Cover photos: (Top) Validation workshop with Zone leaders and officials in Barangay Carmen, on 26 November 2013. (Bottom) Swelling of Cagayan River during Tropical Storm Agaton on 21 January 2014 threatening to flood houses along the riverside barangays of the City. CONTENTS

1. INTRODUCTION ...... 1 1.1. Overview Of Disasters in the and Northern Mindanao ...... 1 1.2. Disaster Risk Reduction Initiatives in Cagayan de Oro ...... 1 1.3. Barangay Carmen Disaster Risk Assessment Collaboration ...... 2 1.4. Report Structure ...... 3 1.5. Methodology ...... 3 2. HAZARD ASSESSMENT ...... 5 2.1. How the tropical rain belt, monsoon and La Nina interacted for Sendong ...... 5 2.2. Flood Reference Events ...... 6 2.3. Rainfall Characteristics of Flood Reference Events ...... 7 3. EXPOSURE ASSESSMENT ...... 10 3.1. Characteristics of exposed population ...... 10 3.2. Characteristics of Exposed Assets ...... 11 3.3. Geohazard Exposure and Needed Integration with Comprehensive Land Use Plan ...... 14 3.4. Exposure of non-riverside zones to drainage-induced flooding ...... 16 4. ANALYSIS OF VULNERABILITIES AND CAPACITIES ...... 17 4.1. Community-Reported Flood-Prone Areas ...... 17 4.2. Factors Perceived to Influence Vulnerability ...... 19 4.3. Employment and Livelihood and how these contribute to risk ...... 19 4.4. Coping and Adaptation Strategies ...... 21 4.5. Evacuation Centers, Escape Routes and Pick-up Points ...... 23 5. SOCIO-INSTITUTIONAL ARRANGEMENTS ...... 26 5.1. Barangay Disaster Risk Reduction Management Committee (BDRRMC) ...... 26 5.2. Carmen Rescue Team (CaResT) ...... 26 5.3. Zone-based organizations and informal arrangements ...... 26 5.4. Early Warning System ...... 27 5.5. External Support ...... 28 5.6. Temporary Shelters and Relocation Sites ...... 28 6. SUMMARY OF FINDINGS, LESSONS AND RECOMMENDATIONS ...... 32 6.1. Key Findings ...... 32 6.2. Lessons ...... 33 6.3. Recommendations ...... 34 7. References ...... 36

i TABLES 1 Rainfall Characteristics of Carmen Flood Reference Events 7 2 Types of Buildings, Barangay Carmen, 2010 12 3 Types of Roofing Material, Barangay Carmen, 2010 12 4 Types of Walling Material, Barangay Carmen, 2010 12 5 Year House/Building Was Built, Barangay Carmen, 2010 12 6 Floor Area of Housing Units, Barangay Carmen, 2010 13 7 Tenure Status of Lots, Barangay Carmen, 2010 13 8 Strategies for Coping or Adapting to Flood Hazards 22 9 Barangay Carmen Evacuation Centers 24

FIGURES 1 ESSC Barangay Disaster Risk Assessment Process 4 2 ESSC Process for Barangay-level (PDRA1) and Zone-level (PDRA2) Risk 4 Assessment 3 Rainfall Frequency Analysis of northern Mindanao from TRMM data, 8 1998-2012 4 Ten-day Rainfall accumulation in Cagayan de Oro Watershed, Sendong and 9 Pablo 5 Age Structure of Exposed Population 11 6 Landslide and Flood Susceptibility Map of Cagayan de Oro Quadrangle 15 7 Drainage Issues in Barangay Carmen 17 8a Vulnerability Factors and Prioritization 18 8b Vulnerability Tree Map 18 9 Work Clock, Zone 9 20 10 Household Adaptation Strategy 21 11 Map of Evacuation Centers and Escape Routes, Barangay Carmen, 2013 25

BOX 1 Revisiting the Zone 6 Evacuation Center turned Temporary Shelter 29

ANNEXES 1 Risk Profile, Zone 2 37 2 Risk Profile, Zone 4 40 3 Risk Profile, Zone 5 43 4 Risk Profile, Zone 9 46

This report is an output of the partnership between Environmental Science for Social Change, Xavier University, the City Government of Cagayan de Oro and Barangay Carmen. The goal of the partnership is to improve the natural hazard and disaster risk information base through biophysical and social analysis, for application in developing training programs, land use planning, site development, design of early warning systems and other disaster risk reduction initiatives in Cagayan de Oro City. Main contributors to the report are Joseph Labrador, Wendy Clavano, Rowena Soriaga, Karolin Bauer, and Emmanuel Sambale. The team is grateful for: technical inputs from Pedro Walpole SJ, Andres Ignacio, Jeofferdale Gallamaso and Dexter Lo; management support from Sylvia Miclat and Hilly Ann Roa-Quiaoit. Field coordination was made possible through the active collaboration of Shiela Lumbatan, Edison Suizo, Mario Monsanto, and Isidro Borja from the City Government of Cagayan de Oro.

ii 1. INTRODUCTION

1.1. Overview Of Disasters in the Cagayan de Oro and suffered Philippines and Northern Mindanao similar devastating effects. Within a year (2012), Typhoon Pablo reaffirmed what According to the World Risk Report 2012, had already been in people's minds: that the Philippines is second of 89 countries something needs to be done to prepare ranked at risk from storms, fourth of 162 for flood hazards. from landslides and 8th of 162 from floods. In the OFDA/CRED International 1.2. Disaster Risk Reduction Initiatives in Disaster Database report of 10 most Cagayan de Oro affected countries and with most natural disasters in a period of 10 years (2003- A range of disaster risk reduction initiatives 2012), the Philippines consistently are being planned and carried out in positioned in the top 5. In terms of Cagayan de Oro City, in recognition of its casualties the country was second to economic and strategic importance to in 2011 and topped the list in 2012 Mindanao development. due to Typhoon Pablo (international designation: Bopha). In terms of The Project Climate Twin Phoenix under frequency of disasters in the Philippines, the Climate Change Commission of the flood was consistently number one in Office of the President of the Philippines 2011 and 2012, and second in the (March 2012 to December 2014) aims to preceding two years. While tropical enable the cities of Cagayan de Oro and cyclones do not top the list in terms of Iligan to cope with climate change. frequency, since 2009 they produced the Project components include: (i) disaster highest mortality rate. risk vulnerability assessment for CDO and Iligan cities (and all the municipalities Most deaths from natural disasters in the around Cagayan and Mandulog River country are caused by Basins), (ii) implementation of priority hydrometeorological events. Over the mitigation actions, climate change three years 2010-2012, a total of 1,104 adaptation and disaster risk awareness natural and human-induced disasters raising of general populace, competency were reported in the Philippines. These building on mainstreaming climate disasters killed 3,628 people, and change adaptation and disaster risk resulted in economic damages worth management; (iii) enhancement of socio- P90.9 billion (CDRC 2009-2012). economic resilience of the poor and most vulnerable in the cities, and (iv) Mindanao used to be not as affected by establishment of local knowledge typhoons as Northern , but recent management systems for communities. floods changed this view. The floods brought by heavy rains in January 2009 The WFP and UN-Habitat are jointly inundated commercial and residential implementing the Initiative on Philippine in Cagayan de Oro. Two years Cities and Climate Change Adaptation, a later, in December 2011, Tropical Storm 12-month partnership that began in Sendong (international designation: December 2012 covering four cities Washi) caused much more destruction. affected by Typhoon Pablo: , Sendong triggered flash floods that killed Cagayan de Oro, Davao, and . These 1,268 persons and an economic loss of P cities will be assessed for ecological, 1.5 billion (NDRRMC, 2012). The cities of physical, and socio-economic risks due to climate

1 change, and local government personnel zones are most at risk to . will be capacitated in planning and The flood and fire study generated implementing activities to help their disaster risk maps that were presented to communities adapt to the negative the city, barangay and other relevant effects of a changing climate. institutions.

The JICA-funded Flood Risk Management The Environmental Science for Social Project for Cagayan de Oro River (FRIMP- Change (ESSC) has a Disaster Risk CDOR) runs from August 2012 to March Resilience Program supporting the 2014. The project aims to review and project on Strengthening Disaster Risk update previous Master Plan and Reduction Capacities and Developing Feasibility Study through inspecting and Disaster Protocols. ESSC uses a investigating the latest topographic framework of: (i) learning - to improve conditions, development situation, and understanding of natural hazards and damage surveys given current changes in related risks through scientific analysis national flood mitigation policies relevant and disaster risk assessment; (ii) creating to Cagayan de Oro River. The technical - to develop capacity for risk reduction assistance project will become the basis through social preparedness; (iii) for formulating a loan agreement accompanying emerging structures - to between JICA and DPWH for flood build a network of partners and mitigation in Cagayan de Oro Watershed collaborators who contribute to dialogue through structural and non-structural and exchange on disaster risk reduction measures. A preparatory survey has been and management. This project enables in process since 2013. ESSC to facilitate the Philippine Working Group on Disaster Risk Reduction While city, municipal and river basin level (PWG), a multi-stakeholder and multi- efforts are taking place, initiatives of non- disciplinary venue for discussing DRR government organizations like Balay policies and programs around the Mindanao Foundation, Incorporated country. (BMFI) and academic institutions like Xavier University (XU) focus on barangays 1.3. Barangay Carmen Disaster Risk and communities. BMFI conducted Assessment Collaboration workshops on disaster risk reduction, In 2012, as disaster relief for Sendong response management and resilience evacuees were winding down, building in five barangays in CDO heavily Environmental Science for Social Change affected by Sendong, including barangay (ESSC) and Xavier University (XU) jointly Carmen. The workshop tackled worked to mobilize resources for disaster community disaster preparedness and risk reduction in Northern Mindanao. post-disaster adaptation. BMFI also Building on earlier initiatives, both agreed provided practical support to to select a learning site where methods communities in the recovery process, in to assess disaster risks at the barangay partnership with local governments. level can be tested. The micro-level analysis complements macro-level Xavier University, through the Kinaadman studies being conducted under the Research Center (KRC), conducted two Climate Change Commission (CCC) and technical studies on barangay Carmen JICA-DPWHs project which have a that focused on Seismic Risk Mapping watershed modeling component for the and Disaster Risk Mapping for Barangay Cagayan de Oro and Mandulog river Carmen: Flood and Fire (Lo et. al, 2009). basins to produce flood inundation maps. The mapping exercise revealed which

2 Barangay Carmen was selected as the and in the process achieve its mandate to learning site for the following reasons: (i) implement the National Disaster Risk having close links with local stakeholders, Reduction and Management Act (2010) XU has conducted initial studies in 2010 and accompanying plan (2011). Outputs to obtain a general assessment of flood from this collaboration have been 1 and fire risks in the area ; (ii) earlier designed to inform planning and training studies of XU show that while some parts programs, land use policies and design of of Carmen are developing rather rapidly early warning systems. (business districts, high-end residences), still a big portion of the residents are 1.4. Report Structure economically-challenged, thus vulnerable This report presents findings and lessons to hazards; (iii) makeshift houses are built according to factors contributing to on the creek, on riversides, and on slopes disaster risks: with no proper access roads or pathways, • Hazard Assessment (Section 2) thus making the people more vulnerable • in situations of fire or flood; (iv) Carmen Exposure Assessment (Section 3) • is home to more than a dozen regional Assessment of Vulnerabilities and government offices, thus providing Capacities (Section 4) opportunities for scaling up its findings • Socio-institutional Processes (Section and lessons not only to Cagayan de Oro, 5) but also to neighboring local government units (LGUs); (v) Carmens varied A summary of findings, lessons, and landscape and topography provides a recommendations is provided in Section diverse learning environment for 6. Recommendations are categorized into assessing risks in several contexts those relevant to the city government, (riversides, plains, and slopes); (vi) being and those useful for the barangay. This the most populated barangay in Cagayan report also includes annexes that present de Oro City, Carmen was one of the the risk profiles of the four focus zones. hardest hit during Tropical Storm Sendong (International designation: 2 1.5. Methodology Washi) in 2011 . The participatory disaster risk assessment is based on Figure 1 shows the overall process of inputs from four of the five badly affected ESSC in conducting this assessment. zones in barangay Carmen, namely, Zones Figure 2 presents the processes 2, 4, 5 and 9. Zone 7 already underwent a conducted on two levels: barangay and similar process with Balay Mindanaw zone. A primer was produced that Foundation, Inc. (BMFI) in 2012. provides further details on the participatory methods and tools used in the assessment, for use by other local The broader intention of this joint effort practitioners. is to contribute to the citys natural hazard and disaster risk information base

1 Lo, Dexter S., M. A. Sabines, M. Magallona, D.R Cahanap, S. Gulde, J. Macarat. 2010. Disaster Risk Mapping of Barangay Carmen: Flood and Fire, Faculty Working Paper Series 2010. Cagayan de Oro: Xavier University Ateneo de Cagayan Kinaadman Research Center. 2National Disaster Risk Reduction and Management Council. 2012. NDRRMC Update: Situation Report No. 47 on Effects of Tropical Storm Sendong (Washi) and Status of Emergency Response Operations, 27 Jan 2012. 3

3 Figure 1: ESSC Barangay Disaster Risk Assessment Process

Consultation Ocular visits/ Processing data and planning Transect walk and initial findings

Literature Initial Mapping PDRA 2 Validation review Workshop: Zone Level

Secondary data PDRA 1: Communication gathering & Workshop: groundwork Barangay Level

Figure 2: ESSC Process for Barangay Level (PDRA1) and Zone Level (PDRA2) Disaster Risk Assessment

PDRA 1 ProcessPDRA1 PDRA 2 Process Process 1. Establish perceived zone boundaries1. perceived zone

2. Features of interest for disaster risk assessment - institutional cluster - residential cluster - potential evacuation facilities - open spaces - access & egress routes - drainage network

4 2. HAZARD ASSESSMENT

Fire, landslide and flood were the hazards December to February during Amihan, the mentioned during the Participatory Disaster winter monsoon season. These seasonal Risk Assessment (PDRA) workshops. Fire is the shifts are driven by the uneven heating of most common in all zones while landslide is a the earth's surface as its orientation to the reported event only in upper hillside portion of 3 sun changes. Warming of land and ocean is Zone 9. Flood on the other hand is perceived most intense along the solar equator where as the most devastating. Floods brought an the sun is directly overhead, producing also unprecedented damage to properties and loss the greatest potential for evaporation and of human lives in the recorded history of wind generation, and affecting the Cagayan de Oro. In workshop discussions, meteorology of the region. participants find flood hazard as of higher risk compared to the other two. This report focuses Within a band along the equator, a tropical 4 on hydrometeorological hazards . rain belt is sustained. It is a line of clouds formed by the warm moist air that is The hazard assessment led to three key lessons: pushed upward where the north and south • Watersheds respond to rainfall volume, trade winds meet. Meteorologists refer to intensity, distribution and accumulation, this as the intertropical convergence zone resulting in a range of flooding patterns or ITCZ. The band moves and is farthest and events. north of the Philippines in July and south in December. Monsoonal circulation (winds • We cannot be complacent because blowing inland in the summer and offshore flooding during Pablo was limited and in winter) distorts what would be a

not comparable to Sendong. continuous belt of clouds. • Sendong rainfall is not an extreme During a La Nina, the easterly trade winds event; it can happen again soon. blow much stronger. This helps to speed up the heat exchange between the ocean and 2.1. How the tropical rain belt, monsoon overlying air masses and helps produce and La Nina interacted for Sendong more intense storms. Also during a La Nina, The Cagayan River Watershed is dominated the western Pacific sea surface by a . Sometime temperatures are warmer than average, between July and September it is wet inducing much more evaporation that during the summer monsoon season, called produces a high amount of precipitable habagat in the Philippines. A less water (moisture in the atmosphere that is a pronounced dry season occurs from around source of rain). These two effects interacting with an ITCZ, that was farther north than usual, created the conditions for Tropical Storm

3 Zone 9J up to the hillside along the perimeter fence of Manresa Farms and Pryce Plaza Hotel, though safe from flooding, are prone to landslide. Ten houses were reported damaged during the recently reported landslide event. 4 A hydrometeorological hazard is a process or phenomenon of atmospheric, hydrological or oceanographic nature that may cause loss of life, injury or other health impacts, property damage, loss of livelihoods and services, social and economic disruption, or environmental damage. In a tropical setting, hydrometeorological hazards include tropical cyclones (also known as typhoons and hurricanes), thunderstorms, tornados, coastal storm surges, floods including flash floods, and drought. Hydrometeorological conditions also can be a factor in other hazards such as landslides, wildland fires, locust plagues, epidemics, and in the transport and dispersal of toxic substances and volcanic eruption material.

5 Sendong (Washi) in December 2011. varied depending on where they are Although its wind speed was not strong, it geographically located. Houses in higher was considerable for an out-of-season elevations (e.g. 5 meters or more in Zone storm. 2A) and those that are far from the riverbank (e.g. 150-200 meters or more in With the changes in climate patterns due to Zones 4, 5 & 7) are out of flood water reach. the northern hemisphere warming more As expected, areas at lower elevation and quickly than the southern hemisphere, the close to the river suffered more damage average location of the tropical rain belt is than those in elevated areas that are farther expected to move farther north. Monsoonal 5 regions are expected to become wetter. from the river. While the number of storms may not All 4 zones described the Sendong flood as change, the intensities of the strongest the most damaging (high risk) compared to storms are likely to increase. Furthermore, other flood events they can recall. The it is suspected that while rainfall amounts damage caused by the speed, depth and during the habagat in northern Mindanao extent of the Sendong flood surpassed all may not change, more rain might be other events such as the 3 January 2009 and expected in the amihan especially when an Pablo (2012) floods, which were ITCZ occurs in combination with a La Nina. characterized as less damaging (medium risk). The second flood occurrence in 2009 These climatic shifts not only have on January 11 was characterized as implications for floods and landslides in the Cagayan River Watershed but also for moderate to low risk. droughts. The flood events in 1916 and 1952, on the other hand, are considered similar to the 2.2. Flood Reference Events floods during Sendong and January 3, 2009, The reference events used in analyzing respectively, while the 1984 flood was rainfall were drawn from the PDRA likened to that of January 11, 2009. Later workshops. Barangay Carmen residents who events recorded significant damage, given participated in the workshops recalled eight the presence of more people and structures flood events: (1) typhoon in 1916; (2) series along the riverbanks in the lower reaches of of rains in 1952; (3) Nitang in 1984; (4) the Cagayan River. In addition, participants series of rains in 2007; (5) series of rains on 3 regarded the flood events in January 3, January 2009 and (6) 11 January 2009; (7) 2009 and Pablo being of lesser degrees in Sendong in January 2011; and (8) Pablo in terms of risk because both happened during December 2012. Participants observed the day time, enabling residents to monitor the narrowing of gaps between flood occurrences in the past 10 years; reckoning flood events in river level and water movement. Moreover, 2007, 2009, 2011 and 2012. since Pablo occurred only a year after Sendong, Barangay Carmen residents Participants were able to provide believe that they were generally more descriptions for five of the eight named prepared given their recent disaster events. The participants' portrayal of flood experience. (depth, extent and current) and impact

5 More details on flood reference events can be found in Barangay Carmens Hazard Perception Table, included in the ESSC report on methods and tools used in Barangay Carmen, Cagayan de Oro City (Barangay Flood Risk Assessment: A Primer for Local Practitioners).

6 2.3. Rainfall Characteristics of Flood for flood-prone areas. Reference Events Rainfall distribution is another factor Understanding the dynamics between determining floods downstream. Both watersheds, rainfall and flooding can help Sendong and the January 2009 rains refine flood hazard profiles of cities and concentrated rainfall in the lower reaches . ESSC estimated the rainfall of the Cagayan River watershed, closer to characteristics (volume, intensity, the river mouth along the coast, while distribution and accumulation) of these Pablo brought heavier rainfall upstream flooding events based on data from only on the eastern side (Figure 4). PAGASA's Lumbia weather station and the TRMM satellite (Table 1). For a watershed as large as the Cagayan Rivers 1,375 sq. km., the effects of the Analysis from satellite images shows that various and distributed combinations of Sendongs 24-hour rainfall amount of 180 land cover and rainfall amount/intensity mm is not an extreme event. The highest can be significant. The accumulated rainfall 24-hour rainfall in the 15-year record is 457 as measured at one point in the watershed mm, which occurred in 2003 but did not (Lumbia station) is 180 mm during cause significant flooding. Statistics show Sendong, 145 mm during Pablo and 250 that Sendongs rainfall amount has a return mm for the January 2009 series of rainfall period of 1.07 years for Northern events spanning 11 days. The rainfall total Mindanao, meaning that it has a 1/1.07 or during the floods in January 2009 is larger about a 94% chance of occurring in any than that for either Sendong or Pablo but is given year in Northern Mindanao (Figure spread over a longer period than the two 3). These findings indicate that parameters subsequent flooding events. other than simply rainfall volume may be more useful in providing better warnings

Table 1: Rainfall Characteristics of Carmen Flood Reference Events

7 Figure 3: Rainfall Frequency Analysis of northern Mindanao from TRMM data, 1998-2012

Data from the PAGASA Lumbia ground station backed the findings from TRMM data. As of report writing however, the Lumbia ground station was discontinued by PAGASA. This poses a problem since analysis of return periods requires (ideally) continuous long-term records. Continued measurements from Lumbia are crucial to developing an evidence-based early warning system for Cagayan de Oro.

8 Figure 4: Ten-day Rainfall accumulation in Cagayan de Oro Watershed for Sendong and Pablo

9 3. EXPOSURE ASSESSMENT

Population exposure assessment was participatory planning and decision- performed on two geopolitical levels: making; and, iv) innovation and barangay and zone. The NSO Census of adaptation. Population and (2010) include several indicators that are useful for exposure 3.1. Characteristics of exposed population assessment at the barangay level (e.g. age Barangay Carmen has 17,186 households structure of the population, persons with comprising 67,471 people (NSO, 2010). disabilities, type of house roofing and walling Carmen is the most populated barangay in materials). However, it is difficult to Cagayan de Oro and in the Cagayan River disaggregate census data into units that are Basin. The barangay is composed of 51% smaller than the barangay. This poses a women (34, 122) and 49% men (33,349). problem for disaster risk reduction and management especially for urban barangays Given the age structure of the barangay, like Carmen that have large populations. The around 32% of the population (22,100 numbers used to characterize the exposed people) are considered more vulnerable population and assets in Barangay Carmen than others (Figure 5). They include therefore need to be taken as the upper limit infants, toddlers and pre-school children of a range, for disaster preparedness planning (0-5 years), senior citizens (60 years over), purposes. and school age children (6-12 years). Furthermore, there are 804 persons with The scale of exposure assessment was thus disabilities in the barangay. refined (or downscaled) to the zone level. This was made possible using the results from a Around 95% of the population considers vulnerability survey conducted in 2011. The Cagayan de Oro their home for the past survey includes household level information five years. The remaining 5% (3,238 on: the zone and sub-zone where the house is people) have migrated from other parts of located; household heads occupation; the country and thus may have weaker number of children (0-12 years old), senior social networks within the city that they citizens (60 years and above), and persons can rely on in times of need. Barangay with disabilities; and type of housing material Carmen is also currently home to around (light, concrete or a combination). 159 people from other countries, including China, USA, North and , Japan, Three key lessons were informed by findings India, Germany, and France. from the exposure assessment: • Disaster risk assessment and planning need to be done at the sub-barangay

level. • Local government needs to integrate geohazard information in their city

planning and zoning decisions. • During disaster recovery and rehabilitation, building back better includes selecting, planning and developing housing relocation sites that consider: i) safety and resilience; ii) accessibility and socio-economic integration; iii) inclusive and

10 Data Source: NSO, 2010

3.2. Characteristics of Exposed Assets earlier (Table 5). From the census data alone, it cannot be determined where Residential Areas these houses are situated. It is possible Around 82% of households live in single that some of the houses constructed in the houses and the remaining 18% live in earlier periods are non-engineered multi-unit or duplex residences (Table 2). houses, meaning they were not designed While most households (98%) have to follow structural or building codes. galvanized iron or aluminium as roofing Furthermore, more than half of the material, there are 404 households that households (57%) had residences built may be considered to be more vulnerable relatively recently (1991-2005; 2006 or to strong winds, with roofing made of light later), which could indicate their limited materials such as wood, makeshift knowledge and experience of the area materials, cogon, nipa, or anahaw (Table environment. 3). More houses (841) are made of light walling materials such as bamboo, sawali, Almost one-fourth of the household population (24%) occupy houses with a cogon, nipa, aluminium or salvaged floor area of 19 square meters or less materials and 51 houses do not have walls (Table 6), which indicates that these at all (Table 4). housing units may be single-storey (unless Housing construction boomed in Carmen they are within condominiums). Again, from 19912005, the period when 42% of whether these houses are in flood prone the houses were built. Almost one-third areas cannot be determined from the (31%) of the household population live in census data. housing units constructed 30 years ago or

11 Table 2: Type of Buildings, Barangay Carmen, 2010 Building Type No. of HH % Single House 14,129 82% Multi-Unit Residential 1,667 10% Duplex 1,295 8% Commercial/ Industrial/ Agricultural 87 1% Institutional Living Quarter 6 <1% Other Housing Units 2 <1%

Table 3: Types of Roofing Material, Barangay Carmen, 2010 Roofing Material No. of HH % Roofing made of stronger materials 16,772 98% Galvanized Iron/Aluminum 16,554 Half Galvanized Iron Half Concrete 156 Tile Concrete/Clay Tile 61 Asbestos 1 Roofing made of light materials 404 < 2% Cogon/Nipa/Anahaw 217 Wood 120 Makeshift/Salvaged/Improvised 67 Others 10 < 1% Table 4: Types of Walling Material, Barangay Carmen, 2010 Walling Material No. of HH % Walls made of stronger materials 16,289 95% Concrete/Brick/Stone 8,659 Wood 4,390 Half Concrete/Brick/Stone & Half Wood 3,239 Asbestos 1 Walls made of light materials 841 < 5% Bamboo/Sawali/Cogon/Nipa 609 Makeshift/Salvaged/Improvised 194 Galvanized Iron/Aluminum 38 No Walls 51 < 1% Others 5 < 1% Table 5: Year House/Building Was Built, Barangay Carmen, 2010 Year Built No. of HH % 1970s 1990 5,279 31% 1970 or earlier 826 1971-1980 1,115 1981-1990 3,338 1991 2005 7,228 42% 1991-2000 4,138 2001-2005 3,090 2006 or later 2,579 15% 2006 588 2007 536 2008 555 2009 689 2010 211 Don´t Know or Not Reported 2,100 12%

12 Table 6: Floor Area of Housing Units, Barangay Carmen, 2010 Floor Area of Housing Unit No. of HH % 19 square meters or less 4,133 24% Less than 5sq.m/Less than 54sq.ft. 831 5-9sq.m/54-107sq.ft 1,248 10-19sq.m/108-209sq.ft 2,054 More than 19 square meters 11,969 70% 20-29sq.m/210-317sq.ft 2,237 13% 30-49sq.m/318-532sq.ft 3,419 20% 50-69sq.m/533-748sq.ft 2,722 16% 70 - 89 sq.m./749 - 963 sq.ft. 1,476 9% 90 - 119 sq.m./964 - 1,286 sq.ft. 917 5% 120 - 149 sq.m./1,287 - 1,609 sq.ft. 500 3% 150 - 199 sq.m./1,610 - 2,147 sq.ft. 324 2% 200 sq.m. and over/2,148 sq.ft. and over 374 2% Not reported or not applicable 1,084 6%

Table 7: Tenure Status of Lots, Barangay Carmen, 2010 Tenure Status of Lot No. of HH % Owned/Being Amortized 8,005 47% Rent-free with Consent of Owner 3,546 21% Rented 1,956 11% Rent-free without Consent of Owner 1,232 7% Not reported or not applicable 2,447 15%

Less than half of the population (47%) own with 71% and Zone 4 with 60% ownership. their house and lot (Table 7). This is the In terms of data on informal settlers, Zone 6 segment of the population that would most 9 reported zero while Zone 4 mentioned likely be unwilling to relocate even if they the highest number at 25% followed by live in flood-prone areas, and would need Zone 5 at 12%. Renters are reported highest financial support to rebuild their homes in Zone 5 with 15% and followed by Zone 4 after they have been damaged in a disaster. with 10% and 5% for Zone 9. There is no Others who may also be unwilling to data on Zone 2 about house and land relocate are those whose livelihoods are ownership (Annex 1). dependent on the immediate area of their Informal settlers are mostly consolidated on current residence. Census data is not clear the edges of zones along the riverbank and whether the number of households that are portions of Zones 3, 6, 8, 10 and 12. occupying land owned by another entity Informal settlers here refer to households rent-free (7%) or rented (21%) relate to occupying either unused private or public informal settlers. land. Houses are usually made of light materials and few are combinations of Among the focus zones, Zone 9 has the concrete and light materials. highest percentage of house and land ownership, with 94% followed by Zone 5

6It should be noted that Zone 9, the largest zone with 18 sub-zones, was represented only by four sub-zone leaders. The incompleteness of data requires validation through other means.

13 Business Establishments (e.g. camps for displaced persons, logistics centers, distribution centers, security and Most business establishments are in Zones incoming military coordination sites, etc.). 1, 3 and 13 with Zone 13 housing Shoe Evacuation areas that have been Mart (SM), call centers, automotive display designated in an event of a disaster include centers and high-end subdivisions. Zone 3 open spaces such as covered multi- is where the public market, Gaisano purpose courts, basketball courts, and corn Supermarket and Ororama Supermarket or grain drying areas managed by the are located. Restaurants, finance, barangay. Identification and protection of insurance and business services are found open spaces is a key element of an in all three zones. Participants were keen effective and coordinated response to save to mark on the map those establishments lives and to aid in recovery. Planning and that provided monetary support, relief preparing these spaces allows government goods, food and employment during the and humanitarian organizations to quickly Sendong disaster. and effectively respond. Government Institutions and private/public hospitals and schools 3.3. Geohazard Exposure and Needed Zones 1 and 8 accommodate most Integration with Comprehensive Land national and regional government offices Use Plan and agencies including the offices of the The Mines and Geosciences Bureau map Government Security and Insurance (Figure 6) shows that a large portion of Services (GSIS), Social Security System Cagayan de Oro City is highly susceptible to (SSS), Department of Health - Center for flooding, including parts of Barangay Health Development (DOH-CHD) Region 10 Carmen. Integrating geohazard and the Population Commission Region 10. information with the city land use plan will The City Hospital has been established in allow the city government to identify Zone 8 while Madonna and Child Hospital specific areas that are most at risk, and (a tertiary private hospital) is situated in coordinate the particular stakeholders Zone 3. The three public elementary whose resilience to disaster risk needs to schools located in Zones 6, 9 and 10 were be enhanced. This will also aid in used as evacuation centers during Sendong ascertaining whether people are indeed flood. Private schools for various levels can being relocated to safer ground, as is be found in 9 of the 13 zones (Zones 1, 3, needed to be done with the CDO 4, 5, 6, 7, 8, 12 and 13). While the use of Resettlement and Socialized Housing Site private schools as temporary evacuation Phase 3 located along Calaanan Creek. centers has not yet been explored, the The Cagayan de Oro City Land Use Plan is practice of using schools as evacuation being updated as of report writing. When centers is increasingly being discouraged as the document is shared, this will give an prolonged use of the facility as an opportunity for geohazard information to evacuation center disrupts the school be integrated in the review of the citys calendar and probably prolongs anxiety for land use zones so that appropriate disaster families with schoolchildren. prevention or mitigation actions can be Open Spaces as possible evacuation centers formulated in the next phase of implementation. Open spaces are areas in the barangay that can be used for humanitarian response

14 Figure 6: Flood and Landslide Hazard Susceptibility Map, 2010

Source: MGB, 2010 The Cagayan de Oro River Master Plan • Gumamela Street and exits to facilitated by the DPWH Region 10 is Methodist Road and Madonna Hospital also under preparation as of report • writing. DPWH has mapped out existing J. Serina and exits to Nagac Alternate and proposed dikes and retaining walls Road: crossing to V. Castro, unnamed along the Cagayan River. A dike exists street; crossing to F. Dabatian street along Zones 4, 5 and 7 measuring 160 and Matilde; Neri Street and final exit to Yamut Street, back of Cagayan de Oro meters with an elevation of 6.00 to 6.38 College (COC) m (above MLLW). Construction is on- going for the dikes along Zone 5. Dikes • Max Suniel Street exits to Yamut Street along Zones 4, 7 and 9 will soon follow. at the back of COC and Vamenta Street Incorporating disaster risk reduction in to Binono-an Creek planning and the coordinating the activities of various interest groups are Carmen residents proposed the following crucial for effective action. They also aid actions address flooding in these non- in overall social and economic riverside zones: development. • Binono-an Creek from SSS to Waling- Waling St. (extend the drainage 3.4. Exposure of non-riverside zones to structure) drainage-induced flooding • Jollibee along Max Suniel St. (check for While the 2009 series of rains flooded closed/clogged drainage at the bridge) non-riverside zones (Zones 1, 3, 6 and • 8), the heavy downpour during Sendong V. Castro and Waling-Waling St. (check the exit) did not. With any heavy downpour during any rainy season, these areas get • inundated. Around half of Zone 1 and all KSY on Villarin St. near Madonna and Child Hospital crossing (drains need to of Zones 3, 6 and 8 act as the water cross Vamenta Blvd towards Ysalina retention ponds coming from Bridge for direct discharge into the neighbouring zones of higher elevation Cagayan River); and the adjacent barangay Patag (Figure 7). Inspect confluence of drains from Patag and Oro Housing at the Mt. Carmel Carmen residents believe that the main Church. causes of inundation damaging several houses in 2009 are: (i) the drainage The barangay has yet to develop a drainage system that cannot accommodate the plan that considers factors such as drainage volume of water coming from upstream area, reduced ability of the area to absorb of Binono-an creek; (ii) waterways that rainwater (due to increasing impermeable were intended to convey excess storm surfaces of concrete or tarmac and roofed water are inadequately built; and (iii) areas), such as the event in 2009 which canals are poorly maintained resulting submerged significant portions of the in clogging from domestic solid waste. barangay. Although barangay government strongly sees the need to urgently improve The drainage network of the barangay is its surface water drainage systems, the observed in the following areas: barangay budget alone is insufficient to cover the cost of construction of additional • Waling-waling to Vamenta and exits to structures and renovation of the current Binono-an Creek (Figure 7) system. • Villarin St. and exits to the streets of Gumamela , J. Serina, Max Suniel and a

private road 16 Figure 7: Drainage Issues in Barangay Carmen

The beginning of the main drainage canal in Carmen is at The end of Barangay Patags drainage canal empties into Barangay the junction of Binono-an Creek. Carmens Zone 8, causing inundation to Golden Village-Phase 2.

4. ANALYSIS OF VULNERABILITIES AND CAPACITIES The analysis of vulnerabilities and Zones 1, 2, 3, 4, 5, 6, 7, and 9. Portions of capacities generated two key lessons: Zone 9 on higher elevation near the • Understanding people's perceptions dumpsite also face landslide risk. of their vulnerabilities can reduce Appropriate information provided to disaster risk. residents in these zones can facilitate • As individuals, people find ways to timely evacuation. Among the riverside cope during times of disaster, but zones at high risk to flood, Zone 9 is the they have to work together as farthest from CaResT, the barangay communities to find ways to prepare emergency response center. The Zone 9 and adapt. map (Annex 1) shows a sample escape route that the house farthest from the The findings and lessons in this section evacuation center would need to take. are closely linked to the next section (Section 5) on socio-institutional processes that aid the barangay in addressing disaster risks.

4.1. Community-Reported Flood-Prone Areas The zones in Barangay Carmen that are at most exposed to flood are those that are closest to the river, primarily because they have lower elevation. These are

17 Figure 8: Vulnerability Priority Zone 2 Zone 4 Zone 5 Zone 9 Priority Factors and Prioritization Lack of High number of High tolerance to High tolerance to 1 information and children (10 yrs flooding flooding 1 education and under) campaign Small house Financial Persons with Persons with 2 inadequacy disabilities disabilities 2 House made of Senior citizens High number of Don’t know how 3 light materials children to swim 3 Complacent Pregnant women Fear of loss of Senior citizens 4 attitude / property 4 tolerance to flood House levels Persons with Senior citizens House are built 5 (single-storey) disabilities too close to each 5 (physical and other mental) No opportunity toPersons with 6 relocate. No disabilities 6 relative or friends (mental) offering temporary shelter Sick members of Lack of info on 7 the family flood warning 7 Access to 8 livelihood funds 8

Figure 8b: Vulnerability 7 Tree Map

18 Annex 1 provides lists and maps of areas are accustomed to flooding, but we did not that zone communities consider as high expect that this scale of disaster can risk, moderate risk and safe areas based on happen. Usually, people seek refuge in the the Sendong experience. Inundation depth of 5 feet and higher is considered to be 2nd floor of their houses; they did not high risk; below 5 feet is moderate; and expect that the floodwaters would be dry ground is safe. higher than their 2nd floor, or that the 4.2. Factors Perceived to Influence current can be that strong. They thought Household Vulnerability that their houses can withstand the From the perspective of Barangay Carmen impact". residents, the primary factors influencing a familys vulnerability include: 4.3. Employment and Livelihood and how these contribute to risk • Having household members that need assistance during evacuation because When able-bodied members (often the they are young, old, pregnant or heads of household) are out of the house, disabled; those left at home are those more • Complacency about floods because of vulnerable, such as children below school experience with non-disastrous events; age, persons with disabilities, mentally • Dwelling structures that are either too challenged individuals, sick persons and the light or too low. elderly. The nature of work of household heads in the riverside zones indicates the Physical and/or material vulnerabilities times when they are not home. This can help (blue boxes) include lack of: access to flood rescue teams in prioritizing which areas need warnings, financial resources, and ability to most help during times of evacuation. swim. Social and/or organizational aspects (green boxes) include: lack of risk transfer mechanisms (for example, access to temporary or transitional livelihood opportunities and family or friends in safe ground who can provide temporary shelter) and high dwelling density. Flood risk perception and the fear of theft in dwellings during an evacuation are the primary attitudinal and/or motivational factors (red shade) affecting whether or not people will readily evacuate. Figure 8a and 8b show the factors influencing a household's vulnerability. Figure 8a disaggregates data into zones while Figure 8b provides a summary of results from the surveyed riverside zones.

Zones 2, 5 and 9 share the same view that peoples high level of tolerance to flooding is a critical factor, which was the attitude of many before Sendong. As one zone leader explains it: Peoples estimate of the possible impacts of Sendong was a miscalculation and misjudgement. People 19 Figure 9: Work Clock, Zone 9, Barangay Carmen

7 This diagram is a further processing of the Figure 4a using Matlab, a statistical software, to visually depict the aggregated result from the four focus riverside zones.

20 To get a sense of the nature of work of need most help in evacuating their homes. household heads in riverside zones and when Sendong highlighted the challenges during they are not home, Zone 9 was used as an disasters that happen at night. example (Figure 9). Around 34% of household heads in Zone 9 are passenger vehicle drivers. 4.4. Coping and Adaptation Strategies Motorela or taxi drivers may work for a 24- hour stretch while drivers of public utility jeeps Many long-time residents in Carmens riverside or trisikad are usually out of the house from zones consider the Sendong flood as a wakeup 4:00 am to 9:00 pm. Employees of government call. Having witnessed the river swell on agencies and private businesses and laborers several occasions made them tolerant to start work between 7:00 - 8:00 am and get flooding, in a sense that they felt they have home after 5:00 pm. Market vendors and adequate knowledge of the river and how to those who work in cafeterias and stores leave cope with its swelling without the need to for work earlier, around 3:00 or 4:00 am, and evacuate. However, after the Sendong disaster, come home between 7:00 and 9:00 pm. This a shift in behavior has been observed. Some indicates that, if a disaster strikes during people have become more willing to leave daytime on a weekday (roughly between 6:00 their homes and go to evacuation centers even am to 6:00 pm), more resources are needed to at short notice. Those who can afford evacuate families with household members constructed an additional storey to their needing special attention. If an event occurs at houses, considering Sendong flood depth in night, just as it happened during Sendong, the determining the height of the new level families of those who have night shift work (Figure 10).

Figure 10: Household Adaptation Strategy

21 Community coping strategies are canned goods, noodles and other generally similar from zone to zone. necessities; (ii) moving furniture and These strategies include: (i) participating appliances to elevated portions of the in disaster response training programs; house; (iii) securing the house by tying (ii) monitoring and communicating water appliances to the pillars or roof; (iv) level of the river, as part of a local early monitoring TV and radio for news on storm warning system; (iii) receiving text warnings; (v) coordinating with those who messages from relatives and friends living live close to the river who keep an eye on in upland municipalities (Talakag and the water level and river movement; (vi) Baungon) who monitor rainfall that may evacuation of family members to safe areas indicate possible flooding in Cagayan (e.g. evacuation centers or houses of River; (iv) informing neighbors who live relatives), once announcement is given, or close to the river through text messages when the river behaves abnormally; (vii) about flood warning announcements and selling broken or damaged appliances and other weather updates; (v) community other belongings to recover from disaster clean-up (bayanihan) after the flood to losses; (viii) building an additional floor to clear roads, drainage canals and other single-storey houses (for those who choose public facilities from debris and mud; (vi) not to relocate and can afford to invest), coordinating through the barangay considering Sendong flood depth in the DRRMC with organizations with feeding renovation design; (ix) participation in programs as well as psycho-social disaster risk reduction and response debriefing for badly affected families and trainings. individuals. Table 8 summarizes the household and At the household level, strategies include: community coping and adaptation (i) preparation of emergency kits containing strategies in Barangay Carmen before, medicine, clothing, blankets, flashlights, during and after flood events.

Table 8: Strategies for Coping or Adapting to Flood Hazards

Stage Household level Community level Before the flood • Monitor weather reports and • Have emergency kits ready government announcements • Monitor weather reports • Decide when to evacuate • Monitor ricer water level • Secure dwellings • Early warning / alert system • Assist others in evacuation (rekurida) • Attend disaster response • Identify areas that need help in training and practice what evacuation was learned During the flood • Pass infor through SMS • Dispatch Carmen Rescue Team • Evacuate to safer areas (CaResT) • Make sure evacuation areas are ready to accept evacuees After the flood • Recoup losses by selling • Train disaster response team damaged household goods • Organize clean-up (road, canals) • Construct additional floors • Coordinate recovery activities (e.g. with more secure roofing psycho-social debriefing feeding) 22 4.5. Evacuation Centers, Escape Routes to prepare before leaving their homes. As and Pick-up Points one participant shared: "Some affected families, not knowing what to expect The ESSC PDRA workshop discussions when they get to the evacuation center, affirmed for participants that the capacity 8 thought so much about what they had to of existing evacuation centers is not bring in order to survive in the evacuation proportionate to the number of possible center. This affected how quickly they 9 evacuees. As a result of the discussions, decide whether or not to leave Carmen changed the designation of endangered areas." evacuation centers; some were removed from the list while others were added During a flood event, high demand on the (Table 9). As of November 2013, Carmen transportation system is created in and has designated six evacuation centers, around the affected areas as traffic composed of 3 basketball courts, 2 moves with outbound evacuees and schools and 1 mall parking building. inbound aid operation resources, among Together, these centers can evacuate others. Unobstructed routes leading from around 610 630 households. Covered danger zones to safe ground or exit basketball courts located in different points have been identified in each zones are the barangays first option as riverside zone, based on the Sendong evacuation sites. Schools are a second option so as not to disrupt classes. experience. All identified egress routes, which also serve as access roads, are Care must be taken in choosing concrete two-way lanes. Six pick up evacuation centers to make them safe points have been designated near the and accessible. Residents at risk to riverside zones before evacuees are flooding need to know what supplies and brought to farther evacuation centers facilities are available in the evacuation (Figure 11). centers so that they know how and what

8 During the initial part of the workshops, the barangay identified four covered courts in Zones 3, 6, 8 and 10 as evacuation centers. In total, these facilities can only accommodate 250 families. Zones 5 and 9 also have covered courts but were not considered safe since these are located near the river. Residents from Zone 5 and 7 were assigned to use the covered courts in Zones 6, 8 or 10. Residents from Zones 2 and 4 were assigned to the Barangay Hall covered court in Zone 3. Bliss Home in Zone 9 was also considered by participants as a safe area for relocation. 9 The estimated number of evacuees from the four focus riverside zones is around 1,013 households, using the number of houses totally and partially destroyed during Sendong as proxy indicator. Workshop participants reported that in Zone 9A and Zone 9N alone, about 404 households are located in high risk areas. Public schools usually house the spill over from the designated evacuation centers. The four focus riverside zones have around 3,244 households or around 15,700 individuals, based on the Carmen vulnerability survey (2011). 23 Table 9: Barangay Carmen Evacuation Centers

Evacuation Center Location Allocated to Capacity Remarks 1. West City Central Zone 6 Zones 5 & 9 175 HH Identified during PDRA workshop School 2. Cagayan de Oro Zone 3 Zones 2 & 4 120 HH Decided during workshop to replace College Barangay Hall covered court; MOA in process 3. SM Mall Parking Zone 13 TBD 200 HH Identified during workshop; MOA in Building process 4. Zone 6 covered Zone 6 Zone 5 30-40 HH Still serving as temporary shelter for court Sendong evacuees working on permanent relocation (Box 1); Has basic facilities (portalets, kitchen, faucet, water supply) 5. Zone 8 covered Zone 8 TBD 40 HH Served as evacuation center during court Sendong 6. Zone 10 covered Zone 10 TBD 45-50 HH Served as evacuation center during court Sendong Barangay Hall Covered Zone 3 none 120 HH Formerly an evacuation center but Court identified as not safe from floods based on Sendong experience Source: PDRA Workshops, August 2013 and Validation Workshop, 26 November 2013; TBD to be determined

24 Figure 11: Barangay Carmen Evacuation Centers and Escape Routes as of Nov 2013

25 5. SOCIO-INSTITUTIONAL ARRANGEMENTS The review of socio-institutional arrangements and processes in Barangay Reduction and Management Plan and Carmen, as described in Sections 5.1 to 5.6 below, contributed to two lessons: ensuring its integration into the Barangay Development Plan. The BDRRC is the • People's fears of leaving their homes barangay-level equivalent of the City are reduced if they are assured of DRRMC and Provincial DRRMC. security of their property, know what to expect in the evacuation center and The barangay has consistently allocated are regularly updated and informed of 5% of its annual Internal Revenue their area's situation. Allotment (IRA) as a calamity fund. About • Providing post-disaster shelter is a 70% of the calamity fund is designated for process that occurs in phases, from disaster preparedness expenditures while remaining 30% is held for emergency immediate relief to long-term recovery. response. Out of the latter, the barangay 5.1. Barangay Disaster Risk Reduction government has purchased relief goods Management Committee (BDRRMC) that can readily be distributed to disaster victims. 5.2. Carmen Rescue Team (CaResT) Incident Commander (Barangay Chairperson) The Carmen Rescue Team or CaResT is the barangay arm for executing disaster response. The CaResT structure includes: an Incident Commander, a Resident Resident Commander, a Precinct Commander, 20 Commander members (some salaried and others as (Chairperson Comm. on Solid Waste) volunteers), and 4 personnel from the Fire Substation. All zones are represented in CaResT. Zone leaders, who are automatically members of CaResT, have a key role in disaster mitigation and Precinct Commander/s response. The Barangay has designated a building for CaResT to serve as its base as well as storage for lifesaving equipment. CaResT has access to 4 trucks for transporting 20 members + 4 evacuees. These trucks are managed by from Fire Sub-station the 1st Congressional when there are no emergencies. CaResT can also tap Oro Alert, a volunteer group in City Hall Barangay Carmen has a functional that responds when there is a calamity. Barangay Disaster Risk and Reduction Management Committee under the 5.3. Zone-based organizations and Barangay Development Council before informal arrangements Sendong. The Committee is responsible for Four zone-based organizations CCYO, formulating the Barangay Disaster Risk Z2BLAI, ZUPLA-CCHAIN and LCHOA were identified during the workshops to have 26 mobilized themselves during Sendong to assist in the distribution of relief goods. All four organizations are based in Zone 2. It is not unusual that the majority of the support and temporary assistance during and after a flood come from informal arrangements. These resources include local financiers, relatives living within the same zone, long-time neighbors, and families and friends belonging to the same religious organization within and outside the zone. Some families evacuated to safe houses of relatives or long-time neighbours. Members of church organizations helped co-members affected by the flood. Community members who have established business relations with informal money lenders - commonly known as "5-6"10 sources get access to microcredit after an event. Isidro and friends who live near Pelaez Bridge monitor 5.4. Early Warning System the river and use the chapel bell to alert the community. Carmen riverside residents think floods are becoming frequent. To adapt, community members from Zone 5 have taken The barangay also seeks out advisories initiatives to monitor river levels and issue from the City DRRMC, the regional flood warnings. Local authorities are Department of Internal and Local starting to recognize the value of Government (DILG), and BMFI through community-based initiatives and mobile phone messages. incorporate them into early warning The City DRRMC uses the following systems. The City DRRMC calls them the information sources for making weather- river watchers and plans to formally related decisions: CNN, PAGASA, and the integrate their efforts with the citys private sector-sponsored website formal early warning system. (http://weather.com.ph) of the Union of Local Authorities of the Philippines (ULAP). They may need to be supplied with a new CDRRMC found difficulties accessing the alarm system because the current one is a Project NOAH website during Yolanda and church bell that is also used as a call to Zoraida in 2013 due to bandwidth mass. To activate the flood disaster congestion. Project NOAH subsequently response procedure of CaResT, the provided a mirror site. The PAGASA Barangay DRRMC takes cues from weather meteorologist stationed in Cagayan de Oro reports of the Philippine Atmospheric was appointed as DRRMC vice-chair in Geophysical and Astronomical Services order to act as a direct source of technical (PAGASA) through television and radio. support in interpreting weather information that is more relevant to the locality. 10 The term 5-6 derives from the fact that if borrowing PhP5 owes you PhP6 to a money lender. This is basically an interest of 20%. For example, a loan of PhP100 is returned as PhP120. It seems that the period of the loan is usually loosely agreed upon.

27 PAGASA uses a color-coded rainfall and the longer-term support (more than 1 flood warning system. When PAGASA year) for interventions related to disaster issues the yellow warning, CaResT prevention, mitigation, and rehabilitation. automatically conducts mobile These included assistance such as housing announcements called "rekurida" in all development for displaced families (e.g. flood-prone areas, informing residents to Habitat for Humanity Philippines, Sr. prepare for possible evacuation. Zone and Luciana), DRM capacity building and skills sub-zone leaders are delegated to spread training (e.g. BMFI, Habitat Foundation the information in their areas. When the Philippines, Handicapped International, orange warning is announced, residents Red Cross, Sphere Project, Xavier are encouraged to voluntarily evacuate and University), and livelihood assistance (e.g. go to designated pick up points where BMFI, DSWD Pantawid Pamilyang Pilipino trucks can transport them to farther Program, Diocese Social Action Center). evacuation centers. Forced evacuation is implemented once a red warning is issued. Local religious organizations, families and In some cases, this is done by confiscating individuals, social organizations and residents' belongings. Riverside areas business establishments were sources of prioritized to evacuate in a flood event are timely support for basic necessities such as Zones 2, 4, 5, 7 and 9. For landslide-prone food, water, clothing, and medicines. areas, CaResT encourages residents to Carmen accepted all goods and services evacuate even if the rain is not yet so offered after Sendong. Excess supply of severe. Disaster relief assistance from the relief goods were sold to generate funds city, provincial or national government as for other necessities not already provided well as other civil society organizations by relief groups (e.g. hospital bills, tuition (including humanitarian, development and fees, loan payments). academic organizations) are coordinated with the barangay through the Barangay 5.6. Temporary Shelters and Relocation DRRMC or the Barangay Council. Sites

5.5. External Support Families affected by the Sendong floods were spread across five temporary shelters The majority of international and national (Zones 6, 8 and 10 covered courts, the St. organizations that supported Barangay John Vianney Seminary and the St. Joseph Carmen during Sendong (2011) responded Seminary in Camaman-an). These families to a need as opposed to help prepare transferred to the temporary shelters from individuals and families for an event, two evacuation centers West City Central including CAAP-Surigao, International School (Zone 6) and Barangay Hall Covered Organization for Migrants (IOM), Red Court (Zone 3). Monitoring of evacuees Cross, Save the Children, UNICEF and was done in the Zone 3 evacuation center World Vision. (174 families), but not for West City Central School. Two years after Sendong, 24 of Although the interventions were short these 174 families still remain in the Zone 6 term (3 months to 1 year), PDRA covered court, de facto turning this participants recalled clearly the assistance designated evacuation center into a that was received during the period of temporary shelter (Box 1). relief and recovery. However, the survey also found that the community appreciated

28 6 Box 1: Revisiting the Zone 6 Evacuation Center turned Temporary Shelter

Two years after Sendong, 24 families from Zones 2, 4 and 5 are still occupying the Zone 6 evacuation center, formerly a basketball court, with roofing but without walls. Each family currently lives in a 20 sq. m. room made of light materials from the Department of Social Welfare and Development. The International Organization for Migration (IOM) and Red Cross also provided material support. The United Nations Children's Fund (UNICEF) put up a learning center. The facility has portable toilets, a dirty kitchen, faucet, and water supply. These are clearly temporary conditions as the people are awaiting permanent relocation.

With assistance from civil society foundations, the families have organized into the Sunnyville Homeowners Association and applied for a P21M loan with the Community Mortgage Program of the Social Housing Finance Corporation (SHFC). The Association will use the loan to buy and develop 8 hectares in Sitio San Isidro, Lumbia, where each member will obtain 100 sq. m. lot. The loan is still pending approval.

This case could be a good context for learning how to develop better evacuation strategies and enable people to move from transitional shelters to better permanent homes.

29 Four relocation sites have been established Habitat for Humanity - Philippines after Sendong: three within the city (Sitio constructed about half of the existing units Calaanan in Canitoan, Caritas in Indahag while the rest were contracted out to and Xavier Ecoville Village in Lumbia) and private contractors. The plan for the one outside Cagayan De Oro (Mother of Mother of Divine Mercy Village is a total of Divine Mercy Village in Patag, Opol). Two of 680 single detached housing units. these sites (one off-site and one in-city) are discussed below. The site currently has a Level 1 water system (communal faucets with each faucet Mother of Divine Mercy Village (MDMV) servicing more than 10 houses). Water 11 comes from a 10-horsepower deep well This off-site relocation area is on provided and currently managed by the relatively flat land of approximately 4 Archdiocese of Cagayan de Oro, for hectares. Sendong evacuees started eventual turnover to the village association. relocating to this site in January 2013. Most Electrical connection from MORESCO is of them were informal settlers along the eyed to be completed in December 2013. riverbank or under Ysalina Bridge. Houses Construction is on-going for the main canal were completed six months later in June draining to a lower area on the east side of 2013. About 35% of the occupants are from the site. Being a newly-established Barangay Carmen. As of December 2013, community, maintaining peace and order is 330 units have been occupied and 20 a concern. Tenure ownership arrangements additional units were under construction. also need clarification.

Mother of Divine Mercy Village, 2013

11 Located in Zone 1, Sitio Danao, Patag, Opol, Misamis Oriental

30 Cagayan de Oro Resettlement and Project proponents need to revisit the site Socialized Housing Association (CDO RSHA) development plan and its Geohazard Assessment Report to ensure the safety This in-city relocation site in Sitio Calaanan, and stability of these resettlement sites. Barangay Canitoan covers around 63 Calaanan Creek lies along the boundary of hectares and subdivided into three phases. the Phase 3 relocation area. Natural river Majority of Sendong flood victims were movement is causing erosion along the relocated to Phase 3 (along Calaanan Creek). Some ended up in Phase 2 near banks and the houses built are in danger of Canitoan Bridge. collapsing when the ground gives way. The threshold of the bank soil slopes needs to Phase 3 has 52 blocks with as few as 4 units be estimated and some plan drawn up for to as many as 60 units per block. The protection or eventual abandonment. Can housing units were constructed by two strong river currents undercut the base of organizations. Oro Habitat for Humanity the slope and erode the banks? Will these assisted in the construction of Phase 3 and banks hold during extreme weather events? shared responsibilities with Gawad Kalinga Landslide is another risk that needs for building houses in Phase 2. The first probing. The southern-most area of Phase 3 batch of evacuees relocated to the site 16 may be prone to slope failure given the cut months after the Sendong floods (April slope (without wall support) that was 2013). The site has a Level 1 water system carved for road construction. Addressing (communal faucets with each faucet these questions is important for developing servicing more than 10 houses) provided to settlements in safe areas and discouraging residents for free. Households have the return to risky sites. individual electrical connections.

Cagayan de Oro Resettlement and Socialized Housing Site Phase 2, 3

31 6. SUMMARY OF FINDINGS, LESSONS AND RECOMMENDATIONS 6.1. Key Findings d. Integrating geohazard information with a. With changes in climate patterns due the city land use plan will allow city to the northern hemisphere warming government to identify specific areas more quickly than the southern that are most at risk, and identify the hemisphere, the average location of stakeholders who need to coordinate to the tropical rain belt is expected to enhance disaster risk resilience. This will move farther north. Areas in also aid in ascertaining whether people monsoonal regions like northern are indeed being relocated to safer Mindanao are expected to become grounds (Section 5.6). wetter. The number of storms may not change, but intensities of the e. In heavily-populated barangays, it is strongest storms are likely to increase. important to analyse to a further level These climatic shifts have implications of detail so as to bring about more not only for creating conditions for too effective action and coordination. much water at times but also for lack Carmen is the most populated of water that can cause droughts. barangay in the city of Cagayan de Oro (Section 2.1). and in the Cagayan River Watershed, with 17,186 households comprising a b. Sendongs 24-hour rainfall amount of population of 67,471 people. Given the 180 mm is not an extreme event. age structure of the barangay, almost Statistics show that Sendongs rainfall one-third of the population (32%) are amount has a return period of 1.07 years, meaning that it has a vulnerable. The barangay disaster risk assessment in Carmen can be further 1/1.07 or about a 94% chance of downscaled or refined to 13 zones and occurring in any given year. TRMM 64 sub-zones. Eight of Carmens 13 satellite data can be used for rainfall zones are exposed to flooding. Zones intensity-duration-frequency analysis closest to the river are most prone to determine return periods of volume mainly due to their lower elevation. and intensity, which can be related to Portions of Zone 9 on higher elevation flood events. Data from the PAGASA near the dumpsite face landslide risk. Lumbia ground station and other (Sections 2.2, 3 and 4.1; Annex 1). satellite data are important to refine TRMM findings. (Section 2.3). f. The main factors perceived to c. Rainfall distribution may be an influence a familys vulnerability important factor determining floods include: (i) having household members downstream. Both Sendong and the that need assistance during evacuation January 2009 rains concentrated because they are young, elderly, rainfall in the lower reaches of the pregnant or disabled; (ii) complacency Cagayan River watershed, closer to the about floods because of experience of river mouth along the coast, while events that did not turn into disasters; Pablo brought rain to the upper (iii) dwelling structures that are either eastern watershed. Parameters other too light or too low (Section 4.2). than rainfall volume may be more g. Communities are practicing ways to useful in providing better warnings for cope with or adapt to flood hazards. flood-prone areas. (Sections 2.2, 2.3, They tap informal and formal socio- 3.3) institutional structures for disaster risk reduction and management.

32 h. Local government investments to discussion themes of the Philippine improve the barangay's drainage Working Group for Disaster Risk Reduction network can go a long way in reducing (PWG). The risk factor (Hazard, Exposure or urban flooding during heavy rainfall Vulnerability) from where the lesson events. Drainage problems in Zones 1, mainly draws is also identified. 3, 6 and 8 need to be resolved so that Rainfall in Watersheds the workload of the City DRRMC can be reduced when rainfall events call for a. Watersheds react to rainfall evacuation out of flooded areas volume, intensity, distribution and (Sections 3.4, 4.4 and Section 5). accumulation to cause different river floods. (H) i. Carmen currently has six evacuation centers, composed of 3 basketball b. We cannot be complacent because courts, 2 schools and 1 mall parking Pablo is not comparable to Sendong. building. Care must be taken in (H) choosing evacuation centers to make c. Sendong rainfall is not an extreme them safe and accessible. Residents at event; it can happen again soon. (H) risk to flooding need to know what supplies and facilities are available in Local Wisdom and Adaptation the evacuation centers (Section 4.5 and d. Understanding people's perceptions of 5.4). their vulnerabilities can reduce disaster j. Four relocation sites have been risk. (V) established after Sendong: three within e. As individuals, people find ways to the city and one outside CDO. These sites cope during times of disaster; risk need further investigation in terms of: reduction may be more effective if possible geohazards, adequacy of they would come together as drainage systems and other basic social communities to find ways to prepare services, peace and order, livelihood and adapt. (V) opportunities, housing finance and tenure arrangements. Understanding the f. Disaster risk assessment and planning process and challenges faced in these need to be done at the sub-barangay sites can help improve aspects of post- level. (E) Yolanda disaster recovery and Local Government Capacity and Response rehabilitation, including land allocation and relocation. g. People's fears of leaving their homes are reduced if they are assured of 6.2. Lessons security of their property, know what to expect in the evacuation center Sendongs lessons and the losses in lives and are regularly updated and and livelihoods, as experienced by informed of their area's situation. (V) Barangay Carmen, are challenging the city and other local governments to put people h. Local government needs to integrate first in ensuring safety and continuing geohazard information in their human development. The following ten planning and zoning decisions. (E) lessons are grouped into the four i.

33 Safe and Resilient Housing meteorological station Lumbia reinstalled through PAGASA or other i. Providing post-disaster shelter is a means, so as to ensure the continuity process that occurs in phases from of historical records that is the basis for immediate disaster relief to the period of long-term recovery. (V) hydroclimatological analysis. The investment in a weather station and its j. During disaster recovery and maintenance costs can be made on a rehabilitation, building back job order basis. The automated better includes selecting, planning weather station need not be expensive, and developing housing relocation but it ought to have good quality sites that consider: instruments with rainfall volume i) safety and resilience; measured at least every hour, summed daily, weekly, monthly, and for ii) accessibility and socio-economic purposes of flood warning every 10 integration; days. Make data publicly accessible

iii) inclusive and participatory online and in real time. planning and decision-making; • Maintain a pool of local and, meteorologists who can provide

iv) innovation and adaptation. (E) technical support. • Formally recognize efforts of current 6.3. Recommendations city river watchers so that local knowledge is integrated. Local area- specific warning systems would be For the Cagayan de Oro City Government more useful if combined with access to functional evacuations centers that are Cities must be safe for people to live in and must be a source, for people and reliable. communities, in learning ways forward. • Draw ruler lines on bridges along the Cagayan de Oro City needs to: (i) Cagayan de Oro River to indicate water understand its landscape and its levels that can be used for river vulnerabilities to extreme weather events, monitoring, similar to those along (ii) muster its peoples capacity and River. This can serve as a basis

willingness to plan and build back better, for flood early warning. and (iii) be courageous and willing to • Request private companies that undertake new ways to secure human maintain weather stations to share development for its people. Ways that historical data for analysis of rainfall these could be done include, but are not return periods and thresholds to aid limited to, the following: rainfall and flood scenario projections. Understanding the citys landscape and its vulnerabilities to extreme weather events Mustering peoples capacity and willingness to plan and build back better • Install citywide early warning system that incorporates climate information Continuously communicate risk and a deeper understanding of information relevant to peoples safety, watershed dynamics, of which the including heavy rains and the risk of

weather station in Lumbia is critical. slope failure on the hills around the city and further up in the • Take the initiative to get the hydro

34 watershed. A citywide program that • CaResT can follow the City DRRMC reviews flood preparedness during principle of considering disaster school openings is an example. response operations to be successful • Improve, maintain and monitor when the rescue squad is not deployed because people have already voluntarily drainage and waste management. • evacuated. This may be a more realistic Identify and/or build safe and target than aiming for zero casualties. adequately supplied evacuation centers • and facilities. Transform local Have an updated database of groups government planning to one that puts involved in DRR activities. This can help peoples safety first in zoning, the Barangay DRRMC find ways to investment, and infrastructure decisions synergize the various initiatives and on engineering and drainage. report to its city and national counterparts. Willingness and courage to undertake new ways to secure human development • In devising evacuation plans and disseminating information on • Make simple but effective disaster risk evacuation procedures, also include: reduction maps visible in all contact information for institutions that government, civil and religious are capable or have the responsibility to institutions. Cagayan de Oros land use implement the plans; escape routes and planning needs to be more widely pick-up points; what supplies and accessible with a clear process for facilities to expect at the evacuation zoning that incorporates greater local centers; special instructions for awareness and participation of emergencies that occur at night; a communities like in Barangay Carmen. contingency plan if cellular networks The citys location and vulnerability in the larger watershed need to be also fail and SMS is not possible. • acknowledged by its political units. Enhance zone maps that include • Develop a drainage master plan and evacuation centers and escape routes establish coordination mechanisms by showing likely traffic flow, which among responsible government ways may be primarily vehicular and

institutions. which are pedestrian-only. CaReST can • further analyze this information and Ensure human security in building recommend how traffic will be managed better and safer peoples homes in safe during times of evacuation. Display the relocation sites that also allow easy maps in public places, invite feedback access to livelihoods. and update them based on feedback. Act as a custodian and communicator of For Barangay Carmen local history, including that of disasters, • Use this and other similar sources to with a view to inform policy and update and finalize the draft barangay program decisions affecting the

DRRM Plan. peoples safety

35 7. References

Citizens' Disaster Response. 4/13/2009. Philippine Disaster Report. Disaster Statistics 2009 . Citizens' Disaster Response. Philippine Disaster Report. Disaster Statistics 2010 . Citizens' Disaster Response. Philippine Disaster Report. Disaster Statistics 2011 . Citizens' Disaster Response. Philippine Disaster Report. Disaster Statistics 2012 . ESSC and Philippine Working Group on Disaster Risk Reduction. 2013. Poster on Sendong and human development in the city: Ten Lessons from Barangay Carmen, Cagayan de Oro City, Feb 2014. City: ESSC. Lo, Dexter S., M. A. Sabines, M. Magallona, D.R Cahanap, S. Gulde, J. Macarat. 2010. Disaster Risk Mapping of Barangay Carmen: Flood and Fire, Faculty Working Paper Series 2010. Cagayan de Oro: Xavier University Ateneo de Cagayan Kinaadman Research Center. National Disaster Risk Reduction and Management Council. 2012. NDRRMC Update SitRep No. 47 re Effects of Tropical Storm Sendong (Washi) and Status of Emergency Response Operations, 26 Jan 2012.

36 ANNEX 1: RISK PROFILE OF ZONE 2

Zone Population

Household Population: 242 408

Individual Population: 1,065 3,418

Population Density (persons per hectare): 138 427

No. of Children (0-12 yrs.): 265

No. of Senior Citizens (60 yrs. & over): 64

No. of Persons with Disabilities: 9 Note: Population lower range based on database for vulnerability survey (2011); upper range from PDRA 2 workshop Zone 2 (2013)

Assets 3 No. of Sub-zones: 2 No. of Sub-zones represented in survey: 3 No. of Sub-zones represented in workshop: 8 Land Area (hectares): Business establishments: Land Use Clusters: 1. Small to medium size business establishments e.g. gasoline stations mostly located along Vamenta Boulevard; Carmen RiverView Inn Residential: 1.2. Mostly Residential 59 (24% of household population) No. of Houses with Light Materials

Areas flooded during Sendong Around 45% of the total households are in high risk areas. Most households at risk are located in sub-zones B and C, with reported inundation depth of 5 feet and more.

Zone / Sub-zone High Risk (m) Low Risk (m) Safe Area (m) Zone 2A 0-16 - 16 to Vamenta St. Zone 2B 0-55 55-83 83 to Vamenta St. Zone 2C 0-70 70-100 100 to Vamenta St.

37 Houses Damaged during Sendong In Zone 2, high number of affected families and damaged houses are reported in sub-zone 2C that has almost the same elevation with the river than that in 2A. A resident in Zone 2 whose house is 2 meters away from the river recalled water rose to about 15ft in less than 10 minutes during the biggest January 2009 flood event. Totally damage houses refer to both washed out and inhabitable damaged houses.

38 Designated Evacuation Centers and Escape Routes 39 houses. One-fourth of thehousehold population are 4 informal settl House OwnershipHouse Status Houseswith Light Materials of No. Use Clusters: Land Area: Land represented ofSub-zones in workshop: No. represented ofSub-zones in survey: No. ofSub-zones: No. Assets Note: Populationlower range from PDRA 2 workshop Zon ofPersons No. with Disabilities: ofSenior (60No. Citizens yrs.over): & yrs.): ofChildren (0-12 No. per(personsPopulation Density hectare): Population: Individual Population: Household Population Zone NE :RS RFL FZONE 4 ANNEX 2: RISK PROFILE OF e 2 (2013); upper range basedon database for vulne 2 2 2 225 (70% of household population) household of 225(70% • institutions/agencies: Government • schools: Public/Private • Businessestablishments: 11 Commission on Audit on Commission College Polytechnic Heritage Golden size medium to small Hotel; Habitat DDD business establishments business ers whilearound 60% own their 9 323 292 1,531 102 393 137 rability survey (2011) 5 ANNEX 2: RISK PROFILE OF ZONE 4

Zone Population Household Population: 292 323 Individual Population: 1,531 Population Density (persons per hectare): 137 No. of Children (0-12 yrs.): 393 No. of Senior Citizens (60 yrs. & over): 102 No. of Persons with Disabilities: 5 Note: Population lower range from PDRA 2 workshop Zone 2 (2013); upper range based on database for vulnerability survey (2011)

Assets No. of Sub-zones: 2 No. of Sub-zones represented in survey: 2 No. of Sub-zones represented in workshop: 2 Land Area: 11

Land Use Clusters: Business establishments: • DDD Habitat Hotel; small to medium size business establishments Public/Private schools: • Golden Heritage Polytechnic College Government institutions/agencies: • Commission on Audit No. of Houses with Light Materials 225 (70% of household population)

House Ownership Status

One-fourth of the household population 4 are informal settlers while around 60% own their houses.

Areas flooded during Sendong Around 80% of households are in high risk areas, with around 30% located downslope and close to the river. Majority of these houses are old and made up of light materials. The other 20% are classified as low risk areas, as inundation in these areas during Sending did not cause alarming

40 damage. Most houses are made of concrete and some are a combination of concrete and light materials. Only Zone 4 showed zero household in safe area.

Zone / Sub-zone High Risk (m) Low Risk (m) Safe Area (m) Zone 4A 0-60 60-110 110 to Vamenta St. Zone 4B 0-60 60-105 105 to Vamenta St.

Houses Damaged during Sendong

In Zone 4, partially damaged houses are high in Zone 4A and low in Zone 4B, while number of totally damaged houses go the other way around for each sub-zones. This disparity can be partially explained by the kind of materials the houses are made of.

41 42

40 ation, further andvalidation 1 men as A0-size men as posters, aid to information dissemin MC. Designated Evacuation Centers and Escape Routes and Centers Evacuation Designated These maps also have been produced for Barangay Car 1 updating. maps The in mayBarangay DRRbe the viewed ANNEX 3: RISK PROFILE OF ZONE 5 Zone Population

Household Population: 451 566 Individual Population: 2,788 Population Density (persons/hectare) 255 No. of Children (0-12 yrs.): 604 No. of Senior Citizens (60 yrs. & over): 155 No. of Persons with Disabilities: 24 Note: Population lower range from PDRA 2 workshop Zone 2 (2013); upper range based on database for vulnerability survey (2011)

Assets

No. of Sub-zones: 3 No. of Sub-zones represented in survey: 3 No. of Sub-zones represented in workshop: 3 Land Area (hectares): 11

Land Use Clusters: Business establishments: • Small to medium scale business establishments Public/Public Schools: • Childrens Progressive School Residential: • Mostly residential located near the river No. of Houses with Light Materials 310 (55% of household population)

House Ownership Status

Zone 5: Status of Ownership 2%

15% Owners 12% Informal settlers Renters

Transient 71%

Zone 5, being an urban area, is classified as alienable and disposable (private lands). Lots are generally titled. Residences most risk are those of informal settlers located very close to the riverbank, classified as public land. Around 12% of the households are informal settlers while 71% own their houses. Among the focus zones, Zone 5 has the highest renting population at 15%.

43 Areas flooded during Sendong Households in safe areas are reported the highest at 40% compared to other zones. Around 35% are considered in high risk areas. The remaining 25% located more than 50 meters from the riverbank and experienced flood waters below 5 feet were considered to be in moderate to low risk areas.

Zone 5 residents on Acacia Street believe that the structural design of the Kagay-an Bridge added to their areas flood susceptibility. Before the construction of Kagay-an Bridge, residents observed that the rivers water flow was easy and steady. However, after bridge construction, water current has become strong with knee-high water level. The bridge has massive, wall-type support and Acacia

Street is directly situated between the gaps of the support. The water that flows through Kagay-an bridge gets channelled straight to Acacia St.

Zone / Sub-zone High Risk (m) Low Risk (m) Safe Area (m) Zone 5A 0-50 50-100 100 to Vamenta St. Zone 5B 0-50 50-100 100 to Vamenta St. Zone 5C 0-50 50-100 100 to Vamenta St.

Houses Damaged during Sendong

Sub-zone 5A Sub-zone 5B

Totally Totally Damaged Damaged Houses Houses Partially Partially 30% 35% 35% 50% Damaged Damaged Houses Houses 20% 30% Not Not affected affected

Sub-zone 5C

Totally Damaged Houses Partially 35% 45% Damaged Houses 20% Not affected

Sub-zones 5B and 5C, with almost the same terrain, had more totally and partially damaged houses (particularly for sub-zone 5B) as these areas are lower than sub-zone A. The flood water in Sub-zone 5A extended to 200-250 meters wide from the riverbank during Typhoon Sendong. Acacia St. was reported to be accessible only by 5:00am of December 17 but with knee-high water and mud.

44 Designated Evacuation Centers and Escape Routes 45 ANNEX 4: RISK PROFILE OF ZONE 9

Zone Population

Household Population: 2,113 Individual Population: 10,313 Population Density (persons per 239 hectare): No. of Children (0-12 yrs.): 2,531 No. of Senior Citizens (60 yrs. & over): 420 No. of Persons with Disabilities: 58 Note: Data from Barangay Carmen Vulnerability Survey (2011)

Assets

No. of Sub-zones: 18 No. of Sub-zones represented in survey: 13 No. of Sub-zones represented in workshop: 9? Data only available for 4 subzones Land Area (hectares): 43 Land Use Clusters: Business establishments: 1.3. Small to medium size business establishments Government institutions/agencies: 1.4. Department of Agrarian Reform, Department of Social Welfare Department Rehab Center Public/Public Schools: 1.4. Macanhan Elementary School, Carmen National High School Residential: • Mostly residential that is prone to flood No. of Houses with Light Materials 678 (32% of household population)

46 House Ownership Status

Zone 9 has the highest percentage of house and land ownership among the focus zones (94%). and. 2 Zone 9 sub-zones represented during the workshop reported no informal settlers in their area. and followed by Zone 4 with 10% and 5% for Zone 9. Zone 2 did not provide data on house and land ownership.

Areas flooded during Sendong Areas along the creek and the river are considered to be high risk. In the transect map prepared by the group, Zones 9A to 9B, having the same distance of 70 meters from the river, were depicted as high risk areas. Zones 9B to 9J, around 250 meters from the river, were inundated to around 3 - 5 feet. Safe area starts from Zone 9J to the hillside along the perimeter fence of Manresa Farms and Pryce Plaza Hotel. This area, however, is seen to be at risk to landslides. Sub-zones B, G, O and P are categorized as low risk.

Zone / Sub-zone High Risk (m) Low Risk (m) Safe Area (m) Zone 9 (lower) 0-250 250-295 295 to Cappas Road Zone 9A to 9B 0-70 70-250 250 to Cappas Road Zone 9J to hillside Noted as safe areas to flooding but prone to landslide Zone 9 (upper) 0-150 150-250 250 inland (hillside)

2 It should be noted that Zone 9, the largest zone with 18 sub-zones, was represented only by four sub- zone leaders. The incompleteness of data requires validation through other means.

47 Houses Damaged during Sendong Zone 9 with 18 sub-zones is the most populated in the barangay. However, only 4 sub-zones were represented in the workshop thus the only ones with complete reports on the partially damaged, washed out and not affected houses. These are Sub-zones 9-G, 9-A, 9-O and 9-B. The following charts show all houses (a total of 224) in sub-zones 9-O and Zone 9-B that were partially damaged by the flood brought by Typhoon Sendong. Sub-zone 9-A with 254 households is the only sub-zone to have reported washed out houses among the four represented areas but with the highest number of unaffected dwellings.

Zone 9B to Zone 9J, which runs about 250 meters, was flooded with 3 to 5 feet of water. The houses (65% of the total number of households) were partially damaged by the typhoon. Sub-zones G, O, F, I and R are exposed to flood because these are in the foothill of Manresa Farms and near to the creek that flows down to Emily Homes. There is a drainage flooding issue in sub-zones B to J. Most houses in Sub-zones A and N which are close to the river were totally damaged.

In the lower part of Zone 9, flood water during Typhoon Sendong reached up to 500m from the river. But areas considered as safe are from Macanhan Covered Court and farther westward. Water up from Manressa Farm coming though the Creekside and Pryze Plaza contributed to the flooding which scythed through Emily Homes. Flood water converged at the center of Macanhan. Rampaging waters brought with them logs and G.I. sheets making it dangerous for rescuers to undertake rescue operations. Roads become pathways of raging flood waters.

48 49 Designated Evacuation Centers and Escape Routes