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Home , Caloocan, Luzon, Malabon, Malanday, Manila, Manila (province)

INSIDE STORIES on climate compatible development

March 2015

Key messages Building resilience to climate ●● Partnerships and networking play key roles in building resilience by change locally: The case of helping to sustain programmes and facilitate learning exchanges Valenzuela City, Metro among stakeholders, thus providing room for improvement Valenzuela City is one of the 16 cities that make up ‘’, or the and innovation. National Capital . Of the 144 cities in the , Valenzuela City is the 13th most , with approximately 570,000 inhabitants.1 ●● Climate- and ecosystem-smart Located 14 km north of Manila, it is a highly urbanised and affluent disaster risk reduction approaches industrial and residential suburb situated in a low-lying and bordered are feasible at the city level, but by three interconnecting rivers: the Tullahan, the Polo and the . integrating them into development The confluence of these rivers makes Valenzuela vulnerable to flooding plans requires time and resources, during high tides and also to flash , which occur regularly during as well as solid commitment the rainy season. During periods of heavy rainfall and high tides, stagnant from local chief executives and water from floods can sometimes stay in the area for up to 4 weeks due to community members. insufficient drainage, improper solid waste disposal and simply too much ●● Existing institutional mechanisms water. People are often stranded inside their homes with limited food and such as national laws and local water supply, and are exposed to water-borne diseases such as dengue and ordinances can help push the leptospirosis, as well as coughs and colds. Businesses and entrepeneurs, resilience agenda forward. such as street vendors, furniture makers, small-scale autorepair shops ●● Integrating climate science and fish-food processors must watch as the means of their livelihoods and information along different are submerged under water. Office workers can also suffer from a lack of timescales in different disaster income if they are unable to go to work due to flooding. risk reduction approaches is an effective entry point to urban Higher waters began to manifest have resulted in lower production and resilience. in Valenzuela City in the early fewer varieties of vegetables and palay .2 Areas that had not normally (rice); and less fishing in the area of the ●● However, local governments Front cover photo: Romeo Ranoco/Reuters/Corbis | Editing, design and layout: Green Ink (www.greenink.co.uk) experienced flooding events became Northern , affecting both people’s should not look at the concepts regularly inundated. Land use has been diet and economy, not only in Valenzuela of climate change adaptation, greatly influenced by the changing but also nearby cities and of ecosystem management and rainfall patterns. Early on, farmland was . For instance, people in these restoration, and disaster risk converted into fishponds, as stagnant areas used to produce high quality reduction in isolation but consider flood water continued to form pools shrimp, prawns, crabs and fish varieties them systematically and plan after each rainy season, especially in like talakitok, ayungin and sapsap. They holistic interventions. areas near the rivers. However, by the would enjoy eating crabs and shrimps, the ponds failed to yield enough which were freely available, but, due to Authors: fish and were replaced with residential the land use changes, these foods are Maple Patrocina Lea C. Mateo, Philippine subdivisions.3 These land-use changes now prohibitively expensive. Red Cross – Valenzuela City Chapter; Donna Mitzi Lagdameo, Red Cross/Red Crescent Climate Centre Because of these impacts, Valenzuela 4. transform themselves to Raising awareness and a sense City was chosen in 2011 as one of five the underlying factors and the root of ownership of the problem project areas under the Philippines causes of risk. Through synchronised activities – which component of the Partners for included integrated risk assessments, Resilience (PfR) programme. PfR is a These building blocks are implemented training sessions and planning collaboration of five -based at the , community and processes – stakeholders learned the organisations (CARE Netherlands, landscape levels, and are underpinned various factors that put them at risk Cordaid, the Netherlands Red Cross, by eight key principles: from climate change-related impacts the Red Cross/Red Crescent Climate 1. working on different timescales and disasters. Participants included Centre and Wetlands International), 2. recognising geographical scales the Local Government Unit (LGU) and along with 30 civil society partners in 3. strengthening institutional resilience active groups such as 4Ps (Pantawid the global South. By integrating climate 4. integrating disciplines Pampamilyang Pilipino Program), change adaptation and ecosystem 5. promoting community self-manage- Batang Rex (teenagers), Win Youth management and restoration into ment Club (teenagers), Win Mothers disaster risk reduction, the programme 6. stimulating learning Club, religious groups (Catholic and aims to build resilient communities. 7. focusing on livelihoods Born Again) and pedicab drivers’ First aid training, basic life support, 8. forming partnerships. associations. To identify local priorities disaster preparedness, participatory and appropriate disaster risk reduction video training, contingency planning The Valenzuela City chapter of the actions, the project used a modified workshops, community flood drills, , with support Vulnerability Capacity Assessment facilitation of stakeholder meetings from the Netherlands Red Cross, has (VCA), which included seasonal and formulation of solid waste been implementing a PfR project in calendars, historical timelines, climate management plans are some of the five barangays: Balangkas, Coloong, forecasts and information on the activities empowering the communities , Tagalag and Wawang Pulo. ecosystem and watershed of which the to address increasing and changing LGU is a part. This helped community risks. The programme recognises Implementing the PfR members to understand the changes that poverty, risk and vulnerability programme in Valenzuela City they have been experiencing over the are inextricably linked with decision- years. The VCA also revealed that one making processes and with resource In building community resilience, the of the community’s main livelihood and power distribution within a society. PfR programme, through its integrated projects – the production of water PfR assists communities together resilience-building approach, focused hyacinth – has in fact contributed to with their barangay4 (neighbourhood) on the city’s growing concerns over the increased flooding in their area officials to work harmoniously in times flooding and livelihoods. Specifically, because it clogs drainage channels. of catastrophe and to be active partners the programmed aimed to: with government in implementing ●● increase the level of understanding Integrating climate variability disaster risk reduction. and ownership among people of and environmental concerns into flood-associated problems local policies and programmes In PfR, working on community ●● integrate plans and programmes Because of the increased level resilience is effectively based on into institutional mechanisms to of awareness, the LGU started four building blocks that encourage address these problems developing actions to address these communities to: ●● adopt environmental approaches in problems. They not only learned 1. anticipate risks urban areas, and of the many adaptive actions their 2. respond when disaster strikes ●● empower people through partner- communities have taken over the years 3. adapt to changing risk patterns ships and volunteerism. in order to reduce their level of risk,

2 but also realised how interconnected Developing contingency and The LGU has also incorporated the problems are – and that solving early warning action plans along scientific forecasts into the development them requires an integrated approach. different timescales of worst-case scenarios in contingency It became clear that the flooding was For years, the LGU has had many planning and community drills. Three caused by a number of factors including disaster risk reduction initiatives, but quarters of the population was engaged unsustainable livelihood practices, these have mostly focused on very in climate-informed contingency poor land use planning and increased short timescales and on disaster planning workshops, which helped rainfall that has become more intense preparedness and the ability to community members identify who and less predictable. respond, rescue and provide relief will do what, where, when and how, goods. Through PfR, the based on PAGASA forecasts. By The VCA results formed the basis LGU and active stakeholders have July 2014, the project had completed for the enhancement and revision of learned that flooding- and livelihood- several community drills among more their local disaster risk reduction and related problems can be viewed within than 6,000 community members in management plan, a mandated plan for a continuum of risks occurring along the Balangkas, Coloong, Malanday all LGUs in the Philippines. This revised different timescales. By using the and Tagalaga barangays. These version was a dramatic improvement 5–10 weather forecasts issued by the drills facilitated evacuation centre on the previous one, focusing mainly Philippine Atmospheric Geophysical management, as seen with Severe on the materials and supplies needed and Astronomical Services Tropical Storm Trami in July 2013. to respond to disasters. The plan Administration (PAGASA), which is This was a significant improvement is now more detailed, holistic and the national meteorological office, compared to pre-PfR involvement, comprehensive, covering the different community members were able to where people were not organised and risk-contributing factors and how best develop contingency plans on possible did not follow either the early warnings they can be addressed. flooding events based on the rainfall or the evacuation processes. The short- data or signal. Likewise, in term early warning and recommended The PfR framework is slowly being anticipation of strong , LGUs early actions were featured in several integrated into local government use seasonal forecasts to anticipate national television and radio networks policies and processes at the city possible impacts and coordinate in the country, including ABS-CBN level. In 2013, the LGU proposed the the necessary plans of action. With News Live, GMA News and DZMM mainstreaming of climate- and eco- proper access to, and understanding radio. smart disaster risk reduction strategies of, climate and weather forecasts, by instituting changes in the city citizens of the barangays can address Environmental approaches to guidelines and protocols. One example their vulnerability to flooding problems building adaptive capacities is the GREENING project, which and consider their livelihood options, The city has likewise developed an requires new applications for building thereby increasing their capacity to increased level of awareness of the permits, businesses, parking lots and adapt over the short, medium and long need to protect its remaining trees and residential areas to allocate 20% of term. The city has also strengthened parks. Based on an understanding their area to trees and landscape its relationship with the regional and of how trees can reduce siltation improvement. Penalties will be levied local offices of the PAGASA. This problems in the already-clogged river for violations. This was presented and partnership helped them gain better system, community members planted proposed by Valenzuela City to the access to forecast information; identify trees in areas vulnerable to flooding to Housing and Land Use Regulatory thresholds; and develop short-, help mitigate flooding incidents, both in Board, a national government agency medium- and long-term actions based their LGU and for other communities in charge of land use planning and on these warnings. in the same river basin. Likewise, development. improved solid waste management has

3 4 shown promise. Through a knowledge- alarm provides the signal for them to disaster response; volunteers also sharing partnership between the evacuate their and go to the participate in activities that help them Philippines Red Cross-Valenzuela pre-arranged evacuation point. On make proactive decisions based on City Partners for Resilience and health the third alarm, they must evacuate forecasts, early warning information workers, at least 10% of the population the area. This system complements and risk assessments. is now cleaning and segregating solid the information being provided by waste in the Palomares Compound of other early warning signals set up by Enabling factors Coloong, Lingahan of Malanday, and different stakeholders in one of the the Capalad Extention of Balangkas. rivers that contribute to the flooding in National and local policies The city has also begun a recycling the area, the . The PfR The PfR programme is based not programme, which has helped to programme is working to harmonise only on the provisions of national reduce the amount of trash clogging existing early warning instruments policies on solid waste management the city’s waterways. installed along the watershed. (Republic Act 9003), climate change (Republic Act 9729), and disaster risk The city is also exploring an early Empowerment and resilience reduction and management (Republic warning system based on a river basin building through volunteerism Act 10121), but has also contributed approach, together with the LGUs that PfR helped implement several to ensuring implementation of the laws share the watershed. PfR has helped community programmes in Valenzuela at the barangay level. These national neighbouring LGUs to discuss how the City. One of them is the Red Cross laws were independently enacted, actions of one community can affect 143 (RC143), a nationwide volunteer and each required LGUs to come up and create negative impacts (e.g. programme of the Phillippines Red with specific plans of action. The laws’ flooding) on the others. LGUs have also Cross which helps LGUs and their mutually reinforcing provisions were begun discussing community-based communities to readily respond to very difficult to implement at the local warning systems, and water gauges any type of disaster. The number ‘143’ level. For instance, the laws mandated have been placed in different areas signifies that for each barangay there LGUs to integrate disaster risk around the watershed, both upstream are 44 members – one leader plus reduction, climate change adaptation and downstream. The gauges use 43 volunteers – who serve as the eyes, and environmental concerns into local improvised bells, called batingting, ears, hands and feet of the Phillippines development plans, without providing made out of liquid petroleum gas Red Cross in the area. The RC143 guidance on how to do so. This is cylinders that serve as an alarm when programme primarily focuses on where PfR came in. The Valenzuela a hazard event occurs and evacuation disaster preparedness and response, City project helped push the agenda might be necessary. The batingting health and welfare, and voluntary forward by teaching communities produces a very loud sound when hit blood donation. Specifically, they the different provisions, while at the by a metal stick. that can reach up to focus on disaster prediction, planning, same time helping them to see the 100 metres in radius. It is strategically preparedness and response. convergence points and to develop placed in low lying areas of the local plans aimed at addressing the community, making it a community- PfR uses the RC143 programme to raise underlying causes of vulnerability in based early warning system that people’s awareness of vulnerability the highest-risk areas. is owned and managed by the and disaster risks, and to help build community. The first alarm increases resilience by increasing communities’ Partnerships and volunteerism people’s vigilance: people will prepare adaptive and environmental capacities Equally important are the community to evacuate on the first alarm, taking through disaster risk reduction. organising strategies and partnerships time to pack their belongings and The volunteerism is no longer just of the Phillippines Red Cross through secure their properties. The second focused on activities related to its local chapters and the RC143

4 volunteers. Their presence on the neighbouring cities of and communities to adopt life-changing ground has already established strong , and even in some parts of skills in order to anticipate, adapt and relationships with the community the neighbouring of Bulacan. respond to changing risk patterns. members and LGUs, and these served This helped provide the space for a When successful, these communities as natural entry points for disaster risk more open dialogue on how the PfR can address the root causes of risk and reduction, climate change adaptation integrated approach can help build transform their responses, so avoiding and ecosystem management and capacity and resilience to disasters. potential disasters. restoration activities under PfR. The dedication of RC143 volunteers to Challenges National and local policies and serve the vulnerable members of the institutional mechanisms are key for community is priceless. Local governance and effective disaster risk reduction. These institutional resilience provide the backbone for initiating Partnerships are key – whether they The PfR Valenzuela City project faced changes on the ground. Particularly are between LGUs and communities; implementation delays because of with a decentralised local governance LGUs and the national meteorological differences in the timing of local elections structure – such as in the Philippines, office; contiguous LGUs; national for and barangay officials. This where LGUs are empowered to move government agencies and LGUs; forced project implementers to conduct things forward – the presence of a organisations and volunteers; or among several orientation sessions in order national law provides guidance for the the community members themselves. to convince new leaders about the country to move forward as a whole. These partnerships help build trust and project’s importance and relevance to For example, local resolutions and confidence that people are united in their communities. The PfR has a new ordinances enhance existing laws trying to find ways to address risks and Memorandum of Understanding with such as the Ecological Solid Waste their underlying causes. They also help the new City to Management Act of 2000 (RA 9003): sustain and even improve programmes ensure the city’s continuing support for from this foundation, LGUs may form based on the exchanges of knowledge the project until 2015. The change in barangay solid waste management between groups. leadership also meant another round of councils and resolve – down to the discussions with members of the Local household level – how solid wastes Stimulating learning Disaster Risk Reduction Management should be segregated and collected. The use of various participatory Office. approaches has contributed to changing It is also important to ensure that risk the mindsets of community members. Implications for decision-makers assessments are done properly and They are becoming more open to the and practitioners include the different variables that many climate-smart, risk-reducing This case study shows that building will help communities understand activities that exist. Participatory videos resilient urban communities through and identify their capacities and were particularly effective as they an integrated approach of disaster risk vulnerabilities with respect to the helped communities realise the need reduction, climate change adaptation changing climate. Through this, to adjust or transform their behaviour and ecosystem management and they can achieve a more realistic and actions to collectively help lower restoration is possible. However, it analysis of the risk situation, which their risks. During the 2013 Disaster is not easy and it does not happen should become the basis for local Consciousness Month, a video titled overnight. A lot of investment in policies, plans and programmes. ‘PfR in the Lens’ was shown to almost people, time and other resources Participatory risk assessments also 3,000 community members, including is needed to sensitise people and allow community members to own the local leaders and chief executives from change behaviour, help LGUs provide process and provide them with a voice Valenzuela City, as well as from the institutional support, and motivate to decide how, what and for whom the

5 various programmes are implemented Finally, this case study shows how Endnotes by the LGU. Risk assessments can disaster risk reduction, climate change 1 Socioeconomic profile 2007 on the City also form the basis for the development adaptation and ecosystem management of Valenzuela website. Source: National Statistics Office of worst-case contingency plans that and restoration actually interact on the 2 Phillippines Red Cross (2011) Valenzuela can more accurately address past ground. Rather than treating them as City Chapter Partners for Resilience Programme Vulnerability and Capacity and possible future risk scenarios. silos, they need to be addressed in a Assessment 2011. PRC Valenzuela City This helps community members rise more holistic way. The integrated PfR Chapter/City Planning and Development Office. above complacency by visualising approach is an effective way to build 3 Phillippines Red Cross (2011). Op. cit. I various potential disaster scenarios and climate- and ecosystem-smart, resilient Witness Water World Episode, October 18, 2014 deciding on various roles and actions. communities. 4 As the basic political unit, the barangay serves as the primary planning and implementing unit of government policies, plans, programmes, projects and activities in the community, and as a forum wherein the collective views of the people may be expressed, crystallised and considered, and where disputes may be amicably settled. (Sec 384 of the Local Government Code of the Philippines). Front cover photo: Romeo Ranoco/Reuters/Corbis | Editing, design and layout: Green Ink (www.greenink.co.uk)

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