Urban Environmental Problems: DDR in Albay

Research question: From a planning perspective, why is the province of Albay in the Philippines considered as a “champion” by the United Nations International Strategy for Disaster Reduction (UNISDR)? Introduction In 2008, the Province of Albay in the Philippines was declared a model for Climate Change Adaptation (CCA) by the UNISDR and the World Bank (SRC, 2010). The province had then initiated innovative approaches to tackling Disaster Risk Reduction (DRR) and CCA by integrating CCA into its Disaster Risk Management (DRM) structure. Albay maintains its position as the first mover in terms of climate smart DRR by implementing good practices to ensure zero casualty during calamities, which is why the province is now internationally recognized as a local government exemplar in CCA (SCR, 2010). It has pioneered in mainstreaming CCA in the education sector by developing a curriculum to teach CCA from the primary level up. Information, education and communication activities have been organized to create climate change awareness in the province (SCR, 2010). Albay has partnered and cooperated with educational institutions, government agencies and departments, scientific organizations, international and local NGOs, business sectors to implement CCA actions in the province (SCR, 2010). The province continues to invest in strengthening its capacity to use modern technology for climate forecasting, early warning, and land use planning. Albay’s governor has also integrated resilient livelihood into its CCA strategy and has supported changes in CCA policy and contributed to calls for the enactment of several bills on climate change at the national level (SCR, 2010). General Information – The Philippines & Albay The Philippines Situated on the Eastern rim of the Asiatic Mediterranean, the Philippines are one of the world’s largest archipelagos comprising over 7,100 islands. The total land area is about 300,000 km2, over ninety percent of which is contained within the eleven largest islands that form the three major island groups of Luzon in the north, Mindanao in the south and the Visayas in the centre (Engel, 2007). Its physical-geographical characteristics make the Philippines one of the most hazard-prone countries in the world. It is regularly affected by typhoons, floods, landslides, earthquakes, tsunamis and volcanic eruptions. According to data from the Belgium-based Centre for Research on the Epidemiology of Disasters (CRED), the Philippines experiences more natural hazards than any other country (Engel, 2007). With 268 recorded disaster events over the last three decades, the Philippines ranks 8th according to World Bank’s Natural Disaster Hotspot list of countries most exposed to multiple hazards (Engel, 2007). Determinants of vulnerability to natural disasters in the Philippines are caused by rapid urbanization that has led to unchecked growth, urban sprawl, and informal and overcrowded settlements, often in hazard-prone areas (Engel, 2007). As of 2002, the country had about 1.2 million families of informal settlers who were vulnerable to typhoons and flooding. Demographic growth and urbanization have also affected provision of basic services, resulting in deteriorating solid waste management and siltation of rivers and drainage channels. These poor urban practices have aggravated flooding in urban areas for the past years and are expected to make the situation more severe in the future (Engel, 2007). Environmental degradation has contributed to increasing natural disaster occurrence in the Philippines. Demographic growth and poor land-use planning have led to the massive depletion of natural resources and destruction of the environment (GFDRR, 2012). Flash flooding, landslides and drought have increased in the past two decades as a result of declining forest cover. Certain areas that have substantially lost their forest cover are also more exposed to typhoons (GFDRR, 2012). Risks from global climate change are also further exacerbating the country’s vulnerability to natural hazards. In the last 15 years alone, the country has recorded the strongest typhoon, the most destructive typhoons, the deadliest storm and the typhoon with the highest 24-hour rainfall (GFDRR, 2012). These climate trends seem to fit the scientific evidence that rising sea surface temperatures enhance the destructiveness of tropical cyclones. The Philippines is expected to experience substantial rise in sea levels, making 70 percent of the 1,500 municipalities located along the coast vulnerable to this phenomenon. The country is also witnessing longer episodes of drought or El Niño, causing a large drop in the volume of agricultural production and sharp declines in Gross Development Product (GDP) (GFDRR, 2012). Albay One of the poorest and the most disaster prone area in the Philippines is the Bicol Region. This region covering the provinces of Catanduanes, Camarines Norte, Camarines Sur, Masbate, Sorsogon and Albay, is oftentimes the host of typhoons because of its geographical location. In particular, the province of Albay is bounded on the east by the Pacific Ocean, on the northeast by the Lagonoy Gulf and on the west and southwest by Burias Pass. Thus, according to the Philippine Atmospheric, Geophysical and Astronomical Services Administration (PAGASA), at least 19-20 typhoons visit the province every year, of which four or five are expected to hit Albay directly (Albay Provincial Government, 2006). In addition to tropical cyclones, the province of Albay is highly vulnerable to other natural disasters such as minor volcanic eruptions, flash floods and mudslides. In this context, government officials have invested in coastal areas to protect villages from sea level rise and storm surges. Also, communities living along the coastline and in the uplands are being prepared to meet the challenges to their environment, livelihood, and homes. The Provincial Government of Albay (PGA) believes that by recognizing the need for appropriate policies and programs to tackle these environmental concerns, it will be effectively prepared to respond to the impacts of natural hazards in a timely and sustainable manner (Lasco, 2012). Albay is located in the Southern part of Luzon about 500 kilometers Southeast of Manila. It is geo-graphically located within the ring of fire and the typhoon belt region. About 198,000 houses are threatened by wind destructions and at least 350,000 people have to evacuate. Mayon Volcano Eruption threats three cities, five municipalities, and 127 villages. 11,000 to 12,000 families are threatened by landslides and about 300,000 people out of 1.3 million are threatened by tsunami. Eight municipalities and two cities are threatened by floods, including its provincial center, Legazpi City (Daep, 2008). In terms of the potential impacts of climate change to natural resources, PGA’s coastal zones are expecting coastal erosion and inundation; loss of private property/community assets; changes to wetlands due to sea level rise, shoreline erosion and saltwater intrusion, shifts in distributions of plant and animal species, increased ecosystem and species heat stress, changes to mangrove habitats due to salt water intrusion, reduced ecosystem resilience to stress, and increased ecological disturbances (Lasco, 2012). UNISDR – Hyogo Framework for Action & Making Cities Resilient Hyogo Framework for Action The international agenda on Disaster Risk Reduction (DRR) advanced significantly in the last two decades. In the late 1980s, increasing losses in development gains from disasters prompted a global movement toward DRR. The United Nations declared the 1990s as the International Decade for Natural Disaster Reduction (IDNDR) to contribute to technical and scientific buy-in and to make DRR agenda imperative. The “Yokohama Strategy and Plan of Action” adopted at the first United Nations World Conference on Disaster Reduction in 1994 through the mid-review of IDNDR provided the first blueprint for disaster reduction policy guidance focusing on social and community orientation. At the end of the IDNDR in 1999, the United Nations General Assembly established International Strategy for Disaster Reduction (ISDR) as the successor mechanism of IDNDR within the United Nations to promote increased commitment to DRR and strong linkages to sustainable development (Matsuoka, 2011). The Hyogo Framework for Action (HFA) is the first plan to explain, describe and detail the work that is required from all different sectors and actors to reduce disaster losses. It was developed and agreed on with the many partners needed to reduce disaster risk. The HFA outlines five priorities for action, and offers guiding principles and practical means for achieving disaster resilience. Its goal is to substantially reduce disaster losses by 2015 by building the resilience of nations and communities to disasters. This means reducing loss of lives and social, economic, and environmental assets when hazards strike (UNISDR, 2012). Priority 1: ensure that disaster risk reduction is a national and a local priority with a strong institutional basis for implementation. Countries that develop policy, legislative and institutional frameworks for disaster risk reduction and that are able to develop and track progress through specific and measurable indicators have greater capacity to manage risks and to achieve widespread consensus for, engagement in and compliance with disaster risk reduction measures across all sectors of society. Priority 2: identify, assess and monitor disaster risks and enhance early warning. The starting point for reducing disaster risk and for promoting a culture of disaster resilience lies in the knowledge of the hazards and the physical, social, economic and environmental vulnerabilities to disasters that most societies face, and of the ways in which hazards and vulnerabilities are changing in the short and long term, followed by action taken on the basis of that knowledge. Priority 3: use knowledge, innovation and education to build a culture of safety and resilience at all levels. Disasters can be substantially reduced if people are well informed and motivated towards a culture of disaster prevention and resilience, which in turn requires the collection, compilation and dissemination of relevant knowledge and information on hazards, vulnerabilities and capacities. Priority 4: reduce the underlying risk factors. Disaster risks related to changing social, economic, environmental conditions and land use, and the impact of hazards associated with geological events, weather, water, climate variability and climate change, are addressed in sector development planning and programs as well as in post-disaster situations. Priority 5: strengthen disaster preparedness for effective response at all levels. At times of disaster, impacts and losses can be substantially reduced if authorities, individuals and communities in hazard-prone areas are well prepared and ready to act and are equipped with the knowledge and capacities for effective disaster management (UNISDR, 2012). Local government officials are faced with the threat of disasters on a daily basis and need better access to policies and tools to effectively deal with them. The HFA offers solutions for local governments and actors to manage and reduce urban risk. Urban risk reduction provides opportunities for capital investments through infrastructure upgrades and improvements, building retrofits for energy efficiency and safety, urban renovation and renewal, cleaner energies, and slum upgrading. Local governments are the closest level of government to citizens and their communities. They play the first role in responding to crises and emergencies. They deliver essential services to their citizens, such as health, education, transport and water services, which need to be made resilient to disasters. Based on the five priorities of the HFA, a ten-point checklist for making cities resilient was developed that local governments sign up to. By voluntarily signing up to this checklist, local governments commit to implement DRR activities along these ten essentials. However, making cities safe from disaster requires a broad partnership among national governments, local government associations, international, regional and civil society organizations, donors, the private sector, academia and professional associations as well as citizens. All these stakeholders play a vital role in contributing to building disaster resilient cities (UNISDR, 2012). Making Cities Resilient The Making Cities Resilient: 'My City is getting ready!' campaign, launched in May 2010, addresses issues of local governance and urban risk. With the support and recommendation of many partners and participants, and a Mayors Statement made during the 2011 Global Platform for DDR, the Making Cities Resilient campaign will carry on beyond 2015. The Chendgu Declaration for Action provides a five-point action plan: i) enhance cooperation, ii) incorporate disaster resilience criteria into urban development planning, iii) organize public awareness events, iv) build an international mechanisms for political commitments, and enhance disaster, and v) emergency management of cities. The campaign will enter its second phase 2012-2015. Based on the success and stock-taking by partners and participating cities in the first phase -- 2010-2011 -- the campaign will shift its focus to more implementation support, city-to-city learning and cooperation, local action planning, monitoring of progress, and private sector support to develop “industry standards” and innovative urban risk reduction solutions (UNISDR, 2012). The ten essentials for Making Cities Resilient checklist are: i) put in place organization and coordination to understand and reduce disaster risk, based on participation of citizen groups and civil society. Build local alliances and ensure that all departments understand their role in disaster risk reduction and preparedness, ii) assign a budget for disaster risk reduction and provide incentives for homeowners, low‐income families, communities, businesses and the public sector to invest in reducing the risks they face, iii) maintain up‐to‐date data on hazards and vulnerabilities, prepare risk assessments and use these as the basis for urban development plans and decisions. Ensure that this information and the plans for your city’s resilience are readily available to the public and fully discussed with them, iv) invest in and maintain critical infrastructure that reduces risk, such as flood drainage, adjusted where needed to cope with climate change, v) assess the safety of all schools and health facilities and upgrade these as necessary, vi) apply and enforce realistic, risk‐compliant building regulations and land use planning principles. Identify safe land for low‐income citizens and upgrade informal settlements, wherever feasible, vii) ensure that education programs and training on disaster risk reduction are in place in schools and local communities, viii) protect ecosystems and natural buffers to mitigate floods, storm surges and other hazards to which your city may be vulnerable. Adapt to climate change by building on good risk reduction practices, ix) install early warning systems and emergency management capacities in your city and hold regular public preparedness drills, x) after any disaster, ensure that the needs of the affected population are placed at the center of reconstruction, with support for them and their community organizations to design and help implement responses, including rebuilding homes and livelihoods (UNISDR, 2012). In support of HFA, individuals can be recognized as Champions for four major achievements: i) proven ability to mobilize others to adopt disaster resilient thinking and behavior, ii) ability to successfully influence policy and change at the national, local or community level so that laws or other policy measures are passed to reduce disaster risk, iii) ability to convey messages to at-risk people -- young people, women and girls, the aging population and disabled persons -- in ways proven to reduce those people's vulnerability to disaster, and iv) demonstrating extraordinary commitment to the "Making Cities Resilient" campaign. In this context, United Nations Secretary General has cited the province of Albay as a model for good practices on disaster risk. "We recognize what Albay has been doing to protect its people while building more sustainable towns and cities,” the Secretary-General of the UN declared (Sabater, 2010). Albay’s Disaster Risk Reduction – APSEMO and Leadership APSEMO In July 1994, the Albay Public Safety and Emergency Management Office (APSEMO) was institutionalized. It is an independent department that serves as the technical secretariat and administrative arm of the Provincial Government of Albay (PGA) in terms of DRM. It was created to empower the management of the PGA along public safety and disaster risk management. It supports the Albay Provincial Disaster Coordinating Council (PDCC) in the implementation of organization’s objectives as mandated by a presidential decree and other related laws (Daep, 2007). It is tasked to administer effective and efficient interventions into distress areas in coordination with the different PDCC organic and regular members. APSEMO administers and supervises the systematic delivery of services to the public in terms of DRM and Public Safety coordination with the Local Disaster Coordinating Councils (LDCCs), Philippine Institute of Volcanology and Seismology (PHIVOLCS), Philippine Atmospheric, Geophysical, and Astronomical Services (PAGASA), Governmental Agencies, and Non-Government Organizations (NGOs) due to the effects of natural and man-made calamities. It also facilitates the restoration and rehabilitation of disaster-stricken communities (Daep, 2007). In particular, it is tasked to: i) delineate the functions of PDCC members and volunteers before, during and after the calamity impact; ii) enhance communication linkages within the organization and between sectors involved in public safety anchored on disaster preparedness, mitigation, response and recovery; and iii) maintain active coordination between and among the Local Government Units (LGUs), government organizations, NGOs, and PDCC member agencies to ensure timely and appropriate action on disaster-related activities. Various indigenous local response mechanisms to landslides, floods, strong winds and heavy rainfall are apparent in some communities in the province. However, the APSEMO is still on the process of documenting and verifying the effectiveness of these mechanisms (Daep, 2007). APSEMO has helped the province to achieve the "Zero Casualty" goal during Mt. Mayon eruptions in 2001, 2006 and 2009. The province’s DRRM has proven to be an efficient system in monitoring, evaluating, and implementing disaster operation, backed up with logistical and legislative policy support. APSEMO's DRM model also made Albay become a landmark of and a voice in the international discourse of DRM (PreventionWeb, 2010). Albay aligned DRR into its central economic strategy. A geostrategic intervention (GUICADALE) is both the flagship project and a key DRR initiative. In the long run, Albay is depended on calamity funds for disaster response and DRR initiatives while drawing on the national government and international aid for extreme calamities. There is a 70% overlap between adaptation and disaster risk reduction in the Albay context. Basic principles of DRR and climate action are components of the central economic strategy, not the contingency plan. Albay is the only province in Bicol that has an operational management office that provides effective coordination of the various stakeholders towards promoting efficient intervention on disaster preparedness and emergency response. The successful implementation of sustainable disaster management programs is due to the presence of a permanent office overseeing disaster-management-related activities at the local level (PreventionWeb, 2010). The Provincial Disaster Operation Center (PDOC) was established in 1992 and was tasked to provide technical and administrative functions of emergency-related services. The key features of APSEMO’s disaster risk management are: i)Mitigation: Since 1994, the provincial government allocates 2% of its annual budget to the APSEMO aside from the 5% calamity fund. Another specialized unit has been created in 2009, the Albay Millenium Development Goals Office (AMDGO) so as to ensure that the current and future plans and programs are aligned with the MDGs. Risk assessments are also conducted with the help from national research institutions and foreign funders. Activities include risks and resource mapping, geostrategic relocation, engineering -- flood control and alternative routes -- interventions; and updating of the Comprehensive Land Use Plan (CLUP) with climate-related hazards and vulnerabilities. Another feature that the government has pioneered is that all provincial facilities and school buildings in the province are insured with the Government Service Insurance System (GSIS) and provides for universal health coverage which provides all households with access even to private medical services during emergency situations. ii)Disaster Preparedness: Albay maintains close coordination with warning agencies and some DRR NGOs. Community-based warning and evacuation planning is continuously being conducted. Institutional unit such as Albay Heath Emergency Management (AHEM) is being organized and strengthened. Safe schools, hospitals and permanent evacuation centers are being built and prepared. Validation survey of all school buildings for structural safety, safety from hazards, and safety for health are conducted. In addition, water-sanitation facilities to 700 school building are being provided. Rescue equipments are being acquired and deployed as well as communication facilities. Education and training are continuously conducted. iii)Response and Relief Information: infoboards for alerts and announcements are being installed in areas most accessible to the public. Evacuation protocols are well-established encouraging village-initiated evacuation. The provincial government also provides funds for maintenance of evacuation centers and needs of evacuees. Pre-emptive evacuation is considered as key response mechanism to achieve zero-casualty goal. The province is declared as an open-city once a disaster strikes so as to facilitate the flow of disaster relief. Demand-side relief was introduced in the premise that cash is the most flexible relief support and has pump priming effect. iv)Rehabilitation: Damage and Disaster Assessment System (DDAS) is a well-established process refined over many cases of disasters. It is coordinated by APSEMO that leads an interdepartmental team who coordinates with their national counterparts. Damage assessment process uses risk mapping as its starting point, preparedness activities and the pre-disaster warning phase and the emergency phase. Data gathering is spread out and information analysis and dissemination is centralized. v)CIRCA (Center for Initiatives and Research for Climate Adaptation): CIRCA was established in 2008 for the environmental protection and for the rehabilitation of mangroves and eco-system. It primarily focuses on research, policy formulations studies and information management of climate change and its adaptation, and climate risk reduction. This organization also contributes to “zero casualty” program, which is a combination of climate change adaptation and DRR measures. With its interdisciplinary knowledge, it aims to enhance the coping abilities of Albay residents to the threats brought about by the changing climate and to specifically develop the environmental awareness of the various livelihood sectors of the province. Some of its projects are to enhance awareness of the various sectors of the threats by a changing climate and integrating DDR and CCA into school curriculum; to conduct and explore concrete policy studies that will support better climate risk adaptation; to promote climate risk adaptation by enhancing resilience of the most vulnerable groups, such as programs for river cleanup, mangrove planting, and capacity development for community (PreventionWeb, 2010). In addition to these five features, the governor of Albay issued an executive order mandating APSEMO to become a regular member of the Provincial Land Use Committee (PLUC). This facilitates the integration of DRR policies, strategies and system in the land use plan. Upon the initiative also of the governor, Albay is also using SIMCLIMS (the integrated modeling system for assessing impacts and adaptation to climatic variability and change), a customized software, as a guide in the preparation of CLUP, and REDAS (seismic hazard simulation software that aims to produce hazard and risk maps immediately after the occurrence of a strong and potentially damaging earthquake or a scenario of earthquake). Albay province is also in the process of conducting soil analysis of all the cities and municipalities and three of LGUs have already finished. The province had also organized LGUs through meetings and conferences to establish networking as well as planning and programming to integrate DRR & CCA in the CLUP, where gender, handicap children, elderly are integral part of planning process (PreventionWeb, 2011). Leadership Joey Sarte Salceda is known in the Philippines as the “Green Economist Governor.” He was an advisor to the Philippine Government, which was one of several nations working together to create guidelines for the Green Climate Fund, launched by the UN climate change body (UNFCCC) in 2011 to channel financial resources to developing countries for climate change adaptation and mitigation. At home in Albay Province, Governor Salceda led efforts to identify vulnerabilities in 720 disaster prone barangays, which is the smallest local government unit in the Philippines. He has used several innovative methods to create a culture of prevention, including by convening an inter-faith forum in 2008 that brought leaders of the Catholic and Muslim faiths together, resulting in the “Oratio Imperata” as the mandated prayer for DRR and CCA, which is recited during religious activities in the province. As part of a province-wide food-for-work program, the Governor put people to work replanting 318 hectares of mangrove swamps to better protect coastal areas from dangerous storm surges and build tsunami resiliency. Governor Salceda is active on social media, publishing a blog to promote public awareness; he has made sure that DRR and CCA are included in lesson plans in all learning areas in elementary and secondary schools (UNISDR, 2012). “DRR, together with climate change, is actually an investment in development. If climate disasters do not occur, then our program will build local capacity and there are no regrets. If they do occur, we would have zero casualty and less economic damages,” said Salceda (Gamolo, 2010). The World Bank and INSDR have recognized APSEMO and CIRCA among the sound practices on climate risk management in Asia and in the world (Lasco, 2012). “Albay has a zero casualty policy as far as disaster impacts is concerned,” said Making Cities Resilient Champion Salceda. “We have also created the institutional frameworks to deal both with climate change and disaster risks, and have set aside budgets to reduce future risks from the impacts of climate change, including through our work to achieve the MDGs. Dealing with climate change and disaster risks is the responsibility of chief executives of local government and cannot be delegated or outsourced”, affirmed Salceda (UNISDR, 2010). Salceda had also decentralized and mainstreamed DRR into the local government’s development plans and programs. Disaster preparedness now forms part of the local planning and administration of LGUs, with career staff and regular funding attached. This has seen risk and resource maps being made available, area- and hazard-specific plans being put in place, community-based early warning systems being set up, and communication protocols and evacuation procedures tested. This institutional strengthening and the province’s evacuation preparation resulted in zero casualties for the province during numerous major hazards, including the strong typhoons of November 1995 and November 1998, and the Mayon Volcano eruptions in 2000, 2001 and 2006. This success has rested on APSEMO’s ability to establish effective cross-government and multi-sector working relationships, and to institutionalize them. Its participatory approach has also meant that the government, private sector, NGOs, religious sector, media and grassroots communities have been able to coordinate joint objectives, actions and planning for disaster risk reduction. This has resulted in more cost-effective policy and emergency actions, less duplication of work and ultimately better disaster preparedness and response with lower casualty rates (Daep, 2008). Albay’s DDR program require engineering interventions, the implementation of strict protocols on evacuations and massive resource mobilization for its relocation program, training of evacuation personnel and purchase of disaster response equipment. “Our goal is ‘safe and shared development’, and this means climate-proofing and disaster-proofing the province based on the HFA for disaster,” explained Salceda. “We realize we cannot do it alone, and need support, so we built a base of co-workers to help us in our goal,” said Salceda. Disaster risk reduction and climate risk adaptation have been lodged at APSEMO, CIRCA and AMDGO (Gamolo, 2010). “DRR is global, and institutionalized is a way of life’, stated Salceda (Daep, 2008). The Planning Process in the Philippines – LGC & HFA LGC The Philippine planning process is based on the Local Government Code (LGC) enacted in 1991. This Code was conceived to facilitate the decentralization of the administrative structure, and covers all aspects of local autonomy. It affirms that: “… the territorial and political subdivisions of the State shall enjoy genuine and meaningful local autonomy to enable them to attain their fullest development as self-reliant communities and make them more effective partners in the attainment of national goals.” Development planning activities were among the tasks that the LGUs were empowered to take responsibility for. In accordance with the LGC, each LGU would work with a comprehensive multi-sectoral development plan to be formulated by its Development Council and to be integrated within the Development Plans of the next higher level. A Development Council was created at all administrative levels to assist the corresponding Executive Council in setting the direction of economic and social development and coordinating development efforts (Engel, 2007). Given that the planning process in the Philippines is rather complex only a brief overview can be provided here that focuses on aspects necessary for understanding how disaster risk management could be integrated in this process. Planning is carried out at national, regional and local levels and comprises five key phases: planning, programming, budgeting, implementation, and monitoring & evaluation. Three types of planning can be identified: i) land use planning which involves the delineation by a government authority of the utilization to which land within its jurisdiction may be put. This physical planning process generates Physical Framework Plans (PFPs) which define zones for industrial, commercial, residential, recreational and other development, ii) socio-economic planning, which is reflected in development plans, and (iii) investment planning which gives rise to investment plans (Engel, 2007). Provincial Physical Framework Plan (PPFP) and Comprehensive Land Use Plan (CLUP) establish the spatial policy valid for 15 to 25 years and define the physical pattern of growth. They precede the Comprehensive Development Plans (CDP) in order to guide prioritization of programs in the CDP. PPFPs & CLUPs define the available supply of land resources and areas where development can and cannot take place -- zoning ordinances. In addition, the PPFP provides a detailed situation analysis of physical characteristics and of the social, environmental and economical state of the province. The responsibility for the drafting of these land-use plans lies with task groups called land-use committees that are part of the development councils (Engel, 2007). In terms of vertical linkages, the planning system comprises simultaneous top-down and bottom-up processes. The national level provides so-called ‘national thrusts’ that indicate development directions and guidelines for the local levels. These in turn identify programs and projects that are then integrated into the higher-level development plans. In terms of horizontal linkages each administrative level of planning is expected to produce long-, medium- and short-term plans. For instance, physical framework plans are long-term plans, the medium-term development plans identify strategies for the implementation of the long-term plans and provide greater time-bound operational detail, and the annual investment plans are the short-term plans that enumerate projects that LGUs intend to implement for the year (Engel, 2007). CDPs delineate the sectoral policy for a six-year medium-term duration. They are multi-sectoral, comprising the following sectors: social, economic, environmental and natural resources, infrastructure, governance, administration. CLUPs define the specific applications for the available land resources and provide a convergence mechanism for integrating all existing topical and thematic plans such as the Disaster Management Plan, Local Poverty Reduction Plan, Sustainable Development Plan, Gender and Development Plan, Agriculture and Fisheries Management Plan, Local Tourism Plan. Executive Legislative Agenda (ELA). ELAs compile sectoral programs and projects for a 3-year period -- this coincides with the term of mayor. Annual Investment Plan comprises a list of programs, projects and activities by sector -- including estimated project costs -- that the LGUs envisage carrying out in the upcoming budget year (Engel, 2007). HFA One of the principal strategic goals of the HFA is for “more effective integration of disaster risk considerations in sustainable development planning, policies and programming at all levels, with a special emphasis on disaster prevention, mitigation, preparedness and vulnerability reduction”. Successful disaster prevention and mitigation cannot be achieved without considering DRM in the planning process. Hence, with DRM turning from short-term disaster preparedness, response and relief measures to long-term prevention and mitigation strategies, the integration of risk reduction measures in development planning is currently one of the most important activities of DRM (Engel, 2007). There are generally two aspects to such integration, both of them equally important. Firstly, DRM can be regarded as a cross-cutting issue that needs to be considered in all planning sectors. The aim is to plan with a DRM lens in hazard-prone areas in order to: i) avoid any building activities that do not immediately reduce the disaster risk in high-risk areas, ii) ensure that projects do not exacerbate the disaster risk, and iii) ensure that structures are able to withstand disasters. Besides this cross-cutting aspect, certain DRM measures can be regarded as stand-alone issues in planning, since they do not have a function that extends beyond the DRM aspect. Included here are certain prevention measures such as dams, rip-raps or slope stabilization in landslide-prone areas and measures that prepare for the risk that remains even if prevention measures are in place. Another important function of development planning in a DRM context is reduction in the vulnerability of the local population. Socio-economic development measures such as the provision of employment opportunities through alternative livelihood programs -- diversification of agriculture, alternative businesses, distribution of livestock, provision of microfinance, etc. -- contribute indirectly to an improved disaster risk management through alleviating poverty and buffering the negative impacts of future disasters (Engel, 2007). Albay’s DRM Opportunities APSEMO has shown that having permanent and institutionalized disaster management offices at a local or provincial level is a good practice. Having a permanent body that is the overall coordinator in times of emergency is particularly important for saving lives and implementing effective and sustainable disaster risk reduction and response. Where APSEMO project initiatives are recognized as a good practice, it hosts study visits in support of Replication Inception Workshops of the Department of Interior and Local Government. It has also supported tertiary institutions to create DRM courses at graduate level, and an Emergency Paramedic Training Unit. In particular, the project was the first in the country to make DRR staff in LGUs permanent -- rather than allowing them to be replaced after each election. Notably, the project gained consistent support for its policies and funding from six Provincial Governors since its inception, showing that political decision-makers have been able to see the benefits of stability and non-partisanship in DRR work. This stability of staffing contributed to more effective teamwork, coordination and relationship building throughout the existence of APSEMO (United Nations, 2010). APSEMO initiative is also an example of a provincial government putting its own house in order by carrying out real DRR mainstreaming throughout its areas of responsibility. By creating and adequately funding a permanent office responsible for DRR mainstreaming and coordination, with permanently appointed staff who can survive the vagaries of the political climate, this has allowed for substantive institutionalization of DRR priorities within the regular planning, governance, programs and projects of local government. Significantly, the provincial government has set DRR goals that directly affect the lives of its constituents -- such as early warning, preparedness and evacuation from local hazards with zero casualties -- taking local responsibility for local risks (United Nations, 2010). The main lessons learned were that the presence of an institutionalized DRR office at local or provincial levels makes it easier to facilitate and coordinate the multiple stakeholders needed for DRR. For APSEMO this included different local and national government agencies, grassroots community groups, and foreign and local donors. A permanent, institutionalized presence results in more cost-effective work that avoids duplication, and more effective DRR practices. However, to successfully set up and institutionalize a permanent DRR coordination office it is required political-level agreement on creating permanent responsibilities and roles, permanent staff, and stable annual funding from regular public budgets. All these elements are particularly important for sustained institutional capacity development (United Nations, 2010). According to a study done with 115 barangays in Albay, the status of the disaster management program in the province is that respondent-barangays share a common vision of implementing socially and environmentally sound disaster management program that is geared towards sustainable development. Their mission is to have a stable disaster management system that is able to protect lives and properties and minimize damages. Their goal is to ensure preparedness in terms of the physical, social, economic and cultural aspects. At the provincial level, a duly written vision is in place and ensured by the APSEMO focusing on “zero casualty and reduced risk of investments through safe and shared development.” Other interesting facts which resulted from APSEMO’s coordination is that barangay halls are now used as the immediate evaluation areas; tricycles are used to transport the evacuees; and, megaphones are used in the information dissemination. Other facts from this survey are that the Department of Social Welfare and Development (DSWD) became the primary government agency to provide technical assistance to barangays in times of calamities. DSWD also helps distribute the relief goods to the evacuees. In terms of level of preparedness in various phases of disaster management, barangays have varying level of preparedness in the implementation of disaster management programs at various phases, namely: prevention, mitigation and response, recovery and rehabilitation. At the prevention phase, the barangays were rated to have very poor preparations along the areas of infrastructure development, such as the construction of flood control measures. These barangays, however, were moderately prepared in terms of disaster management orientation, formation of disaster response organizations, counter-disaster planning, land use regulation, emergency communication system, and public education and awareness. They were adequately prepared along disaster management training, community warning system, preparation of evacuation and emergency response training. These barangays likewise conduct drills on a regular basis. The respondent-barangays have moderate preparations in the mitigation phase. This is indicated by the propagation of disaster resilient crops, establishment of seed bank and postharvest facilities, proper land use management, promotion of sustainable agricultural practices, implementation of safety regulation codes, control of hazardous substances, putting-up of systems to protect key installations, and infrastructure development. During the response phase, the barangays were also rated to be adequately prepared in terms of the conduct of medical missions and the relief delivery operations system. They have moderate preparations in the search and rescue operations; provision of temporary shelter; evacuation center management; psychosocial assistance, monitoring and negotiation; mobilization of less vulnerable sectors; implementation of plans; and, survey assessment (Evasco, 2010). Albay’s DRM -- Challenges & Recommendations Challenges The main challenge for Albay’s DRM is that disaster is uncertain. APSEMO can coordinate cost-effective disaster preparedness and quick response but the impacts of a natural hazard maybe beyond its physical control. Politics is also uncertain. Political leadership in LGUs has a short duration. Interventions of newly elected leaders must be dealt with carefully, and DRR needs comprehensive public awareness campaigns and social support to avoid politicization. There is a fundamental need for local DRR institutions to maintain impartiality and independence from the political process. Multi-stakeholder support can be temporary in nature, and is an ongoing process to maintain. There is a need for continuous financial upgrading not only to sustain but to expand APSEMO’s coordination work to lower-level LGUs (United Nations, 2010). Furthermore, the Albay provincial government took a bitter lesson when it let its guard down in 2006, and failed to evacuate people in vulnerable communities when lahars were triggered by supertyphoon "Reming". “It killed more than 300 of my village mates,” lamented Nilda Buenaobra, a village leader in Barangay Maipon, in Guinobatan town. The survivors from four puroks, or sub-villages have since been evacuated and are now in relocation centers. This painful lesson prompted the Albay provincial government to maximize the regular five percent allocation from the provincial budget and embark on a pro-active DRR and disaster management to build up the capacities of the vulnerable sectors. Ensuring nobody dies during disasters means evacuating entire communities when such a threat does occur, even if it is an expensive proposition, said Salceda. “This is why we have been able to ensure zero casualties for several years now,” he explained. At least 300,000 people are potentially affected in the province during strong typhoons and volcanic eruptions, and are moved out to safer grounds. Albay targeted 10,076 households in high risk areas to be relocated, at a cost of US$ 46 million for eight relocation sites. Funds will be shared by the national and provincial government, and international development funding organizations. To date, these households are now in safer locations in 22 permanent relocation sites. While lots have already been provided, there still exists a shelter gap of 4,454 units. The provincial government provided the lots, while the cost of producing the shelters will be shared by the National Housing Authority, Department of Social Welfare and Development, and international financing institutions (Gamolo, 2010). Disasters are cyclical and may intensify in face of climate change, which exponentially increases the costs of DRR. Disaster officials in Albay are planning to redraw the province’s “risk maps” in preparation for the onslaught of La Niña in 2012. They said previously declared safe areas had been hit by massive flashfloods, landslides and even lahar flows from Mt. Mayon. Governor Salceda has also ordered the reactivation of a task force to better prepare residents against La Niña and had put into effect the Reactivated Albay Task Force La Niña 2012 with an initial budget of half million dollars, as part of his “zero casualty” program during disasters (philStar, 2012). The Action Officer of the PDCC identified five major problems in the implementation of the disaster management programs at the provincial level. The risk maps are either not available or needs upgrading. The culture and attitude of the communities in high risks areas also constrain their disaster management programs. Despite the awareness and relocation programs, people from these communities were still persistent to go back to their settlements. The enforcement of easement law seemed to be a failure as indicated by the presence of illegal settlers along riverbanks and coastlines which are generally classified as dangerous areas. There are also pilferages of field monitoring and warning instruments which hamper the disaster management activities. Meanwhile, the common problems that are being encountered at the barangay-level during the prevention phase include the dredging of canals, lack of facilities and equipment relevant in disaster management, lack of actual community drills, and the limited knowledge of the people about the sound practices to prevent disasters. During the mitigation phase, among the problems include the lack of proper coordination, lack of funds to support the mitigation activities, lack of proper education, lack of cooperation during the evacuation, and the limited knowledge of people on most of the mitigation measures. During the response phase, the delayed distribution of relief goods; lack of basic needs of the communities; poor financial system; lack of information dissemination in times of actual disaster; and the absence of emergency vehicles are among the factors that constrained effective disaster management program. Finally, the recovery and rehabilitation phase is oftentimes constrained with the lack of funds; difficulty in the distribution of seeds and planting materials; delay in the transport of people and goods because of the lack of bridges in Yawa River; people seemed not cooperative; lack of appropriate vehicles; and, the persistence of the people to stay in their settlements despite the warning of danger and disaster. With these, the barangay and provincial governments face a number of challenges. These include the strict implementation of forced evacuation; making available relevant training programs; proper information dissemination; conduct of barangay assembly that would serve as an information and education campaign for disaster preparedness; sourcing out funds for medicines and facilities; and strict implementation of the building code (Evasco, 2010). Recommendations The results of a study indicate that Albay Province has adequate preparations in disaster management, particularly during the prevention phase. However, the province has limited preparations during the mitigation, response and recovery and rehabilitation phases of disaster management. This is brought about by a number of problems and constraints at the provincial and barangay levels. Given the high number of high risk barangays in the province, these constraints should be properly addressed in order to come up with a more effective and efficient disaster management programs (Evasco, 2010). On the basis the findings of this study, the following recommendations are: i) the National and Regional Offices of the Civil Defense should intensify their training and education programs related to disaster management to ensure that the personnel would acquire the necessary skills needed in the implementation of disaster management programs. In line with the move towards the institutionalization of the disaster management offices, the Office of Civil Defense, and the department of National Defense should likewise employ additional personnel who shall oversee the disaster management programs at the grassroots level. In addition, these offices should propose for the upscaling of the calamity fund from 5% to a higher rate through a proposed legislation at the national level. It is further recommended that the aid agencies support the bill calling for the institutionalization of the disaster management offices in the different localities so as to ensure continuous funding and proper implementation of their programs along disaster preparedness, ii) the Regional Disaster Coordinating Council in Bicol should replicate the same study in other provinces to assess the capability of the region, in general, and the provinces in particular, to respond and manage disasters. This could also be a baseline data that may be a basis for further enhancement of its programs on disaster management. The office could also hold regular meetings whereby the action officers of the local government units could share their experiences and best practices so that they could learn from one another, iii) the Albay Public Safety and Emergency Management Office should enhance their disaster management programs. Since the concern of these offices is mostly on the implementation of disaster management programs from the pre-disaster to post-disaster stages, they can very well work towards ensuring that transportation facilities and other relevant equipment are in place and could be accessed by LGUs, iv) for the League of Municipalities and Cities in Albay to integrate disaster management as one of its agenda in its future forum or dialogues in order to share lessons and experiences from various cities and municipalities, v) the Municipal Disaster Coordinating Councils in Albay should be able to assess their current state of program implementation on disaster management. They should identify the training needs of the personnel along the areas of disaster preparedness and management. The councils should also take into consideration the disaster safety components specifically in putting up of infrastructure as this is one of the most identified areas of concern in the four phases of disaster management. These offices should also monitor the implementation of building code to check the safety of the infrastructures, vi)the Department of Interior and Local Government, Albay, Provincial Office should include disaster management and preparation as among its topics in its yearly orientation, and vii)the Association of Barangay Captains in Albay should share their experiences in terms of disaster management. Similarly, they should build a strong support system among themselves to ensure that necessary assistance is extended to the local communities who are in greater need (Evasco, 2010). Overall, the Albay Province should intensify promotion and capability-building programs about disaster management and integrate disaster management in the development programs of the local government units (Evasco, 2010). Conclusion Even though the DRM actions enacted by the Albay Province demand constant improvements in every phase of the disaster cycle, it is not correct to affirm that this Filipino province should not be considered as a “champion” in terms of DRR according to HFA criteria. Considering its social and economic circumstances, the Province of Albay has successfully complied with UNISDR guidelines and managed limited resources not only within its borders but also nationwide through workshops led by its governor. By sharing best practices and lessons learned, Governor Salceda has also helped streamline national DRM policies. 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