International Journal of Sustainable Future for Human Security DISASTER MITIGATION J-SustaiN Vol. 3, No. 1 (2015) 37-45 http://www.j-sustain.com MITIGATIONMITIGATION Generally speaking, tropical cyclones can bring about storm Typhoon Haiyan 2013 surges that can cause great damage to unprepared developing countries, though even developed countries like the United States Evacuation Preparations and and Japan can also be greatly affected by these events [2] [3]. Awareness Typhoon Haiyan, in 2013, could be considered another defining event in raising awareness about storm surges, not only in the a* b Philippines but within the entire world. Miguel Esteban , Ven Paolo Valenzuela , Nam Category 5 Typhoon Haiyan (known as Yolanda in the Yi Yunc, Takahito Mikamic, Tomoya Philippines) made landfall in the Philippines on the 8th November Shibayamac, Ryo Matsumarud, Hiroshi Takagie, 2013 at almost the peak of its power, devastating the islands of Leyte f g and Samar and causing large damage to other areas in the Visayas[4, Nguyen Danh Thao , Mario De Leon , 5]. The maximum sustained wind speeds were around 160 knots, Takahiro Oyamac, Ryota Nakamurac. the largest in the recorded history of the Western North Pacific. The strong winds, together with the typhoon’s extremely low aGraduation Program in Sustainability Science, Global Leadership central pressure (895hPa), generated a huge storm surge which Initiative (GPSS-GLI), The University of Tokyo, Tokyo, Japan engulfed several coastal towns and caused particularly large b Centre for disaster preparedness, Manila, Philippines damage to Tacloban city. The typhoon’s strong winds caused c Department of Civil & Environmental Engineering, Waseda devastating damage to the vegetation, leaving behind bare University, Tokyo, Japan mountains and flattened fields only dotted with the rare dead tree d Department of Regional Development Studies, Toyo University eTokyo Institute of Technolgy, Tokyo, Japan trunks that were left standing. Most infrastructure suffered some f Ho Chi Minh City University of Technology, Vietnam degree of damage and all informal dwellings were torn apart, with g De la Salle University, Manila, Philippines their components scattered throughout the surrounding countryside. Even well-built schools and other government buildings suffered serious damage, with their roofs being blown Received: October 10, 2014/ Accepted: March 20, 2015 away and most windows shattered, and generally speaking few human constructions in the area surveyed survived intact. Abstract As a result, Haiyan caused a great number of casualties, with an Category 5 Typhoon Haiyan (known as Yolanda in the estimated 6,201 individuals reported dead, 28,626 injured and 1,785 Philippines) made landfall in the Philippines on the 8th November still missing [4]. It was one of the deadliest disasters to have 2013 at almost the peak of its power, devastating the islands of affected the country, surpassing that of the 1991 floods in the Leyte and Samar, amongst other places. The present paper Ormoc region in western Leyte, where 5,101 people were killed by analyses the degree of awareness and preparedness of the islands Tropical Storm Thelma. The number of damaged houses is of Samar and Leyte in the Philippines against storm surges prior estimated at 1,140,332, with 550,928 of them being completely to the arrival of typhoon Haiyan. The analysis was based on field destroyed [4], and this indeed could prove to be the most expensive surveys and interviewed with a variety of local residents and disaster in the history of the Philippines [5]. officials conducted during field surveys in the months after the Following each coastal disaster, be it a tsunami or a storm event. One of the key problems identified during the interviews surge, there is typically a major drive to increase disaster was how people were not able to clearly conceptualize the concept preparedness through the construction of defence structures, of storm surge. Despite receiving storm surge warnings it appears relocation of communities away from danger zones and the that many residents and local authorities “under-estimated” the improvement of evacuation systems [1]. Essentially, in flood risk event and thought that they could evacuate at a later stage or management a number of different types of measures to protect during the storm itself. The results clearly highlight the need for against disasters can be attempted, which leads to the concept of better education and for development strategies in the region to multi-layer safety [6]. Multi-layer safety introduces the integration focus on improving the resilience of local inhabitants. of flood risk probability-reducing measures and loss-mitigating measures in a flood protection system [7]. The degree to which Keywords: Typhoon Yolanda; Awareness; Preparedness;, such a multiple-layer system is developed in various countries Resilience; Evacuation Preparations varies depending on the level of priority, awareness and preparedness [1]. Developing countries, such as the Philippines, whose resources for constructing infrastructure are limited, often 1. Introduction only use loss-mitigating measures, which are typically cheaper and smaller in scale than prevention structures. There is an increasing worldwide awareness of the risk associated In the present paper the authors will attempt to analyse the with coastal natural disasters such as tsunamis and typhoons due to degree of awareness and preparedness of the islands of Samar and the high number of severe coastal disasters documented by the Leyte in the Philippines against storm surges prior to the arrival of world’s media since the Indian Ocean Tsunami in 2004. This was typhoon Haiyan. The degree of awareness and preparedness can be arguably one of the greatest disasters of recent times, with the reflected by a number of factors, depending on the willingness to media widely broadcasting its consequences and introducing the evacuate, protection measures implemented and the various word “tsunami” to the grand majority of the world’s population measures taken by authorities or individuals [1]. In order to attempt (though some countries, such as Japan or Chile, had a long history such an analysis the authors conducted field surveys and of experience and awareness about these events[1]). Events such as interviewed a variety of local residents and officials, as detailed Hurricane Katrina also raised awareness about the flooding that later. The results will showcase the importance of improving can be brought about by tropical cyclones, though in that case education and disaster prevention efforts into the development much of the attention was concentrated on issues regarding the agenda. Given the large number of typhoons affecting the weakness of the levees and New Orleans being below sea level. 37 Esteban, M; Valenzuela, V P, Yun, N Y, Mikami, T, Shibayama, T, Matsumaru, R, Takagi, H, Thao, N D, De Leon, M,Oyama, T, Nakamura, R/ J- SustaiN Vol. 3, No. 1 (2015) 37-45 Philippines every year it is clear that such efforts to improve the it was not only wooden houses suffered damage, but also more solid resilience of coastal communities are imperative for the sustainable concrete constructions, ships, or oil tanks. Large wind speeds also development of the country. contributed to further devastate the area and throughout the entire region the roofs of even the sturdiest houses and buildings were 2. Survey Background blown off, with everything else reduced to rubble, including most of the vegetation. A storm surge field survey was conducted by a 16-member There are a number of reasons explaining why the storm surge multidisciplinary team of coastal engineering and social science was particularly large in Tacloban: (1) the severe typhoon intensity academics and practitioners. The surveys began approximately one was characterized by extremely low pressures and high winds, (2) month after the typhoon made landfall and went on for one week, the V-shaped shape geography of the area funnelled the mass of covering over 150km of coastline in the islands of Leyte, Eastern water, with the shallow depths of San Pedro Bay amplifying the Samar and northern Cebu. Figure 1 shows the location of the areas surge heights, and (3) the typhoon track resulted in the wind surveyed in Leyte and Eastern Samar, which were the worst affected blowing from south to north, pushing the water mass towards the areas and the target of the research described in this research. The end of the bay. survey had a dual purpose: to determine the storm surge In order to discuss awareness, the authors will use the theory of inundation height and understand the behaviour of the authorities multi-layer safety as a framework for the discussion of and population during the event. Details and characterization of countermeasures [1] [6] [7]. Typically three safety layers can be the storm surge was studied in detail by the authors elsewhere [8]. distinguished: Thus, the present paper will focus almost exclusively on explaining -Layer 1. Prevention, consisting of measures such as dykes or the behaviour of authorities and population during the event. breakwaters to avoid penetrating into the land The area surveyed was generally characterized by being -Layer 2. Spatial solutions, which consist of placing residential composed of relatively low grounds next the sea, were most human areas away from areas which are potentially hazardous settlements were situated. Hills could be found in various coastal -Layer 3. Emergency Management and Evacuation, consisting of areas, and though modest in height, would have prevented the preparing plans to evacuate residents in the events of a disaster, storm surge advancing, though most of the settlements were through the elaboration or risk maps, early-warning systems and located in the lower ground between the hills. Thus, the number of the provision of medical help to those affected. people living in hazardous areas was high, especially considering Based on the authors’ consultation with authorities following that informal settlers often colonize the coastal area in places like the disaster (as will be detailed later) it was clear that a law banning Tacloban.