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Disaster Risk Management Initiatives for Selected Areas in Cagayan de Oro

City: Micro-Scale Approaches

Conference Paper · November 2011

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

Dexter S. Lo

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

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

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

of fatalities during disasters. The growth of informal

1 INTRODUCTION settlements and inner city slums has led to growth of
According to a 2009 joint report of the United Nations unstable living environments because these settlements are
International Strategy for Disaster Reduction (UN ISDR) often located at ravines, on steep slopes, or along flood
and the Centre for Research and the Epidemiology of plains. It is widely recognized that one of the factors that
Disasters (CRED), more than 98% of the people killed in enhances the rise of disaster losses throughout the world in
2008 due to natural disasters were in Asia; and nine of the recent times is the population explosion combined with
ten countries with the highest disaster deaths were also in demographic change and movements leading to unplanned
Asia. urbanization (Baas, et. al., 2008).

The Philippines happens to be geographically located in one Disasters are events that disrupt the normal and functional
of the most geologically and meteorologically dynamic operations of a community; and the term Disaster Risk refers
territories in Asia. It lies within the Pacific Ring of Fire to the likelihood of this loss or harm. Few projects on
where 80% of the world's earthquakes occur. At least 22 of disaster risk estimation have been done in the Philippines,
the country's 200 volcanoes are considered active and are but these are either on provincial or metropolitan level
scattered all over the archipelago. Average of 20 typhoons (Manila Observatory, 2005; Fernandez et. al., 2006). These
ravage the country every year affecting millions of lives. studies can be useful in disaster management plans in the
Disaster damages are also worsening because of the national or regional levels; however as often the case, these
alarming degradation of the country’s environment. In 2007, are not clearly translated at the more basic component of
a total of 236 disaster events happened in the country, society (e.g., barangays, zones) since the results are rather
affecting more than 4 million people and damaging closely generalized. Thus, a localized or micro-scaled approach is
to 30,000 houses (CDRC, 2008). needed so that local actors who are directly affected of their
jurisdiction’s development programs are able to respond
As a response to the global socio-economic challenges of the more appropriately.
times, many urban cities and barangays (villages) in the
Philippines experience rapid development growth. However, Three major studies were conducted by the Xavier
a common consequence of this rush growth is the triggering University Engineering Resource Center (XUERC) in the
of haphazard urban development which may increase risks last three years, using different scales against various

37th PICE National Convention | Philippine Institute of Civil Engineers | 17-19 November 2011 1
potential hazards in selected areas of Cagayan de Oro City greater levels of loss. However, this also means that to be
(CDOC). The city is considered the gateway to Mindanao, able to reduce disaster risk, it is important to reduce the level
one of the three largest islands in the Philippine archipelago. of vulnerability and to keep exposure as far away from
CDOC is currently experiencing rapid commercial, hazards as possible by relocating populations and property.
residential, and industrial expansions. It is an economic The reduction of vulnerability can be achieved through such
hotspot which links agro-based products of neighboring measures as mitigation, adaptation and preparedness
provinces to the country's central economic institutions in strategies.
metropolitan cities like Manila, Cebu, and even abroad. This
paper showcases the different methodologies and locally and The United Nations Development Program (UNDP, 2004)
thematically appropriate approaches used in these three case quantifies disaster risk in terms of the equation:
studies presented below.
Risk = Hazard x Population x Vulnerability (2)

2 CONCEPTUAL FRAMEWORK expressing that disaster risk assessment includes

Disasters are serious events that disrupt the normal and relationships between the strength and frequency of a given
functional operations of a community. They arise from either hazard, the exposed population density, the socio-economic
natural or man-made hazards; but these hazards only result status of the community, and the hazard-specific
to disasters when they affect people who cannot cope with vulnerability of the built environment. Mathematically, it
the damaging impacts. Natural disasters are caused by simply translates that the level of disaster risk is very low or
hazards due to the natural dynamic systems of the earth like zero even if there is an occurrence of strong hazard intensity
floods. While man-made or technological disasters are but there is no population exposed or the infrastructures can
caused by consequences of human actions like fire, industry withstand the damage. It is therefore clearly shown that
and transport accidents, etcetera. The term Disaster Risk, or disaster risk arises only when there is a vulnerable
oftentimes referred as the Disaster Risk Index (DRi) population.
estimates the likelihood of this loss or harm.
This multi-parameter approach can also help better extract,
Pacheco (2004) summarized the Asian Disaster Reduction assess and even improve the community’s disaster risk
Center’s database of natural disasters in the Philippines and management and reduction strategies, and thus enhance
its damages from 1901-2000. It is shown that flood ranks 3rd resiliency against potential risks.
with respect to the amount of economic damage, next to
wind storm and earthquake. However in terms of frequency, All of the above parameters are explored at the micro-scale
flood ranks 2nd. In the local scene, records from the Bureau and in partnership with stakeholders (local government unit,
of Fire Protection (BFP) show that in 2007 there are 58 fire line agencies of the government). Micro-scale is the term
incidents in CDOC costing millions of pesos in damages. used to mean that the basic unit of analysis is either the
barangay (village) if city-wide, or the sitio (zone) if
A hazard, like flood or fire or earthquake, is defined as a barangay-wide, or household if sitio-wide, depending what
process or event that is potentially damaging to the best fit for the analysis of a specific hazard. With this
community, in that it may result to loss of life or damage to approach, the case studies also showcase the better promise
property. On the other hand, vulnerability may be quantified of community-based disaster risk management hopefully
as to how resistant and efficient the existing environment is leading to a more well-accepted risk-sensitive land use plan
in that area when a specific hazard strikes. More so, the and development for the community.
density of the exposed population, their age structure and
prevalent socio-economic condition also influence the
assessment of disaster risk (ADRC, 2007; UNDP, 2004; 3 CASE STUDIES
Dilley, et. al., 2005; Kriemer, et. al. 2003). Integrating this 3.1 Case Study 1: “Disaster Risk Mapping of Barangay
complex interplay of hazard, exposed population and Carmen: Flood, Fire and Earthquake” (2009)
vulnerability is the underlying principle used in the analyses
of the three studies conducted by XUERC. Highlights:
The objective of this study is to generate Disaster Risk Maps
Therefore in general, disaster risk is defined as the due to Flood, Fire and Earthquake for Barangay Carmen.
expectation value of losses (deaths, injuries, property) that The basic unit of analysis is the barangay’s political zone
would be caused by a hazard. Disaster Risk Index (DRi) can since it is the most fundamental unit in government where
therefore be seen as a function of Hazard (H), Exposure (E) policy change may be enacted.
and Vulnerability (V) as follows:
Carmen is the most populated barangay in CDOC. With a
DRi = function (H, E, V) (1) total land area of more than 560 hectares in 13 political
zones, it is home to more than 10 educational institutions,
This suggests that growing exposure and delays in reducing more than 10 regional government agencies, various
vulnerabilities result in an increased number of disasters and landmark institutions and major commercial establishments.

37th PICE National Convention | Philippine Institute of Civil Engineers | 17-19 November 2011 2
It is where two of the five major bridge abutments lie
making the barangay of critical importance for the city’s
operations. It also hosts the controversial dumpsite which
caters the solid waste generated by the city. Carmen is also
an interesting pilot area because of its varied geographic
landscape. To the east, a long stretch of communities is
bounded by the Cagayan de Oro River; while on the south
are ranges of plateau where major residential and
commercial developments cloud.

However, amidst these seemingly escalating developments,

in the 2004 Barangay Carmen Development Plan, it is noted
that households whose monthly income above poverty line is
only 1,115 and 8,935 still lives below poverty threshold. It is
not surprising that informal settlements presently swarm on
sloped landscapes and public open-creeks; while multi-
million residences are also in full-blown construction in
some parts. This alarming disparity not only places a gap in
social and economic standards and lifestyle of the residents,
but may also have critical impacts to disaster resiliency of
the barangay; and may therefore adversely affect the
operation of the city and the region as well.

Results of this study include GIS-based maps indicating the

critical areas (sitio or zones) which express the gravity of the
situation as well as the level of risk against flood, fire and
earthquake (Figures 1 for flood; 2 for fire; and 3 for
earthquake). Fig. 2 Fire Risk Map of Barangay Carmen

Fig. 1 Flood Risk Map of Barangay Carmen Fig. 3 Seismic Risk Map of Barangay Carmen

37th PICE National Convention | Philippine Institute of Civil Engineers | 17-19 November 2011 3
The identified high risk sites for flood have been validated
by the historical January 2009 Cagayan de Oro floods. The
high risk sites for fire were identified to have structures with
no defined road access, dominantly made from combustible
materials and were very closely built to each other. While for
earthquake, high risk zones are areas which are swarmed
with structures of which many are non-engineered and are
built on slopes.

3.2 Case Study 2: “Flood Risk Profile of Sitio Cala-cala,

Barangay Macasandig” (2010)

Highlights:
The objective of this study is to determine the relative level
of risk against flood for Sitio Cala-cala. The basic unit of
analysis is the household level since all of Cala-cala is
generally flooded when the Cagayan de Oro River inundates.

In January 2009, CDOC was terribly devastated by series of

floods. More than 21,000 families were affected within the
city alone; and roughly 20,000 families more in neighboring
municipalities within the province. Barangay Macasandig,
where Sitio Cala-cala is located, is one of the heavily hit
riverine communities in CDOC; with approximately 2,500
residents affected by the said floods. The damage in
Barangay Macasandig has been heavy due to the many
settlements located at the natural floodplain areas;
particularly at Sitio Cala-cala.

In Cala-cala, many of the houses were left only with

portions of the structures standing while others were reduced
to rubble or totally washed away during the height of the Fig. 4 Flood Risk Map of Sitio Cala-cala
floods. The aftermath was that there were hundreds left
homeless; and desperately waiting for humanitarian aid.
3.3 Case Study 3: “Disaster Risk Reduction Program for
However, despite the devastating floods, the residents Poblacion, CDOC: Fire and Earthquake” (2011)
persisted in rebuilding their houses on the same sites. This
has halted humanitarian agencies to proceed the granting of Highlights:
funds due to lack of well-planned and more sustainable The objective of this study is to recommend mitigation
long-term development programs. Thus, it was deemed measures and preparedness strategies for a comprehensive
necessary to conduct series of engineering, medical, and Disaster Risk Reduction Program for the Poblacion area of
sociological studies related to flood risk of this area. CDOC. The hazards considered are Fire and Earthquake
since these are the potential threats of the area. The basic
For the engineering component, a detailed analysis involving unit of analysis is the street block since it generally serves as
various factors such as elevations and contours, proximity to a barrier against fire or aggravated damage due to collapse
the river and river metamorphosis, as well as some inherent of adjacent buildings due to strong earthquakes.
socio-economic factors was done.
The Poblacion area of CDOC is composed of 40 barangays
Similarly, results are displayed through GIS-based maps (out of the 80 barangays that composed the city). It is the
indicating which households are at critical levels of risk heart of historical and cultural developments, as well as the
against devastation when the area is flooded. The map also hub for business, education, and government operations.
shows the often misconstrued notion that the households
closest to the river, although probably most vulnerable in The Poblacion area covers more than 340 hectares of mostly
terms of floodwater depth, may not necessarily be the most developed land (commercial districts, institutional buildings,
at risk in terms of population count and capacity to industrial facilities, public parks, formal and informal
withstand the stresses vis-à-vis economic resiliency (as residences). Old houses built before modern structural and
indicated in Figure 4). Thus, relief operations may be also be fire codes were implemented are still found within the area;
reviewed for a more efficient impact. existence of non-engineered structures are also evident.

37th PICE National Convention | Philippine Institute of Civil Engineers | 17-19 November 2011 4
Results are likewise displayed through GIS-based maps And since road networks are easily overlaid on these maps,
indicating which blocks are at risk against fire and against possible emergency routes can be plotted for more effective
earthquake (Figures 5 and 6, respectively). and coordinated response operations; possible evacuation
sites may also be clearly identified (Figure 7).

4 CONCLUDING REMARKS
The paper showcased three case studies that offer better
promise of community-based disaster risk management; by
exploring the risk parameters at micro-scale. The experience
teaches us that involving the locals in the exercise enhances
a warmer acceptance of the results and recommendations.
Also very instrumental in these endeavors was to capacitate
the locals with the science of disasters in a language most
fitting, familiar and particularly tailored for their work or
role as public servants or simply as residents.

Technically, the results generally suggest that to reduce the

community’s vulnerability, it is highly recommended that a
committed and conscientious effort in implementing strict
Fig. 5 Fire Risk Map of Poblacion code compliance and laws implementation must be done. In
addition, the population development, especially the poor
communities in these areas must be given careful attention
and decisive action. To empower these economically
marginalized members of society may also give them a
chance to build structurally sound infrastructures, and
having the option to avoid slopes and flood-prone areas. In
turn, the majority of the community will have a better share
of the promise of truly beneficial sustainable development.

ACKNOWLEDGMENT
The author would like to thank the people of Barangay
Carmen and Sitio Cala-cala for being very supportive of the
projects. Deep gratitude is also warmly extended to the
Office of Civil Defense - 10, the Mines and Geosciences
Bureau - 10, the Bureau of Fire Protection - 10, and the
Cagayan de Oro City Planning and Development Office.

Fig. 6 Seismic Risk Map of Poblacion Special citations are due to the author’s research associates
and staff in the XUERC: (1) DM Achas and MA Sabines for
GIS; (2) MMagallona, DRCahanap, SGulde and JMacarat
for the Carmen study; (3) PDAkut, MCorre, SDayyo,
DFPagapulaan, JSabuero, DTaboada, KFlores and
JKGialogo for the Cala-cala study; (4) LBAngeles,
JOAquino, LCurig, RJEbuña and FLaVictoria for the
Poblacion study; and (5) AWOreta for Seismic Risk.

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