Final Report
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Final Report International Federation of Red Cross and Red Crescent Societies Emergency appeal n° MDRPH001 PHILIPPINES: Final Report 18 September 2008 Landslides and Floods Period covered by the Final Report : February 2006 – April 2008 With the consent of the partner donors, the balance of approximately CHF 200,000 from the operation has been reallocated to Emergency Appeal MDRPH002: Philippines Typhoons, which has received inadequate coverage so far. <click here for the Philippines Typhoons appeal and here for Final Financial Report> Appeal target: CHF 2.80 million1 (USD 2.67 million or EUR 1.70 million). Final appeal coverage: 90% <click here for contact details > Appeal history: • A preliminary appeal was launched on 17 February 2006 for CHF 2.13 million (USD 1.73 million or EUR 1.29 million) for six months. • On 8 March 2006, appeal was revised to CHF 2.59 million to assist 8,000 beneficiaries for 18 months, to 31 August 2007, focusing on recovery and rehabilitation. • On 22 June 2006, the appeal budget was increased to CHF 2.66 million (USD 2.17 million or EUR 1.62 million) as recorded in Operations Update no. 5 • In June 2007, the budget was revised to CHF 2.83 million, taking into consideration support from the Geneva secretariat in programming and fundraising, and documented in Operations Update No. 6. • Disaster Relief Emergency Funds (DREF) allocated: CHF 200,000 (USD 162,602 or EUR 121,212). • Several extensions were necessary due to bankruptcy of the designated construction company and the lead time to allow PNRC to administer the final construction themselves. A dispute related to the ownership of the land on which the Red Cross chapter premises are built further hampered the implementatio n of part of the programme. • The operation came to a close at the end of May 2008. The PNRC village in Catmon with 192 houses (International Federation) 1 Budget revised from CHF 2.83 million to CHF 2.80 million – see Operations Update no. 8 Philippines: Landslides and Floods; Appeal no. MDRPH001; Interim Final Report 2 Summary: This report seeks to faithfully provide information on the successes and lessons learnt of a programme that faced major challenges in its implementation. In its course of supporting families affected by the Guinsaugon landslides with food and non-food relief items, camp management and new homes, the Philippines National Red Cross (PNRC) society was also caught in a situation where provision of these new homes took far more time than originally planned. This situation led to several activities being cancelled due to financial constraints or avoidance of duplication. These financial constraints were tied to the increasing cost of labour and supplies as a result of inflation, while planned activities were subject to re-thinking in order to not duplicate similar activities already implemented in the field. One major factor that exacerbated the situation is probably the poor performance and subsequent bankruptcy of the company contracted for the construction of the homes. This was also compounded by the contractor’s preference of avoiding what was considered a transparent and reasonable solution to the problem. This created a legal deadlock that needed a very careful and time-consuming response to avoid an even longer legal dispute that could have adversely affected the programme and subsequently, the beneficiaries, indefinitely. There were also several other causes of delay. These included (1) less-than-adequate initial assessments of the needs and working conditions in the field; (2) subsequent challenges due to the incompatibility of existing PNRC systems and procedures with the operation; and/or (3) insufficient management experience in recovery programmes at chapter and headquarters levels. Following its identification of these factors and in a bid to improve its service delivery, the PNRC has realized the need to review the structure of its logistics and finance systems. This forms the basis for the national society’s renewed commitment to capacity building and systems development. Once fully developed, these structures could help the national society become as proficient at managing community-based risk reduction and recovery programmes as it is in emergency response. Despite these challenges and the need to address its identified limitations, the PNRC achieved considerable progress between September 2006 and July 2007 in constructing 12,300 homes in ten provinces using lessons learnt from the landslide operation. This effort should be taken into account in evaluating this programme. The key objectives of this operation were: The PNRC will provide necessary relief for the affected persons of I. Emergency relief the mudslide. The PNRC has the capacity to provide psychological support and II. Health and care training. III. Emergency response and risk The PNRC will upgrade and enhance the capacity of the chapters reduction capacity to respond to disasters. building IV. Organizational The PNRC will strengthen the organizational capacity of chapters. development V. Reconstruction The PNRC will provide shelter to the evacuees and train health and recovery volunteers to be mobilized. VI. Management and The PNRC with the International Federation will create effective coordination administration and management for the appeal Philippines: Landslides and Floods; Appeal no. MDRPH001; Interim Final Report 3 The situation On 17 February 2006, following heavy continuous rain for more than a week, a devastating landslide occurred killing 1,126 persons and affecting approximately 8,000 persons in Guinsaugon village of the St. Bernard municipality, wiping out an entire village including a school packed with school children and teachers. The consequences of the landslide have left an indelible mark on the lives of those affected who lost homes, property and loved ones buried under tonnes of mud and soil up to ten feet high. Mass evacuation of residents from surrounding villages also at risk also took place as heavy rains continued after the landslide. The Philippine National Red Cross (PNRC) immediately responded to the situation by conducting search and rescue operations, emergency food supplies, relief distribution and needs assessment. Rescue and response teams from Southern Leyte, nearby chapters and national headquarters were also mobilized to assist in the evacuation and transfer, and food distribution to those affected. The speed and professionalism of the PNRC’s disaster management machinery in conjunction with government and other local agencies were highlighted in this operation. The PNRC disaster response teams were able to provide blankets, plastic mats, mosquito nets, towels and cot beds to 1,000 families in the quick brief relief phase of the operation. The national society continued its support by supplying food items to 221 families housed in the evacuation centre in Catmon over six months. Psychosocial support was also provided to the affected families. The International Federation released CHF200,000 from the Disaster Relief Emergency Fund (DREF) enabling the PNRC to take further action in the disaster area. The International Federation also augmented the human resources of the National Society by sending technical staff, field assessment and coordination team (FACT) members and emergency response unit (ERU) teams as well as a senior delegate to the operation. With the immediate food and non-food needs sufficiently addressed by the national society with International Federation support, the humanitarian focus then centred on medium and longer term imperatives to complement the efforts of government and non-government organizations in addressing the post-disaster needs of the affected population. The International Federation launched an emergency appeal to support PNRC on the early recovery and rehabilitation - shelter, relocation, water and sanitation, health and care, livelihood training and risk reduction capacity building. The PNRC chairman also launched an appeal to both local and international donors with an in- country presence which gathered an overwhelming support of cash and in-kind donations. Within the extended appeal timeframe, PNRC completed 191 housing units complete with electricity and water supply. Selected community leaders as well as municipal leaders also benefited from disaster management training and basic safety training to be better prepared for future disasters. To ensure adequate response capacity of the chapter in case of future disasters, an ambitious staff and volunteer training plan was implemented. Some basic renovation of its chapter premises and response equipment completed the chapter’s upgrading. During implementation, the project encountered many major challenges. These included: 1) Severe difficulties in securing a suitable plot of land on which the housing units were to be constructed. After a A closer look of the houses funded by the Appeal (International Federation) long process of negotiation with the local authorities, a decision was made to use part of the funds obtained through local fundraising for the purchase of actual land. Philippines: Landslides and Floods; Appeal no. MDRPH001; Interim Final Report 4 2) Inability of the contractor to honour commitments as in the contract and unwillingness on their side to find a solution agreeable to all parties. 3) Correction of some initial understanding and subsequent planning of the programme as certain needs were either irrelevant or turned out to be covered through the efforts of other agencies. 4) The