CONCLUDING REPORT

Action Plan toward Effective Flood Hazard Mappingin thePILIPPINESJICA-REGION FOCUSED TRAINING COURSEINFLOOD HAZARD MAPPINGJYF 2006

Prepared by:
Position:
Organization:
Country:

RICHELIEU FELIPE I. LIM
Engineer III
Department of Public Works and Highways
Philippines

CONTENTS:
A. Role of Flood Hazard Map to mitigate flood damages in my country
A.1

Flood Status

A.2

Outline of the present countermeasures for mitigating flood damages

A.2.1 Structural Measures
A.2.3 Non-structural Measures
A.3

Why Flood Hazard Map is useful to my country?

B. Allocation of roles in making Flood Hazard Map in my country
C. ACTION PLAN on making Flood Hazard Map in my country
C.1

Target Area

C.2.1 Prerequisites in making Flood Hazard Map for my target area
C.2.2 Data, maps and allocation of budget necessary for making FloodHazard Map
C.3

Proposed Action Plan within five (5) years

C.4

Problem in making Flood Hazard Map in your country

D. My own Flood Hazard Map of Ise City
D.1

Available information for Ise City Flood Hazard Map1

A. Role of Flood Hazard Map to mitigate flood damages in my country
A.1 Flood Status
The country owing to its geographical location and physical environment make itvulnerable to natural hazards such as tropical cyclones, floods, extreme rainfall,thunderstorms, storm surges, strong winds, tornado and others. It is one of the mostdisaster-prone areas in the world. Being situated along the path of average twenty
tropical cyclones annually, where nine, of which directly affect the mainland. Every
year these hazards bring destruction to life and property. Seriously disrupting theagricultural based economy and agitates the lives of millions of families. Statistics
shows that flood damage from 1980 to 2003 has accumulated to billions of financial
loss to government installations and infrastructures.
Table A.1.1 Tropical Disturbances and Corresponding Casualties, 1990-2003
TropicalDisturbance

Date of Occurrence

Casualties
Dead

Missing

InjuredRupingNov. 10-14, 1990

508

246

Uring

Nov. 2-6, 1991

5,101

1256

DitangJuly 17-21, 1992

36

77

Kadiang

Sept. 30-Oct. 7, 1993

126

2637

Monang273

90607

PuringDec. 3-4, 1993
Dec 24-29, 1993

187

52280

MamengSep27-Oct 1, 1995

116

126

49

PepangOct. 26-30, 1995

265

67323

RosingOct. 3l-Nov. 3, 1995

936

3164152

Emang & Gading

Sept. 16-21, 1998

108

20Loleng

Oct. 15-23, 1998

303

29Reming

Oct. 26-Nov. 1, 2000

114

10Feria

July 2-6, 2001

188

44241

NanangNov. 6-10, 2001

236

88169

Hambalus, Inday

June 28-July 14, 2002

85

445

Harurut

July 19-21, 2003

642154292

751

Florita, Gloria

Source: Office of the Civil Defense

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Table A.1.2 Recorded Annual Flood Damages, 1980-2003
Population AffectedCasualties

House Damaged

YearFamiliesPersons

Dead

Missing

InjuredTotally

DamagedValue(millionpeso)

Partially1980

248,164

1,666,498

36

4

55

16,51051,101

1,472

1981

250,325

1,472,417

484

264

1,922

44,994

159,251

1,273

1982

266,476

1,569,017

337

223

347

84,027

97,485

1,754

1983

140,604

747,155

126

168

28

29,89285,072523

1984

741,510

4,048,805

1,979

4,426

732

310,646

313,319

416

1985

318,106

1,643,142

211

300

17

8,204

211,1513

1986

287,240

1,524,301

171

43

155

3,162

14,595

1,838

1987

464,1622,591,914

1,020

213

1455

180,550

344,416

8,763

1988

1,173,994

6,081,572

429

195

468

134,344585,732

8,675

1989

501,682

2,582,822

382

89

1088

56,473

184,584

4,494

1990

1,265,652

6,661,474

676

262

1392

223,535

636,742

11,713

1991

150,894

759,335

5,201

4,278

357

15,45883,66474

1992

418,964

2,097,693

145

95

51

3,472

8,342

7,359

1993

1,523,250

8,202,118

814

214

1637

166,004

456,773

25,038

1994

670,078

3,306,783

266

54

260

58,869226,291

3,401

1995

1,710,619

8,567,666

1,255

669

3027

294,654

720,50257,781

1996

260,5811,254,989

124

49

97

2,690

17,557

10,1091997

777,997

3,954,175

199

28

66

13,22553,980

4,842

1998

1,590,905

7,197,953

498

116

873

137,020

406,438

17,823

1999

270,424

1,281,194

56

3

25

144

687

1,555

2000

1,426,965

6,852,826

338

59

370

24,573

195,537

7,217

2001

756,938

3,629,295

431

134

418

14,89954,422

6,924

2002

538,600

3,546,469

169

33

71

2,980

15,947829

2003

702,223

3,362,991

139

28

182

12,306

51,5794,567

16,456,353 8,4602,604

15,486

11,94715093 1,838,631

5,975,238

188,443

Total

Source: Office of the Civil Defense3

A.2 Outline of the present countermeasures for mitigating flood damages
Floods have a tremendous effect on the economy and the population of the country.
Its main effect is to retard development. Restoration can take time on a flood stricken
area. It must first be restored to normal before any development can be carried out.
To help the communities cope with flood disaster and mitigate flood damages thegovernment is instituting structural and non-structural measures.
A.2.1 Structural Measures
The Department of Public Works and Highways (DPWH) created under Executive
Order 124 on January 30, 1987) has been implementing efficient engineering
structures to mitigate the negative effects of floods. Being the country’s engineeringand construction arm the DPWH has designed and constructed flood control
countermeasures to preserve and enhance the retention and detention capabilities ofriver systems to withstand flooding of a pre-determined magnitude which is usually
decided based on the degree of importance of the target area.
Hereunder are the majority of these structural measures implemented against floodsin the Philippines:•

To increase the discharge capacity of the waterway
1. Dikes
2. Widening of width waterway opening•

To reduce/control the peak discharge of flood
1. Dams
2. Retarding basins•

To prevent inland flooding
1. Improvement of laterals or tributaries
2. Pumping stations•

To prevent bank collapse
1. Revetments
2. Spurdikes
3. Cut-off channels•

To prevent scouring of riverbed
1. Groundsill
2. Sabo dams•

To prevent obstruction of river flow and/or maintain the good conditionof the river/waterway
1. Conduct regular maintenance4

A.2.2 Non-structural Measures
Structures mentioned above can only do so much in flood management/mitigation,
since they also have their design limitations. At present, the Philippines concentrated
mostly its efforts on the evacuation, relief operations, damaged assessments andrehabilitation works when dealing with flood disaster.
The National Disaster Coordinating Council (NDCC) created under Presidential
Decree No. 1566 in June 1978 is the highest policy making, coordinating andsupervising body at the national level for disaster management in the country. Its
members are the secretaries of the main departments, and the chairman is thesecretary of national defense. The NDCC advises the president on the status ofnational disaster preparedness and management plans. The Office of the Civil
Defense (OCD) is the operating arm and secretariat of NDCC. Various national levelagencies composed the NDCC. These agencies have their different functions.
1. Department of National Defense (DND)• Chairs the NDCC, convenes members and calls on government andprivate sector when need arises
2. Department of Public Works and Highways (DPWH)• Restores destroyed public structures, such as water networks, roads
and bridges. Provides equipment for rescue, relief and recovery
3. Department of Interior and Local Government (DILG)• Oversees the local disaster coordinating councils, establishment ofdisaster operations center of all local governments
4. Department of Transportation and Communication (DOTC)• Restores destroyed communications and transportation facilities suchas railroads and vertical structures, organizes national transportservices
5. Philippine Atmospheric, Geophysical and Astronomical Administration(PAGASA)• Watches on environmental conditions to prepare daily forecasts,
typhoon watches and flood outlook
6. Philippine Institute of Volcanology and Seismology (PHIVOLCS)• Issues advisories on earthquakes, volcanic activity and tsunamis;
identify appropriate evacuation sites and disaster response groups
7. Philippine Nuclear Research Institute• Issues advisories on radioactive fallout, contamination and radiation
incidents; organizes disaster control groups and reaction teams

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8. Department of Social Welfare and Development (DSWD)• Extends relief assistance and social services to victims and provides
rehabilitation
9. Department of Agriculture (DA)
• Undertakes surveys in disaster prone areas and disaster areas todetermine extent of damage of agricultural crops, livestocks andfisheries; technical assistance to disaster victims
10. Department of Education (DepEd)• Provides assistance in public education and campaigns regarding
disaster preparedness, prevention and mitigation through integrationof relevant subjects in school curriculum; make school buildings
available as evacuation centers; trains teachers in disaster
preparedness
11. Department of Finance (DoF)• Issues rules and regulations regarding funding by local governmentsof disaster coordinating council requirements; issues rules andregulations on preparation of local government budgets and theutilization of 5% reserve for disaster operations
12. Department of Labor and Employment (DOLE)• Organizes and trains Disaster Control Groups in factories andindustrial complexes; provides emergency employment opportunities
to disaster victims and implements industrial civil defense programs
and measures
13. Department of Trade and Industry (DTI)• Maintains level of commodity prices during emergencies andorganize disaster response teams in large commercial andrecreational premises
14. Department of Health (DoH)• Provides health services during emergencies and organize response
teams; also issues public health warning notices
15. Department of Environment and Natural Resources (DENR)• Responsible for reforestation and control of areas prone to flood,
landslide, mudflow and ground subsidence
16. Department of Tourism (DoT)• Organizes and trains disaster management teams in hotels, pension
houses, restaurants and other tourist- oriented facilities617. Department of Budget and Management (DBM)• Release funds required by the departments for disaster operations

18. Philippine Information Agency (PIA)• Provides public information service through dissemination ofmitigation and preparedness measures
19. Philippine National Red Cross (PNRC)• Conducts disaster leadership training courses, assist in disastercoordinating council training at all levels; help with emergency relief
20. National Housing Authority (NHA)• Assessments of housing requirements of displaced persons;provision of temporary housing and rebuilding of destroyed areas
21. Armed Forces of the Philippines (AFP)• Responsible for provision of security in disaster areas and assistancein reconstruction; provides transportation for relief supplies andpersonnel
22. National Economic Development Authority (NEDA)• Responsible for determination and analysis of effects of disaters onsocio-economic programs, and the development of damage
assessment schemes
23. Office of the Civil Defense (OCD)• Coordinates all NDCC member agencies activities, act as secretariat
to the NDCC
A.3

Why Flood Hazard Map will be useful in my country?
Reasons:
1. The Philippines is in a volcanic/earthquake-prone region, hence volcanic
eruptions and eruptions have an impact on our river system.
2. Urban development within the confines of river waterway and flood plain.
3. Deforestation resulting in increased sediment run-off into river systems.
4. Compared to other infrastructure sectors such as roads, bridges, floodcontrol sectors are a much lower priority, resulting in less allocation thannecessary, thus, implementation occurs in stages.

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5. Major flood control projects require large amount of resources toimplement and the government rely on foreign assistance.
6. The emphasis of non-structural flood mitigation programs of thegovernment is more on reactive response instead of proactive response.
B. Allocation of roles in making Flood Hazard Map in my country
The National Disaster Coordinating Council (NDCC), duly supported by
Department of Public Works and Highways, Mines and Geosciences Bureau(MGB) and National Mapping and Resource Information Authority (NAMRIA)of the Department of Environment and Natural Resources, Philippine Atmospheric,Geophysical and Astronomical Administration (PAGASA), other agencies andlocal government units should be given the role in the preparation of inundation map
and making flood hazard map.
Scheme:Provide details andhistory of inundationand the river systemBarangay(Disaster Coordinating Council)

Provide additionalstatistical data otherdetails.
Create/Implement
policies on local flood
management

Municipalities/Cities(Disaster Coordinating Council)

Collate data andcreate/approve/implement
policies in flood
management provinciallevel

Provincial Government(Disaster Coordinating Council)

Flood Inundation Map&Flood Hazard Map
Preparation
NDCC
DPWH
MGB
NAMRIAPAGASA& other agencies

DESSIMINATION

Government agencies
Use for flood mitigation(structural & non structural)8

C. ACTION PLAN on making Flood Hazard Map in my country
C.1

Target Area:

Mindanao River Basin

Background:
Mindanao River is the second largest major in thePhilippines. It is the primary drainage way ofMindanao River Basin. It originates in the in theslopes of Central Cordillera range and flows down tothe confluence of various tributaries in the vicinitiesof the Municipalities of Pagalungan, Pikit and Datu
Piang in the Province of Maquindanao anddischarges towards Illanah Bay. The principal
tributaries of Mindanao River include the Pulangiand Libungan Rivers in the north and Allah andBuluan Rivers in the south. The Liguasan Marshlocated in the Provinces of North Cotabato, Sultan
Kudarat and Maquindanao was formed by theoverflow of Mindanao River and its principal
tributaries. Flooding is experience in parts ofCotabato City at the lower reach of Mindanao River
when the said river overflows.

C.2.1 Prerequisites in making Flood Hazard Map for my target area
1. Determination of inundation depth and extent of flooding cause by theswelling of Mindanao River.
2. Identification of location and number of possible evacuation centers.
3. Identification of prevention disaster groups, government and nongovernment organizations (NGOs).
4. Identification of possible evacuation routes.
5. Identification of the geologic features of the area.
6. Coordination with the local government units and their participation in theundertaking.
7. Field investigation (town watching).

9C.2.2 Data, maps and allocation of budget necessary for making Flood Hazard
Map•

Studies containing various aspects in the preparation of structural flood
mitigation countermeasures in the area conducted by foreign consultants
and submitted to the DPWH for its structural integrity and NEDA for its
economic viability for approval can be verified and updated if necessary.
1. Study on Nationwide Dredging of Major Rivers
2. The Study on the Nationwide Flood Risk Assessment and Flood
Mitigation Plan for the Selected Areas in the Republic of thePhilippines•Base Maps are to be provided by the NAMRIA, the authority in the
preparation of different kinds of maps in the country.

•The National Calamity Fund and Local Calamity Fund can be tap for thisundertaking
The National Calamity Fund is the (NCF) is the primary fund used for
responding to disasters. It is intended to supplement local calamity funds(5% of the local government’s fund).

C.3

Proposed ACTION PLAN within five (5) years
A month after arrival
1. Coordinate with previous Philippine participants for nationwide
campaign on Flood Hazard Map Awareness.
2. Recommend to the next level of leadership in my department thenecessity of preparing flood hazard maps in flood prone areas.
3. Recommend to the Human Resources Development Division of thedepartment to conduct Flood Hazard Mapping Seminar to be attended
by the following:••••District Engineers of the department
Provincial Engineers
City Engineers
Municipal Engineers

10Within two (2) years
1. Gathering /compilation and updating of available data•••

Coordinate with concerned government agencies and concerned
local government units for accurate data/information needed
Conduct actual survey of the pilot area
Consultation with local residents

Within the next two (2) years
1. Preparation and production of flood hazard map
Within 1- 2 years after the three previous years
1. Dissemination of flood hazard map••
C.4

Public Awareness Program
Training on evacuation plans

Problem in making Flood Hazard Map in my country
The allocated funds of National Calamity Fund are mostly used for postdisaster activities, rather than risk reduction activities.

11D. My own Flood Hazard Map of Ise City

D.1

Available information for Ise City Flood Hazard Map
The additional information for Ise City Flood Hazard Map based on my flood
hazard map of the city is the evacuation route going to designated evacuation
centers that the residents may take superimposed on an aerial photo map.

DOMO ARIGATO GOZAIMASU ! ! !

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