of ECC/CNC for Projects located in
Environmentally Critical Areas (ECAS) within the Laguna De Bay Region
¾ DAO 2005-06: Guidelines for the Institution of the System of MEIC
¾ DMC (DENR Memorandum Circular) 2007-08: Simplifying the requirements for
Environmental Compliance Certificate or Certificate of Non-Coverage Applications
- Laws and regulations related to property acquisition and resettlement
¾ Philippine Commonwealth Act 141 or Public Land Act(1936): Prescribes a twenty-meter
strip of land reserved by the government for public use, with damages being paid for
improvements only.
¾ Article III, Section 9, Bill of Rights of the 1987 Philippine Constitution: Private property
shall not be taken for public use without just compensation.
¾ RA 6389 (1971）：Provides for disturbance compensation to agricultural lessees equivalent
to 5 times the average gross harvest in the last 5 years.
¾ Executive Order (EO) 621 (1980) and EO 113 (1995): Prescribes that national roads shall
have an ROW width of at least 20m in rural areas which may be reduced to 15 meters in
highly urbanized areas.
¾ Memorandum Order (MO) 65, Series of 1983: Easement and quit claim
¾ EO 1035 (1985): Provides procedures and guidelines for the expeditious acquisition by the
government of private real properties or rights thereon for infrastructure and other
government development projects
¾ RA 8974 (2000): An act to Facilitate the acquisition of right-of-way, site or location for
national government infrastructure projects and for other purposes
¾ Department Order 5 (DPWH Order), Series of 2003: Creation of the Infrastructure
Right-Of-Way IIROW) and resettlement Project Management Office (PMO) and the
implementation of the improved IROW process.
¾ Several basic principles and operational policies for resettlement adopted by Asian
Development Bank (ADB) and World Bank are used by the DPWH.
5-2. Guidelines and manuals
- EIS System
5
¾ MC (Memorandum Circular) 2001-01: Guidance on the Implementation of DAO 2000-05,
Scope of the EIS Programmatic Compliance Policy
¾ MC 2002-15: Scope and Guidelines for the Imposition of Fines and Penalties under the
Philippine EIS System
¾ MC 2003-21, Part 1 & Part 2: Environmental Impact Assessment (EIA) Review Manual
¾ MC 2004-001: Non-requirement of Barangay and/or local government unit Endorsement
and Locational Clearances for CNC Applications
¾ MC 2004-002: Non-requirement of Barangay and/or local government unit Endorsement
and Locational Clearances for CNC Applications
¾ MC 2004-04: IEE Checklist for Economic Zone Enterprises
¾ MC 2005-01: Procedural Manual for DENR Administrative Order No. 30 Series of 2003
(DAO 03-30)
¾ MC 2005-06: Guidelines for the Institution of the System of MEIC (Mandatory
Environmental Insurance Coverage)
¾ MC 2005-07: Environmental Performance Report and Management Plan (EPRMP)
Checklist for Economic Zone Enterprises
¾ MC 2005-21: Supplemental Guidelines to MEIC
¾ MC 2006-01: Suspension on the Implementation of the MEIC
¾ MC 2006-03: IEE Checklist for Wind Energy Projects
¾ MC 2006-05: Clarificatory Guidelines in the implementation of DENR Administrative
Order No. 30 Series of 2003, IRR for the PEIS
¾ MC 2007-01: Environmental Impact Assessment (EIA) Review Manual
¾ MC 2007-02: Revised Procedural Manual for DAO 03-30. DENR. Aug. 2007
- Property acquisition and resettlement
¾ Infrastructure Right-Of-Way (IROW) Procedural Manual (01 April, 2003) prepared by
DPWH
¾ Land Acquisition, Resettlement and Rehabilitation Policy (LAEEP), 3rd Edition (2007)
prepared by Environment & Social Services Office (ESSO), DPWH
5-3. Procedures and requirements for environmental impact assessment
Environmental Management Bureau (EMB), a subordinate organization of Department of
Environment and Natural Resources (DENR), is the supervisory authority for the whole EIA process.
Requirement of incorporating environmental and social considerations in project planning was
formally instituted with the establishment of the Philippine EIA system under the PD 1586 issued in
1978. Proponents of Environmentally Critical Projects (ECPs) and those located in Environmentally
Critical Areas (ECAs) are required to examine impacts of the projects on the environment, and
secure an Environmental Compliance Commitment (ECC) from the President or his/her duly
authorized representative. A Certificate of Non-Coverage (CNC) is issued for a project that is not
covered by the EIS system, which is judged after examination of a submitted Project Description
Report (PDR) by EMB.
There are 158 types of project listed in the project grouping matrix from the latest version of
Procedural Manual for the Philippine EIA System (revised in August 2007). The proposed project
may be categorized as “Group V – Unclassified Projects” according to the manual. For this group,
project proponent (DPWH) needs to submit a PDR as an interim documentary requirement. This
project may be covered or non-covered by the EIS System, which is subject to EMB Review of the
PDR. The outcome of review will be a recommendation on the final EIS report type to be submitted
as basis for issuing a CNC or ECC. Table 1 shows, for reference, EIA report types and certificates
that are required for construction of minor irrigation dams (not sabo dams), bridges and roads
pursuant to the manual. There are 12 ECAs that EMB has defined. Table 2 shows the listing of
ECAs.
For infrastructure development projects of DPWH, Environment and Social Services Office
(ESSO), a subordinate section of DPWH, prepares EIA reports (e.g. PDR, Initial Environmental
Examination or IEE, EIS) and provide technical guidance and support in land acquisition.
Flowcharts of the EIA process and land acquisition are summarized in Fig. 4 and Fig. 5,
respectively.
6
Table 1 Required EIA report type, certificate and maximum time to grant or deny application for ECC/CNC for the
construction of irrigation dam, bridge and road
Max. time
Category/
1 Certificate to grant or
Project site Group pursuant
Project EIA report type required 3 deny
(ECA/ Project size to the project
component required (CNC/ application
Non-ECA) grouping
ECC) (working
matrix2
days)
Construction ECA Reservoir flooded area II (Non-ECP) Initial Environment ECC 60 days
of irrigation < 25 hectares or Minor dam Examination (IEE)
dam Water storage capacity Report (IEER)1
< 20 million m3 IEE Checklist (IEEC) 1 ECC 30 days
Non-ECA Ditto III (Non-ECP in PDR (optional) CNC 15 days
a Non-ECA)
Construction ECA Length < 80m II PDR ECC 15 days
of bridge Minor bridge
Non-ECA Length < 10km III PDR (optional) CNC 15 days
Construction ECA Length ≧ 2km II IEER1 ECC 60 days
of access IEEC 1 ECC 30 days
road ECA Length < 2km II PDR ECC 15 days
Non-ECA Length with no critical III PDR (optional) CNC 15 days
slope < 20km, or
Length with critical
slope < 10km
Source: EMB (2007) Revised Procedural Manual for DAO 03-30.
1
EMB will advise DPWH about which EIA report type, IEER or IEER, is appropriate.
Table 2 Listing of Environmentally Critical Areas (ECAs)
No. List of ECA Categories
1 All areas declared by law as national parks, watershed reserves, wildlife preserves, sanctuaries
2 Areas set aside as aesthetic potential tourist spots
3 Areas which constitute the habitat of any endangered or threatened species of Philippine wildlife (flora and fauna)
4 Areas of unique historic, archaeological, or scientific interests
5 Areas which are traditionally occupied by cultural communities or tribes
6 Areas frequently visited and/or hard-hit by natural calamities (geologic hazards, floods, typhoons, volcanic activity, etc.)
7 Areas with critical slopes
8 Areas classified as prime agricultural lands
9 Recharged areas of aquifers
10 Water bodies characterized by one or any combination of the following conditions: tapped for domestic purposes; within the
controlled and/or protected areas declared by appropriate authorities; which support wildlife and fishery activities
11 Mangrove areas characterized by one or any combination of the following conditions: with primary pristine and dense
young growth; adjoining mouth of major river systems; near or adjacent to traditional productive fry or fishing grounds;
areas which act as natural buffers against shore erosion, strong winds and storm floods; areas on which people are
dependent for their livelihood.
12 Coral reefs characterized by one or any combination of the following conditions: With 50% and above live coralline cover;
Spawning and nursery grounds for fish; Act as natural breakwater of coastlines
Source: EMB (2007) Revised Procedural Manual for DAO 03-30.
7
Fig. 4 Summary flowchart of the EIA process (source: Revised Procedural Manual for DAO 03-30)
8
Project Identification
Feasibility Study
Infrastructure Right-Of-Way (IROW) Action Plan Preparation
EIS System
(Environmental Impact Assessment)
Update IROW Action Plan Based on Result of Detailed Design
Conduct of Parcellary Survey
Relocation of Public Utilities
Preparation of Land Acquisition Plan and Resettlement Action Plan (LAPRAP)
Turnover of IROW IROW Acquisition IROW Acquisition Expropriation
through Donation through Purchase through Deed of (if owner does not
Exchange accept offer)
Preparation of Deed
of Absolute Sale
Transfer of Title/Tax
Declaration
Clearing of Structures along the ROW
Clearing of Other Improvements along the IROW
Clearing of Perennial Trees along the ROW
(A “Permit to Cut” from DENR needs to be acquired.)
Preparation of IROW Completion Report
Processing of Title Documents
Fig. 5 Summary flowchart of land acquisition by DPWH (drawn from Infrastructure
Right-Of-Way Procedural Manual. DPWH. 2003).
6. Analysis of alternatives and selection of construction sites for sabo dam
6-1. Alternative improvement schemes of Pontod River and Hubangon River
Sabo dams cannot control flooding while it can control the debris flow. Therefore, in the
process of concept formation of the proposed project, an overall idea of the best flood control for
Pontod River and Hubangon River was discussed within the study team. Two alternative
improvement schemes for the flood control were selected. One is “Independent River Scheme” that
completely separates two river flows by constructing dikes between two rivers (Fig. 6). The other is
“Unified River Scheme” that unifies two rivers by introducing the river course of Pontod River into
Hubangon River with a new channel that is constructed across a settlement area of Capagong (Fig.
6).
