IMPROVING INSTITUTIONAL COORDINATION FOR

PLANNING AND MANAGEMENT OF FLOODS IN THE SALUG

VALLEY AREA (MUNICIPALITIES OF MOLAVE, MAHAYAG
AND TAMBULIG), ZAMBOANGA DEL SUR PROVINCE,
THE PHILIPPINES

By

PATRICK AJUNO SESAY

Submitted to the
School of Urban and Regional Planning
University of the Philippines
Diliman, Quezon City

In Partial Fulfillment of the Requirements for the Degree of

MASTER OF SCIENCE IN REGIONAL DEVELOPMENT PLANNING

Jointly Awarded by
The University of Dortmund, Germany
The University of the Philippines Diliman

November 2007

ii
 LETTER OF ENDORSEMENT

November 5, 2007

Dr. Candido A. Cabrido, Jr.

Dean
School of Urban and Regional Planning
University of the Philippines
Diliman, Quezon City
PHILIPPINES

Dear Dean Cabrido:

This refers to the thesis of Mr. Patrick Ajuno Sesay entitled, “Improving Institutional
Coordination for Planning and Management of Floods in the Salug Valley Area
(Municipalities of Molave, Mahayag and Tambulig), Zamboanga del Sur Province,
Philippines”, in partial fulfillment of the requirements for the degree of Master of
Science in Regional Development Planning.

This study serves as a significant guide for agencies such as the disaster coordinating
councils, NGOs, Civil Society Organizations as well as community volunteers with
reference to their roles in the planning and management of floods in pre-, actual and post-
flood phases for risk reduction. In line with this, three improved flood planning and
management schemes are devised for efficient and effective coordination of concerned
agencies in the three phases. Moreover, recommendations suggested in the study would
help towards an effective and efficient flood reduction planning and management system
in the study area.

In view of the above, I am pleased to transmit to you the thesis of Mr. Sesay, highly
recommending its endorsement.

Very truly yours,

Dr. Jun T. Castro

Adviser

iii
 APPROVAL SHEET

The thesis entitled “Improving Institutional Coordination for Planning and

Management of Floods in the Salug Valley Area (Municipalities of Molave,
Mahayag and Tambulig), Zamboanga del Sur Province, Philippines”, prepared and
submitted by Mr. Patrick Ajuno Sesay in partial fulfillment of the requirements for the
degree of Master of Science in Regional Development Planning, is recommended for
acceptance.

DR. JUN T. CASTRO

Thesis Adviser

Recommended for acceptance as partial fulfillment of the requirements for the degree of
Master of Science in Regional Development Planning.

DR. MARIDETH R. BRAVO

Director of Graduate Studies

Accepted as partial fulfillment of the requirements for the degree of Master of Science in
Regional Development Planning.

DR. CANDIDO A. CABRIDO, JR.

Dean

iv
 THE THESIS COMMITTEE

Dr. Jun T. Castro

(Thesis Adviser)
Associate Professor
School of Urban and Regional Planning
University of the Philippines Diliman

Dr. Mario R. Delos Reyes

(Reader/Critic)
Associate Professor
School of Urban and Regional Planning
University of the Philippines Diliman

Dr. Katrin Weiß

(Reader)
Faculty Member
Faculty of Spatial Planning
University of Dortmund
Germany

v
 THE THESIS ORAL DEFENSE PANEL

D. Jun T. Castro
(Adviser)
Associate Professor
School of Urban and Regional Planning
University of the Philippines Diliman

Dr. Mario R. Delos Reyes

(Chair)
Associate Professor
School of Urban and Regional Planning
University of the Philippines Diliman

Prof. Carmelita R.E.U Liwag

(Member)
Assistant Professor and SPRING Coordinator (Philippines)
School of Urban and Regional Planning
University of the Philippines Diliman

vi
 DEDICATION

This thesis is dedicated to my mom and dad, who painstakingly nursed and prepared me

to become what I am today. You are absolutely special to me. Thank you very much for

the total love, compassion, unlimited support and the guide you always give me. Thank

you once again and may God always be with you!

vii
 ABSTRACT

It has been noted that floods are the most common and widespread of all natural

disasters, besides fire. Flood disasters account for about a third of all natural disasters in

terms of frequency and economic losses. While it is impossible to minimize their

frequency, it is not impossible to reduce their impact if appropriate flood planning and

management schemes are employed.

The Philippines’ exposure to natural disasters is noteworthy due to its geographical

and physical characteristics. The frequency of these disasters seriously affects the

country’s economic growth. The formation of Disaster Coordinating Councils (DCCs), in

conformity to Presidential Decree (P.D.) 1566, as the major agencies to prepare for and

respond to tragic situations serves as a pointer to this, although their effectiveness are still

in question. Despite the existence of DCCs, there is a perceived lack of coordination

among these councils with other line agencies, as well as with Non Governmental

Organizations (NGOs) and Community-Based Organizations (CBOs) in the planning and

management of floods in the Salug Valley Area of Zamboanga del Sur.

viii
 In line with the above, the study therefore aims to assess the overall efficiency and

effectiveness of both public and private institutions involved in the planning and

management of floods in the study area, with the ultimate aim of proposing schemes for

improved institutional coordination among DCCs, line agencies, NGOs and CBOs in the

three phases of flood management (i.e., pre-, actual-, and post- phases).

The study was carried out in the Salug Valley – an area which is highly vulnerable to

flooding. Twelve (12) municipalities in three provinces constitute the valley area - nine

(9) municipalities in Zamboanga del Sur; two (2) in Misamis Occidental and one (1) in

Zamboanga del Norte. However, the study was limited to the three (3) municipalities of

Molave, Mahayag and Tambulig in Zamboanga del Sur only. These municipalities were

identified as the most flood-prone areas in the valley, and there was an urgent need to

establish a highly competent and effective planning and management system for floods,

given the high vulnerability of this area to flooding.

As evidenced by the results of the surveys, there is low coordination among the

government line agencies, DCCs, NGOs and CBOs. Assessment of institutional

coordination among agencies involved in the planning and management of floods in the

study area reveals conclusively that the overall level of efficiency and effectiveness is

48% at the pre-flood phase, 33% at the actual-flood phase, and only 27% at the post-

flood phase.

ix
 Three existing flood planning and management schemes; one for each phase were

investigated using Key Informant Interviews and questionnaire surveys. Three planning

and management schemes for flooding were then designed for each phase. While the

three existing schemes were designed based on facts obtained from the surveys, the

proposed schemes were devised based on the flaws and inadequacies that characterized

the existing situation. In formulating the improved schemes, the role and responsibilities

of concerned agencies were given high attention.

The proposed pre-flood planning and management scheme addresses the level of

coordination in a bid to execute efficient and effective functions among agencies

involved in the planning and management of floods. It helps agencies to coordinate

healthily with community volunteers, CBOs and NGOs so that early warning and

preparedness against flood hazard can be satisfactorily executed through the conduct of

trainings and the institutionalization of appropriate mitigation measures.

An approach to setting up a Flood Management and Operation Center (FLODMOC)

in a secured position close to the affected area is suggested in the proposed actual-flood

planning and management scheme. FLODMOC recommends that the concerned agencies

should coordinate with NGOs, CBOs and community volunteers with regards rescue,

x
evacuation and recovery operations; immediate mitigation measures; provision of food

and non-food items, including medical facilities; and safety measures.

The proposed scheme for improved post-flood planning and management, on the

other hand, suggests the relocation of FLODMOC to the affected barangay office where

coordination of redevelopment activities such as permanent shelter, rehabilitation of

critical life-giving services (i.e. water, electricity, communication, etc.), psycho-spiritual

services and livelihood programs for affected communities takes effect.

Additionally, the study suggests that the level of flood risk and vulnerability in the

area can be appreciably used as a basis to fortify the level of coordination among the

concerned agencies, such as the Disaster Coordinating Councils, Non-Governmental

Organizations, Community-Based Organizations and community volunteers.

Recommendations on how to enhance flood preparedness, rescue and evacuation

operations and redevelopment in the planning and management of floods are also

suggested in a bid to temper down flood risk in the study area.

Patrick Ajuno Sesay

Approved by:

Dr. Jun T. Castro

Adviser

xi
 ACKNOWLEDGEMENT

The different forms of assistance received from different sources, in order to ensure a

successful completion of this study, are acknowledged. Most profound thanks and

gratitude go to Dr. Jun T. Castro and Dr. Mario R. Delos Reyes for their guidance and

direction through all the stages of this study. Their absolute concern is highly appreciated.

The former is indeed completely resourceful as far as this study is concerned. Thank you

very much.

To Prof. Carmelita R.E.U Liwag, I say ‘bravo!’ for the patience exercised and the

time taken in editing this document. She deserves more than absolute ‘thank-you’ for her

advices, which really make me feel at home. I would also like to acknowledge Dr. Katrin

Weiß of the University of Dortmund, Germany for her helpful suggestions during my

thesis progress report.

A very special note of thanks goes to the dean of the School of Urban and Regional

Planning, Dr. Candido A. Cabrido, Jr., for the advices he gave me on the way forward

with my thesis during my presentation in the school’s Research Forum. His guide was

brilliant and worth mentioning.

xii
 Thanks are extended to colleagues in the SPRING/SURP Joint Program, for their

patience and understanding through this period.

Appreciation is also extended to the head of the Provincial Social Welfare and

Development Office (PSWDO), Zamboanga del Sur, Mrs. Conchita A. San Diego, and

her assistant , Mrs. Melani M. Aragon for the significant role they played in making sure

that I contacted the target respondents and for supplying me with substantial secondary

data. Also worthy of thanks are the Municipal Social Welfare and Development Officers

in Molave, Mahayag and Tambulig; Mr. Junavs of the Salug Valley Development

Council for their relentless support during the data collection process.

To my family and wife, Mrs. Rebecca Sesay, I extend my most profound

appreciation for giving me the support and encouragement I needed during my studies.

Finally, I thank the Church Development Service (EED) in Bonn, Germany, for

funding my studies, including this research. I also appreciate their understanding and care

through all my difficult times since my studies in Germany. I am proud being an EED

Scholar.

xiii
 TABLE OF CONTENTS

LETTER OF ENDORSEMENT........................................................................................ iii

APPROVAL SHEET .............................................................................................................
THE THESIS COMMITTEE ................................................................................................
THE THESIS ORAL DEFENSE PANEL.............................................................................
DEDICATION.......................................................................................................................
ABSTRACT………………............................................................................................. viii
ACKNOWLEDGEMENT ................................................................................................ xii
TABLE OF CONTENTS................................................................................................. xiv
LIST OF TABLES.......................................................................................................... xvii
LIST OF FIGURES ....................................................................................................... xviii
LIST OF ACRONYMS ................................................................................................... xix

CHAPTER 1
INTRODUCTION ...............................................................................................................1
1.1 OVERVIEW OF THE NATURE OF FLOOD PROBLEMS..................................1
1.2 STATEMENT OF THE PROBLEM .......................................................................6
1.3 OBJECTIVE OF THE STUDY ...............................................................................7
1.3.1 Specific Objectives .............................................................................................7
1.4 SIGNIFICANCE OF THE STUDY.........................................................................8
CHAPTER 2 ................................................................................................................13
REVIEW OF RELATED LITERATURE .........................................................................13
2.1 BACKGROUND ...................................................................................................13
2.2 DEFINITION OF FLOOD AND FLOOD-RELATED CONCEPTS ...................14
2.3 APPROACHES TO FLOOD MANAGEMENT ...................................................19
2.4 SCHEMES FOR PLANNING AND MANAGEMENT OF FLOODS.................27
2.4.1 Scheme for Planning and Management of Floods in China .............................27
2.4.2 Scheme for Planning and Management of Floods in Bangladesh ....................30
2.4.3 Disaster Management in the Philippines...........................................................32
CHAPTER 3
RESEARCH METHODOLOGY.......................................................................................38
3.1 CONCEPTUAL FRAMEWORK ..........................................................................38
3.2 ANALYTICAL FRAMEWORK...........................................................................41
3.2.1 Phase I: Secondary Data Gathering .................................................................41
3.2.2 Phase II: Design of Survey Questionnaire ........................................................43
3.2.3 Phase III: Actual Data Collection .....................................................................44
3.2.4 Phase IV: Data Analysis ...................................................................................47
3.2.5 Phase V: Drawing Up Recommendations and Conclusions .............................47

xiv
CHAPTER 4
DESCRIPTION OF THE SALUG VALLEY AREA .......................................................48
4.1 GEOGRAPHICAL CHARACTERISTICS OF SALUG VALLEY......................48
4.1.1 Topography, Slope, and Erosion.......................................................................52
4.1.2 Morphological Features ....................................................................................54
4.1.3 Climate..............................................................................................................56
4.1.4 Hydrology .........................................................................................................57
4.1.5 Vegetation .........................................................................................................57
CHAPTER 5
FLOOD DATA ANALYSIS .............................................................................................59
5.1 PROBLEMS IN DISASTER MANAGEMENT IN THE PHILIPPINES.............59
5.2 FLOOD PRONE AREAS IN SALUG VALLEY AREA......................................60
5.3 POPULATION DENSITY AND FLOOD REDUCTION PLANNING AND .....70
MANAGEMENT.........................................................................................................70
5.4 FLOOD CONTROL PROJECTS ..........................................................................72
5.5 RECENT AND MOST DAMAGING FLOOD IN THE AREA...........................77
5.6 IDENTIFIED AREAS FOR POSSIBLE RESETTLEMENT ...............................79
CHAPTER 6
ASSESSMENT OF INSTITUTIONAL COORDINATION.............................................82
IN THE SALUG VALLEY ...............................................................................................82
6.1 INTRODUCTION .................................................................................................82
6.2 EXISTING PRE-FLOOD PLANNING AND MANAGEMENT SCHEME OF
INSTITUTIONS ....................................................................................................82
6.3 PRE-FLOOD PLANNING AND MANAGEMENT ASSESSMENT ..................87
6.4 PROPOSED PRE-FLOOD PLANNING AND MANAGEMENT SCHEME FOR
IMPROVED INSTITUTIONAL COORDINATION...........................................99
6.5 EXISTING ACTUAL-FLOOD PLANNING AND MANAGEMENT SCHEME
OF INSTITUTIONS ............................................................................................104
6.6 ACTUAL-FLOOD PLANNING AND MANAGEMENT ASSESSMENT .......108
6.7 PROPOSED ACTUAL-FLOOD PLANNING AND MANAGEMENT SCHEME
FOR IMPROVED INSTITUTIONAL COORDINATION.................................118
6.8 EXISTING POST-FLOOD PLANNING AND MANAGEMENT SCHEME OF
INSTITUTIONS ..................................................................................................122
6.9 POST-FLOOD PLANNING AND MANAGEMENT ASSESSMENT .............125
6.10 PROPOSED POST-FLOOD PLANNING AND MANAGEMENT SCHEME
FOR IMPROVED INSTITUTIONAL COORDINATION.................................134

xv
CHAPTER 7
CONCLUSIONS AND RECOMMENDATIONS ..........................................................138
7.1 CONCLUSIONS..................................................................................................138
7.2 RECOMMENDATIONS.....................................................................................142
BIBLIOGRAPHY............................................................................................................148
APPENDICES .................................................................................................................151
APPENDIX I
PROFILE OF KEY INFORMANTS ...............................................................................151
APPENDIX II
TEMPLATE OF KEY INFORMANT INTERVIEW QUESTIONNAIRE ....................152
APPENDIX III.................................................................................................................156
QUESTIONNAIRE SURVEY ........................................................................................156
APPENDIX IV: SALUG VALLEY WATERSHED AREAS .......................................161

xvi
 LIST OF TABLES

Page
Table 1 Global Loss of Life by Geophysical Events, 1945 - 1986......................................4
Table 2 Some of the More Significant Floods - Damages and Human Casualties..............9
Table 3 Number of Respondents for Study........................................................................46
Table 4 Salug Valley River Branches……………………………………………………50
Table 5 Slope Distribution in the Valley (In Hectares) .....................................................53
Table 6 Erosion Susceptibility (In Hectares) .....................................................................54
Table 7 Stream Order and Frequency ................................................................................55
Table 8 Vegetation Cover Status .......................................................................................58
Table 9 Area Flooded by Municipality…………………………………………………..64
Table 10 Barangays Prone to Hazards in Mahayag ...........................................................65
Table 11 Major Rivers in Study Area ................................................................................68
Table 12 Population Density of Salug Valley Area...........................................................71
Table 13 Flood Control Infrastructure ...............................................................................73
Table 14 Existing and Proposed Projects...........................................................................76
Table 15 Frequency of Planning Meetings ........................................................................88
Table 16 Training Programs ..............................................................................................91
Table 17 Evacuation Route Plan........................................................................................94
Table 18 Spacious Temporary Shelter...............................................................................95
Table 19 Functional Barangay Disaster Operation Center ................................................95
Table 20 Overall Assessment of Institutional Coordination at Pre-flood Phase ...............97
Table 21 Search and Rescue Operation ...........................................................................110
Table 22 Funds for Actual Flood Disaster.......................................................................111
Table 23 Emergency Transport and Communication System .........................................112
Table 24 Sufficient and Capable Workforce ...................................................................114
Table 25 Overall Assessment of Institutional Coordination at Actual-flood Phase ........116
Table 26 Livelihood Programs........................................................................................127
Table 27 Links with NGOs and CSOs.............................................................................129
Table 28 Mitigation and Prevention Actions ...................................................................130
Table 29 Renovation of Significant Life-giving Services ...............................................131
Table 30 Overall Assessment of Institutional Coordination at Post-flood Phase............132

xvii
 LIST OF FIGURES

Figure 1 Conceptual Framework ………………………………………………………39

Figure 2 Analytical Framework ………………………………………………………...42
Figure 3 Sample Distribution by Municipality …………………………………………45
Figure 4 Location of Zambonga del Sur ………………………………………………..48
Figure 5 Zamboanga del Sur in Relation to Neighboring Provinces …………………...49
Figure 6 Map of Salug Valley Municipalities of Zamboanga del Sur ………………….51
Figure 7 Flood-Prone Area in the Valley……………………………………………… 62
Figure 8 Barangays Prone to Natural Hazards in Molave ……………………………...65
Figure 9 Barangays Prone to Natural Hazards in Tambulig …………………………...66
Figure 10 Network of Rivers …………………………………………………………...69
Figure 11 Salug Valley Programs/Projects …………………………………………….74
Figure 12 Flood Control Projects ………………………………………………………75
Figure 13 Identified Resettlement Areas …………………………………………...…..81
Figure 14 Existing Pre-flood Planning and Management Scheme of Institutions…. . ...86
Figure 15 Early Warning Signal ………………………………………………………..89
Figure 16 Sources of Early Warning Signal ……………………………………………90
Figure 17 Funds for Pre-Diaster ………………………………………………………..93
Figure 18 Reserve Medicines for Emergency ………………………………………….96
Figure 19 Overall Assessment of Institutions at Pre-flood Phase ……………………...98
Figure 20 Proposed Post-flood Planning and Management Scheme ………………….103
Figure 21 Existing Actual-flood Planning and Management Scheme of Institutions ...107
Figure 22 Evacuation Equipment ……………………………………………………..109
Figure 23 Coordination with Other Agencies …………………………………………113
Figure 24 Emergency Medical services………………………………………………..115
Figure 25 Overall Assessment of Institutions at Actual-flood ………………………..117
Figure 26 Proposed Actual-flood Planning and Management Scheme ……………….121
Figure 27 Existing Post-flood Planning and Management Scheme of Institutions…...124
Figure 28 Resources for Trauma, Psychosocial Problems …………………………....126
Figure 29 Funds for Post-flood Disaster ……………………………………………...128
Figure 30 Overall Assessment of Institutions at Post-flood Phase ……………….......133
Figure 31 Proposed Post flood Planning and Management Scheme ……….…………137

xviii
 LIST OF ACRONYMS

AFP - Armed Forces of the Philippines

BDCC - Barangay Disaster Coordinating Council

CBO - Community-Based Organizations

CLUP - Comprehensive Land Use Plan

CSO - Civil Society Organizations

Dep-Ed - Department of Education

DENR - Department of Environment and Natural Resources

DILG - Department of Interior and Local Government

DND - Department of National Defense

FLODMOC - Flood Management and Operation Center

HLURB - Housing and Land Use Regulatory Board

IFRCRCS - International Federation of the Red Cross and Red Crescent Societies

LGC - Local Government Code

LGU - Local Government Unit

MAO - Municipal Agriculture Office

MDCC - Municipal Disaster Coordinating Council

MEO - Municipal Engineering Office

MHO - Municipal Health Office

MSWDO - Municipal Social Welfare and Development Office

MTO - Municipal Treasurer’s Office

NIA - National Irrigation Administration

xix
NGO - Non-governmental Organisation

OCD - Office of National Defence

OPA - Office of Provincial Agriculturist

PAGASA - Philippine Atmospheric, Geophysical and Astronomical Services

Administration
PDCC - Provincial Disaster Management Council

P..D. - Presidential Decree

PHIVOLCs - Philippine Institute of Volcanology and Siesmology

PIA - Philippine Information Agency

PNRC - Philippine National Red Cross

PROVET - Provincial Veterinarian

PSWDO - Provincial Social Welfare and Developemnt Office

RDCC - Regional Disaster Coordinating Council

SARIS - Salug Valley Irrigation Sytem

SPRING - Spatial Planning for Regions in Growing Economies

SURP - School of Urban and Regional Planing

SVDC -Salug Valley Developemnt Council

WCDR -World Confernece on Disaster Reduction

xx
xxi
 CHAPTER 1
INTRODUCTION

1.1 OVERVIEW OF THE NATURE OF FLOOD PROBLEMS

Floods are part of the dynamic variation of the hydrological cycle, the basic causes of

which are climatological. Among the factors that cause floods are the nature of the terrain

which generates the runoff (e.g. geology, soil type and vegetation cover); the antecedent

conditions as well as the stream networks characteristics (e.g. storage capacity, channel

length); and channel characteristics like channel roughness and shape (Ward, 1978). The

latter tend to be related to characteristics of the terrain so that steep catchments are

associated with narrow rivers with low storage capacity. Many of the most catastrophic

floods are then associated with the intense rainfalls that result from hurricanes, cyclones

and typhoons, particularly when this rainfall occurs on a steep catchment.

Floods have a number of measurable characteristics, including flood depth or stage,

discharge (i.e. volume) or magnitude, frequency (usually estimated as a return period or

recurrence interval), duration, velocity, extent and seasonality.

Measuring the world’s flood problem presents many difficulties because of

deficiencies in the quality of statistics, increased reporting of events over time and many

1
other factors. Neatly presented data sets may appear to be consistent and precise but the

underlying data collection processes may be unreliable. Data on flood effects is also

prone to political manipulation in order to secure aid. The following data and the

conclusions drawn from them should therefore be treated with caution.

Flood disasters are among the world’s most frequent and damaging types of

disaster (IFRCRS, 1998). During the latter half of the 20th century, floods were the most

common type of geophysical disaster, generating over 30% of all disasters between 1945

and 1986 as shown in Table 1 (Glickman et al, 1992). These estimates are corroborated

by more recent data from Munich Reinsurance for the period 1986-1995 (United Nations,

Department of Humanitarian Affairs (UNDHA, 1997). Glickman et al (1992) indicate

that globally, flood disasters are about the third most harmful form of geophysical

disaster in terms of loss of life. Earthquakes and tropical cyclones kill more people than

any other geophysical disaster type, but in the 1986-1995 period, floods appear to have

caused more deaths than any other geophysical disaster type according to Munich

Reinsurance (UNDHA, 1997). For this period, Munich Reinsurance (1997) reports that

55% of deaths (367,000 people) were caused by flooding. Swiss (2000) gives an estimate

of 55,360 as the number of deaths caused by flooding in 1999, of which 20,000 have died

in the mudfloods and landslides in Venezuela alone.

2
 Floods are ranked slightly lower when the definition of disaster is broadened to

include civil strife, drought and famine (which are all excluded from the data of

Glickman et al., 1992). Data from IFCRCS (1998) reveal that between 1972 and 1996,

earthquakes, droughts, famines and high winds killed more people than floods. However,

the same data reveal that floods affect the lives of more people (an average of 65.87

million per annum between 1972 and 1996) over the same period than any other disaster

type, including drought and famine. The average annual number of people made

homeless by floods between 1972 and 1996 was also the highest for any disaster type

(3.36 million). In addition, the annual average number of people injured by floods (21,

874) was the second highest for any type of disaster. All available estimates of the

regional distribution of loss of life by disaster type reveal that all disasters, including

flood disasters, are ubiquitous, and that both have a markedly skewed distribution with by

far the highest reported deaths occurring in Asia. Because of economic growth in parts of

Asia, recent estimates of average annual flood damage for the 1987-1996 period reveal

that the entire region’s flood damage losses now exceed those of the Americas and

Europe (IFCRCS, 1998). In North America, the number of flood-related deaths is

comparatively low, averaging 89 per year over the period 1988-97 (US Army Corps of

Engineers, 1998a) but the per capita and total economic losses appear very high because

of high standards of living and high values at risk.

3
 Table 1 Global Loss of Life by Geophysical Events, 1945 - 1986
Deaths per
Type of Disaster Number of Deaths (in
Disaster
Disasters thousands)
Meteorological

Flood 395
244 618
Tropical cyclone 2 907 (1 072)
272 (271) 791 (291)
Other storm 212
28 131
Heat wave 23
5 223
Cold wave 15
4 275
Geological

Earthquake 191 (189)

1 198 (388) 6 272 (2 053)
Volcanic eruption 27
40 1 494
Tsunami 7
3 271
Other

Landslide 85 25 295
Fire 40
6 157
Total
1,267 (1,264) 2,343 (1,033) 1,849 (837)
Source: Glickman, et al., (1992)

Numbers in parenthesis exclude the three worst disasters. It is difficult to identify

trends in the frequency and impacts of disasters such as floods. The United States is

probably the country where the most thorough analyses have been performed. Two trends

4
appear in the reported flood loss data for the United States: (i) loss of life has been

reduced significantly during the 20th century and appears to have been constant for a

number of years; and (ii) the monetary value of property losses and other economic losses

has been steadily increasing. However, the escalation of flood losses in the United States,

as possibly elsewhere, may not be particularly significant because, relative to the Gross

National Product of the country, economic losses from floods appear to have held

constant over the past 50 years (Wooley, 1986).

Another way of scaling the world’s flood problem is to examine estimates of the

number of people and properties located (or exposed) in flood-prone areas. Unfortunately,

there is no comprehensive global or even national data bank to draw upon for such data.

However, some estimates have been produced for a small number of countries revealing

widely varying proportions of total country populations which are flood-prone. These are

3.5% in France, 4.8% in the United Kingdom, 9.8% in the United States, over 50% in the

Netherlands and 80% in Bangladesh (Parker, 1996).

Individual floods can cause significant losses to the economic capacity of a

country; the costs of replacing damaged or destroyed infrastructure may absorb the

resources that would otherwise be available for economic or social development.

Governments and individuals may alternatively have to borrow heavily to fund these

replacements and repairs. The extent of these losses is difficult to measure, not least

5
because the standard national accounting model, Gross Domestic Product (GDP), is

subject to a number of well-known defects (Mishan, 1967). The basis of the GDP

measure is equivalent to a form of double entry book-keeping; for every credit, there is an

equal and opposite debit and vice versa. The effect is to minimize the apparent effect of a

flood on the national economy in most instances; the construction of 500 schools will

appear in the same way whether these are to extend educational provision or to replace

schools destroyed in a flood.

1.2 STATEMENT OF THE PROBLEM

Flooding in low-lying areas are attendant phenomena which pose threat to human

settlements, agricultural land and infrastructures. While the Western Mindanao region is

not within the typhoon zones of the Philippine Archipelago, sections of the region

including the province of Zamboanga del Sur are occasionally affected. But the big rains

associated with the southwest monsoon generally induce flood occurrence in the province

particularly in the northeastern portion, the Salug Valley area. The estimated worth of

properties and agricultural products lost and/or damaged due to flooding and inundation,

including damages on vital public infrastructure and facilities would run hundreds of

million pesos. Damage to roads and bridges may only cause minor direct economic losses

but could effectively isolate barangays/towns for days and, therefore, could disrupt a

number of socio-economic activities of the affected populace.

6
 Irrespective of the existence of the disaster coordinating councils at the national,

regional, provincial, city/municipal and barangay levels, the coordination of institutions,

both public and private, in disaster management remains questionable. The effectivity of

these agencies has not reached its peak as of today. However, it is hoped that with

improved institutional coordination and understanding of the physical

attributes/conditions in the area, problems related to flooding in the area would be

adequately dealt with. Hence, the question: How can institutional coordination for flood

risks reduction planning and management be enhanced?

1.3 OBJECTIVE OF THE STUDY

The main objective of the study is to assess the existing institutional coordination

between the public and private sectors for planning and management of floods in the

Salug Valley Area (Municipalities of Molave, Mahayag and Tambulig) and to devise

flood risk reduction planning and management schemes for enhanced institutional

coordination in pre-, actual and post-flood planning and management phases.

1.3.1 Specific Objectives

The following are the specific objectives of the study:

1) Identify the types of hazards common in the Salug Valley Area, Zamboanga del

Sur Province;

7
 2) Determine the highly vulnerable areas which are prone to natural hazards,

specifically flooding;

3) Assess the resources and/or facilities (such as logistics, equipment, funds and

trainings) utilized in flood risk management in the area;

4) Find out the overall efficiency and effectivity of all agencies/departments involve

in flood planning and management; and,

5) Devise improved schemes for public and private institutional coordination at pre-,

actual and post-flood planning and management phases.

1.4 SIGNIFICANCE OF THE STUDY

Throughout the world, floods are inflicting substantial damage year after year.

According to the statistics of the International Red Cross Organization, the average

number of people who have suffered from flood damage during the period from 1973 to

1997 amounts to more than 66 million a year. This makes flooding the worst of all

natural disaster causes (including earthquakes and droughts). The average number of

flood victims for the five-year period from 1973 to 1977 was 19 million and has escalated

sharply to 111 million from 1988 to 1992 and still further to 131 million for the 1993 to

1997 five-year period. The average death toll per year has been recorded as

approximately 7,000 people for the last 25 years. In 1998 alone, this figure came

reportedly close to 30,000.

8
 The damages related to flood are direct and indirect. Deaths of people and animals,

damage to houses and properties, standing crops, damage to physical infrastructures, etc.

may be the result of direct consequence of floods. Others like, change in ecosystem,

spreading of diseases, etc. may be the indirect damages due to floods.

Table 2 Some of the More Significant Floods - Damages and Human Casualties
Date Country/Region Total Losses (US$ -M) Deaths
1421 Holland 100,000
1530 Holland 400,000
1642 China 300,000
1887 Yellow River, China 900,000
1900 Galveston, Texas, USA 5,000
1911 Yangtze River, China 100,000
1931 Yangtze River, China 145,000
1935 Yangtze River, China 142,000
Jun-Sept,1998 India, Bangladesh,Nepal 5,020 4,750
May-Sept,1998 China 30,000 4,100
Oct-Dec,1997 Somalia _ 1,800
Jul-Aug,1997 Europe 5,900 110
Jun-Aug,1996 China 24,000 3,048
Jul-Aug,1995 North Korea 15,000 68
Jan-Feb,1995 Europe 3,500 28
3-10Jan,1995 USA 1,800 11
4-6Nov,1994 Italy 9,300 64
20-31Dec,1993 Europe 2,000 14
20-28Sept,1993 Europe 1,500 16
Jun-Aug,1993 USA (Mississippi) 16,000 45
Jun-Sept,1993 China 11,000 3,300
sept-Oct,1992 India 1,000 1,500
May-Sept,1991 China 15,000 3,074
Source: UNESCO Report, 2002

Floods are the most common and widespread of all natural disasters, besides fire. They

are also the number one related killer. Flood disasters account for about a third of all

9
natural disasters (by number and economic losses). They are responsible for over half of

the deaths associated with all such disasters.

The estimates of damages by floods given here are estimates in the pure sense of

the word (Table 2). It is very difficult to calculate the damages from floods in-terms of

numerical values due to its widespreadness and also due to the fact that many of the

damages (e.g. ecological damages, human pain, suffering, deaths and distress, etc.)

cannot be directly expressed in terms of monetary values. Floods form one of the most

important parts of today’s world’s natural disasters and there is an increasing trend in the

resulting damages and deaths due to it.

The Philippine lies along the western Pacific Basin, the world’s busiest typhoon belt.

The country is hit by several typhoons each year. Coastal and extended swamp areas are

prone to floods and storm surges during typhoons.

The country has also its episodes of human-made disasters such as urban fires, air,

land and sea mishaps, and complex emergency, mostly in Southern Philippines because of

the secessionist movement, coupled with its vulnerability to floods and other natural

hazards. From 1970 to 2000, the Philippines incurred an average annual damage of PHP

15 Billion or US$ 300 Million due to disasters which have caused major setback in the

country’s socio-economic development. In 2004, the country experienced twenty-five

10
(25) weather disturbances, four of these occurring successively in November and first

week of December and brought massive landslides and flooding in Southern and Central

Luzon.

In a study by the World Bank looking at the Comprehensive Disaster Risk

Management for East Asia and the Pacific Region, particularly for the Philippines, the

following issues were identified: 1) Disasters are being dealt within manners that are ad-

hoc and response-oriented; 2) Information on disaster risk is lacking and measurement of

socio-economic impact of disasters is inadequate; 3) National Disaster Coordinating

Council (NDCC) members and Local Government Units (LGUs) have limited risk

reduction capacities; 4) Efforts by donors are poorly coordinated and generated little

effects; and, 5) the Government bears majority of the cost of disasters.

The main recommendation that emerged from this study was that the Government of the

Philippines needed to develop a national framework for a comprehensive disaster risk

management that should provide for political leadership and policy support at the highest

levels, while facilitating the active engagements and implementation of all relevant

stakeholders at the national, local, and household levels, and incorporate the three

essential steps of integrated risk management, which include risk identification, risk

reduction and risk sharing.

11
 Therefore, appropriate planning and management for minimization of risks and

damages before flood disaster occurs are absolutely necessary to put in place. Flood

planning and management personnel should be engaged based on their competence and

performance levels to match up with the challenges faced during flood disasters. There is

therefore the need for an integrated and coordinated approach to flood planning and

management in order to decrease not just immediate damages but to avert the cause for

further damages as well.

12
 CHAPTER 2
REVIEW OF RELATED LITERATURE

2.1 BACKGROUND

This study concentrates specifically on analyzing the public and private institutional

arrangement for the planning and management of floods. Admittedly, quite a significant

number of diverse researches had been done on flood reduction planning, management

and control, flood risk management, community-based flood response and mitigation

measures, etc., but this study focuses on the institutional coordination aspect, involving

the public and the private sectors. Much has been learnt from the creative flood

prevention efforts of poor communities in developing countries. Prevention policy is too

important to be left to governments and international agencies alone. To succeed, it must

also engage civil society, the private sector and the media (Annan, 1999). This

underscores the very vital and dominant role the private sector should take if flood risk

reduction management is to succeed.

In a session organized as a part of the World Conference on Disaster Reduction

(WCDR, January 2005, Kobe, Japan), a number of interesting viewpoints were put forth.

Prominent among them are: 1) that the private sector plays both vital and varied roles in

emergency management. In fact, it is not an exaggeration to state that the contributions of

businesses in mitigation, preparedness, response, and recovery activities have been totally

underestimated; 2) that the private sector interacts frequently with the public sector to

13
fulfill necessary community disaster functions. Therefore, the lines between the public

and private sectors appear to be disappearing, blurring, or even artificial; 3) that the public

sector relies heavily upon the goods and services provided by the private sector. Many

functions, such as public information, debris removal, and emergency medical care, could

not be adequately performed without the assistance of the private sector. Hence, this

study also similarly reflects towards the same direction but in the framework of the

Philippines. As such, the chosen relevant literature should suit in this set-up.

This chapter is structured into three components. The first component treats on the

definitions of flood and flood-related concepts, the second deals with the four generation

approaches towards flood management; the third is on the various flood planning and

management schemes in different countries; and the fourth deals with the current disaster

management system in the Philippines.

2.2 DEFINITION OF FLOOD AND FLOOD-RELATED CONCEPTS

Researchers need accurate, explicit definitions of concepts in order to discuss,

search for or identify the consequences of any particular phenomenon. The term "flood"

and its related concepts are no exceptions. Therefore, the researcher of this study

adopted the definitions by varied scholars, agencies, etc, given that definitions of a

particular concept vary from one person to the other or from one agency to the other.

14
i) Flood

The National Weather Service Forecast Office, USA, defines flood as an overflow

of water onto normally dry land. The inundation of a normally dry area caused by rising

water in an existing waterway, such as a river, stream, or drainage ditch; ponding of

water at or near the point where the rain fell. The agency went further saying that

flooding is a longer term event than flash flooding; it may last days or weeks.

A flood is described as a great flow of water; a body of moving water; the flowing

stream, as of a river; especially, a body of water, rising, swelling, and overflowing land

not usually thus covered; a deluge; a freshet; an inundation (http:

//www.brainyquote.com//). The ‘E-Look Online Dictionary’ describes flood as the rising

of a body of water and its overflowing onto normally dry land.

Flood can be stated as an hydrological event characterized by high discharges and or

water levels which lead to inundation of land adjacent to streams, rivers lakes wetlands,

and other water bodies caused by and/or exacerbated by intense or long-lasting rainfall,

snowmelt, dam break, earthquake, landslides, ice jams, high tides, storm surges and

different human related operational failures (UNESCO report, 2002).

In brief, based on the aforementioned definitions, a flood could generally be defined

as the overflow of water in waterways which poses risk to mankind.

15
 ‘Flood’ is a relative concept and varies amongst cultures and individuals in its

perception and understanding. In Bangladesh, for example, a division is drawn between

the ‘flood’ that is the normal seasonal inundation of a floodplain to which traditional

settlement and land use is well adapted, and ‘floods’ which represent abnormal or

unwanted flooding that causes loss (Paul, 1984). The latter might be referred to as an

‘extreme event’, although technically an extreme event is simply a phenomenon which

differs substantially from the mean. Approximately 80% of the land area of Bangladesh

comprises river floodplain. Here, in contrast to many parts of the world, ‘flooding’ is a

normal environmental condition to which people have become adapted and which

provides much needed soil moisture for crop growth on which people depend. ‘Normal’

flooding is therefore a resource for Bangladeshi cultivators and one to which they look

forward, whereas ‘floods’ are threatening, damaging and entirely unwanted. What would

be called a flood in Britain or Germany is not perceived as a flood in Bangladesh. But

Gateley (1973) points out that, even in Britain, a flood is a relative concept because

individuals living in various parts of a floodplain have different understanding of what

constitutes a flood to them. Rivers are also cultural constructs because people’s

perceptions of them, and the values they associate with them, vary enormously from

culture to culture and within the same culture. Some may perceive of rivers as places to

dispose of waste, whilst others perceive them as sacred places or places to be reserved for

wilderness and the preservation of ecosystems in which human intervention should be

limited.

16
 Floods occur due to various reasons ranging from excessive rainfall to climate

change and ocean earthquakes resulting in tsunami waves. Floods have consequences for

a wide range of structural, economic, social and environmental factors.

ii) Flood Management

Flood management is a collective noun for a series of activities following

sustainable development principles, aimed at the harmony between man and nature,

normalizing flood control and operation activities into a rational approach, enhancing

self-resilience capacities, and accepting a certain risk in moderation to utilize floodwater

as a resource and help to improve the water environment. Flood management is to strive

for the most favorable possibility through effective improvement and operation of all

related flood prevention and mitigation systems under a series of uncertainties. It should

be stressed that the measures to minimize the flood damages may not always bring the

best impacts in political, social, economic and ecological aspects.

To limit the damages resulting from floods, it is necessary to have the knowledge of

factors resulting in flood generation, estimation of flood discharges, flood hydraulics,

possible consequences of flooding, rainfall-runoff processes, its receiving environment,

etc. to help in acquiring the above information on flood and to limit the flood damages,

we should have the knowledge on water movements at different conditions. This will

help us in predicting the magnitude and the behavior of floods and consequently will help

17
in limiting the damages due to floods. Flood management requires an integrated approach

and needs inputs from wide ranging population and specialists.

iii) Flood Hazard

Flood hazard is the threat to life, property and other valued resources presented by a

body of water which might rise and flow over land that is not normally submerged.

Central to the concept of flood hazard is the notion that a hazard is an ever-present

condition which periodically leads to harm. This ever-present condition is likely to vary

in intensity since many types of floods are characterized by seasonality in which during

the flood season the hazard is more intense. A crucial part of the concept of a flood

hazard is the interface between floods and people. A flood is not hazardous unless

humans are somehow affected. This is taken further by Hewitt (1983) when he states that

a hazard refers to the potential for damage that exists only in the presence of a vulnerable

human population. The concept of vulnerability is central to an understanding of flood

hazards and to the definition of the appropriate management response and is explored

further below.

18
2.3 APPROACHES TO FLOOD MANAGEMENT

Approaches to flood management have changed over time. Thus, there is the need

also to constantly re-assess the management approaches adopted and to transfer

knowledge from one country to another. Too often however rather than knowledge

transfer taking place, the approach developed in the context of one country has simply

been transposed to another country. Historically, four different approaches to flood

management have succeeded each other.

i) Indigenous Flood Adaptations Approach

Communities which have occupied flood-prone areas for many generations have

typically developed usually small-scale, local adaptations to make them more resilient to

flood hazards and disasters. For example, in the floodplain kampungs (i.e. traditional

villages) of Malaysia, houses are constructed on stilts to raise them above anticipated

flood levels and the use of small boats is common. Similar adaptations to floods may be

found throughout South-East Asia along rivers, in river estuaries and along coastlines. In

Bangladesh not only are some dwellings deliberately constructed on higher ground, but

some are dismantled in times of flood and moved to the top of earthen flood

embankments. In addition, the agricultural economy is adapted to flooding through, for

example, the use of flood-tolerant rice crops and the use of boat-craft instead of roads

since these and bridges may be washed away. These are just a few examples of the

19
numerous indigenous adaptations to flood problems which are used by those who have

lived and worked for generations in flood-prone areas.

In the early stages of the evolution of flood management strategies, these local

adaptations may be the only, or the dominant, form of flood management. These

indigenous approaches are often relatively effective in rural areas as long as exceptional

floods are not encountered when numerous lives, dwellings and possessions may be lost.

Experience suggests that as modernization takes place (i.e. through urbanization and

economic growth) indigenous approaches are eroded (Chan and Parker, 1996).

Flood embankments were part of these indigenous approaches; communities

banding together to construct dike systems, partly in order to convert wetlands to arable

land. Such actions started quite early and were widespread over Western Europe (Wagret,

1967), these systems being constructed and maintained through a system of Common

Property Resource Management (Ostrom, 1990). Conversely, it has been argued

(Wittfogel, 1957) that the large scale works of the Middle East and Asia were the

consequence of strong central governments.

ii) Flood Control and Defense, and ‘Efficient’ Rivers

The second generation approach, characteristic of the late 19th and most of the 20th

century, was the ‘engineering’, a scientifically rational approach to river management. It

20
was often marked by state promotion of structural (i.e. large-scale engineering) measures

but many of the works of this type were undertaken by provincial or local government, or,

as in Hungary, by associations of local land owners (Vituki, 1998). The philosophy was

strongly rational: rivers being ‘trained’ or ‘improved’ to become efficient and to stop

floods interfering with human activity. There was a strong emphasis on building flood

embankments designed and constructed to engineering standards, constructing flood

relief channels and sometimes constructing a series of flood control dams. The emphasis

in this approach was to control the river and to prevent floodwater entering communities

located in flood prone areas. The language used reflects this struggle to make rivers

efficient servants of human purposes: floods were to be ‘controlled’ and ‘defenses’ to be

prepared against floods.

Unfortunately, structural approaches have a number of disadvantages, including

flood control structures that may encourage further floodplain development; flood

embankments may be only partly effective in exceptional floods (i.e. they may be

overtopped or breached); structural approaches may have adverse or damaging

environmental consequences (Brookes, 1988; Purseglove, 1988); perverse impacts on

downstream areas (making their flood problems worse); and flood control may only

address a part of the problems which cause flood disasters (i.e. flood control does not

address people’s vulnerability to flood hazards).

21
iii) Non-Structural Approaches

The third phase was the advocacy of ‘non-structural’ approaches. Although these

were originally proposed as part of an integrated strategy for the good management of

floodplains (White, 1945, 1964), the ‘non-structural’ options frequently came to be

offered as an alternative to the traditional engineering solutions. Whereas the second

phase defined the problem as the rivers, and the solution being to keep the rivers away

from the public, non-structural approaches were argued on the basis that the public

should be kept away from the rivers. Rather than engineering the rivers so as to be

efficient, the approach centered upon making people behave. Not uncommonly non-

structural analyses implied that people should not be on the floodplain in the first place;

and, if they insisted upon occupying the floodplain, they should bear the consequences of

their choice.

Non-structural approaches include small-scale ‘structural’ modifications of

individual buildings (designed-in or retrofitted adaptations) and measures designed to

move people away from floods. The vision is one of deliberately designing and planning

communities that are adapted to floods in a variety of ways. Thus, planning controls may

be proposed to prevent the spread of communities onto the floodplains. Planning controls

that seek to ensure that new buildings are flood-proofed against some design standards,

flood are also typical of the non-structuralist approach. Flood-proofing (which is a

planned approach to modifying buildings to make them more resilient to flooding) builds

22
upon indigenous flood adaptation approaches and this may be promoted, as may

improved flood forecasting and warning schemes to allow people and property to be

evacuated from a flood-prone area in advance of a flood. There may also be an effort to

encourage the purchase of flood insurance. In extreme cases, the entire communities or

parts of communities have been moved from flood-prone to flood-free land.

This third wave was characterized by the same optimism as the second wave of

approaches. Non-structural approaches were generally assumed to offer an alternative to,

and to be a replacement for, traditional engineering approaches and there was insufficient

recognition of the difficulties of making the approaches actually work, or of the

preconditions necessary for them to work. Thus, for example, in the early part of this

century, only engineering options were available: land use planning, for example, being a

concept that only started to be applied in the middle of this century. Until a land use

planning system has been effectively established, it cannot be extended to cover the

control of development on flood plains.

iv) Holistic Approaches

The original idea behind the non-structural approach was expressed in the terms of

‘coping with floods’ or ‘living with floods’; holistic approaches may be seen as a return

to this original idea.

23
 Critical evaluation of the successes and failures of the non-structural strategies and

the recurrence of exceptional and highly damaging floods have led to a variety of

strategies (and not a single strategy) that are based upon a more holistic approach to

addressing the basic causes of floods and flood disasters. This emerging approach talks in

terms of ‘flood alleviation’, and ‘flood mitigation’, rather than in terms of flood control,

and of ‘flood hazard management’ or ‘flood risk management’. The concept of

sustainable development (ACC/ISGWR, 1992; United Nations, 1992) is one of the

drivers of this emergent approach, in particular, the requirement to think about the

catchment as a whole, not just in terms of the geographical and functional

interdependencies involved, but also the interrelationships between land and water.

Secondly, the development involves not just economic development but also human

development, including increasing public involvement in decision making. It also

includes the emphasis on intra-generational, as well inter-generational, equity often

missed when the Brundtland definition of sustainable development (World Commission

on Environment and Development, 1987) is quoted.

It is also more critical and less optimistic than either of the previous two waves. It is

now becoming clear that in the United States, although some past investments in flood

control structures proved to be wise, many structural and non-structural strategies have

failed to be sufficiently effective, and that the ‘non-structural’ model of flood

management, so strongly advocated in the United States, requires rethinking (Changnon,

24
1996; Mileti 1999; Myers and Passerini, 2000). It requires rethinking because of its

inadequacies in the United States and because of its poor applicability to many other

world regions.

Two examples illustrate the emerging holistic analysis. The first is the advocacy of

source control approaches to flood management (Gardiner, 1994). In rapidly urbanizing

catchments in particular, the driving force behind growing flood discharges and

worsening flood hazards is development, not just in the floodplain but everywhere that it

is occurring in the catchment. Urban development results in permeable natural surfaces

being replaced by artificial impermeable ones so that runoff accumulates more

completely and rapidly in stream and river channels rather than infiltrating into the soil

and percolating into the groundwater. Sources of flood flows are thus everywhere where

development is occurring and it is here that runoff retarding and flood storage measures

are required. A whole-catchment planning approach is required. The second example

stems from analysis of the causes of floods particularly in the less developed regions of

the world where lack of access to resources, to education and to decision-makers, and

poverty generate a vulnerability amongst people which makes them particularly

vulnerable to floods, exacerbating the lasting effects of these events (Blaikie et.al, 1994).

This analysis leads to the view that floods and other hazards need to be addressed

systemically through stimulating social and economic development rather than only

through flood alleviation schemes: a ‘sustainable livelihoods’ approach. Thus, developing

25
a mechanism for extending low-cost loans to those of low economic status may be the

kind of strategy which holds the best promise for the future in terms of making people

more resilient to the effects of floods. The approach adopted should be stakeholder-

driven.

This emergent approach leads to an emphasis on:

• holistic catchment and coastal zone management;

• the wise use of floodplains and coastal zones (not necessarily moving out of

them);

• empowering local communities to make choices about land development and

flood alleviation);

• reducing the impacts of humans on the environment, promoting flood disaster

resilience (Handmer and Dovers, 1996);

• valuing and preserving the best of indigenous adaptations; on improving local

capacities to respond; and,

• addressing problems of intra and inter-generational equity (e.g., dealing with

poverty and lack of access to resources as a means of addressing flood

vulnerability).

26
2.4 SCHEMES FOR PLANNING AND MANAGEMENT OF FLOODS

The structural scheme for implementation, institutional coordination and

supervisory agencies vary from one country or region to the others. Politics also play a

determinant role on the nature of these systems. In this study, an analysis of various

schemes in varied countries is done to find a suitable scheme that would fit well in the

situation of the Philippines.

2.4.1 Scheme for Planning and Management of Floods in China

In China, the governments at different levels are responsible for organization

of flood fighting and relief work after flood disasters. Flood management operational

schemes are planned and agreed upon by all the parties concerned through a long process

of negotiation and discussion; and then approved by government at different levels

depending upon the size and importance of the project. There is a mechanism for conflict

resolution through negotiation, with government at higher-level ruling on the conflict in

case mutual agreement cannot be reached.

The Ministry of Water Resources (MWR) discharges the responsibility of a unified

management of water resources of the country. There are seven major River Basin

Commissions, which are the arms of the MWR to perform the function of water

administration in the river basins. They play an important role in a unified management

27
of water resources of the basins, coordinating flood and drought protection, mediation of

water disputes, etc. As for the water affairs within a province, it is the responsibility of

the provincial governments.

The institutional system in the water sector has been established from the MWR as

the highest level down to the water resources station that refers to the glassroot level

(township) water administration. The MWR is widely distributed in rural areas playing an

important role linking the rural community with the government. The station not only

acts as a technical body but also as the media for consultation with the rural people on

local water issues.

The Water Resources Bureaus are the water administration departments of the local

government, which assume the responsibility of planning, development and management

of water resources within their jurisdiction under the direct supervision of the local

government. The local water resources management agencies comprise four levels, i.e.

the country, province, prefecture, and the village (town). They are responsible for local

water administrative management within their respective jurisdictions.

The Flood Proofing and Drought Defying Headquarters (FPDDHQ) mechanism

ensures the mobilization of all the necessary resources and sound operation of the flood

control systems throughout the country. The major responsibilities of FFDDHQ are: (i)

28
establishment of the flood forecasting and warning system; (ii) formulation of flood

operation schemes and conduction of real time operations; (iii) mobilization of all parties

concerned with the participation of armed forces and people to fight against flood; and,

(iv) preparation and supply of materials including the transportation facilities needed for

flood fighting.

During flood events, many governmental agencies are involved and share a

responsibility in accordance to their mandate. The coordination of operations during the

flood period is handled by the FFDDHQS.

Women play an active part in political and socio-economic activities in all fields.

The village governing organization, an autonomous body at grassroots level, is legally

represented by women predominately taking care of matters relating to the interests and

welfare of women and children. However, they have been involved in all the social and

economic activities (Zhang Hai-lun, 2005).

A series of Laws and Regulations in the water sector have been enacted since the

1980s. The major ones include the "Water Law" (1988) that was revised in 2002, the

"Law of Flood Control" (1997), the "Law of Soil and Water Conservation" (1991) and

administrative regulations, like the "Regulation of Flood Proofing", "Regulation of River

29
Course Management" and "Guide to Safety Building of Flood Storage and Detention

Basins" etc.

2.4.2 Scheme for Planning and Management of Floods in Bangladesh

In the Bangladesh’s scheme, the principal national institution involved in the flood

management is the Bangladesh Water Development Board (BWDB). About 53 central

government organizations and 13 ministries are identified to be involved in flood and

water management. Besides BWDB, many organizations are also involved in the flood

management activities involved at different stages of flood management. Organizations

and their responsibilities as regards flood management are given below:

• Water Resources Planning Organization (WARPO): Macro planning of water

resources management;

• Bangladesh Water Development Board: Feasibility studies, implementation,

operation and maintenance of flood management projects, real time data

collection for flood forecasting and warning services, dissemination of flood

information at national and regional levels;

• Joint River Commission: Conducts negotiation for data and information exchange

on trans-boundary rivers;

• Bangladesh Meteorological Department (BMD): Long, medium and short range

weather forecasting and dissemination.

30
 • Local Government Engineering Department: Implementation. O&M, of small

scale FCD projects;

• Disaster Management Bureau (DMB): Dissemination of all information on natural

disaster including flood information at community level, flood preparedness

awareness building, etc.

• Directorate of Relief: Conducting relief and rehabilitation operation in flood hit

areas;

• Local Government Institutions (LGI): Implementation and O&M of small scale

flood management project, flood information dissemination, relief and

rehabilitation of flood victims;

• Non-Government Organizations (NGO): Advocacy for flood management, Relief

and Rehabilitation of flood victims.

The JRC and BWDB carry out international and regional data and information

exchange. BWDB disseminates all kinds of flood information to all related government

departments and organizations. Over-all coordination during the flood event is the

responsibility of the Ministry of Disaster Management and Relief and Inter-Ministerial

Disaster Management Committee.

Flood Management has two different aspects, one relating to national water

management and the other relating to national disaster management. Flood management

31
relating to water management at national level is coordinated by the National Water

Council and particularly by the Ministry of Water Resources. Flood management relating

to disaster management is coordinated by National Disaster Management Council

particularly by the Ministry of Disaster Management and Relief. Both activities are also

coordinated at local levels by appropriate bodies.

All the project activities in the water sector are supposed to be coordinated under

NWMP. The National Water Council (NWC) was set up by the government to coordinate

all the various activities of the agencies and departments involved in the water sector.

WARPO has been designated to act as the Secretariat for the NWC. WARPO, BWDB,

RRI and JRC are the line agencies under the Ministry of Water Resources. Coordination

at district level is conducted both bilaterally and muti-laterally. The same is the case at

the national level. All these coordinations are usually guided by the Guidelines for

Participatory Water Management (GPWM).

2.4.3 Disaster Management in the Philippines

The Philippine Disaster Management System (PDMS) is carried out at various

political subdivisions and administrative regions of the country through the National

Disaster Coordinating Council (NDCC); 80 Provincial Disaster Coordinating Councils;

113 City Disaster Coordinating Councils; 1,496 Municipal Disaster Coordinating

Councils, 41,956 Barangay Disaster Coordinating Councils; and, 17 Regional Disaster

32
Coordinating Councils, respectively. The NDCC is the highest policy-making body for

emergency management programs in the Philippines, with the Office of Civil Defense as

its operating arm. The government adopts an all-hazard, comprehensive, inter-

agency/multi-sectoral, community-based approach in the context of poverty alleviation,

environmental sustainability and sustainable development.

Presidential Decree (P.D.) 1566 “Strengthening the Philippine Disaster Control and

Capability and Establishing the National Program on Community disaster Preparedness”,

issued on 11 June 1978 is the country’s basic law on disaster management. It lays down

the policy, institutional and operational framework for the disaster risk management

system in the country. From this legal mandate, the National Calamities and Preparedness

Plan (NCPP) approved in 1983 was revised and issued in August 1988 together with the

implementing rules and regulations to PD 1566.

a) Disaster Management at the Local Government Unit Level in the Philippines

Local dynamic leadership is a significant feature in well-coordinated relief operations.

This point takes an added significance in the light of the implementation of Local

Government Code (LGC) of 1991. The Code mandated that disaster relief and

rehabilitation efforts are the responsibility of the local government units, especially the

provinces.

33
 The LGC of 1991, or Republic Act 7160, decentralized the power of resource

allocation from the central government to the municipal or even community level for

development and disaster relief. The LGC established an unprecedented legal provision

for the allocation of disaster funding by the municipal and community levels. Sections

287 and 324d mandated a 5% allocation for disaster relief from a 20% development

budget taken from the annual Internal Revenue Allotment (IRA).

As a whole, Presidential Decree 1566 set forth the policy framework for disaster

response in the country. It lays down the policy, institutional and operational framework

for the disaster management system in the country.

b) Policy and Institutional Framework

The policies, as set forth in Section 1 of P.D. 1566, Declaration of Policy, are

summed up below (ADPC, 2001):

i) Disaster management, particularly disaster preparedness and emergency

operations is to be pursued with a heavy emphasis on ‘self-reliance’, ‘self-

help’ and ‘mutual assistance’.

ii) Maximum utilization of resources at every politico-administrative level is

enjoyed before assistance is sought from higher levels; primary responsibility

for disaster management is placed upon agencies of the government;

34
 iii) The exercise of leadership responsibilities is expected from the local

government executives (governors, mayors, barangay captains);

iv) The main role of national government is to provide support to the local

government units;

v) Both planning and actual operations are to be carried out ‘…in an inter agency,

multi-sectoral basis to optimize the utilization of resources’; and,

vi) Every agency of government is directed to prepare its disaster preparedness

plan.

P.D. 1566 provides for an inter agency, multi-sectoral body for planning,

monitoring and coordinating the direct implementation of programs and projects relative

to disaster management in the country. As per P.D. 1566, setting up of disaster

coordinating councils and disaster operation centers from the national through the

regional, provincial, municipal down to the barangay level are mandated. Below are the

structures of disaster coordinating councils:

c) National Disaster Coordinating Council (NDCC)

Under the Calamities and Disaster Preparedness Plan, the NDCC exercises control,

through the Office of Civil Defence, and over all emergency operations, from the

regional down to the barangay level. The NDCC is the highest policy making,

coordinating body at the national level for disaster management. It is responsible for

35
advising the President ‘on the status of the national disaster preparedness program,

disaster operations and rehabilitation efforts undertaken by the government and the

private sector’ (P.D. 1566). The NDCC is the recommending body to the President on the

declaration of “State of Emergency” and the release of the Calamity Fund.

d) The Provincial Disaster Coordinating Council (PDCC)

This council was set up by the mandate of P.D. 1566, and the Local Government

Code of 1991. It is comprised of the Provincial Governor as Chairperson with

representatives from the private sector. Provincial officials are tasked with varied

emergency roles.

e) Municipal Disaster Coordinating Council (MDCC)

The establishment of the MDCC is mandated by Presidential Decree No. 1566, and

the LGC of 1991. It is composed of the Municipal Mayor as chairperson together with

representatives from the private sector. Municipal staffs are given specific emergency

functions.

f) Barangay Disaster Coordinating Council (BDCC)

Prior to 1991, the Barangay Disaster Brigade was the local institution tasked to

monitor the emergency situation, communicate with the municipal government, receive

relief assistance and facilitate its distribution in cooperation with the “tanods”. The

36
barangay brigade was replaced by Barangay Disaster Coordinating Council (BDCC) in

1991 with clearly defined roles assigned to specific people.

On the whole, the focus of the study is hinged on the institutional coordination

existing between the public and private sectors in the performance of their functions in

relation to flood hazards affecting the Salug Valley Area, using total flood reduction

planning and management schemes for improved institutional linkages at pre-, actual and

post-flood disaster phases.

37
 CHAPTER 3
RESEARCH METHODOLOGY

3.1 CONCEPTUAL FRAMEWORK

Having reviewed various literature of flood reduction planning and management

schemes in diverse countries and regions, the researcher came up with a conceptual

framework for this study as shown in Figure 1. The framework is comprehensive in its

scope delineating the entities involved in flood reduction planning and management in

the study area, viz-a-viz, the public and private sectors. The frame also reflects the

study’s concept of the three phases in flood planning and management, i.e., pre-, actual-

and post flood-disaster. The framework further classified the diverse components to plan

and manage flooding in all its three phases in a bid to alleviate loss of human lives and

damage to property. Pre-flood planning and management goes with mitigation,

preparedness and prevention activities; while actual-flood planning and management

activities are done immediately before, during and after flood hazard impact. This phase

is composed of planning and managing of activities such as, immediate mitigation, safety

and search operation, first aid treatment, emergency communication, evacuation,

temporary shelter, etc. Elements considered in post-flood planning and management

include physical rehabilitation, reconstruction and recovery, psychological rehabilitation

and recovery.

38
 An effective and efficient flood reduction planning and management would be

done through assessment of the components aforementioned and bringing out improved

institutional linkages in the three phases of flood disaster, thereby minimizing flood

hazard impacts.

39
 Institutions

Public Sector Private Sector

Government Line Agencies/ NGOs/CSOs/Community Volunteers,
Departments/LGUs/LDCCs, etc. Individuals, etc.

Pre-Flood Phase Actual-Flood Phase Post-Flood Phase

- Mitigation - Immediate Mitigation - Physical Rehabilitation,
- Preparedness - Safety and Search Reconstruction and
- Prevention Operation Recovery
- First Aid Treatment - Psychological
- Emergency Rehabilitation and
Communication Recovery
- Evacuation
- Temporary Shelter

Assessment of Effectivity of Coordination of Institutions

Pre-flood Phase: Early Warnings, Training Programs, Medical Services, Temporary Shelter, Funds, and Evacuation Route Plans
Actual-flood Phase: Search & Rescue, Funds, Transport and Communication, Coordination, Capable workforce and Medication
Post-flood Phase: Livelihood Programs, Funds, Linkages, Mitigation Measures and Renovation of Critical Life services

Flood Risk Reduction Planning and Management Schemes for Improved

Institutional Coordination in Salug Valley Area

Figure 1 Conceptual Framework

40
3.2 ANALYTICAL FRAMEWORK

The overall research is designed in phases; each phase lends credence to the others.

Phase I to III concentrated on research data collection approaches, the types of survey

instruments used, and the number and categories of samples. Phase IV focused on data

analysis and interpretation, considering all the study variables. Phase V drew conclusions

based on the findings and recommendations set for enhanced coordination among disaster

management actors in the research area. The analytical framework is shown in Figure 2.

3.2.1 Phase I: Secondary Data Gathering

Secondary data was collected in this phase as it is integral in any research.

Admittedly, quite a huge volume of literature has been done on disaster management but

there still remain gaps on how best coordination between the public and private sectors in

disaster management could be enhanced. Therefore, progress reports on activities of both

the public sector (i.e. disaster coordinating councils, LGUs, line agencies, etc.) and the

private sector (i.e. NGOs, POs, CSOs, Community Volunteers, etc.) were reviewed to

find out the coordination status quo between the public and private sectors.

Additionally, the results of Focus Groups Discussion with LGU officers and

Barangay Captains were also gathered during the researcher’s data gathering to update

the Ecological Profiles and CLUPS of the study area municipalities in Zamboanga del

41
Sur Province. This exercise was necessary to recognize the stumbling blocks in

coordination.

Secondary data gathering

Phase I
Identification of hazard pone Coordination status quo between the
areas in Salug Valley public and private sectors

Design of survey questionnaire for local

residents and guide for key informants’
Phase II interview

Closed-ended questionnaire Key informant interviews with the

Phase III survey with barangay local public and private agencies (LDCCs,
residents NGOs and CSOs)

Data analysis and

Phase IV interpretation

Devise of a scheme for enhanced coordination

between the public and private sectors

Phase V

Conclusion and
Recommemdations

Figure 2 Analytical Framework

42
 The total population in each municipality and the population reported as affected by

hazards were obtained from records of different government offices; namely: the

Provincial Social Welfare and Development Office (PSWDO), the Provincial Planning

and Development Office (PPDO), the Salug Valley Development Council, (SVDC), the

Provincial Office of Civil Defense (OSD) and the Municipal Social Welfare and

Development Offices of Molave, Mahayag and Tambulig.

3.2.2 Phase II: Design of Survey Questionnaire

The researcher embarked on designing a survey questionnaire for the target local

barangay residents, and a guide for key informants’ interviews. In the questionnaires for

local residents/settlers in the research area, the following items were included: a) hazard

experienced; b) awareness of the hazard for possible impact; c) preparedness against

natural hazards; d) hazard effect to livelihood, person/bodily injury, and property; e)

capacity to get medical attention and insurance availability f) availability of social

support; g) hazards post impact preparedness; h) coordination between the public and

private sectors. The questionnaire, which is closed-ended, required standardized

responses to ease burden on the side of the respondents as it would require them to just

tick answers to the questions.

Key Informant Interviews (KII) were conducted using open-ended questions and

the respondents included LGUs or government line agencies, NGOs and Community-

43
Based Organizations (CBOs)/Civil Society Organizations personnel as well as individual

persons involved in disaster management activities. KIIs were carried out to collect

pertinent primary data regarding coordination between the public and private sectors in

case of hazard impact or risk reduction. This also included actors’ responsibilities, with

regards variables like planning meetings; sufficiency of communications and

transportation in times of inclement of weather impending disaster; collaboration and

cooperation; capacity building programs, like trainings, etc, post disaster activities, like

relief, recovery and rehabilitation, funds management, and efficiency and effectiveness in

latest disasters in the province.

3.2.3 Phase III: Actual Data Collection

This phase focused on the actual data collection process. For primary data gathering,

two types of survey instruments and fact finding enquiries (close-ended questionnaires

and key informant interviews) were employed.

3.2.3.1 Barangay Constituents Survey

Sample questionnaires were devised and respondents were oriented on how to fill-up

the questionnaires, though they are largely check-in questions. The questionnaire

underwent a simple pre-testing among five respondents and was then revised and used in

the study. For this survey, the questions were organized into three phases: Pre-Disaster,

Actual Disaster and Post Disaster.

44
3.2.3.2 Sample Size

The sampling plan involved a small-scale survey, which was found to be feasible

given the short period available. For each of the three municipalities of Molave, Mahayag

and Tambulig, barangays experiencing hazards were identified and their total population

was obtained. The total number of samples in each barangay was proportionately selected

in “affected” barangays (Figure3). However, it should be noted that not all residents in a

barangay are affected and may affect only a fraction of them. It is also assumed, from

observations, that similarities of conditions (social and physical arrangements) are found

in adjacent barangays.

Sample Distribution by Municipality

25

40 Molave
Mahayag
Tambulig

30

Figure 2 Sample Distribution by Municipality, Zamboanga del Sur

The Salug Valley Area is composed of 12 municipalities but due to time and

resource constraints, the study only concentrated on the three municipalities within

45
Zamboanga del Sur Province which are mostly prone to disasters, particularly flooding.

CLUP reports of the target municipalities were consulted and reviewed to identify the

most hazard-prone barangays. Ultimately, the study selected the three municipalities of

Molave, Mahayag and Tambulig.

3.2.3.3 Key Informant Interviews

Interviews were made with fifteen heads of agencies/departments, both public and

private sectors, involve in disaster management (Table 3). Inter agency/department

coordination, activities, fund management, the degree of successes and failures in relation

to disaster management in all its three phases (pre-, actual and post) were discussed with

them. Key informants of government line agencies, NGOs, CSOs, community volunteers

that were interviewed are shown in Table 3.

Table 3 Number of Respondents for Study

Data Collection Method Informants No. of Persons
1. Key Informants Interviews (KIIs) Office of Civil Defence, DND 1
PSWDO 2
PPDO 1
Provincial Agriculture Office 1
Philippine National Police 1
Philippine Army 1
IPHO 1
Provincial Accountant’s Office 1
MSWDO 2
MDCC 2
CBOs/Civil Organisations 1
NGOs 1
Total KIIs 15

2. Closed- ended Questionnaires Barangay Constituent Survey 95

46
3.2.4 Phase IV: Data Analysis

In this phase, analysis of qualitative and quantitative data was done using MS

Excel and SPSS analytical tools. Descriptive statistical analysis was used in the analysis.

Key informant interviews were conducted in gathering the qualitative data. Such

data were also collected through secondary sources like organizations’ reports.

Qualitative data analysis focused on four components: i) coordination among the actors in

disaster management; ii) the role of the public and private sectors in disaster risk

management; iii) fund management/ sources of funds, and iv) degree of successes and

obstacles in the implementation of disaster management in all its phases.

3.2.5 Phase V: Drawing Up Recommendations and Conclusions

In this phase, schemes for enhanced coordination in pre-, actual- and post-flood

planning and management were devised with reference to the variables considered in this

study. furthermore, recommendations were made and conclusions were drawn based on

the research findings to enhance institutional linkages in the Salug Valley Area.

47
 CHAPTER 4
DESCRIPTION OF THE SALUG VALLEY AREA

4.1 GEOGRAPHICAL CHARACTERISTICS OF SALUG VALLEY

Salug Valley is located in the northeastern part of Zamboanga del Sur Province of

Mindanao Region, Southern Philippines (Figure 4).

Figure 4 Location of Zamboanga del Sur, Philippines

It comprises nine (9) municipalities of Zamboanga del Sur; namely: Aurora, Dumingag,

Josefina, Mahayag, Midsalip, Molave, Ramon Magsaysay, Sominot, and Tambulig; one

48
municipality of Zamboanga del Norte, which is Sergio Osmeña, and 2 municipalities of

Bonifacio and Don Victoriano in Misamis Occidental. There are four (4) major rivers

present; namely: Salug Daku River, Salug Diut River, Dipolo River and Usugan River

with nine (9) tributaries within the Salug Valley Watershed area (Table 4). The

downstream of the area forms a vast alluvial plain, approximately 40 kilometers long and

6 to 7 kilometers wide extending northwest from Panguil Bay. The center municipality of

Salug Valley is Molave, which is accessible via the north coastal road (National Route 7)

connecting with other national roads in Mindanao. Salug Valley in the northwestern

section of Mindanao is bounded by the province of Zamboanga del Sur in northeastern

part, Zamboanga del Norte in the north, Misamis Occidental and Panguil Bay, Lanao del

Norte area in southeastern portion (Figure 5).

Figure 5 Zamboanga del Sur's Relation with Neighboring Provinces

49
 It has a total land area of 288,339.31 hectares comprising the municipalities of

Aurora, Dumingag, Josefina, Mahayag, Midsalip, Molave, Ramon Magsaysay, Sominot

and Tambulig in Zamboanga del Sur, municipality of Sergio Osmeña in Zamboanga del

Norte, and Bonifacio and Don Victoriano in Misamis Occidental (Figure 6).

Table 4 Salug Valley River Branches

River Branches 1) Salug Daku River 2) Dipolo River 3) Usugan River
4) Salug Diut River 5) Libato River 6) Litapan River
7) Dawa River 8) Moradje River 9) Mapurog River
10) Timonan River 11) Guitran River 12) Yabu River

Province/s 1) Zamboanga del 2) Misamis Occidental 3) Zamboanga del

Sur Norte
Municipalities Zamboanga del Sur Misamis Occidental Zamboanga del Norte
1) Aurora 1) Bonifacio 1) Sergio Osmeña
2) Ramon Magsasay 2) Don Victoriano
3) Sominot
4) Midsalip
5) Molave
6) Tambulig
7) Mahayag
8) Josefina
9) Dumingag
Source: Memorandum of Agreement, SVDC, 2001 (Based on the Water Approach)

50
Figure 6 Map of Salug Valley Municipalities of Zamboanga del Sur

51
4.1.1 Topography, Slope, and Erosion

The northern portion of Zamboanga del Sur is hilly and is lined with vast lowlands while

its coastal area is covered with mangrove vegetation. The coastal portion of Bonifacio is

a vast flat land graduating to a rolling hills and rugged mountains towards the interior.

The total area having 0-3 degree slope is about 34,312.81 hectares (11.9%), while 3-8

degree slope is 60,062.28 hectares (20.83%). Dumingag, Tambulig and Mahayag have

vast lowland areas.

The 8-18 degree slopes considered fit for human settlements and agricultural use account

for a total of 58,837 hectares (20.4%). Hilly lands with 18 - 30 degree slopes suitable for

ranching activities or commercial tree crops production comprised 24.63% or 71,007.55

hectares. The remaining 22% are ideal for forest activities (Table 5).

52
 Table 5 Slope Distribution in the Valley (In Hectares)
Lowland Hilly Land Upland
Municipality Total Area %
0-3% 3-8% 8-18% 18-30% 30-50% 50% Up

Aurora 2,490.00 3,778.00 1,927 9,900 - - 18,095.00 6.3

Bonifacio 3,825.00 4,080.00 5,032 369 7,202.0 520 21,028.00 7.3
Don Victoriano - - - - - - - 0.0
Dumingag 4,475.00 20,265.0 3,322 20,022 12,200 1,566 61,850.00 21.5
Josefina - 1,557.00 7,690 487 - - 9,734.00 3.4
Mahayag 7,304.00 14,855.0 2,411 24 4,171.0 - 28,765.00 10.0
Midsalip 2,423.00 3,770.02 10,448 - 12,003 1,230 29,873.71 10.4
Molave 3,205.00 575.00 5,687 10,241.0 1,527.0 451 21,686.00 7.5
R. Magsaysay 1,586.00 2,066.00 1,661 4,953 2,664.0 - 12,930.00 4.5
S. Osmeña 500.00 891.00 15,699 19,011 19,543 - 55,644.00 19.3
Sominot 872.81 964.26 4,077 6,001 1,043.0 - 12,957.60 4.5
Tambulig 7,632.00 7,261.00 883 - - - 15,776.00 5.5
Total 34,312.8 60,062 58,837 71,008 60,353 3,767 288,339.31 100.0
11.90 20.83 20.40 24.63 20.93 1.31 - -
%
Source: Salug Valley Development Framework Plan, 2003 - 2012

Salug Valley is experiencing varying degrees of soil erosion. Of the total land area

of 288,340 hectares, 31.0% is not susceptible to erosion, 27.3% slightly susceptible,

22.8% moderately susceptible and 18.9 is highly susceptible (Table 6).

The municipality of Josefina has the least percentage of area susceptible to erosion.

The eroded areas are mostly found in the municipalities of Bonifacio, Aurora, R.

Magsaysay, Sominot and Dumingag with more than 50% of the areas moderately and

highly susceptible to erosion. The erosions in the area are due to intensive logging and

slash and burn farming methods, thus denuding the area.

53
 Table 6 Erosion Susceptibility (In Hectares), Salug Valley
% to Total
Municipality Area S0 S1 S2 S3
(S2&S3)
Aurora 18,095 5,432 2,355 2,435 7,873 57
Bonifacio 21,028 2,498 2,365 9,510 6,655 77
Don Victoriano - - - - - -
Dumingag 61,850 24,740 6,185 12,370 18,555 50
Josefina 9,734 1,557 7,689.86 487.14 - 5.0
Mahayag 28,765 18,446 6,124 24 4,171 14.58
Midsalip 29,874 6,193 10,448 12,003 1,230 44.30
Molave 21,686 8,279 8,645.0 880 3,882 21.96
R. Magsaysay 12,930 3,653 1,662 4,953 2,662 58.89
S. Osmeña 55,644 8,347 25,039 13,911 8,347 40.00
Sominot 12,958 1,837 4,077 6,008 1,036 54.36
Tambulig 15,776 8,500 4,200 3,076 - 19.50
Total 288,340 89,482 78,790 65,657 54,411 41.64
% 100.00 31.03 27.33 22.77 18.87 -
Source: Salug Valley Development Framework Plan, 2003 - 2012

4.1.2 Morphological Features

a) Average Elevation

The average elevation of the watershed is 349 masl. This was determined by

establishing 5 points in a topographic map wherein each point represents an elevation.

The average elevation indicates that the majority of area encompassed by the watershed

is seemingly flat with respect to its terrain.

54
b) Local Relief

The local relief of the watershed is 2,404 masl. This indicates that the distance from

the headwater to the outlet is quite far and it implies that the shape of the watershed is

irregular.

c) Watershed Shape Factor

The watershed shape factor of Salug watershed unit is 0.52. This implies that the

shape of the watershed is irregular. The ratio value closer to 1 indicates that watershed

shape factor determines the nature of flooding.

d) Stream Order and Frequency/Bifurcation Ratio

The Salug watershed unit belongs to the 5th order stream and there are 531 streams

within the watershed. The bifurcation ratio of the watershed unit ranges from 1.96 to 16.

It indicates whether the drainage pattern is controlled or not by geologic structure of the

watershed area (Table 7).

Table 7 Stream Order and Frequency, Salug Valley

Stream No Frequency Bifurcation Ratio
1 281 1.96
2 143 1.95
3 73 2.28
4 32 16
5 2 -
Source: Salug Valley Proposed Watershed Development and Management Plan,

55
 e) Drainage Density

The drainage density is defined as the length of the stream per unit area in a given

watershed. A total of 2,888.92 km of rivers and creeks are within the 118,931 hectares

watershed. Therefore, the drainage density of the Salug Watershed is 0.02 km/sq.km (i.e.

2,888.92 km / 118,931 km2).

4.1.3 Climate

The climate within the Salug Valley is of type 4 where rainfall is evenly

distributed throughout the year. Rainy season starts in the early part of May and ends in

the latter part of December. Dry season begins in the month of January and lasts until

April except during the occurrence of El Niño and La Niña, which have been experienced

just recently by almost all places in the country. The temperature is relatively warm and

constant throughout the year ranging from 22° C to a maximum of 35° C. The two

prevailing wind direction in the watershed area are the northeast and southwest winds.

Northeast winds is from July to September.

The usual flooding of rivers and streams occur in the months where typhoons are

present. Salug Valley having been located outside the so-called belt area is never been

affected by typhoons. However, whenever heavy downpour of rains occurs, major rivers

that serve as drainage area overflow, which mostly affect and damage agricultural crops.

56
4.1.4 Hydrology

There were four (4) major rivers within the Salug Valley Watershed namely:

Usugan river, Salug Diut river, Salug Dako, and Dipolo river, all draining out to the

Panguil Bay.

Salug and Dipolo rivers provide irrigation system in Salug Valley. Other irrigated

rice lands are provided with water through pumps and shallow tube wells. The sources of

potable water in the lowland portion are springs. Most were developed into Level II and

Level III types of water system. Other areas not reached by said development utilize deep

wells and shallow or artesian wells that are mostly not potable. The upper portion of the

Salug Valley has numerous springs, which serve as drinking water for some households.

4.1.5 Vegetation

The vegetation cover of the area consists of second growth forest, forest plantation,

agricultural crops and open areas/grassland. The percentage of each vegetation cover

varies in different types of the area due mainly to soil condition, accessibility and

vegetable crops. Root crops are dominant in the area (Table 8).

57
 Table 8 Vegetation Cover Status, Salug Valley
Area By Municipality
Area
Name
(In Hectare) AUR DUM JOS MAH MID MOL RM SOM TAM BON SOS

Total Watershed Area 288.077,15 18.095,00 61.849,99 9.734,00 28.574,43 29.874,00 21.686,00 12.929,93 12.886,80 15.775,00 21.028,00 55.644,00

Timberland 100.645,77 2.896,00 32.604,99 0,00 4.171,00 11.393,00 1.441,00 39,93 1.464,85 2.220,00 5.861,00 38.554,00

Old Growth Forest 31.108,00 4.900,00 4.719,00 21.489,00

Logged-Over Forest 15.196,00 11.205,22 256,00 39,93 1.464,85 2.230,00
Brushland 353,71 353,71
22.241,68 623,00 7.107,00 3.581,98 5.438,00 1.441,00 4.050,70
Grassland/Openland
Cultivated Land 21.999,30 511,00 11.704,00 9.784,30
Trees 5.264,08 80,00 2.235,06 333,02 1.055,00 561,00 1.000,00
Mangroves 2.825,00 680,00 2.030,00 115,00
Fishpond 1.658,00 1.002,00 190,00 466,00
A & D Land 187.431,38 15.199,00 29.245,00 9.734,00 24.403,43 18.481,00 20.245,00 12.890,00 11.421,95 13.555,00 15.167,00 17.090,00

Cultivated Land 145.008,82 15.199,00 27.656,50 5.536,00 18.864,26 11.435,00 6.428,50 8.000,00 9.519,56 10.802,00 14.478,00 17.090,00
Rice & Corn 69.959,06 6.071,00 13.483,50 1.314,00 8.811,26 9.189,00 2.168,50 3.053,00 5.219,80 6.604,00 6.800,00 7.245,00
Coconut 39.646,16 9.128,00 1.659,00 1.255,00 3.195,00 659,00 3.538,00 2.698,00 989,16 4.030,00 6.385,00 6.110,00
Palm Oil 1.255,00 1.255,00
Rubber 147,00 53,00 10,00 25,00 59,00
Tree Plantation 9.140,50 8.781,50 40,00 66,00 55,00 27,00 55,00 8,00 93,00 15,00
Others 24.861,10 3.679,50 2.917,00 5.537,00 1.507,00 636,00 2.194,00 3.302,60 168,00 1.200,00 3.720,00
Uncultivated Areas 41.344,56 1.588,50 4.198,00 5.539,17 7.046,00 13.816,50 4.890,00 1.902,39 1.675,00 689,00
Fishpond 1.078,00 1.078,00

Source: MCLUPS, SVDFC, 2003-1212, SEP 2001 Ed.

58
 CHAPTER 5
FLOOD DATA ANALYSIS

5.1 PROBLEMS IN DISASTER MANAGEMENT IN THE PHILIPPINES

The Philippines’ exposure to disasters is to a significant extent due to the country’s

geographical and physical characteristics (CDRC, 1992). It is the world’s second largest

archipelago composed of more than 7,100 islands. It lies along the Western Pacific Basin,

the world’s busiest typhoon belt, with an average of 20 typhoons hitting the country each

year. Coastal and extended swamp areas are prone to floods and storm surges during

typhoons (A. Heijmans, 2001).

The formation of the National Disaster Coordinating Council in 1978 is borne out

of the frequency of occurrences of disasters and its attendant damage to life and property.

The national council was set up to manage disaster mitigation as an advisory and

coordinating body. However, the effectiveness of this council has not realized its target

aim up-to-date. The most plausible reasons are lack of funds and inadequate powers

vested in the council. Additionally, the allocation of calamity fund for relief and

rehabilitation has been decreasing in the past years leaving high dependency on external

relief aid.

59
 It is evident that a system for disaster planning and management exists from national

to the lowest strata of the society, the barangay, but its efficiency and effectiveness with

regard to coordination with other line agencies, both public and private, remain highly

uncertain.

5.2 FLOOD PRONE AREAS IN SALUG VALLEY AREA

Disaster preparedness activities vary from one type of disaster to the other.

Flooding calls for dissimilar preparedness measures as compared to tsunamis. In essence,

it is but fitting to find out the types of disasters as well as disaster-prone areas in order to

be able to provide adequate and appropriate responses to them. The study area, Salug

Valley Area is a lowland area in the Province of Zamboanga del Sur. It is a

predominantly flood-prone area, though also affected from time to time by other hazards

such as landslides and earthquakes. Most of the hazard prone areas are located along the

stretches of the Salug Valley Basin (Figure 7). The hazards common in this area are

floods and landslides, although flooding is the most predominant hazard.

Environmental factors such as climate, hydrology and slope are important for

natural hazards assessment. Rainfall has a great effect on slope stability. During times of

high precipitation in rainy months, soil moisture and pore pressure increase and

resultantly decrease the solid potency of the slope material. Unarrested percolation of

60
surface water adds to the increase in pore water pressure which affects stability of the soil

and rock masses and results in mass movements.

The average amount of annual rainfall in Zamboanga del Sur is 1,216.1 mm.

Having October as the wettest month with 188.8 mm of rain, rainfall is more or less

evenly distributed throughout the year (PAGASA). This heavy rainfall makes the Salug

Valley Area more flood prone, especially during October.

61
 UPLAND AREA

LOWLAND AREA

FLOOD-PRONE AREA
COASTAL AREA

Figure 7 Flood-Prone Area in the Salug Valley

62
 Floods are caused by naturally occurring flash, river and coastal flooding from

intense rainfall or inundation associated with seasonal weather patterns. They can also be

caused by human manipulation of watersheds, drainage basins and floodplains. During

heavy rains, however, the discharges of rivers in the Salug Valley area often flood almost

the entire area. The municipalities with vast lowland areas are prone to flood, which

occasionally occur during rainy season. Flooded areas are the lowland portion of the

municipalities of Mahayag, Tambulig, Molave, R. Magsaysay and Bonifacio (Figures 7).

Other municipalities in the upland are not affected except for some eroded portions. The

lowland area of Aurora is not flooded since the degree of siltation is very high as shown

in Table 9.

In particular, about two thirds of the total rainfall that precipitates in the Salug

catchment basin is collected by the Salug Daku drainage network that encompasses areas

within the Municipalities of Sergio Osmena, Don Victoriano, Josefina, Mahayag,

Molave and Tambulig.

The Dipolo River drainage network that encompasses the municipalities of

Dumingag, Midsalip and Sominot collects the other one third of total rainfall. These two

river systems confluence at Barangays Lower Santo Nino, Dipolo and Switch of the

municipalities of Mahayag, Molave and Ramon Magsaysay.

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 Table 9 Area Flooded by Municipality (In Hectares), Salug Valley
Municipality Total Area Area Flooded Percent Affected
Aurora - - 0
Bonifacio 21,028 1,418 6.7
Don Victoriano - - -
Dumingag 61,850 536 0.9
Josefina #DIV/0!
Mahayag 28,765 5,000 17.4
Midsalip none - #VALUE!
Molave 21,685 1,800 8.3
R. Magsaysay 12,930 1,922 14.9
S. Osmeña 55,644 275 0.5
Sominot #DIV/0!
Tambulig 15,776 4,736 30.0
Total 217,678 15,687 7.206
%
Source: Salug Valley Development Framework Plan, 2003 - 2012

The selection of the three municipalities (Molave, Mahayag and Tambulig) for the

survey is done out of the practical realization that they constitute the most vast portion of

the lowland area which is the most flood-proned. About 36% barangays are prone to

flooding. in Molave (Figure 8). Among them are barangays Dipolo, Culo, Miligan,

Sudlon,

64
 Barangays prone to hazards in Molave

36%
Flood-prone
Landslide-prone
64%

Figure 8 Barangays Prone to Natural Hazards in Molave, Zamboanga del Sur

Makuguihon, Maloloy-on, Blancia, Rizal and Madasigon. In Mahayag, 48% barangays

are flood-prone. These are barangays located in the lowland area. (Table 10). These

include barangays Paguan, Daniel C. Mantos, Poblacion, Lower sto. Nino, Upper Sto.

Nino, San Jose, Balamban, Sta. Cruz, Coger Salud Dako, Kaangayan, Lourmah, San

Isidro, Boniao, Tumapic and Kabul.

Table 10 Barangays Prone to Hazards in Mahayag, Zamboanga del Sur

Hazard Type Percentage
Floods 48
Landslides 52

In Tambulig, 55% barangays are flood-prone (Figure 9). These are barangays located

in the lowland and coastal areas of the municipality. Barangays Kapalaran, San Jose,

65
Coger Usogan, Balogo, Sagrada, Pamilya, San Vincente, Coger Tiparak, Upper Tiparak,

Alang-alang, Dungawan, Balucot, New Village, Happy Valley, Coger Iodiong and

Gabunon are located in highly flood-prone areas of Tambulig.

Barangays prone to hazards in Tambulig

45%
Flood-prone
Landslide-prone
55%

Figure 9 Barangays Prone to Natural Hazards in Tambulig, Zamboanga del Sur

The Salug Valley catchment basin is defined as the total land area that contributes to

the flow of network of rivers, tributaries and creeks within the valley that drains into a

common outlet which is the Panguil Bay. It is a natural system and its boundary can be

located on the ground by connecting all the highest points (ridges) that include mountain

ranges of Mount Malindang in the northeast and the upland areas of Mahayag and

Dumingag. It is defined by an imaginary boundary line along the ridge that separate

rainfall into the Salug Valley versus adjoining catchment areas (e.g. Labangan River

66
Basin, and Sindangan River Basin). The Salug Daku River is the main river that cuts

across the valley originating from Mount Malindang. The Dipolo River is another big

river that serves as one of the tributaries of Salug Daku River. These two river systems

are the main water sources of existing national and communal irrigation systems in the

area (Table 11).

During heavy rains, however, the discharges of these rivers can often flood almost

the entire area, especially within the network of rivers (Figure 10). In particular, about

two thirds of the total rainfall that would precipitate in the Salug catchment basin is

collected by the Salug Daku drainage network that encompasses areas within the

Municipalities of Sergio Osmena Don Victoriano, Josefina, Mahayag, Molave and

Tambulig. The Dipolo River drainage network that encompasses the municipalities of

Dumingag, Mipsalip and Sominot collects the other one third of total rainfall. These two

river systems confluence at Barangays Lower Santo Nino, Dipolo and Switch of the

municipalities of Mahayag, Molave and Ramon Magsaysay, respectively. During heavy

and continuous rain pour it has a damming effect considering that total rainfall discharges

from both the Salug Daku and Dipolo Rivers are impounded and mainly channeled into

just one small outlet – the Salug Gamay River. The situation is aggravated by the fact that

the said major rivers have grown shallow and their discharge flow have become very

slow due to siltation and sedimentation, poorly constructed outlets, and the unregulated

development of new water courses.

67
 Table 11 Major Rivers in the Study Area, Zamboanga del Sur
Traversed Municipalities
Length
Name AU DUM JOS MA MID MOL RM SO TAM BO DO SOS
(Km.)
H M N N
Major River Systems
1. Salug Daku River 50,77 / / / / / /
Tributaries:
a. Litapan River 9,95 /

b. Yabu River 11,50 /

c. Moradje River 10,50 /

d. Dawa River 6,15 /

e. Salug Diut River 19,25 / /

2. Dipolo River 12,46 / / /

Tributaries:
a. Timonan River 24,95 /

b. Guitran River 18,00 /

3. Usugan River 31,58 / /

Tributary:
a. Mapurog River 6,15 /
Total 201,26

Source: Salug Valley Watershed Profiles, SVDC-PMO

68
 One of the Peaks

Network of Rivers

Watershed Outflow
to Panguil Bay

Figure 10 Network of Rivers in the Study Area

69
5.3 POPULATION DENSITY AND FLOOD REDUCTION PLANNING AND

MANAGEMENT

There is the widespread belief that population density has a lot to do with flood

disaster and community resilience. There is an obvious connection between the increase

in losses from a flood disaster and the increase in population. If there are more people

and structures where flooding strikes, then it is likely that there will be more of an impact.

The growth of population has been so spectacular that it is inevitable that more people

will be affected by flooding because more will be forced to live and work in unsafe areas.

Increasing numbers of people will be competing for a limited amount of resources such

as, employment opportunities and land which can lead to conflict. This conflict may

result in crisis-induced migration. According to the Housing and Land Use Regulatory

Board’s (HLURB) standard, a population density of 250 persons per hectare is highly

worthy of an ideal, safe living. If the population is above the specified standard, the

chances of vulnerability to risks increase, consequently. Hence, population also serves as

an indicator in the identification of flood prone areas, in addition to other indicators like

vulnerability to physical environment such as, infrastructures, buildings and environment

of the Salug Valley Areas (Table 12). Taking this standard to play in the context of the

study area, one would assert that population density is not much an alarming cause/issue

with regards population and flood disaster losses, given that the population per land

hectare, study area-wide, is still below the threshold of 250 persons per hectare. Besides,

70
the population in each of the municipalities in the area under study falls significantly

below this threshold.

Table 12 Population in the Salug Valley Area

Population (In Thousand) Percent
Province/Municipality Province Wide/ Within of
Municipal Wide Watershed Total
Zamboanga del Sur 285.3 177.2 62.1%
Aurora 44.8 11.4 25.6%
Dumingag 42.2 27.1 64.4%
Josefina 8.7 8.7 100.0%
Mahayag 42.4 42.4 100.0%
Midsalip 28.9 2 0.9%
Molave 45.0 45.0 100.0%
Ramon Magsaysay 24.2 14.2 58.8%
Sominot 15.7 2.6 16.7%
Tambulig 32.9 25.0 76.0%
Misamis Occidental 37.1 9.2 24.8%
Bonifacio 27.8 7.7 28.0%
Don Victoriano 9.3 1.4 15.5%
Zamboanga del Norte 27.5 6.4 23.5%
Sergio Osmeña 27.5 6.4 23.5%
Total 349.9 192.8 55.1%
Source: Salug Valley Development Framework Plan (SVDFP), 2003

Considering the information given in Table 12 on municipalities within the Salug

Valley, there is all the need for spatial maps showing the hazardous areas based on the

concept of ‘population at risk’ and natural hazards. These spatial maps can be the basis

for further spatial planning that will surely temper down risks of natural hazards,

vulnerability and loss or cost of damages.

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 Therefore, identifying the vital elements of spatial planning is inevitable. In short,

population density has a direct and significant relationship with the level of risk if

flooding occurs. In retrospect of other related studies, this study provides the information

on the population density of the different municipalities in the Salug Valley area in order

to enable disaster management actors realize the level of risks. This will provide the

concerned agencies with the vital information that will help steer which direction of

development to take in the planning process.

5.4 FLOOD CONTROL PROJECTS

Most flood control projects are river control structures that include dikes, dams,

riverwalls, dredged river beds, etc. They are constructed in areas that generally

encompass large tracts of fertile lands protecting river catchments, preserving natural

waterways and minimizing undue encroachment of flood plains. There are nine (9) river

control structures being completed at the municipalities of Aurora, Dumingag, Mahayag,

Midsalip, Molave, Ramon Magsaysay, Sominot, Tambulig and Bonifacio (Table 12).

This implies that LGUs are exerting their efforts in and directing resources towards flood

control ventures in the area. It is evident from the secondary data and the KIIs that the

implementation of flood control projects in the Salug Valley have greatly helped in

mitigating damages meted out by floods before these projects’ physical implementation

in the different locations in the area.

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 As to monitoring and/or predicting floods in the valley, it is admitted that neither

the Provincial Disaster Coordinating Council nor the concerned municipal governments

have established yet more systematic measures to mitigate its adverse impacts. Areas that

are prone to flooding are known, but it is not known how inundated they will be, given

the precipitation rate and amount. While topographic and natural drainage analysis shall

enable one to identify and delineate flood-vulnerable areas, a run-off gauging network is

still required to monitor and determine increasing or decreasing flood risk and forecast

possible extent and frequency of flooding in the Salug Valley area. Such gauging system

is not yet in place in the area.

Table 13 Flood Control Infrastructure

Total Number
Name/Description
of Systems

A. RIVER CONTROL STRUCTURES 9

These include dikes, dams, riverwalls, dredged

river beds, etc. They are cited in areas that
generally encompass large tracts of fertile lands
protecting river catchments, preserving natural
waterways and minimizing undue encroachment
of flood plains.

73
 Salug Valley
PROGRAMS/PROJECTS MAP

Legend:

PIE/Salug Agro-
Industrial Park

Flood Control Projects

SRIPs

Watershed Projects

Road Concreting

Tourism Projects

Figure 11 Salug Valley Programs/Projects

74
 FLOOD CONTROL PROJECTS
Pre-Engineering Works
RIVER CONTROL PROJECT
@ Salug Diut River : 3.5 km RIVER CONTROL PROJECT
Molave, ZDS @ Balugo-SanVicente-S.Familia-
SanJose-Gubaan: 15 Km
Tambulig, ZDS
RIVER CONTROL PROJECT
@ Dipolo Gamay Bridge: 1 Km
Molave, ZDS

DREDGING WORKS
@ BoniGambon Creek: 1 Km
R.Magsaysay, ZDS DREDGING WORKS
@ Balugo-SanVicente-S.Familia-
SanJose-Gubaan: 15 Km
Tambulig, ZDS
Figure 12 Flood Control Projects

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 Table 14 Existing and Proposed Projects, Salug Valley
Proposed
Projects Existing
Priority Alternate
Sustainable Integrated Area Development (SIAD) x

Integrated Water Resources Management (IWRM) x

Community-Based Watershed Management (CBWM) x

Rainwater Management X

Watershed Economics X

Upland Development and Biodiversity Protection x

Reforestation Projects x

SWC Projects x

Source: Salug Valley Strategic Plan, 2001 – 2005; Salug Valley Development Framework Plan, 2003 – 2012;
Watershed Management Plans in Salug Valle

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5.5 RECENT AND MOST DAMAGING FLOOD IN THE AREA

Among the 12 municipalities in the Salug Valley area, about 6 municipalities in the

province of Zamboanga del Sur are prone to flash flooding. During the flooding incident

on August 11, 2001, the hardest hit municipalities include Molave and Tambulig. Other

municipalities which were also considerably devastated are: Ramon Magsaysay, Aurora

and Mahayag; and, the municipality of Bayog in the western part of the province of

Zamboanga Sibugay.

About 74 barangays were affected by the flooding incident. The water rose to as

high as 2 feet within an hour. In particular, Mahayag has the most number of

communities affected totaling 25 barangays representing 34% of total affected barangays;

followed by Tambulig with 19 barangays (6%); Molave with 16 Barangays (22%);

Ramon Magsaysay with 7 barangays (9%); Bayog and Aurora with 6 barangays each

(8%).

As determined by the Provincial Social Welfare and Development Office (PSWDO)

in coordination with their counterparts at the municipal level, the MSWDOs, a total of

6,322 families or 27,397 persons were affected by the flood. There were no reported

injuries and cases of missing persons but five persons died per report given by the

77
Philippine Information Agency (PIA) – 2 adults and 3 children. Twenty-three (23) houses

were heavily damaged, if not destroyed, while about 310 sustained partial damage.

Initial report made by the National Irrigation Administration (NIA) – Salug River

Irrigation System (NIA-SARIS) indicated that about 8,800 hectares of rice lands are

directly affected by the flood; and that about 4,500 hectares (51%) of total irrigated rice

fields with ready harvestable palay were damaged. The Office of the Provincial

Agriculturist (OPA) also corroborated NIA’s report including losses of other crops such

as corn, vegetables, etc. The Provincial Veterinarian (PROVET) likewise reported on

cases of animal deaths, particularly carabaos, cattle, horses, goats, swine, ducks and

chickens. A number of fish ponds located at the lower area (Tambulig and Aurora) were

also reportedly damaged resulting to huge losses on the part of fishpond owners and

bleak livelihood opportunities for the workers. A few physical infrastructure sustained

damages during the flooding. However, one vital infrastructure, the Salug Daku Bridge,

was damaged to the extent that only one vehicle can pass at any given time due to a

sustained damage in the approaches of its abutments, scouring on piers and river banks in

down stream portion caused by surging flood waters. The bridge links the towns of

Mahayag and Dumingag and to the town of Siayan in Zamboanga del Norte.

The NIA-SARIS also reported considerable damages sustained by one of its dam

structures and on several protection dikes located in Mahayag. In addition, several farm-

78
to-market roads and canals/waterways were destroyed; hence, requiring immediate

rehabilitation to be fully serviceable. At present, several flood control projects, mostly on

infrastructure development are on-going; others are on the pipeline (Figures 11 & 12).

However, according to the Provincial ‘Action Program for Disaster Relief, Rehabilitation

and Preparedness’ (2001), there is much to be desired as to enhancing the system of

coordination for flood disaster planning and management, especially in integrating efforts

from the municipal to the provincial level.

5.6 IDENTIFIED AREAS FOR POSSIBLE RESETTLEMENT

Flooding damages in the area have far reaching consequences on the livelihood of

the populace, especially those living in the vulnerable areas. Varied types of flood control

measures have been instituted, some are on-going, whilst others are underway, but yet

they cannot solve flood-related problems permanently. Thus, some of the Local

Government Units in the area deemed it fit to identify suitable areas for possible

relocation of people in flood-affected areas.

But such a move is characterized by some hindrances, the chief amongst them being

the uneasiness or negative attitude on the part of the local residents to leave their

livelihoods and/or assets behind. What is most difficult for them is the fact that the lands

they currently occupy are more suitable for agriculture purposes than the recommended

79
areas for relocation. Agriculture is the predominant occupation of this people, so any

move geared against it is counterproductive and would hardly bear any fruit.

This is one of the biggest reasons the governments are embarking more on flood

control measures, which are more of mitigation than prevention. It would be more

prudent enough if these LGUs concentrate purely on more practical and tougher result-

oriented projects like resettling the people from flood-prone areas rather than just the

formulation and implementation of flood control projects in the area. Such projects only

have the potential of minimizing, if ever, the extent of flood damages. But then,

relocating the people is not just the problem, finding possible and convincing alternative

means of livelihood for these residents is the key issue that needs the attention of these

LGUs. According to interviews with personnel in the Municipal Social Welfare and

Development Offices in the municipalities where the survey was conducted, their LGUs

have already recommended areas owned by the governments as possible and suitable

relocation areas. The Municipal Government of Molave, for instance, has a one (1)

hectare piece of land in Barangay Makugihon, which has been identified as a relocation

site for people currently residing in flood-prone areas of the municipality. Tambulig

Municipality, on the other hand, recommended a reserved two (2) hectares piece of land

in Barangays Calolot and Gabunon to resettle its residents currently in flood-prone areas.

A one (1) hectare land owned by the Municipal Government of Mahayag has been

identified in Barangay Poblacion as their target relocation site (Figure 13).

80
Target Relocation Target Relocation
Area, Mahayag Area, Molave
(1 Hectare) (1 Hectare)

Target Relocation Area,

Tambulig (2 Hectares)

Figure 13 Identified Resettlement Areas

81
 CHAPTER 6
ASSESSMENT OF INSTITUTIONAL COORDINATION
IN THE SALUG VALLEY

6.1 INTRODUCTION

The planning and management of flood (flooding) is not unconnected with

teamwork. This is one of the necessities to come up with efficient and effective linkages

of concerned agencies in the planning and management implementation of flooding in all

its phases. It is obvious that one specific agency has never been sufficient to prevail over

the general impact of hazards. Consequently, this study reflects on those agencies that

should coordinate in flood reduction planning and management. It is viewed from the

perspective of its three phases: pre-flood hazard, actual flood hazard and post flood

hazard.

6.2 EXISTING PRE-FLOOD PLANNING AND MANAGEMENT SCHEME OF

INSTITUTIONS

This scheme for existing institutional coordination is devised out of key informant

interviews, questionnaire surveys and review of relevant literature.

The MDCC holds a pivotal role among the disaster coordinating councils operating

in the study area, with the support of the PDCC, RDCC and NDCC at the peak,

82
especially on equipment, training and early warning information system. The MDCC is

additionally linked to the BDCC for the provision of training, equipment and early

warning information.

In pre-flood phase, the Municipal Social Welfare and Development Office

(MSWDO) serves as the ‘Lead Agency’. The MSWDO serves as a Lead Agency in all

the phases of disaster management because it is the only office at the local government

level whose major function or program includes disaster preparedness and management.

It has the mandate to conduct and lead disaster related activities with the ultimate aim of

minimizing or preventing the ugly effects of disasters in the local government unit. In the

existing pre-flood planning and management scheme, the MSWDO coordinates with the

following institutions on an on-and-off basis: the Municipal Health Office (MHO), the

Bureau of Fire Protection (BFP), the Philippine National Red Cross (PNRC), the Armed

Forces of the Philippines (AFP), the Philippine National Police (PNP) and the Office of

Civil Defense (OCD).

There is continuous coordination between the MSWDO and the Provincial Social

Welfare and Development Office (PSWDO), mostly in the conduct of trainings; both the

MSWDO and the PSWDO share resources for trainings on disaster preparedness and

management. The BFP, PNP, AFP and PNRC serve as resource speakers because of their

brilliant skills on search and rescue activities and other safety measures done in times of

83
disaster. While the OCD and PSWDO are responsible for topics on hazard identification,

illustrations on disaster management as well as the presentation of the roles and functions

as members of the MDCC; the BFP, AFP, PNP and OCD provide trainings on search and

rescue operations. The roles of the MHO and PNRC are also crucial in this phase. They

train community residents on the administration of first aid treatment and also devise

guiding principles and procedures on health response to flood disaster.

Continuous linkages in the current scheme are shown in the shape of ‘continuous

line projectiles’ (Figure 14). For example, a continuous linkage exists between the

Municipal Treasurer’s Office (MTO) and the Municipal Disaster Coordinating Council

(MDCC). The former is responsible for dishing out funds for pre-flood planning and

management activities. There is no direct relationship between the MTO and the BDCC

because the latter deals directly with the MDCC, mostly for its requirements.

The private sector, comprising NGOs, Civil Society Organizations (CSOs) and

community volunteers also plays a role in pre-flood planning and management. There

are continuous linkages between the private sector and the MSWDO, on the one hand,

and the BDCC, on the other. Their linkages in this phase are geared towards training

programs, sensitization and orientation campaigns, as well as drills conduction.

84
 The existing pre-flood planning and management scheme is characterized by flaws

emanating from the need for improved institutional linkages as evident in the survey

result in the following section. Thus, a proposed pre-flood planning and management

scheme for improved institutional coordination is devised in the subsequent section.

85
 NDCC
MDCC

MTO

P BFP
P M B
D S S AFP D
PAGASA C W W C
C D D C
PHIVOLCS O O PNP
OCD
RDCC MHO

Private Sector
NGOs: CSOs
- PNRC Community
LEGEND: Volunteers

AFP – Armed Forces of the Philippines PAGASA - Philippine Atmospheric, Geographic & Continuous Coordination
BFP - Bureau of Fire Protection Astronomical Services Administration
BDCC – Barangay Disaster Coordinating Council PHIVOLCS- Philippine Institute of Volcanology
CSO – Civil Society Organization & Seismicity
MDCC – Municipal Disaster Coordinating Council PNP - Philippine National Police
MHO - Municipal Health Office PNRC - Philippine National Red Cross On & Off Coordination
MSWDO – Municipal Social Welfare & Dev’t Office PSWDO - Provincial Social Welfare & Dev’t Office
NDCC – National Disaster Coordinating Council RDCC - Regional Disaster Coordinating Council
OCD – Office of Civil Defense
PDCC – Provincial Disaster Coordinating Council Lead Agency

Figure 14 Existing Pre-flood Planning and Management Scheme of Institutions

86
6.3 PRE-FLOOD PLANNING AND MANAGEMENT ASSESSMENT

The study analyses the overall efficiency and effectivity of public and private

institutional coordination in flood reduction planning and management in the study area.

Below are the analyses and outputs based on the survey.

i) Meetings for Planning/ Review of Disaster Preparedness Plan

Flood reduction planning and management is an on-going course. Therefore, it is

always necessary that communities, especially those that are vulnerable to flooding,

prepare themselves at all times. Basically, flood management agencies need varied up-to-

date equipment, trainings, etc., in order to equip them well in reducing flood risks. This

could be best achieved through meetings and proper coordination to review their

strengths, opportunities, threats and weaknesses, and then assess their needs.

Therefore, the study asked how frequent they meet to review flood

preparedness/contingency plan. Responses ranging from monthly, quarterly, half-yearly,

yearly, to ‘not at all’, were given as options.

The survey’s output reveals that 32% of respondents said that they meet quarterly;

15% meet half-yearly and 29% said they usually meet yearly. This manifests that the

majority of the respondents do not meet regularly to review their flood preparedness plan.

87
Only 8% of respondents are actively reviewing their preparedness plan. In Table 15, it is

obvious that the meeting schedules are not encouraging. Despite the fact that flooding is

seasonal, there is all the need that actors concerned do meet on a regular basis for proper

planning and management. For instance, holding discourses on how to improve their

operations, taking certain issues into cognizance, like tapping funding, equipment,

trainings, etc.

In the key informant interviews held, an officer of the Integrated Provincial Health

Office revealed, however, that the PDCC meets only in the event of a disaster occurrence.

This was buttressed by another provincial officer in the Planning and Development

Office (PPDO) who said that the PDCC meets irregularly, most times on a quarterly basis

to converse on the needs/ issues pertaining to disaster management.

Table 15 Frequency of Planning Meetings

Description Frequency %
Monthly 8 8
Quarterly 31 32
Half-yearly 14 15
Yearly 29 31
Not at all 10 11
No response 3 3
Total 95 100
Source: Survey Questionnaire, 2007

88
ii) Early Warning Systems for Flood Hazard

In this item, the respondents were asked whether they get regular information and

early warning signals regarding flood hazard. In response, 64% of them affirmed that

they get regular information and early warning signals with regards to natural hazards

and 36% of them held that they do not get information and signals (Figure 15).

36%
Yes
No
64%

Figure 15 Early Warning Signal

The subsequent question was based on the source of information and signals. The

respondents were asked from where they get to know of an upcoming weather

disturbance or an impending flood hazard. Alternatives were laid down, ranging from

PDCC, CDCC, MDCC to BDCC.

It was revealed that the BDCCs played a significant role in providing its residents

with information and early warning signals. The output shows that 62% of the

89
respondents received information and signals through BDCCs, followed by MDCC with

21% (Figure 16).

0%
2%
8% 23% PPDC
CDCC
MDCC
BDCC
67% Media

Figure 16 Sources of Early Warning Signal

In coordination with the MDCCs, the BDCCs were capable to execute such crucial

role because they were promptly supplied with information by the MDCCs, which have

their own established offices with telephone lines and wireless system. The BDCCs do

not have links with other agencies, and as such, the MDCCs coordinated with these

agencies and supplied the BDCCs which, in turn, disseminate them to their residents.

According to an officer of the Municipal Social Welfare and Development Office

(MSWDO) in Mahayag, the warning signal usually used in the town is the ringing of

bells, while in barangays, they use ‘koratong’ or felling of gong. An officer of the

90
MSWDO in Molave, on the other hand, said they use sirens of the Fire Department for

the warning signal.

iii) Training Programs

Training is a very vital component of emergency management and disaster

preparedness. The efficiency and effectiveness of personnel heavily counts on training for

skills improvement. Therefore, respondents were asked if they had ever attended any

training program on emergency management and flood preparedness in the past couple of

years.

The survey responses revealed that 53% of the respondents attended trainings. This

falls short of the expectation of this study, (i.e. the 60% standard set as threshold score)

with regards adequacy of training. (Table 16)

Table 16 Training Programs

Response Frequency Percentage
Yes 50 53
No 44 46
Abstain 1 1
Total 90 100
Source: Questionnaire Survey, 2007

In the KIIs held, an officer-in-charge of training in the Office of Civil Defense,

Department of National Defense, Region IX (OCD - DND IX), informed that the OCD

capacitates LGUs from provincial to barangay levels through trainings of their personnel.

91
He also added that they require them to make contingency plans. The Philippine National

Red Cross, Pagadian Chapter, is also moderately indulged in trainings for flood disaster

preparedness in the various communities within the Salug Valley Area, given their

limited funds.

The Head of the Provincial Social Welfare and Development Office, explained that

her office provides what she called ‘continuous capacity building to LGUs and strengthen

the functionality of the MDCCs and BDCCs’ through seminars, trainings, conferences,

etc. Training programs were also conducted by MSWDOs, and NGOs, like the Red Cross

as manifested in the survey, inasmuch as most respondents confirmed that they attended

some of these trainings. In any case, there is yet a big need for more training programs.

iv) Funds for Pre-flood Disaster

Funding is the key to the successes of most ventures; the same applies to the

management of flooding. The Calamity Fund is usually meant for actual disaster

management. It was initially only released, as spelt out in the Presidential Decree, upon a

report of a calamitous event or when a presidential declaration of an event as a national

calamity is done by the President. Later on, it was repealed by the passing of the

Memorandum Circular of 2003, allowing calamity funds to be used for pre-disaster

activities. However, there are some LGUs who refrain from using the said fund for pre-

and post disaster phases. In any case, the local chief executives have absolute control

92
over the use of their calamity funds. It is highly incumbent upon them when and how to

utilize such funds. According to an officer of the PSWDO, the pre-disaster activities are

part of the programs of the Social Welfare Office of which funding is not source from the

Calamity Fund but from the office’s regular funds. Most training programs are

undertaken by the various Social Welfare Offices in the municipalities.

The output of the survey reveals that 62% of the respondents do not have funds for

pre-flood disaster management (Figure 17).

4%
34%
Yes
No
62% No response

Figure 17 Funds for Pre-Disaster

v) Evacuation Route Plan

It is no exaggeration to say that evacuation routes take a very significant place in

disaster preparedness, given that they serve as guides should any emergencies such as

93
flood, landslides, earthquake, fire, etc., occur. Hence, respondents were asked if they

have an evacuation route plan in the event of flooding at an alarming scale in that area.

The output shows that 57% of the respondents have evacuation route plan. Of this,

53% get their plans through public notice; 3%, through posting, while 16% get them

through other means or sources like signal lights and bells. Some 28% abstained on the

grounds that they have no idea about the sources of route plans. About 39% of the

respondents do not have evacuation route plan - this outrightly indicates that they are

unprepared to face any calamitous event (Table 17).

Table 17 Evacuation Route Plan

Response Frequency Percentage
Yes 54 57
No 39 41
No idea 2 2
Total 95 100
Source: Questionnaire Survey, 2007

vi) Suitable, Spacious Temporary Shelters

Open, appropriate and safe short-term shelters are of prime importance during

emergencies, given that the lack of such shelters would equally endanger the lives of the

affected people. In consequence, the study asked if there are suitable, spacious temporary

shelters.

In response, 64% of the respondents affirmed that they have suitable, spacious and

safe temporary shelters, and 33% responded that they do not have (Table 18).

94
 Table 18 Spacious Temporary Shelter
Response Percentage
Yes 64
No 33
No Response 3
Total 100
Source: Survey Questionnaire, 2007

In an interview with an officer of the MSWDO of Mahayag, it was known that the

MSWDO office normally prepares barangays that are particularly vulnerable to hazard

risks. The officer further said that they identify evacuation centers during

emergencies/calamities. Another officer from the Red Cross, Pagadian Chapter, said that

they ‘help in the identification of sites as evacuation centers, ever mindful of the hazard it

might give to the evacuees.

vii) Disaster Operation Centers

The respondents were asked if they have functional disaster operation centers. In

response, 59% of the respondents stated that they indeed have functional disaster

operation centers. As is most times the case, the Barangay Operation Centers serve as the

Disaster Operation Center, where all actors meet at that level for the coordination of

disaster management activities (Table 19).

Table 19 1Functional Barangay Disaster Operation Center

Response Frequency Percentage
Yes 56 59
No 39 41
Total 95 100
Source: Questionnaire Survey, 2007

95
viii) Reserve Medicines

Medicines/drugs play a very significant role when disasters strike a community.

Medicines can help greatly in saving lives of critical disaster victims when a disastrous

event occurs on the spot. Medical facilities, particularly drugs, are therefore required to

be stored in preparation for any hazard impact. With reference to this, respondents were

asked about the availability of adequate medication held in reserve should there be any

hazard impact. The output of this item indicates only 12% of the respondents have

adequate medication in store for first aid treatment in the event of a disaster strike.

Around 84% responded that they do not have at all (Figure 18).

16%

Yes
No

84%

Figure 18 Reserve Medicines for Emergency

96
ix) Overall Assessment of Institutions at Pre-flood Planning and Management Phase.

In Table 20 and Figure 19, indicators for the overall efficiency and effectivity of

actors in pre-flood planning and management in the Salug Valley Area are shown. As a

whole, the level of preparedness is only 48%, which is very low. There is a significant

gap between the laid down average and the current level of preparedness. This, in essence,

calls for an improved institutional scheme for coordination between the local disaster

coordinating councils, government line agencies, NGOs and CSOs for pre-flood planning

and management.

Table 20 Overall Assessment of Institutions at Pre-flood Planning and Management

Phase
Indicators Preparedness Level (%)
Planning Meetings 40
Regular Information & Early Warning Systems 64
Training Programs 53
Funds for Pre-flood Disaster 34
Evacuation Route Plans 57
Temporary Shelter 64
Disaster Operation Centers 59
Reserve Medicines 16
Overall Level of Institutional Preparedness 48
Source: Questionnaire Survey, 2007

97
 70

60

50

Percentage
40

30

20

10

Training Programs

Evacuation Route Plans

Disaster Operation Centers

Temporary Shelter
Planning Meetings

Early Warning Systems

Reserve Medicines

Overall Level of Institutional Preparedness

Funds for Pre-flood Disaster

Assess ment Indicat ors

Figure 19 Overall Assessment of Institutions at Pre-flood Planning

and Management Phase

Based on this, a proposed pre-flood planning and management scheme for enhanced

institutional coordination is expounded in the following section.

98
6.4 PROPOSED PRE-FLOOD PLANNING AND MANAGEMENT SCHEME FOR
IMPROVED INSTITUTIONAL COORDINATION

This scheme is devised out of key informant interviews, questionnaire survey and

review of relevant literature during this study. The scheme for improved institutional

coordination is done at the study area level to help arrest the inadequacies in the existing

scheme. As such, all agencies and departments are looked upon for their potential tasks

and support during pre-flood planning and management.

There are variations between the existing and the proposed pre-flood planning and

management schemes, all geared towards improving on the existing flaws that

characterized the existing scheme. One feature that distinguished the proposed scheme

from the existing one is that, the former suggested the existing of continuous linkages

between the MSWDO as Lead Agency and the various government line agencies; the

existing scheme made provision for on-and-off linkages between the MSWDO and the

line agencies. The proposed scheme also suggested that strong linkages exist between the

MSWDO and the BDCC, given that the former is charged with the broadest mandate to

manage disaster in the local government unit, unlike the existing scheme which entails

just continuous linkages between the two institutions. Other notable differences between

the two schemes are strong linkages are suggested to exist between the BDCC and the

private sector, on the one hand, and between the MSWDO and the private sector, on the

99
other, unlike the existing scheme which caters for only continuous linkages among these

institutions.

The proposed scheme also further suggested the existence of linkages between the

DepEd and the MSWDO, together with BDCC, which is lacking in the existing scheme.

Also lacking in the existing scheme is coordination between the BDCC and DPWH for

flood mitigation actions.

In the improved scheme, the MDCC links continuously with the BDCC on the

grounds that the latter is heavily reliant on the former for regular information and early

warnings in the study area. The MDCC coordinates with the PDCC for early warning

system and circulate to the BDCC. With improved preparedness measures in place

through a well-organized and capable early warning structure, there is optimism for

reduction in flood risks. Strong coordination links are also suggested between the BDCC

and the MSWDO not only because it is the lead agency in pre-flood planning and

management in the area but also responsible for capacitating the BDCC through trainings

and seminars for community awareness/ preparedness for flood hazards.

The enhanced scheme also suggests continuous coordination between the BDCC and

the municipal government line agencies, ranging from the Municipal Health Office

(MHO), Bureau of Fire Protection (BFP), Armed Forces of the Philippines (AFP),

Department of Education (DepEd), Philippine National Police (PNP), Office of Civil

100
Defense (OCD) and Department of Public Works and Highways (DPWH). These links

are essential because they get rid of bureaucratic protocols in the BDCC’s coordination

with these line agencies. Such bureaucracy often delays actions. The linkages between

these line agencies/departments and the coordinating councils (MDCCs and BDCCs) in

the existing pre-flood planning and management structure are on and off.

In pre-flood planning and management, the Municipal Social Welfare and

Development Office (MSWDO) serves as the ‘Lead Agency’. It is therefore suggested

that continuous linkages take place between the MSWDO and the varied line agencies,

namely: the Municipal Health Office (MHO), the Bureau of Fire Protection (BFP), the

Philippine National Red Cross (PNRC), the Armed Forces of the Philippines (AFP), the

Department of Education (DepEd), the Philippine National Police (PNP), the Office of

Civil Defense (OCD) and the Department of Public Works and Highways (DPWH).

The private sector - comprising NGOs, Civil Society Organizations (CSOs) and

community volunteers - has a huge role to play in pre-flood planning and management.

Therefore, strong linkages are suggested between the private institutions (NGOs, CSOs

and community volunteers) and the MSWDO, on the one hand, and the BDCC on the

other. Such strong linkages are very essential in pre-flood phase activities, such as

training programs, sensitization and orientation campaigns, and drills conduction.

101
 In the proposed scheme, continuous linkages in the shape of ‘continuous blue line

projectiles’ are suggested. For example, a continuous linkage is suggested between the

Municipal Treasurer’s Office (MTO) and the MSWDO on the grounds that these offices

are responsible for dishing out funds and/or other resources for pre-flood planning and

management activities (Figure 20).

Furthermore, continuous coordination is suggested between the BDCC and the

DPWH for mitigation activities, such as the construction of flood control infrastructure

like, retaining walls along roads.

In this scheme, DepEd has been suggested to continuously coordinate with the

MSWDO and the BDCC in providing trainings, particularly in schools as this is one of

the most effective ways of disseminating information to communities.

Over and above, with improved coordination of the aforementioned departments and

agencies, the chances for improved pre-flood planning and management in the Salug

Valley Area will absolutely increase, thereby reducing flood risks.

102
 NDCC
MDCC
Increased
MHO Institutional
BFP Coordination
P P M B
D S S AFP D
PAGASA C W W DEPED C
C D D C Efficient and
PHIVOLCS O O Effective Pre-
PNP Disaster
OCD Planning and
RDCC Management
DPWH
MTO

Private Sector Increased

Awareness &
NGOs - CSOs Preparedness

LEGEND: - PNRC - Volunteers

AFP – Armed Forces of the Philippines PAGASA - Philippine Atmospheric, Geographic & Continuous Coordination
BFP - Bureau of Fire Protection Astronomical Services Administration
BDCC – Barangay Disaster Coordinating Council PHIVOLCS- Philippine Institute of Volcanology
CSO – Civil Society Organization & Seismicity Strong Coordination
MDCC – Municipal Disaster Coordinating Council PNP - Philippine National Police
MHO - Municipal Health Office PNRC - Philippine National Red Cross
MSWDO – Municipal Social Welfare & Dev’t Office PSWDO - Provincial Social Welfare & Dev’t Office Lead Agency
NDCC – National Disaster Coordinating Council RDCC - Regional Disaster Coordinating Council
OCD – Office of Civil Defense
PDCC – Provincial Disaster Coordinating Council

Figure 20 Proposed Pre-flood Planning and Management Scheme for Improved Institutional Coordination
103
6.5 EXISTING ACTUAL-FLOOD PLANNING AND MANAGEMENT SCHEME
OF INSTITUTIONS

In the existing scheme for actual-flood planning and management, there is at the

core of the disaster site a Disaster Operation and Management Center, where all the

agencies meet and coordinate activities, with the MSWDO serving as lead agency.

During the actual-flood phase, under the strong leadership and command of the

Local Chief Executive as Chairman of the Municipal Disaster Coordinating Council

(MDCC), all organized agencies, departments and community volunteers are mobilized

in coordination with the MSWDO. There are continuous linkages among the flood

operation and management actors in all the varied activities in this phase. Continuous

linkages are shown by thin blue arrows (Figure 21).

The role of AFP, PNP and BFP lies on search and rescue operations. They put in

place security measures for the prevalence of peace and order in the Disaster Operation

and Management Center in the event of flood disaster.

The MHO is responsible for the provision of primary health care treatment to

affected areas and provides support on technical know-how like sanitation and public

health concerns, in order to prevent illnesses or contamination of diseases, especially to

104
the most vulnerable categories of people (children and women). The IPHO’s role in this

show is one of support and monitoring of activities of the MHO.

During the emergency phase, community kitchen is usually established in order to

provide immediate food to the victims. This is located within the compound of the

evacuation center which is manned by the MSWDO staff and some volunteers during the

first 3 days of the event. However, if the victims are already capable to work, kitchen

management will be turned over to them.

The MSWDO coordinates with NGOs, civil society organizations, religious groups

and community volunteers for a thorough mobilization of people in the affected

communities in order to ensure well-tailored arrangement for food and non-food items as

basic necessities of life.

The Provincial Disaster Coordinating Council, chaired by the Provincial Governor,

provides all out support to the affected municipalities in the Salug Valley area during

disaster. This is done through the provision of food and non-food items, material and

financial assistance sourced from the Calamity Fund of the Provincial Government.

Likewise, the PDCC chair and PSWDO Secretariat, coordinate with the other members of

the PDCC to link with other government or non-governmental organizations or

institutions which could be of help to the victims.

105
 The institutional linkages as shown in Figure 21 leave the door open for

improvement in the planning and management of flooding in the study area. This is one

of the key causes of increased flood risks and vulnerability engulfing the Salug Valley

Area. Thus, to ensure an effective and efficient actual-flood planning and management in

the area, researcher proposed an improved actual-flood planning and management

scheme.

106
 PSWDO Public Sector
AFP BFP Search and rescue and
MOH PNP immediate mitigation;
PD Temporary shelter;
MD IPHO
CC First Aid Care;
CC Food and Utilities;
Disaster Operation and Psycho-spiritual
Management Center at the Site support services;
of Flood Disaster Peace and Order.

RDCC

Private Sector
NDCC NGOs CSOs
BD MS PNRC WO
CC W
DO RA
Religious
LEGEND: Gruops

AFP - Armed Forces of the Philippines MOH - Municipal Health Office

BDCC - Barangay Disaster Coordinating Council MSWDO – Municipal Social Welfare and Dev’t Office Continuous Linkages
BFP - Bureau of Fire Protection PDCC - Provincial Disaster Coordinating Council
CSOs - Civil Society Organizations PSWDO – Provincial Social Welfare & Dev’t Office
Dep-Ed – Department of Education RA – Raider’s Association Lead Agency
IPHO - Integrated Provincial Health Office WA – Women’s Organization
MDCC - Municipal Disaster Coordinating Council

Figure 21 Existing Actual-flood Planning and Management Scheme of Institutions

107
6.6 ACTUAL-FLOOD PLANNING AND MANAGEMENT ASSESSMENT

The study considered the factors for flood reduction planning and management

such as, evacuation equipment, search and rescue operation, first aid treatment, food and

non-food items and transport and communication equipment.

An analysis was done on the resources or facilities at the disposal of the local

disaster coordinating councils, their roles and coordination with other government

departments and private organizations in a bid to perform their functions in the event of

disaster occurrence. This is done to formulate a scheme for actual flood planning and

management at the study area level.

i) Evacuation Equipment

The availability of evacuation equipment in the area, such as ambulances and

trucks can determine the extent of capability and level of preparedness of an organization

or a community for flood risks.

Results of the survey show that 40% of the respondents do have evacuation

equipment, while 59% do not have (Figure 22).

108
 1%
40% Yes
No
59% Abstain

Figure 22 Evacuation Equipment

ii) Search and Rescue Operation

Search and rescue is a big determinant for survivors during emergencies. Searching

and rescuing of victims is required to be instantaneous given that the earlier such an

intervention, the bigger the chances of saving lives and properties. The survival of some

victims in a critical situation during disaster rests on how prompt and capable is the

operation. In line with this, the survey asked the availability of equipment for search and

rescue operations.

The majority of the respondents (64%) do not have modern equipment such as

respiratory machines, rubber boats, heat detectors, etc., for rescue operations (Table 21).

Even those that responded affirmatively only possess ordinary rescue equipment. This is

109
a pointer to the grim reality that they are surely not prepared to cope up with emergencies.

In an interview with a senior officer of the PNP in the province, it was found that the

need for sophisticated rescue equipments, particularly rubber boats, is indeed great.

In the interviews held with key informants, about 98% affirmed that this role is, on

average, a function of the PNP and AFP. According to officers of OCD – DND and the

Red Cross, their agencies also do participate, in collaboration with the AFP and PNP, in

search and rescue operations.

Table 21 Search and Rescue Operation

Response Percentage
Yes 36
No 64
Total 100
Source: Survey Questionnaire, 2007

iii) Funds for Actual Flood Disaster

In any venture or activity taken, funding is required. This equally is applicable to

disaster management in all its phases. In the context of the Philippines, the fund allocated

for disaster, the Calamity Fund, is only granted when a hazard actually becomes a

disaster or when a Presidential Declaration is made in the event of a national calamity. To

know how prepared the area is, the survey asked two questions on: 1) if the area have

funds specifically for actual disaster management, and 2) if the BDCC allocate or utilize

funds from the local Calamity Fund during disaster/emergencies. Of the 95 respondents,

110
61% of them said that they have funds for actual disaster management and 32% thought

that they do not have, while the remaining 7% gave no response. On the other hand, 78%

of the respondents asserted that the BDCC allocates and/or utilizes funds from the local

Calamity Fund in the event of emergency/disaster (Table 22).

Table 22 Funds for Actual Flood Disaster

Description Yes No No Response
Funds for actual disaster management 61% 32% 7%
BDCC allocation and/or utilization of 78% 14% 8%
funds from the local Calamity Fund
Source: Survey Questionnaire, 2007

iv) Emergency Transport and Communication System

All other activities are dependent on communication. There are two aspects to

communications in disasters. One is the equipment that is essential for information flow,

such as radios, telephones and their supporting systems of repeaters, transmission lines,

etc. The other is information management such as protocol of knowing who to

communicate with, what information to whom, what priority is given to it, and how it is

disseminated and interpreted.

Disaster management is associated with prompt responses. It is often said that a

stitch in time saves a dozen; this can be applied to emergency response. With emergency

transportation and communication system in place during a disaster impact, a lot of lives

and property would be saved. Emergency transport and communication system is

therefore a required criterion for actual-flood disaster management. With regards to this,

111
the study asked the question of whether there is an emergency transport and

communication system for on-set disaster.

About 77% of the respondents stated that they have no emergency transport and

communications system, while only 21% indicated that they have. It is therefore wise

enough to say that a huge number of people in the area are not prepared should a flood

calamity occurs (Table 23).

Table 23 Emergency Transport and Communication System

Response Percentage
Yes 21
No 77
No response 2
Source: Survey Questionnaire, 2007

v) Coordination with Other Agencies during Flood Disaster

Under this item, the researcher endeavored to find out the coordination link at the

lower strata of the society - the barangay. Respondents were asked about the other

agencies they coordinate with during flood disaster at the barangay level.

The output of this question indicates that 38% of the respondents coordinate with

the MDCC in the event of an outbreak of disaster. This further explains the fact that the

MDCC has a strong and direct link with the BDCCs, though 49% of the respondents

failed to respond to the question, which implies that the level of coordination with the

112
MDCCs is either weak or lacking. The output also reveals that there is a weak

coordination between the BDCCs and other organizations like, CSOs, NGOs and other

government line agencies.

The survey result shows that there is a weak or low coordination at the barangay

level during disaster. Coordination during disaster is highly integral, given that this is a

crucial time for all agencies to put their shoulders on board in saving lives and property.

There is a high demand for logistics, like equipment, shelters, and other basic and prime

requirements during this time. Thus, there is the need for high involvement of all

institutions, public as well as private (Figure 23).

MDCC
38% CSOs
49% NGOS
Other Line Agencies
No Comment
6%
4% 3%

Figure 23 Coordination with Other Agencies

113
vi) Sufficient and Capable Community Workforce

There is a big need for an efficient and capable community workforce in the event

of a disaster occurrence. This is especially necessary for emergency management. During

disaster, there is always the necessity of human resources to help in the mobilization of

the community affected by directing the community people to safer places as well as

transporting the victims, such as the injured and the dead, to health centers or hospitals.

Seventy-nine percent (79%) of the respondents do not have adequate, trained

workforce to manage actual disaster (Table 24). The huge percentage of negative

responses to this question is a pointer to the fact that there is lack or very low

coordination with line agencies, CSOs and NGOs in the area.

Table 24 Sufficient and Capable Workforce

Response Frequency Percentage
Yes 18 19
No 75 79
No response 2 2
Total 95 100
Source: Questionnaire Survey, 2007

vii) Emergency Medical Services

With regards the availability of adequate medical facilities such as hospital beds,

nurses, medicines, etc., in the event of emergencies, the survey reveals that barely 14% of

the respondents affirmed that there are adequate medical facilities for emergencies, while

114
the rest of 86% of respondents said there are inadequate medical facilities (Figure 24). It

is no exaggeration to say that medical facilities have a prominent role to play not only

during disasters but also in ordinary life. Situation becomes extra-ordinarily explosive if

such facilities are lacking during a calamitous event.

14%

Yes

No

86%

Figure 24 Emergency Medical Services

viii) Overall Assessment of Institutions at Actual-flood Management and Planning Phase.

Table 25 and Figure 25 show the indicators for overall efficiency and effectivity of all

agencies in actual-flood management and planning in the Salug Valley Area. The table

shows that the general level of preparedness is only 33 percent. This explains the reality

that there is a dare need to enhance coordination at actual-disaster phase. This has the

potential to improve flood planning and management in the study area; and hence,

reduces flood risk.

115
 Table 25 Overall Assessment of Institutions at Actual-flood Planning and
Management Phase
Indicators Preparedness Level (%)
Evacuation Equipment 40
Search and Rescue Operations 36
Funds for Actual-flood Disaster 61
Emergency Transport and Communication 21
Coordination with Other Agencies 38
Sufficient and Capable Community Workforce 18
Emergency Medication 14
Overall Assessment of Institutional Coordination 33

116
 70
60
50

Percentage
40

30
20
10
0
Emergency Transport & Communication
Evacuation Equipment

Emergency Medication
Sufficient & Capable Community Workforce

Overall Assessment of Institutional

Search and Rescue Operations

Funds for Actual-flood Disaster

Coordination with Other Agencies

Coordination

Assessment Indicators

Figure 25 Overall Assessment of Institutions at Actual-flood Planning

and Management Phase

The actual-flood planning and management phase is characterized by extra-

ordinary workload on the side of all agencies, departments and community volunteers. It

117
is therefore absolutely necessary to have highly efficient and effective organizational

linkages in pursuant of such hectic activities in this phase. In this phase, any erroneous

judgment or action taken has the potential for negative spill-over effects. There is thus the

need for high institutional coordination given the huge workload in this phase.

Given the inadequacies and flaws in the current institutional linkages during actual

flood planning and management, the need thus arose to devise a proposed actual-flood

planning and management scheme for improved institutional coordination in the

succeeding section.

6.7 PROPOSED ACTUAL-FLOOD PLANNING AND MANAGEMENT SCHEME

FOR IMPROVED INSTITUTIONAL COORDINATION

The improved actual-flood scheme is adopted in a bid to set up a Flood Management

and Operation Center at the location of flooding led by the MDCC and MSWDO in

counterpart with BDCC.

What significantly differentiate the proposed scheme from the existing scheme are:

1) the latter suggested the existence of strong linkages among all agencies assembling in

the Flood Operation and Management Center (FLODMOC). What currently exists is

continuous coordination among agencies during actual disaster; 2) the proposed scheme

118
also deemed it fit that linkages be established between FLODMOC and PAGASA and

PHIVOLCS; and, 3) DPWH is suggested to be included and participate in FLODMOC’s

activities, which is absent in the existing actual-flood planning and management model.

At the disaster phase, all agencies are required to be highly vigilant, industrious and

capable to handle operations. In line with this, agencies like AFP, MHO, BFP, PNP,

DepEd, PSWDO, IPHO, PNRC and CSOs should be members of this group, coordinating

with the MSWDO and BDCC for improved planning and management thus reducing

extra damages posed by flood risk. It is suggested that strong coordination linkages be

established among the agencies at the flood disaster site to adequately tackle the spate of

the event before the effects get worse. In the scheme, strong coordination is shown by

thick arrows (Figure 26).

The setting up of a Flood Management and Operation Center (FLODMOC) is

suggested at the spot of flood impact. Such a center is advisable to be located in a secured

and nearby place, close to the area affected. All agencies, departments, civil society

organizations or community volunteers are required to report to the FLODMOC to

coordinate in the provision of relief (food and non-food) supplies during actual flood

management. The FLODMOC is further categorized into the various activities entailed

during actual flooding to facilitate the provision of basic needs of the victims in a

coordinated fashion. Such needs include food, shelter, clothing, medicine, personal

119
necessities like, napkins, diapers, etc, first aid and transportation. Other activities

suggested as part of the FLODMOC are search and rescue, evacuation and immediate

mitigation, psycho-spiritual support and peace and security measures.

Additional suggestions are geared towards linkages between PHIVOLCS, PAGASA

and FLODMOC as these agencies are charged with the role of providing early warnings

on further hazards. FLODMOC will then disseminate the information through the media,

NGOs and civil society organizations.

It is also worthwhile to suggest here that the DPWH should help out in offering

transportation facilities to personnel victims, clearance of debris and provision of both

light and heavy equipment for search and rescue operations.

The proposed institutional linkages as shown in Figure 26 can ensure an effective

and efficient actual-flood planning and management scheme for the Salug Valley Area.

This would in effect reduce further damages emanating from flood risk, thereby saving

lives and protecting properties.

120
 PSWDO Public Sector
Increased
AFP BFP Search and institutional
MOH PNP rescue and coordination
PD M immediate
DPWH IPHO mitigation;
CC D
C Temporary
C Flood Management shelter; First
and Operation Center Aid Care; Efficient and
(FLODMOC) Food and effective
Utilities actual flood
RDCC management
and planning
Private Sector
NGOs CSOs
NDCC
PNRC WO
BD MS
CC W RA
DO Religious
Groups
LEGEND:

AFP - Armed Forces of the Philippines MOH - Municipal Health Office

BDCC - Barangay Disaster Coordinating Council MSWDO – Municipal Social Welfare and Dev’t Office Strong Linkages
BFP - Bureau of Fire Protection PDCC - Provincial Disaster Coordinating Council
CSOs - Civil Society Organizations PSWDO – Provincial Social Welfare & Dev’t Office
Dep-Ed – Department of Education RA – Raider’s Association Continuous Linkages
IPHO - Integrated Provincial Health Office WA – Women’s Organization
MDCC - Municipal Disaster Coordinating Council Lead Agency

Figure 26 Proposed Actual-flood Planning and Management Scheme for Improved Institutional

121
6.8 EXISTING POST-FLOOD PLANNING AND MANAGEMENT SCHEME OF
INSTITUTIONS

Rehabilitation and reconstruction comprise most of the post-disaster recovery phase.

This period following the emergency phase focuses on activities that enable victims to

resume normal, viable lives and means of livelihood. It also includes the restoration of

infrastructure services and the economy in a manner appropriate to long-term needs and

defined development objectives. In this phase only agencies/departments whose roles are

related to restoration, reconstruction and permanent mitigation, resettlement and

psychosocial rehabilitation are considered.

During post-flood planning and management there are hardly any strong linkages

among agencies. In fact, very few agencies in the area participate during this phase as it is

considered the most expensive and thorny among the disaster phases. For post-flood

planning and management, the lead Agency for damaged infrastructure is the Municipal

Engineering Office (MEO) in coordination with the Provincial Engineering Office (PEO)

and the Department of Public Works and Highways (DPWH).

The Municipal Agriculture Office (MAO) leads in the rehabilitation of

agricultural damages in coordination with the Provincial Agriculture Office (PAO) and

the National Food Authority (NFA).

122
 The role of the Municipal Social Welfare and Development Office (MSWDO) is

to lead in the psychosocial and spiritual rehabilitation of the victims in coordination with

the PSWDO and religious groups through the conduct of Critical Incidence

Stress Debriefing (CISD) Sessions to disaster victims.

MSWDO’s role is to coordinate with the NGOs, CSOs and community volunteers.

It is also required here to source funding from donors and to assist in the provision of

livelihoods for affected areas.

There is indeed a huge gap in the coordination among institutions involved in post-

flood planning and management in the Salug Valley Area. This has been a very

significant factor contributing to the inefficiency and ineffectiveness of post-flood

planners and managers operating in the area. Consequently, a proposed post-flood

planning and management scheme for improved institutional coordination is devised in

the following section (Figure 27).

123
 Psychosocial and spiritual services: critical
RD incident stress debriefings/trauma healing
CC B
PD MD D
CC CC C Disaster Management Evacuation Rehabilitation,
C and Operation Center Center reconstruction
ND and
CC resettlement:
Livelihood
programs;
Govt Depts/Agencies permanent and
P M temporary
S Private Sector MEO PEO shelter
S
W W NGOs CSOs
D D MAO PAO
CVs
O O
LEGEND: CGs DPWH NFA

BDCC - Barangay Disaster Coordinating Council MSWDO - Municipal Social Welfare and Dev’t Office
CV – Community Volunteers NDCC - National Disaster Coordinating Council Continuous Linkages
CG – Church Groups NGO - Non-governmental Organization
CSO – Civil Society Organisations NFA - National Food Authority
DPWH – Department of Public Works and Highway PAO - Provincial Agriculture Office On and Off Linkages
MAO - Municipal Agriculture Office PEO - Provincial Engineer’s Office
MEO - Municipal Engineer’s Office PDCC - Provincial Disaster Coordinating Council
MDCC – Municipal Disaster Coordinating Council RDCC - Regional Disaster Coordinating Council Lead Agency

Figure 27 Existing Post-flood Planning and Management Scheme of Institutions

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6.9 POST-FLOOD PLANNING AND MANAGEMENT ASSESSMENT

At the post-flooding stage, physical and psychosocial rehabilitation, reconstruction

and recovery takes effect. In this phase, an analysis of the efficiency and effectivity of

institutions involved in post-flood planning and management in the Salug Valley is done.

i) Psychosocial and Spiritual Care

Disaster responders tend to focus mostly on the immediate physical needs,

providing food, water, shelter and medical care, but long-term spiritual and emotional

consequences for survivors and caregivers alike require skilled, knowledgeable response

as well.

Psychosocial/spiritual care is a particularly important need for persons who have

been affected by warfare, internal conflict and violence. Studies of refugee populations

reveal that 55% of adults show symptoms of depression and 15%, post-traumatic stress

disorder (PTSD).

The respondents were asked about the availability of services to take care of people

in trauma and psychosocial problems. Trauma is unarguably a life-denying state; if there

are trained personnel in trauma canceling and healing in the event of disaster occurrence,

this would definitely reduce traumatized victims at the point of death.

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 The survey reveals that only 13% have resources to take care of people in trauma

and related problems. Eighty percent (80%) of respondents lack trauma healing resources

for affected people in their area (Figure 28).

Re source s for Trauma and Psychosocial

Proble ms

13% 7%

Yes
No
No response

80%

Figure 28 Resources for Trauma, Psychosocial Problems

ii) Livelihood Programs

Disasters are always associated with damages on not just houses but livelihood as

well, such as crops, livestock, jobs, businesses, trades, etc. Affected communities will

find it very difficult to survive if they lack means of livelihood to recover from their

losses. The respondents were asked if they have livelihood programs, which are widely

believed can breathe new life into a disaster-stricken community.

126
 The results showed that 70% of the respondents do not have livelihood programs

and 6% of them did not respond to this question, while the remaining 24% respondents

affirmed possession of livelihood programs (Table 26).

Table 26 Livelihood Programs

Response Percentage
Yes 24
No 70
No response 6
Source: Questionnaire Survey, 2007

According to a Social Welfare Officer of the PSWDO, their office indeed provides

financial assistance for income-generating projects for those people whose houses are

destroyed during disasters to kick-start their lives.

iii) Funds for Post-flood Actions

Post disaster activities are the most expensive within the disaster management

cycle. It is therefore very important for all institutions involved in this disaster phase to

heavily contribute in this recovery phase wherein the life of a once-shattered community

is being resuscitated. Respondents were then asked if they have funds allocated for post

disaster actions.

The output of the question indicates that only 15% confirmed that there are funds

for post-flood activities. The rest of the respondents were either doubtful whether there

127
are any funds or not for this purpose, or they are quite sure there is no funding at all for

post-flood losses (Figure 29).

14% 15% Yes

No
27% No Response
44%
No Idea

Figure 29 Funds for Post-flood Disaster

iv) Links with NGOs and Civil Society Organizations

Linkages with NGOs and CSOs are absolutely crucial in the post-flood phase. It is

always true to say disaster management is no one man’s game; it is the game of all and

sundry as no agency or state is too powerful enough to overcome disaster. Thus,

coordination with other stakeholders is a requirement in the management of and planning

for flood disaster.

128
 To assess the extent of coordination with NGOs and CSOs, respondents were asked

if they have links with non-governmental organizations and other civil society

organizations (CSOs) in the rebuilding process of the community.

In response, 66% declared that there are no linkages with NGOs and CSOs, while

33% said that there are links. It is quite evident that there is low coordination with NGOs

and civil society groups in post flood management and planning for the Salug Valley

Area (Table 27).

Table 27 Links with NGOs and CSOs

Response Percentage
Yes 33
No 66
No Response 1
Total 100
Source: Survey Questionnaire, 2007

v) Mitigation and Prevention Actions

Mitigation is one of the positive links between disasters and development.

Agencies, communities and individuals can use their development resources to reduce the

risk of hazards through mitigation projects. They can also ensure that their other

development initiatives contain components that mitigate against future disaster.

Mitigation applies to a wide range of activities and protection measures that might

be instigated: from the physical, like constructing stronger buildings or agricultural

129
diversification, to the procedural, like standard techniques for incorporating hazard

assessment in land-use planning. The period after a disaster is often the most opportune

and appropriate time to implement mitigation measures because public awareness of

problems posed by hazards is high. In line with this, respondents were asked if their

community have taken any actions or implemented any measures against flood hazards in

their community since 2001.

The output of this question shows 38% of the respondents in the area took

mitigation actions to prevent flood hazard. Six percent (6%) of them gave no response

(Table 28).

Table 28 Mitigation and Prevention Actions

Responses Percentage
Yes 38
No 56
No Response 6
Source: Survey Questionnaire, 2007

vi) Renovation of significant life-giving services

It is always the case that disaster is followed by damages on life-giving facilities,

such as water, electricity, communication, sewerage, etc. It is therefore incumbent on

disaster management players, including the community to restore these lifeline services to

resuscitate the life of the affected community. Respondents were, therefore, asked if they

have taken any action in restoring significant life-giving services.

The survey reveals that 38% of the respondents take action in refurbishing vital

lifeline services (Table 29). Such facilities are of prime importance upon a disaster

130
impact and as such should be restored immediately. The output also shows that the area

does not have linkages with agencies in charge of providing such vital services (e.g.

ZAMSURECO and the Water Supply Corporation)

Table 29 Renovation of Significant Life-giving Services

Response Frequency Percentage
Yes 36 38
No 49 51
No Response 10 11
Total 95 100
Source: Survey Questionnaire, 2007

vii) Overall Assessment of Institutional Coordination at Post-flood Management and

Planning

Table 30 shows the indicators for the overall efficiency and effectivity of actors in

post-flood management and planning in the Salug Valley Area. The general level of

preparedness is determined to be only 27%. It shows an extra-ordinary difference

between the laid down average and the current level of preparedness at the post-flood

stage. This, in essence, calls for an integrated institutional approach for coordination

between the local disaster coordinating councils, government line agencies, NGOs and

CSOs for pre-flood planning and management (Table 30 and Figure 30).

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 Table 30 Overall Assessment of Institutions at Post-flood Planning and
Management Phase
Indicators Preparedness Level (%)
Services for Psychosocial and Spiritual Care 13
Livelihood Programs 24
Funds for Post-flood Actions 15
Links with NGOs and CSOs 33
Mitigation and Prevention Actions 38
Renovation of Significant Life-giving Services 38
Overall Assessment of Institutions for Post-flood 27
Planning and Management
Source: Questionnaire Survey, 2007

132
 40

35

30

Percentage
25
20

15

10

Links with NGOs and CSOs

Livelihood Programs

Overall Assessment at Post-flood

Psychosocial and Spiritual Services

Mitigation and Prevention Actions

Funds for Post-flood Actions

Renovation of Life-giving Services

Phase

Assessment Indicators

Figure 30 Overall Assessment of Institutions at Post-flood Phase

Based on the general output at the post-flood planning and management phase, it is

glaring to say that there is an absolute need to improve public and private institutional

coordination in order to hasten the rehabilitation, reconstruction and resettlement process.

This would, in effect, cut down further natural hazard impact on the affected area,

133
especially with the adoption of salient and prompt mitigation measures. It is explicit to

say that enhanced coordination among institutions, both public and private, will also

lessen redevelopment expenditure.

6.10 PROPOSED POST-FLOOD PLANNING AND MANAGEMENT SCHEME

FOR IMPROVED INSTITUTIONAL COORDINATION

The improved scheme is devised based on the inadequacies engulfing the current

scheme. Very important issues/items lacking in the latter are suggested to be part of the

proposed scheme. This distinguished the proposed scheme from the existing one. For

instance, in the proposed scheme, it is suggested that: 1) strong coordination be set up

between the local disaster coordination councils in the area (i.e. the MDCC and BDCC);

2) strong linkages between the private sector, line agencies and local disaster

coordinating councils be also established as opposed to the continuous linkages prevalent

in the existing scheme; 3) the electric and water corporations should be incorporated in

the renovation of critical lifeline facilities; and, 4) the MEO and DPWH should be

charged with the task of not only clearing debris in roads and resuscitating the

communication system but putting in place permanent flood mitigation measures.

The improved scheme proposed the relocation of the FLODMOC to the affected

area office. The FLODMOC at this level is required to report to the MDCC for additional

134
funds. If the flood disaster is above its capacity it can be forwarded to the PDCC. In this

case, the PDCC can only release funds upon declaration made by the Provincial Board

members that the area is in a state of calamity.

In the scheme, activities in the FLODMOC are divided into three components –

infrastructure rehabilitation and/or redevelopment, agriculture rehabilitation and critical

incident stress debriefing sessions - led by varied line agencies.

Further suggestions are made for strong coordination between the BDCC and the

MDCC, given that they are government agencies responsible for the coordinating of

flood planning and management activities in the area. Also suggested in the improved

scheme are strong linkages (in the post-flood planning and management center) among

the private sector, line agencies and the local disaster coordinating councils (MDCC and

BDCC) in the area.

It is suggested in the enhanced scheme that ZAMSURECO and the Municipal

Water Corporation should renovate infrastructure services such as electricity and water

supplies. MEO and DPWH should be charged with the role of clearance of debris in

roads after flooding and bring back to life the communication system. Both departments

are also required to advise and put in place permanent mitigation measures. The MEO is

135
also expected to help in reconstruction procedures and estimating damages from flood

impact.

The role of the private sector is highly integral in post-flood phase. NGOs, CSOs

and community volunteers have strong links with the FLODMOC as they are responsibly

and responsively providing human, financial and material assistance for rehabilitation

and reconstruction of affected communities.

Thus, a scheme is set up (Figure 31) showing the institutional coordination of all

agencies and departments in post-flood planning and management. Such linkages, if

strictly followed, will decrease further hazard impacts, thereby reducing flood damages.

136
 Rehabilitation, reconstruction
Psychosocial and spiritual services: and resettlement: Livelihood
critical incident stress debriefings/ programs; permanent and
trauma healing temporary shelter
RD
CC B
PP MD D
Flood Management
DC CC C Evacuation
and Operation Centre Pre-disaster
C (FLODMOC) in the Center situation
affected area office continuum
ND
CC

P M Govt Depts/Agencies Efficient and

S Private Sector effective post
S
W W NGOs CSOs MEO PEO DPWH flood planning and
D D management
CVs
O O MAO PAO NFA system
LEGEND: CG

BDCC - Barangay Disaster Coordinating Council MSWDO - Municipal Social Welfare and Dev’t Office
CV – Community Volunteers NDCC - National Disaster Coordinating Council Continuous Linkages
CG – Church Groups NGO - Non-governmental Organization
CSO – Civil Society Organisations NFA - National Food Authority
DPWH – Department of Public Works and Highway PAO - Provincial Agriculture Office Strong Linkages
MAO - Municipal Agriculture Office PEO - Provincial Engineer’s Office
MEO - Municipal Engineer’s Office PDCC - Provincial Disaster Coordinating Council
MDCC – Municipal Disaster Coordinating Council RDCC - Regional Disaster Coordinating Council Lead Agency

Figure 31 Proposed Post-flood Planning and Management Scheme for Improved Institutional Coordination

137
 CHAPTER 7

CONCLUSIONS AND RECOMMENDATIONS

7.1 CONCLUSIONS

The Salug Valley Area is prone to a number of natural disasters, such as flooding,

landslides, earthquakes, etc., but the most dominant hazard type is flooding. The most

flood-prone areas in the Salug Valley are those located in the lowland areas of the valley,

which account for about 32% barangays in the whole valley. The Salug Valley Area is in

absolute need of an efficient and effective flood reduction planning and management

system for emergency, relief, rehabilitation, reconstruction, mitigation and preparedness

of affected areas. As a result, the study delved into the existing situation and proposed

schemes for enhanced institutional coordination at the pre-, actual and post flood

planning and management phases.

Local Disaster Coordinating Councils such as, the Provincial Disaster Coordinating

Council, the Municipal Disaster Coordinating Councils and the Barangay Disaster

Coordinating Councils exist in the area, which is consistent with the provision enshrined

in P.D. 1566, but their coordination with other government line agencies/departments,

NGOs and CSOs is found to be weak. Irrespective of the fact that the larger chunks of

members of the Barangay Disaster Coordinating Councils had regular trainings, problems

related to flood reduction planning and management in the area continue.

138
 One thing that is evident again is, albeit there are structures like engineering,

infrastructural and geophysical in place for flood management in the area, the efficiency

and effectiveness of the concerned agencies remain low. This could be largely

apportioned to the fact that no single local actor, no matter how proud and large it is, can

afford to overcome flooding issues and problems on its own. This, therefore, explains the

fact that there is low coordination between government institutions and the private sector,

together with citizens, as a major non-state actor. For instance, there are structures in

place in the area, as mentioned previously, but the involvement of institutions, especially

from the private sector, in the coordination of project activities is very low, and in most

cases, it is lacking in all the phases of flood management in the area.

In actual fact, there are sufficient funds available for disaster management but such

funds are restricted. Apparently, the local Calamity Fund is adequate to address disasters

if the local chief executives through the legislative body of the LGUs are committed to

release big portion of the fund intended for the three phases of disaster. However, based

on study observation, a small portion of it can only be utilized during emergency phase.

Budget for pre- and post-disaster phases are given less attention, especially that it entails

huge amount of money. Even in the event of emergences, in most cases, it often takes a

significant time lapse before such fund is released upon report of a calamitous event,

which is contravenes to the adage that ‘a stitch in time saves a dozen’.

139
 Additionally, the area lacks adequate search and rescue and evacuation equipment.

This seriously affects emergency situations and, therefore, heightens vulnerability in the

area. The significance of these operations should not be taken with a pinch of salt,

particularly during the emergency phase. Evacuation, for example, is essential especially

in a situation where the buildings or other features do not provide a safe place of refuge

during a flood. Depending upon circumstances, evacuation may be upward (e.g. into a

flood refuge) or outward. Outward evacuation will generally be necessary where the

depths of water are significant (e.g. > 2m), flood velocities are high (> 2m/s), or buildings

are flimsy (e.g. not masonry or concrete framed). For outward evacuation to be successful

it must be planned in advance and the population concerned must know what to do in a

flood emergency.

Admittedly, a substantial percentage of survey respondents get regular information

and early warning signals regarding flood hazard, but there is yet the typical need for

investment focused on improved technologies required to improve flood forecasts.

However, the weakness of flood warning systems is usually found in the process of

converting that forecast into a warning and getting that warning to those who need it in

time for it to be useful for them. It is essential to start by finding out the user needs of

those at risk and also of the different institutions who will be involved in translating the

forecast into a warning and then in disseminating the warning.

140
 Flood warnings are always necessary but dissemination takes time; in very flashy

catchments in particular it is unwise to rely upon the reliability of a formal flood warning

system. There is a necessary trade-off between warning lead time and forecast reliability;

a reliable and effective warning system is consequently difficult to achieve when

warnings must be based on predicted rainfall because the time between the rainfall and

the flood is too short for the dissemination of a warning. Unfortunately, these flash floods

are amongst those that present the greatest risks to life in the Salug valley Area.

Over and above, an assessment of the actual extent of efficiency and effectiveness of

the public and private institutions in the coordination of flood management in the area is

unsatisfactory as shown/determined by the low assessment scores of the survey in the

three (3) flood planning and management phases. Therefore, there is a great and timely

need for the formulation of schemes to boost the level of institutional coordination for

flood reduction planning and management in the Salug Valley.

141
7.2 RECOMMENDATIONS

The study proposes the following recommendations to enhance the planning and

management of pre-, actual- and post flooding in the area:

I. If one were to pick one aspect of disaster management that is the most critical it

would be the coordination of plans before disasters and the coordination of

response and recovery activities after disasters. It is firmly believed that by

planning, training, and exercising together before disasters occur, makes an agency

or individual far more capable of an effective, coordinated response during

disasters. The success of any venture whether it is in business or disaster

management rests on successful relationships that have been forged in advance. To

reduce flood hazard impact and vulnerability in the study area, however, the degree

of coordination among local flood reduction planning and management institutions

should be heightened. In tandem with this, an adoption of the three proposed

schemes for improved institutional coordination by all flood reduction planning

and management agencies operating in the area is therefore strongly recommended.

Coordination, though can hardly prevent the grave consequences of flood disaster,

is of chief importance if disaster occurrence is to be promptly responded to or

mitigated. Thus, flood reduction planning and management is about coordination

and co-operation between institutions rather than just a schedule of actions.

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 Institutional maintenance is essential if the management of a flood is to be

effective; continuing rehearsals and cooperation between the agencies involved is a

requirement of successful flood reduction planning and management. Coordination

could be improved through: 1) planning in advance with partner agencies and other

levels of government; 2) development of programs that include other levels of

government, plus private and community-based non-profit partners; and, 3)

incorporation of large employers, schools, corporations and the media to help

educate the public and employees; a prepared public saves lives and minimizes

economic loss.

II. There is the need for more regular trainings, especially for the local residents. Such

trainings should be designed in a way that they adequately prepare the area

residents on how to plan and manage flood disaster in all its phases. There is also

the need for more training, preferably abroad, for members of the PDCC and

MDCC, particularly on the modern technical aspects of flood management. Such

trainees must be required to replicate their acquired knowledge to their junior or

co- staff members. To be included in the curricula for trainings of local barangay

residents is, ‘Search and Rescue Operations’ for emergencies. Most times, the

agencies responsible for search and rescue operations delay to reach disaster sites

in time, and time is of essence during emergencies. There is, as a result, the need to

have community-based search and rescue teams.

143
III. Search and rescue and evacuation facilities are not enough. And the important role

such facilities play in saving lives during emergencies cannot be overemphasized.

The survival of some victims in a critical situation during disaster incidents rests on

the promptness and capability of the operation carried. Therefore, it is but fitting to

say that such facilities should be given serious attention, especially in the appraisal

of disaster management plans of the LGUs and non-state institutions in flood

planning and management. With improved coordination of efforts by flood

planners and managers, there will be a light at the end of the tunnel illuminating a

bright way forward to achieving this objective; hence, the saying: ‘many hands on

deck makes work lighter’.

IV. Livelihood programs should be improved. Livelihood programs are designed to

advance activities in areas such as forestry, fishery, livestock, non-farm

employment, education and health, thereby raising the income of local residents

living in the Salug Valley Area. Affected communities will find it very difficult to

survive if they lack means of livelihood to recover from their losses. According to

report by the Provincial Veterinarian, a significant number of animals died in the

recent and most damaging flood incident in the area. Such animals included

carabaos, cattle, horses, goals, swine, ducks and chickens. A number of fish ponds

located at the lower area were also reportedly damaged resulting to huge losses on

the part of fishpond owners and bleak livelihood opportunities for the workers.

144
V. Meetings for review of disaster preparedness plan need to be held on a regular

basis rather than just in the event of flood disaster. The coordination of institutions

depends to a large extent on the frequency of planning meetings held. These

meetings have the potential of cementing institutional linkages among agencies that

are planning for and managing floods in the Salug Valley. Planning and

management of flood disaster is an on-going course which requires constant

preparation, especially by communities that are flood-prone. Such meetings help in

a great way in reviewing their the strengths, opportunities, threats and weaknesses

and then project future needs with regards to resources, equipment, trainings, etc.,

to fully equip them in reducing flood risks. For instance, warning and evacuation

depend for their success on prior planning meetings for emergency.

VI. In the event of flood disaster strike, there is always the need for emergency items,

both food and non-food. Sometimes relief agencies delay to respond to the

situation for one reason or the other, especially for areas inaccessible or difficult to

access. At other times, even when relief agencies respond with emergencies

supplies, they can not meet the needs of the entire affected populace. Barangays

should, therefore, keep in store resources or facilities, like medicines, etc, which

can provide their constituents with basic needs for at least a limited time period.

145
 This would reduce the level of vulnerability of the affected people, mostly the

weak categories comprising women and children.

VII. Funding plays a huge role in all the phases of flood disaster. Thus, there is a dare

need for increase of funding in all the phases of flood planning and management in

the area, especially in the pre- and post phases, as revealed by the survey. Funding

of flood management activities helps greatly in boosting coordination. Funding has

a strong, direct relation with level of coordination. There are funds for disaster

management in the area, for example, the Calamity Fund, but they are inadequate.

Level of funding needs improvement if the level of coordination should improve.

Moreover, funds need to be released in time, especially in flood emergency

response. Bureaucracy has no place in emergency response. Therefore, state and

non-state institutions should: 1) respond quickly with a high degree of flexibility in

dishing out funds, especially for flood emergency response 2) plan in advance on

ways to expedite purchasing and contracting processes for the management of

floods in the area.

VIII. Local Government Units in the three municipalities of Molave, Mahayag and

Tambulig have already identified suitable areas for possible relocation of residents

living in flood-prone areas but the people find it practically difficulty to leave their

current settlements to resettle in these areas for obvious reasons. Therefore, LGUs

146
should put in place convincingly practical measures, such as compensations or

matching facilities in the relocation areas. This would definitely attract people to

these areas.

147
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 APPENDICES

APPENDIX I

PROFILE OF KEY INFORMANTS

No Organisation Name of Informant Designation
1. Office of Civil Defense (OCD Mr. Angelito R. Casinillo Provincial Coordinator
– DND 1X) and Chief of Training
2. Provincial Social Welfare and Mrs. Conchita A. San Diego Department Head
Development Office (PSWDO)
3. Provincial Planning and Mr. Loy-Canales Department Head
Development Office (PPDO)
4. Provincial Agriculture Office Mrs. Alma T. Mirrar Supervising
Agriculturist
5. Provincial Social Welfare and Mrs. Melani M. Aragon Social Welfare Officer
Development Office (PSWDO) 1V
6. Philippine National Police Mr. Ramon M. Ochotorena Provincial Director
7. Philippine Army MSG Ramir R. Delos Reyes Chief Clerk
8. Integrated Provincial Health Dr. MA. Corazon S. Ariosa Provincial Health
Office Officer II
9. Provincial Accountant’s Office Mrs. Bernadette Rute Ordonez Provincial Accountant
10. Municipal Social Work and Mrs. Perla O. Akiatan Department Head
Development Office, Molave
11. Municipal Disaster Mr. Flavio Saniel, Jr. Chairman
Coordinating Council, Molave
12. Municipal Disaster Mr. Paulino P. Fanilag, Sr. Chairman
Coordinating Council,
Mahayag
13. Municipal Social Work and Mrs. Norma T. Nobleza Department Head
Development Office, Mahayag
14. Rotary Club Pagadian West Mr. Virgilio T. Ordonez President
15. Philippine National Red Cross, Ms. Hildaliza F. Munoz Administrator
Pagadian Chapter.

151
 APPENDIX II

TEMPLATE OF KEY INFORMANT INTERVIEW QUESTIONNAIRE

Certification
I am Patrick A. Sesay, a student of the School of Urban and Regional Planning,
University of the Philippines, Diliman, Manila. I am conducting a research on
“Improving Institutional Coordination for Planning and Management of Floods in the
Salug Valley Area (Municipalities of Molave, Mahayag and Tambulig), Zamboanga
del Sur Province, the Philippines” as academic requirement. I am therefore soliciting
your cooperation in the conduct of this research. I certify, however, that the information
will be used only for academic purpose. Thanks and regards!

Personal Information

Name of Interviewee………………………………………………………….Gender…………...

Agency/Department……………………………………………Position Held…………………...

Address/Contact…………………………………………………………………Date………….....

A. Coordination among agenciess in disaster management.

1. How many flood disaster management agencies are operating in the Salug Valley Area?
How does your office/department coordinate with them in Pre-, actual and post-flood
phases?...................................................................................................................................
................................................................................................................................................
................................................................................................................................................
................................................................................................................................................
................................................................................................................................................
................................................................................................................................................
................................................................................................................................................
...............................................................................................................................................
2. How do NGOs/INGOs associate with Local Government Agencies for flood risk
reduction planning and management?
…………………………………………………………………………………………………
…………………………………………………………………………………………………
…………………………………………………………………………………………………
…………………………………………………………………………………………………

3. What is the level of coordination among the disaster coordinating councils (BDCC,
MDCC, CDCC, PDCC, etc.) and other flood reduction planning and management
agencies in the Salug Valley Area?
…………………………………………………………………………………………………
…………………………………………………………………………………………………
…………………………………………………………………………………………………

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 4. What factors do you think can help and hinder coordination between the public and
private institutions in flood reduction planning and management in the area?
…………………………………………………………………………………………………
…………………………………………………………………………………………………
…………………………………………………………………………………………………
…………………………………………………………………………………………………
…………………………………………………………………………………………………
……………………………………………………………………………………………….

B. The role of the public and private sectors in disaster risk management

5. what are the main activities undertaken by your agency/department in the last flood
disaster with reference to:
a) Early warning signals (how was it communicated to the people? Are there hindrances? If
yes, how could they have been reduced or prevented?
…………………………………………………………………………………………………
…………………………………………………………………………………………………
…………………………………………………………………………………………………
…………………………………………………………………………………………………

b) What types of communication equipment used: radio, cell phone, satellite phone, VHF,
transport vehicle, etc.
…………………………………………………………………………………………………
………………………………………………………………………………………………..

c) How your agency/department helped in the evacuation? Did you provide any evacuation
centre as temporary shelter?
…………………………………………………………………………………………………
…………………………………………………………………………………………………
…………………………………………………………………………………………………

d) How was damage and needs assessment done? What criteria you used to assess the
priority families and needs prioritized.
…………………………………………………………………………………………………
…………………………………………………………………………………………………
…………………………………………………………………………………………………
………………………………………………………………………………………………….

6. What kinds of activities were taken up as response operations at post-flood management

level in regards to physical rehabilitation, reconstruction and recovery; psychological
rehabilitation and recovery?
…………………………………………………………………………………………………
…………………………………………………………………………………………………
…………………………………………………………………………………………………

7. Has your staff/yourself ever received any training(s) in flood disaster preparedness and
emergency management? If so, which type of trainings(s)?
…………………………………………………………………………………………………
…………………………………………………………………………………………………

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 8. Did your agency/department play any role in the search and rescue operation? If yes, how
capable was it?
…………………………………………………………………………………………………
…………………………………………………………………………………………………
…………………………………………………………………………………………………
…………………………………………………………………………………………………

C. Fund Management/ Sources of funds

9. What are the main sources of your funds?

………………………………………………………………………………………………………
………………………………………………………………………………………………………

10. Does your agency/department perform fund raising activities? If yes, how? And what
types of activities undertaken?
…………………………………………………………………………………………………
…………………………………………………………………………………………………
…………………………………………………………………………………………………
.
11. Are your funds used for both pre-, actual and post flood management activities? Please,
specify.
………………………………………………………………………………………………

12. Are funds for disaster management usually issued to the entities
concerned? .....................If NO, what do you suggest?
…………………………………………………………………………………………………
…………………………………………………………………………………………………
………………………………………………………………………………………………….

13. Are there any difficulties faced in accessing funds for disaster management at the funding
agency level? If so, what type of activities you think they may be more interested in?
…………………………………………………………………………………………………
…………………………………………………………………………………………………
………………………………………………………………………………………………....

14. Do you feel that the fund flow mechanism in your agency/department is ineffective? If
yes, why?
………………………………………………………………………………………………………
………………………………………………………………………………………………………
……………………………………………………………………………………………………….

15. What should be the mechanism for the flow of funds in case of emergencies/disasters?
…………………………………………………………………………………………………
…………………………………………………………………………………………………

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D. Degree of successes and obstacles

16. Can you measure the degree of successes of your agency/department in the
implementation of flood management activities?
…………………………………………………………………………………………………
…………………………………………………………………………………………………

17. Are there any failures on the part of your agency/department? If yes, why and how can
you measure the failure?
…………………………………………………………………………………………………
…………………………………………………………………………………………………

Thank You Very Much!!! Salamat Po!!!

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 APPENDIX III

QUESTIONNAIRE SURVEY

Personal Information

Name of Respondent……………………………………..Designation/Job……………………...

Department/Area……………………………………………….Date……….………….…………

Address/Contact………………………………………………………………………………….

Gender………………………………………………Age……….……………………………….

A: Pre-disaster Management

1. Do you have a functional Disaster Operation Center in your area?

Yes(__) No(__)
2. Does your area have trained volunteers on call during emergencies? Yes(__) No(__)

3. Are there regular information and early warning signals regarding natural disasters in your
area? Yes(__) No(__)

4. If yes, from where? (__)PDCC (__)CDCC (__)MDCC (__)BDCC (__)Others (Please

specify_____________________________)

5. Have you ever attended any training program on emergency management and disaster
preparedness in the past couple of years? Yes(__) No(__)

6. Do you have any potential natural hazard which can affect your area (e.g. Flood, landslide,
earthquake, liquefaction, etc)? Yes(__) No(__)

7. If yes, please, specify the type of natural hazard______________________________________

______________________________________________________________________________

8. Does your area have any preparedness plan to deal with these types of hazards?
Yes(__) No(__)

9. If no, why your area does not have such plan? (Specify________________________

_____________________________________________________________________________

10 How frequent do you meet to review your preparedness/contingency plan?

(__) Monthly (__) Quarterly (__) Half yearly (__) Yearly (__) Not at all

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11. What are the possible risk reduction measures for flooding in your area?
(__) Flood control (channels, dikes, dams, flood-proofing, erosion control)
(__) Floodplain mapping
(__) Land use planning
(__) Others (Specify__________________________________________________________)

12. What do you feel could be specific preparedness measures for flooding?
(__) Flood detection and warning systems
(__) Community participation and education
(__) Development of master plan for floodplain management
(__) Others (Specify___________________________________________________________

13. Does your area have fund for pre-flood planning and management?
Yes (__) No(__)

14. Kindly describe what happens when it rains heavily in your area
(__)Floods (__)Landslides (__)Others (Specify__________________________________

15. Do you have evacuation routes plan in the event of flooding at an alarming scale in your area?
Yes(__) No(__)

16. If so, how do you get it?

(__) Posted (__) Public Notice (__)Others (Specify________________________________)

17. Does your area have suitable, spacious temporary shelter? Yes(__) No(__)

18. Can you list down the potential hazard impact within your area that can cause
injuries/damages to lives and property?

(__) Collapsing/splitting of buildings

(__) Landslides
(__) Flooding
(__) Terrible debris slides
(__) Mudflows
(__) Fire
(__) Molten rock (Lava) flows

19. Do you have medicines in store for flood disaster preparedness?

Yes(__) No(__)

B: Actual Disaster Management

20. Do you have evacuation equipment (such as ambulances, trucks, etc)?

Yes(__) No(__)

21. Does your area have a search and rescue operation team for flood response?
Yes(__) No(__)

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22. If yes, who are involved in this team?
(__) The civil defense force
(__) Medical personnel
(__) Others (Specify_____________________________________________)
23. Do you have adequate emergency medical facilities in your area? Yes(__) No(__)

24. Do you have sufficient and capable workforce to mobilize affected people in your area to
selected temporary shelter? Yes(__) No(__)

25. Does your area have emergency transport and communication system? Yes(__) No(__)

26. Which agencies do you coordinate with during flood disaster in your area? (__)MDCC
(__)CSOs (__)NGOs (__)Other line agencies

27. Does your area have funds specifically for actual-flood disaster management?
Yes(__) No(__)

28. Does the BDCC allocate or utilize funds from the local Calamity Fund during
flood disaster/emergencies? Yes(__) No(__)

29. Do you receive assistance from the government or non-government institutions during
emergencies? Yes(__) No(__)

30. If yes, which type of assistance do you receive mostly?

(__)Material (__)Financial (__)Shelter (__)Medical (__)Trauma Healing

C: Post- disaster Management

31. Do you have resources to take care of people in trauma and psychosocial problems?
Yes(__) No(__)

32. Are there livelihood programs to bring your area back to pre-disaster state?
Yes(__) No(__)

33. Does your area have funds for post flood activities?
Yes(__) No(__)

34. Do you link with non-governmental organizations and other civil society organizations in the
rebuilding process of your area? Yes(__) No(__)

35. Have you taken any actions or measures against flood hazards in your area since 2001?
Yes(__) No(__)

36. Did you take any action in restoring significant life-giving services (e.g., water, electricity,
etc.) in your area? Yes(__) No(__)

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37. Did you ever experience injury or a death within the family from exposure to the hazards in
your area?
(__) No injury or damage to health
(__) Minor injury or damage to health
(__) Major injury or damage to health
(__) Death of a person
(__) Many deaths
38. Did your family experience damage to their property during the disaster you mentioned?
(__) Zero damage
(__) Minor damage
(__) Local damage
(__) Major damage
(__) Extensive damage

39. What is the effect of damage to your livelihood/income to vulnerability?

(__) No effect
(__) Minor effect
(__) Disruptive effect
(__) Major effect
(__) Irreversible damage/effect to livelihood

40. How capable are you to get medical attention and insurance availability?
(__) Very capable
(__) More than capable
(__) Capable
(__) Moderately capable
(__) Limited capacity
(__) Not capable at all

41. How strong was the assistance extended to you and to the area?
(__) Immediate and extensive assistance
(__) Limited assistance
(__) Minimal assistance
(__) No help at all

42. Is there any coordination between the government agencies, non-governmental organizations
and civil society organizations in disaster management activities in your area? Yes(__) No(__)

43. If yes, how do you describe the level of coordination?

(__) Very high (__) High
(__) Low (__) Very low

44. What factors do you think can facilitate coordination among the government agencies, NGOs
and Civil Society Organizations in the 3 phases of flood planning and management?
(__) Planning meetings
(__) Communications capability
(__) Cooperation
(__) Others (Specify__________________________________________________________)

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45. What do you feel are the typical post disaster needs in your community?
(__) Search and rescue (__) Medical assistance (__) Disaster assistance
(__) Short term food and water supplies (__) Water purification
(__) Temporary shelter (__) Epidemiological surveillance

46. How efficient and effective are the public and private agencies/organizations in the
management of the 3 phases of disasters in your area?
(__) Highly efficient
(__) Efficient
(__) Less efficient
(__) Not at all

THANK YOU VERY MUCH!!! (SALAMAT PO!!!)

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 APPENDIX IV: SALUG VALLEY WATERSHED AREAS
SALUG VALLEY WATERSHED AREAS

PROVINCE/MUNICIPALITIES BARANGAYS IN Total No.

Headwater/
ZAMBOANGA DEL SUR Aquifer Upland areas Lowland areas Coastal Areas of Brgys.

(district 1)

1. AURORA 6 Barangays 7 Barangays 2 barangays 15 Brgys

Anonang Mahayahay Balas
Sagrada
Inasagan Tagolalo Familia
K ahayagan East Gubaan
Kahayagan Wesrt Lintugop
Monte Alegre Campo I
Sapa Loboc
Romarate La Paz

2. DUMINGAG 8 Baraqngays 12 Barangays 12 Barangays 32 Brgys

Dapiwak Bagong Kauswagan Bucayan
Dilud Bagong Valencia Calumangi
Dulop Ditulan Caridad
Lipawan Guintananan Guitran
Saad La Fortuna Libertad
Salvador Licabang Lo. Landing
Senonok Mahayahay Lo. Timonan
Sunop Malagalad Manlabay
Marangan Maralag
San Juan New Basak
Tagun Up. Landing
Tamurayan Up. Timonan

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3. JOSEFINA 9 Barangays 5 Barangays 14 Brgys
Bogo Calabat Ebarle
Dawa Gumahan
Leonardo Lo. B-Tudela
Litapn Tagaytay
Mansanas Up. B- Tudela
Moradje
Nemeño
Nopolan
Sebucang

PROVINCE/MUNICIPALITIES BARANGAYS IN Total no.

Headwater/
Aquifer Upland areas Lowland areas Coastal Areas of Brgys

4. MAHAYAG 6 Barangays 9 Barangays 14 Barangays 29 Brgys

Diwan Bagong Dalaguete Lo. Salug Dako
Paraiso Balanan Balamban
Pidagan Sur Boniao DCM
Tuboran Delusum Kabuhi
Malubo Kaangayan Lourmah
Guripan Maguiles Lo. Sto. Niño
Panagaan Poblacion
San Vicente Puguan
Tulan San Isidro
San Jose
Sta Cruz
Tumapic
Up. Salug Dako
Up. Sto. Niño

5. MIDSALIP 1 barangay 1 Brgy

Kahayagan

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6. MOLAVE 9 Barangays 7 Barangays 9 barangays 25 Brgys
Bag-ong Ariosa Santo Rosario Maloloy-on
Bag-ong Gutlang Bag-ong Argao Madasigon
Silangit Duntulan Makugihon
Siamta Gunosan Culo
Alicia Dalaon Blancia
Up Dimorok Mabuhay Dipolo
Lo. Dimorok Bogo Kapalaran Rizal
Parasan Sudlon
Lo. Dimalinao Miligan

7. RAMON MAGSAYSAY 5 Barangays 8 Barangays 7 Barangays 20 Brgys

Mabini Bagong Opon Campo IV
Malating Bambong Daku Campo V
Gapasan Bambong Diut Esperanza
Caniangan Bobongan katipunan
Wakat Eastern Bobongan Magsaysay
Paradise Pasingkalan
San Fernando Switch
Sinaging

8. SOMINOT 3 Barangays 3 Barangays 6 Brgys

Up. Sicpao Bag-ong Oroqueta
Rizal New Carmen
Tungawan Lantawan

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9. TAMBULIG 6 Barangays 8 Barangays 14 Barangays 3 Barangays 31 Brgys
B. Kauswagan Balucot Kapalaran Angeles
B. Tabugon Calulot Alang-alang Sumalig
Maya-maya Diamlinao Balugo Cabgan
Pelocoban Gabunon H.Valley
Tuluan Libato Lo Tiparak
Up Lodiong Limamaan Lo. Lodiong
Lo. Liazon Lo. Usogan
Up. Liazon New Village
Riverside
Sagrada Familya
San Jose
San Vicente
Tungawan
Up. Tiparak

ZAMBOANGA DEL NORTE

1. SERGIO OSMEÑA 11 Barangays 11 Barangays 2 Barangays 24 Brgys

B-Bagiuio Buenavista New tangub
Venus Danao San Jose
Dampalan Don Elena
Tinindugan Kauswagan
liwanag Labinay
Pedagan Norte Mabuhay
Pren Lermaya Macalibre
Nebo Pob. Bajo
San Isidro San Juan
Tinago Sinai
Wilben Sinaad

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MISAMIS OCCIDENTAL

1. BONIFACIO 3 Barangays 3 barangays 3 Barangays 9Brgys

Kanao-Kanao Tusik Liloan
Up. Usogan Tianman Bolinsong
Buenavista Calolot Tiaman

2. DON VICTORIANO 5 barangays 2 Barangays 7Brgys

Bagong Clarin Petianan
Mara Mara Lalud
Tuno
Napangan
Lake Duminagar

TOTAL 65 Brgys 75 Brgys 68 Brgys 5 Brgys 213 Brgys

Source: Salug Valley Development Framework Plan, 2003 - 2012

165