Natural Disaster Research Report of the National Research Institute for Earth Science and Disaster Prevention, No. 45 ; February, 2011

Landslide Disaster around Baguio City caused by Typhoon Pepeng in 2009
Takashi INOKUCHI*, Tadashi NAKASU**, and Teruko SATO****

Disaster Prevention Research Center
National Research Institute for Earth Science and Disaster Prevention, Japan
inokuchi bosai.go.jp**
International Centre for Water Hazard and Risk Management under the auspices of the UNESCO,
Public Works Research Institute, Japan***
Visiting Researcher, National Research Institute for Earth Science and Disaster Prevention,
Tokiwa University, Japan

Abstract
From September to October 2009, two typhoons hit the Philippines and caused massive floods and landslides. The heavy
downpour brought about by the second one, Typhoon No. 17, caused massive landslides in Baguio City and in many partsof northern Luzon, leaving more than 200 casualties. We did a half-day survey of the extent of the landside damage andreport the results. The damage from the landslide was due to the unprecedented amount of rainfall, and social factors, suchas the unregulated overbuilding of houses on steep slopes, also contributed largely to the damage.
Key words: Landslide disaster, Typhoon Pepeng, Philippine, Baguio City

1. Introduction
Two typhoons hit the Philippines one after the other inthe fall of 2009. The second of these typhoons, Typhoon No.
17, which landed in October, brought heavy downpour thatcaused massive earth slides, mudslides, and debris flows
across wide areas of Benguet Province and Baguio City,
located in the central part of northern Luzon, leaving morethan 200 casualties and missing persons. We performed a fieldsurvey of the damage mainly in Baguio City and conductedinterviews with city government officials and other agencies
involved, albeit within a short period of time. Here, wereport the extent of landslide damage on the basis of our fieldsurveys and discuss the factors that may have contributed to
the landslide disaster on the basis of the data that we obtained
during interviews with the different agencies.
2. Overview of landslide damage caused by Typhoon
PepengTyphoon Pepeng made landfall in Luzon on Oct. 2 andbrought massive rains while it traversed from east to west,
but as it exited the northwest of Luzon, it changed its course
due to the Fujiwara effect brought about by its interaction

with Typhoon No. 18 (Shimokawa et al., 2011) and reentered
Luzon from the northwest side, bringing more heavy rains.
The complicated way in which it moved to make landfall
twice caused intense rainfall that had two large rainfall peaks.
Its first landfall on Oct. 3 brought a record rainfall of 531 mm
in Baguio City (Table 1). Two days later, a record rainfall
was also recorded for a period of three days from Oct. 6 to
8 at 260, 267, and 685 mm, for a total of 1,200 mm. This
rainfall peak resulted in extensive damage as widespreadlandslides occurred in Benguet Province and Baguio City, andmore than 200 people were reported dead or missing. Amongthe major damage it caused was a huge landslide in Little
Kibungan, La Trinidad, Benguet Province, where 85 people
died. Most of the landslide damage in Baguio City occurred
during the second peak of the rainfall from Oct. 8 to 9. We
conducted the survey of landslide damage on Nov. 27. Afterinterviews with the city mayor’s office, we visited at least
five areas to inspect the extent of the damage. Since we were
only able to conduct actual field inspection for a half day, we
relied on field reports for the details of the extent of damage
in the different areas.

* Tennodai 3-1, Tsukuba, Ibaraki, 305-0006, Japan** Minamihara 1-6, Tsukuba, Ibaraki, 305-8516, Japan*** Miwa 1-430-1, Mito, Ibaraki, 310-8585, Japan－ 35 －

Natural Disaster Research Report of the National Research Institute for Earth Science and Disaster Prevention, No. 45 ; February, 2011

Table.1 Summary of landslides and heavy rain conditions.

Station/Date

Oct. 03

Oct. 04

Oct. 05

Oct. 06

Oct 07

Oct. 08

Laoag

90.6

402.6

197.3

47.5

60.0

33.0

Vigan/Sinait

168.9

417.3

126.2

75.4

68.6

111.8

Baguio

531.0

38.2

4.6

260.0

276.0

685.0

Dagupan

159.5

8.0

T

36.2

52.0

443.5

Fig. 1 Location of landslides investigated in Baguio City and surrounding areas.

3. Overview of landslide damage in Baguio City
Fig. 1 shows the survey points of landslide occurrences in
Baguio city.
3.1 Landslide in Kitma, Baguio City
The first place we visited was the landslide on Marcos
Highway, the main road that runs southwest from Baguio
City along the mountain ridge. A 20-meter stretch of land
below the road shoulder collapsed, bringing down with ithouses built along the slope (Cover Photo 1). A family ofeight people, including six children, was buried along with
their house as the mountainside went down.

Almost nothing was left of the buildings on the central
part of the landslide, where weathered soil was left exposed(Photo 1). Adjacent buildings had nothing but theirfoundations remaining. Based on interviews with somepeople at a nearby shop, the landslide occurred at around 1
am on Oct. 9. We believe that this was triggered by the record
rainfall of 685 mm that fell the previous day in Baguio.
However, the landslide occurred in an area below a paved
road surface where water infiltration was not expected tohappen and where there is no water catchment surface. We
found sewage pipes and tiles apparently made of concrete－ 36 －

Landslide Disaster around Baguio City caused by Typhoon Pepeng in 2009 − T. INOKUCHI et al.

with grass, so at first it did not appear as if there had been alandslide. Photo 3 shows a picture of the area provided by
the city government that was taken right after the landslide.
It was a small-scale landslide that occurred on a 20-degree
gentle slope, 10 m wide and 10 m deep. We inferred from
Photo 3 that the area was naturally sloped and composed of a
thick layer of weathered soil, and although it has the featuresof a valley-type slope, the water catchment surface is not verylarge.
Although we did not obtain detailed information about how
the area was developed, we believe that the major factors thatcaused the damage were the unregulated building of houses
and the lack of consideration to building safety on mountainslopes, where there is a danger of landslides occurring after
heavy rainfall.

Photo 1 Landslide in Kitma. The house in this photo collapsed
down into the slope.

buried under the soil beneath the fault scarp below the roadshoulder (Photo 2).
However, we did not have time to find out how the
rainwater that falls on the road surface is drained. In theabsence of other probable factors, we believe that it waspossible that there was water leakage from the sewage
pipes buried under the road. Even though we did not haveinformation about the state of the buildings before thedamage, it seemed that they were improperly built. Thus, we
believe that the loosening of the soil due to the rains caused
the unstable buildings to fall down with the land.

Photo 3 PNB Ville site right after the landslide(Provided by the Baguio City Government).

3.3 Landslide in Cresencia Village
The landslide damage was similar to the first area wevisited at Kitma, where a mudslide occurred below the roadshoulder (Cover Photo 2). In this area, the houses were built
in tiers along the slope so that all the houses located 30 to
40 m down from the portion that collapsed were damagedby the land and houses that fell down from above (Photo 4).
Twenty-three people were killed in the landslide.

Photo 2 Sewage pipes found buried under the upper
portion of the landslide in Kitma.

3.2 Landslide damage in PNB Ville
The next area we visited was the landslide at PNB Ville.
Four people in a family that lived right where the landslide
occurred were reported dead. The area is located near the
Marcos Highway along a gently undulating mountain slope
where houses were being built in a worm-like fashion andwhere there were still pine and other trees growing in theupper part of the slope. We visited the area only two months
after the landslide, but most of the it was already covered－ 37 －!
Photo 4 Damage of houses along the slope due to the landslide in
Cresencia Village.

Natural Disaster Research Report of the National Research Institute for Earth Science and Disaster Prevention, No. 45 ; February, 2011

The area was an elevated residential one near the centerof the city and located only around 500 m from the City
Hall, with a nice view from the road. The area that collapsed
was a steeply sloped area beneath the road shoulder that
had a maximum width of 20 m, a slope length of 25 m, anda tilt of 30 degrees (Photo 5). Judging from the conditionsof the surrounding area and from the topographical maps
we obtained, we believe that the area was originally theuppermost part of the valley, a portion of which was probably
filled during construction of the road. The side of the roadwhere the slope collapsed did not have gutters or drainage
systems, so it was possible that the rainwater flowed along
the tilted road surface into the slope below it.
We believe that one major factor that contributed to thelandslide that claimed many lives is the building of houses
in a valley-like topographical area, which has a high risk forlandslide damage, without proper land modification.

!
Photo 6 Landslide in Pinsao Proper.

!
Photo 7 Landslide in Yapdue area.

!
Photo 5 Condition of the slope where landslide occurred in
Cresencia Village.

3.4 Other landslide disasters within Baguio City
We did not have sufficient time to actually enter andinspect the landslide areas other than the three mentioned
above. Instead, we conducted the inspections mainly bytaking pictures from afar. However, we would also like togive an overview of the extent of landslide damage for theseareas within Baguio City by using the pictures that we took.
Photo 6 shows the landslide that occurred in Pinsao
Proper, where earth movement occurred on a gentle slopethat had a thick layer of advanced weathering-stage soil. This
landslide area had the deepest slip plane among those wehave mentioned so far, and the houses built over the landslip
became greatly tilted. Since we were viewing the area froma distance, we could not accurately estimate the dimensionsof the damage, so we estimated it to be approximately 100
m wide and 100 m long. The slope also did not have asignificant water catchment surface area behind the landslide.

We believe that groundwater levels rose due to an infiltrationof rainfall that reached a total of 1,000 mm over the slopedarea. There were reports of two fatalities in this area, but
we were not able to determine the actual location where thishappened.
Photo 7 is a far-view picture of the landslide that occurred
on a steep slope in the Yapdue area. From the picture, itwould seem that the amount of collapsed land is minimal, but
due to the collapse of the upper region of the slope, a wide
area was laid bare. We were not able to determine the extent
of damage for this area. There were other landslides having
a similar type of damage in some other places within Baguio
City. In this particular area, there were no houses beneaththe collapsed portion, but there were several houses in theslope right next to it. Thus, if the landslide had occurredin a slightly offset point, it could have resulted in humancasualties. Landslides of varying scales were also observed inmany other areas.
3.5 Lessons from the landslide disasters in Baguio City
According to reports from the Baguio City government,
there were around 100 areas within Baguio City wherelandslides had been determined, as well as 58 casualties and5 missing persons. Baguio City was developed on mountain－ 38 －

Landslide Disaster around Baguio City caused by Typhoon Pepeng in 2009 − T. INOKUCHI et al.

ridges located 1,000 m above sea level to serve as the summer
capital of the Philippines; hence, there are very few flat or
gently sloped areas within the city. In our interviews withthe city government officials, they pointed out the problems
arising from the rapid population growth and the unregulated
construction of residential areas. In particular, recent
residences have been constructed on steeply sloped areas
since the gently sloped areas have already been developed
and filled up with houses. For example, it can be seen in
Cover Photo 4 that there are many clusters of houses that are
built on unstable slopes.
Although landslide hazard maps are being drawn up for
Baguio City, we feel that the choosing of a safe place forbuilding houses is a social problem that does not have an
immediate solution. We strongly believe that there is a needfor a multifaceted approach to disaster prevention, including
implementing non-structural (“soft”) measures during heavy
rainfall.
4. Rapid landslide damage in Little Kibungan, La
Trinidad, Benguet ProvinceThis landslide was one of the damages caused by Typhoon
Pepeng, in which 85 people died, the largest number ofcasualties reported in one location. The landslide was locatedin an area called Little Kibungan, where a large portionof the slope collapsed onto an area along the road leadingfrom Baguio City to the capital of Benguet Province in La
Trinidad. Since the damage was large scale, we included anaerial photo (Photo 8) provided by Baguio City Hall to show
the whole view of the affected area. The upper right part ofthe picture that shows scraped vegetation and exposed land iswhere the landslide started. The material from the landslide
flowed from this point and cut through the road along thedirection indicated by the arrows into the valley extending
from the upper right to the lower left portion of the central
part in the photo. It flowed right through the houses built!
Photo 9 Origin of landslide in Little Kibungan.

along the valley, resulting in enormous damage that left 85
people dead (area encircled in Photo 8).
The landslide occurred on a steep, 25-m-high slope thatwas directly above the road (Photo 9). It collapsed as if
the land from the part near the ridge of the smooth-topped,
hill-like peak was gouged. The landslide was around 30 m
wide and 35 m in height. The fault plane that cuts the slope
diagonally served as the boundary of the cliff on the rightside of the landslide area, causing the land to collapse in awedge-shaped pattern. The upper part of the landslide almost
reached the ridgeline, and there was no significant water
catchment area behind the landslide. As such, we believe thatthe infiltration of rainfall into the collapsed portion of theslope caused the landslide. It is possible that the rainwaterthat infiltrated the soil was blocked by the fault plane andaccumulated on the area.
A massive amount of material flowed down at a rapid
speed into the valley over a distance of 100 m, resulting inconsiderable damage. Houses lined both sides of the valley,
and those that were along the path of the debris flow were
either washed out or completely destroyed. Restoration
work was already under way at the time of the inspection, so
we could not see the actual damage, but the location of thehouses in relation to the path of the debris flow can be seen in
Photo 10.

!
Photo 10 Damage in houses built along the valley wherelandslide occurred in Little Kibungan.

Photo 8 Landslide in Little Kibungan.

－ 39 －

Natural Disaster Research Report of the National Research Institute for Earth Science and Disaster Prevention, No. 45 ; February, 2011

It is difficult to predict precisely where landslides mightoccur in slopes that have complex and heterogeneous soil
conditions, but needless to say, houses should not be built
in areas near the valley flow path because of its inherently
high topographical risk. We can learn from this disaster thatproper risk assessment is an essential component in land use
planning.
5. Landslide disasters along Kennon Road
On our way back to Manila after finishing the survey in
Baguio City, we took Kennon Road, which is one of the
few roads that connects Baguio City to the neighboring
towns. Right after the typhoon, the roads leading to Baguio
City were blocked at various places due to landslides andmudslides, so that, for a time, the city was isolated, and thetransport of food and supplies was temporarily disrupted.
Even after the roads were fixed, one-lane passing and time
restrictions for traffic were still enforced in various portions.

Fig. 2 Distribution of landslides along Kennon Road.

On the way, we tried to stop and take pictures of several
portions of the road where there had been landslides.
Although there were not many places where we were able toactually stop and take a look, by using GPS, we also recorded
the landslide locations and other areas where there werefallen rocks and debris scattered along the road. Fig. 2 shows
the results of our quick survey of landslide occurrences along
Kennon Road.
Cover Photo 7 shows an area damaged by the flow ofrock and debris from the collapsed upper portion of the slope(Fig. 2-A). Debris that included giant boulders a few meters
big had been moved away to the roadside, indicating that theroad must have been impassable for a long period. At the timeof the photo, the road was being repaired as an emergency
measure, and alternating traffic caused congestion. To prevent
future disasters, a bridge high enough to accommodate
possible rock and debris flow from above must be built on the
portion where the road traverses the river. Otherwise, roads
must be constructed on both sides of the river so that evenwhen one side is damaged, traffic can still pass along the roadon the other side.
Cover Photo 8 shows rocky slopes along Kennon
Road that had collapsed (Fig. 2-B). In addition to rainfall
infiltrating the fissures on the rocky slope, we believe that theriver below had been eroding the base of the slope, making it
unstable and eventually causing the rock flow.
Although it is difficult to predict rockslides in places like
this, it is possible in this case that minor deformations had
already occurred along the fissures that eventually became
the slip plane for the rockslide. Since the area had been
covered by vegetation, it would have been difficult to detect
these early warning signs, so a regular inspection system
must be employed to prevent disaster as part of proper roadmanagement practice.
6. Summary
Although limited in time, we were able to conduct asurvey of the landslide damage caused by Typhoon Pepeng inNorthern Luzon, Philippines. In Baguio City alone, although
the landslides were of small scale, there were more than 100
areas where they occurred, resulting in a considerable numberof casualties. Among the disaster areas that we surveyed weresome where the slopes beneath the road shoulders collapsed
and caused damage due to debris flowing onto the houses
built along the slopes. The construction of houses alonghigh risk steep slopes that accompanied the rapid growth ofthe city’s population had exacerbated the damage brought
about by the disaster. Nakasu (2011), also pointed out rapid
population growth as an important factor in this disaster.
There were also other landslides that occurred around
Baguio City, including a large-scale rapid landslide that
occurred in La Trinidad, Benguet Province where 85 people－ 40 －

Landslide Disaster around Baguio City caused by Typhoon Pepeng in 2009 − T. INOKUCHI et al.

died in a very tragic disaster. The building of houses on
dangerous areas along the valley is considered the main factor
that exacerbated the damage. Considering that the Philippines
is a typhoon-prone country, disaster prevention measures
such as the optimization of land use must be strictly executed.
Acknowledgments
We would like to thank Mr. Shiga, who is based in thePhilippines, for not only arranging for the vehicle we usedduring the survey and making the hotel reservations but foralso assisting us during the survey itself. We would also liketo thank Ms. Rose and Ms. Melinda from the local community
radio station for helping coordinate our interviews with thecity mayor and the local disaster coordinating council. With

their help and the help of many other local residents, we wereable to cover many areas in our survey despite the limited
time we had.
References
1) Nakasu, T. (2011): The Exacerbation of Human Sufferingand Disaster Response Caused by Tropical Storm Ondoy
and Typhoon Pepeng Disaster -Cases of NCR and Baguio
City-. Natural Disaster Research Report, 45, 97-104.
2) Shimokawa, S., Iizuka, S., Kayahara, T., Suzuki, S., andMurakami, T. (2011): Fujiwhara effect; the interaction
between T0917 and T0918. Natural Disaster Research
Report, 45, 23-26.
(Accepted: November 25, 2010)－ 41 －