Analysis of Resilience

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Flood Disaster Risk Management in the
Philippines and Thailand An Institutional and
Political Perspective
Jesse Bacamante Manuta School of Arts and
Sciences Ateneo de Davao University Davao City,
The Philippines
First Meeting of the Vulnerability of Food
Systems to GEC Research Network SAC5 and Exec 10
Meetings 17-18 May 2006 Hawkwell House
Hotel Oxford, UK
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Outline

• Background
• Framework and Approaches
• Findings and Insights
• Ways forward

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Vulnerability Framework
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Differential Social Vulnerability

• Institutions- are working rules or norms which
  define roles, rights and responsibilities of
  actors (Young 2002)
• Household, communities, firms or state (actors)
  may host many kinds of institutions that guide
  the behavior of their members
• Formal and informal institutions shapes
  differences in risk and vulnerability
• Interplay of institutions define what and whom
  is to be at risk shape the way flood disaster
  are defined, perceived and acted upon

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• Coping and Adaptive Capacity
• Capacities to reduce risks of disaster LIE both
  within actors and in the relationship among
  actors
• Relations that regularly define roles and
  responsibilities and rules of engagement in ways
  that enhance the capacities of actors--
  institutionalized capacities
• Relationship among actors have different
  functions that may be institutionalized
• the capacity for deliberations and
  negotiations
• capacity to mobilize and coordinate resources
• implementation
• capacity for evaluation

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General Framework for Assessing Institutional
Capacities Practices
FUNCTIONS (relations among actors) PHASES OF DISASTER CYCLE PHASES OF DISASTER CYCLE PHASES OF DISASTER CYCLE PHASES OF DISASTER CYCLE
FUNCTIONS (relations among actors) Mitigation (Well before) Preparedness (Before) Emergency (During) Rehabilitation (After)
Deliberation What should be done?
Coordination Who is responsible?
Implementation How was it done?
Evaluation Was it done well?
Source Lebel et al (2006)
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• Focus Formal institutions created by the state
  to deal with
• flood related disaster and how
  these institutions
• interact with local, often
  informal, institutions
• Methods and Study Area
• _________________________________________________
  __
• Review formal institutions (Thailand the
  Philippines)
• _________________________________________________
  _________
• Flood disaster case studies (Thailand only)
• Upland and lowland villages in Omkoi District,
  Chiang Mai (20 May 2004)
• Urban settlements in Saraphi and Muang in Chiang
  Mai (20 May 2004 14-16 Aug 2005)
• Urban and rural settlements of Sena and Muang in
  Ayutthaya (previous floods)
• _______________________________________________
  __________
• General Review of Newspapers and
  Secondary
• Materials (Thailand the Philippines)

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Summarized Table of Flood Disaster in the
Philippines from 1905-2005
Average per Event
Number of Events 65
Number of People Killed 2,666 41
Number of People Injured 570 9
Homeless 500,841 7,705
Affected 10,124,281 155,758
Damages USD (000s) 434,549 6,685
Source EM-DATThe OFDA/CRED International
Disaster Database (www.em-dat.net)
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Summarized Table of Flood Disaster in Thailand
from 1955-2005
Average per Event
Number of Events 49
Number of People Killed 2,503 51
Number of People Injured 4,085 83
Homeless 163,283 3,332
Affected 27,277,515 556,684
Damages USD (000s) 4,598,651 93,850
Source EM-DATThe OFDA/CRED International
Disaster Database (www.em-dat.net)
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Some Development Indicators
Republic of the Philippines Kingdom of Thailand
Population (2004) Rural Population Urban Population 81.6 million 38 of total 62 63.7 million 68 of total 32
Poverty ( of population below national poverty line) 30 10
GDP (US billions) 84.6 163.5
Total Debt (US millions) 61,042 51,318
Source World Bank (2006) ADRC (2006)
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• The Rules (Thailand)
• Civil Defense Act 1979 and Government Reform in
  2002 (eg. DDPM)
• Flood Control and Mitigation
• Land and Water Use Control (eg. guidelines for
  watershed and urban development)
• Relief and Compensations (Treasury Act of 2003)
• Others

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The Players (Thailand)
Key Agencies Duties Responsibilities
Department of Disaster Prevention Mitigation Major line agency for urgent assistance to flood victims
Department of Water Resources Major line agency for flood mitigation, research and national water resource management system
Royal Irrigation Department Major agency for water provision, storage, maintenance and allocation to agriculture, energy, consumption industry
Department of Public Works City Planning Major agency for city planning and control of construction process
Meteorological Department Major agency to monitor, forecast and set up early warning system
Ministry of Social Development Human Security Lead agency on rehabilitation of flood victimsmental, social and economic healing recovery
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• The Rules (Philippines)
• PD 1566 (1978)
• Local Government Code (RA 8185)
• Land Use Management and Zoning Ordinances

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Some NDCC Member Agencies and Area of
Responsibilities
Departments Responsibilities
National Defense Convenes NDCC as necessary and calls on other government agencies and private sector as needed
Public Works Highway Restore destroyed public structures such as flood control, waterworks, roads, bridges and other vertical and horizontal facilities provides equipment for rescue, relief and recovery
Transportation Communication Restores destroyed communication and transportation facilities such as railroads organizes national transport services.
Science Technology (Philippine Atmospheric Geophysical and Astronomical Services (PAGASA) Continuing watch on environmental conditions o prepare daily weather forecasts, typhoon watches and flood outlooks
Social Welfare Development Extends relief assistance and social services to victims and provide rehabilitation
Agriculture Undertake surveys in disaster-prone areas and actual disaster areas to determine extent of damage of agricultural crops, livestock and fisheries provide technical assistance to victims
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Some NDCC Member Agencies and Area of
Responsibilities
Departments Responsibilities
Education, Culture Sports Provides assistance in public education and campaign regarding disaster preparedness, prevention and mitigation through integration of relevant subjects in school curriculum makes school building available as evacuation centers
Finance Issues rules and regulation regarding funding by local government of DCC requirements with DBM issues rules and regulations on preparation of local government budget and utilization of the 2 reserve for disaster operations
Interior Local Government Oversees organization of local DCCs, the establishment of Disaster Operation Centers of all local governments, and the training of DCC members
Health Provides health services during emergencies and organizes reaction teams also issues public health warning notices.
Environment Natural Resources Responsible for reforestation and control of areas prone to flood, landslide, mudflow and ground subsidence
National Housing Authority Assessment of housing requirements of displaced persons provision of temporary housing and rebuilding of destroyed areas.
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• Several indications of improved institutional
  performance.
• The government and the private sectors have been
  actively collaborating during emergency for
  mobilizing resources for relief and emergency
  assistance.
• Provisions for Early Warning/Risk
  Vulnerability Mapping
• Attempts to involve the general public are now
  being explored through the formation of basin
  river organization, with a mandate that includes
  a planning unit for flood mitigation and
  prevention.
• Integration of Disaster Risk management in
  development programs (policy rhetoric) and
  Community-based disaster risk management pilot
  projects
• Emergence of private sectors (NGOs and Firms)
  providing financial assistance for livelihood
  recovery (ex. Siam Cement and Save Andaman micro
  credit programs)
• Strong Civil Society Groups in Thailand and the
  Philippines

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• Institutional Incapacities
• Poor coordination fragmented measures
• -Poor coordination across administrative
  hierarchies delays the timely delivery of
  services and assistance (e.g Tambon- Provincial)
• - National level no policy coordination (eg
  DWR and RID)
• _ The process of budget preparation and
  allocation procedures hampers coordination
  between local government and line agencies.
• - Watershed, rural and urban uses planning
  are not well articulated with water-related
  infrastructure projects for flood control

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• Incomplete Implementation
• Incomplete implementation in terms of
  geographical coverage, unfulfilled promises, and
  unattained goals is common (eg. Land
  rehabilitation and livelihood trainings)
• Poor prioritization of marginal communities has
  led to institutional incapacity of the state to
  bring prevention, mitigation, recovery and even
  relief operations to where they are, arguably,
  most needed the places where the poor and other
  socially marginalized groups live.
• Examples tribal groups and small fisherfolks

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• No monitoring and evaluation
• After the tragedy, several government agencies
  were quick to offer help. But when I returned,
  everything was still the same. (Bangkok Post
  reporter who won award for disaster journalism)
• A disaster doesnt end the day flood water
  resides and emergency relief operations declare
  success.
• - Protection of interests and a culture of
  uncritical promotion of performance have
  institutionalized an incapacity for evaluation
  and critical reflection
• Narrow deliberation
• - Framing of flood-related disaster requiring
  technical fixes
• - Bias to protect the rapidly urbanizing and
  industrial centers shifts flood risks
  surrounding agricultural-based provinces

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Impacts of Altered Flood Regimes Depends on
Livelihood Lifestyles
Flood Regime Change with Climate Change Flood Regime Change with Climate Change
More intense, prolonged or frequent flooding Less intense, shorter and rarer flooding
Objective of Livelihood-Lifestyles relationship with Floods Depend on Floods Beneficial up to a threshold of adaptation Increased risk after barsha beneficial floods plabob severe floods Lack of floods disaster
Objective of Livelihood-Lifestyles relationship with Floods Avoid Floods Increased risks of disaster Reduced risk of disaster
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• Impediments of Institutional Reforms
• Misplaced emphasis on emergency relief to the
  detriment of crafting institutions to reduce
  vulnerabilities and prevent disaster (the
  politics of disaster)
• Self-serving belief that disaster management is
  a technical problem that calls for expert
  judgement that systematically exclude the
  interests of the most socially vulnerable groups
• Overemphasis on structural measures which again
  and again have shown to be more about
  redistributing risk in time and place rather than
  reducing risks (turfing)
• Failure to integrate flood disaster as
  inevitable challenges into normal development
  planning in flood-prone region (from rhetoric to
  action).

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Ways Forward
FUNCTIONS PHASES OF DISASTER CYCLE PHASES OF DISASTER CYCLE PHASES OF DISASTER CYCLE PHASES OF DISASTER CYCLE
FUNCTIONS Mitigation (Well before) Preparedness (Before) Emergency (During) Rehabilitation (After)
Deliberation What should be done? Active participation in district area planning, river-basin management, disaster preparedness plans and water-related disaster policies are some of the avenues for engagement Active participation in district area planning, river-basin management, disaster preparedness plans and water-related disaster policies are some of the avenues for engagement Active participation in district area planning, river-basin management, disaster preparedness plans and water-related disaster policies are some of the avenues for engagement Active participation in district area planning, river-basin management, disaster preparedness plans and water-related disaster policies are some of the avenues for engagement
Coordination Who is responsible? Cross-scale coordination among agencies and stakeholders is important for flood mitigation, particularly in the design, implementation and monitoring and evaluation of program and policies that help address the underlying causes of flood disaster risks. Framework for private sectors to help finance recovery and rehabilitation (insurance and micro finance schemes) Cross-scale coordination among agencies and stakeholders is important for flood mitigation, particularly in the design, implementation and monitoring and evaluation of program and policies that help address the underlying causes of flood disaster risks. Framework for private sectors to help finance recovery and rehabilitation (insurance and micro finance schemes) Cross-scale coordination among agencies and stakeholders is important for flood mitigation, particularly in the design, implementation and monitoring and evaluation of program and policies that help address the underlying causes of flood disaster risks. Framework for private sectors to help finance recovery and rehabilitation (insurance and micro finance schemes) Cross-scale coordination among agencies and stakeholders is important for flood mitigation, particularly in the design, implementation and monitoring and evaluation of program and policies that help address the underlying causes of flood disaster risks. Framework for private sectors to help finance recovery and rehabilitation (insurance and micro finance schemes)
Implementation How was it done? Acknowledging role for communities in disaster management creates opportunities to broaden participation on the one hand, and improve accountability and responsiveness of states institutions on the other. Acknowledging role for communities in disaster management creates opportunities to broaden participation on the one hand, and improve accountability and responsiveness of states institutions on the other. Acknowledging role for communities in disaster management creates opportunities to broaden participation on the one hand, and improve accountability and responsiveness of states institutions on the other. Acknowledging role for communities in disaster management creates opportunities to broaden participation on the one hand, and improve accountability and responsiveness of states institutions on the other.
Evaluation Was it done well? Instituting monitoring and evaluation mechanisms in disaster risk management may also facilitate institutional learning among different agencies. Performance evaluation among different agencies may provide institutional incentives to be become better and accountable. Instituting monitoring and evaluation mechanisms in disaster risk management may also facilitate institutional learning among different agencies. Performance evaluation among different agencies may provide institutional incentives to be become better and accountable. Instituting monitoring and evaluation mechanisms in disaster risk management may also facilitate institutional learning among different agencies. Performance evaluation among different agencies may provide institutional incentives to be become better and accountable. Instituting monitoring and evaluation mechanisms in disaster risk management may also facilitate institutional learning among different agencies. Performance evaluation among different agencies may provide institutional incentives to be become better and accountable.
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Thank You!
Work in progress.