Third East & Southeast Asia Regional Seminar on Flood Hazard Mappingin Philippines

1. Outline
ICHARM co-hosted the 3rd East & Southeast Asia Regional Seminar on Flood Hazard Mapping on
17-19 February 2009 at Edsa Shangri-la Hotel in Manila, the Philippines, with the Japan
International Cooperation Agency (JICA) and the Philippine Atmospheric, Geophysical andAstronomical Services Administration (PAGASA).

ICHARM has held this annual event since 2007 to provide an opportunity for those whocompleted the JICA Flood Hazard Mapping (FHM) training course to get together to report anddiscuss the current progress and issues on FHM and to promote FHM-related activities in theparticipating countries. The training course was conducted by ICHARM for the past fiveconsecutive years. 23 people, mainly ex-trainees, participated in the seminar from various Asian
countries, including Bangladesh, China, Indonesia, Nepal, Laos, Malaysia, the Philippines,
Thailand, Vietnam, and Japan. The diversity of theparticipants’ nationalities

andviewpoints

madediscussions interesting and insightful.

Day 1
The opening ceremony was held in the presence ofhonorable guests. The participants sang the Filipino
national anthem and were greeted by Dr. Prisco D.
Nilo, director of the Department of Science andTechnology

of

PAGASA,andAmithirigala, research andDr.

Hon. Estrella F. Alabastro greets theseminar participants.

Jayawardena

training advisor of

ICAHRM. A few other guests, including Mr. Norio
Matsuda (manager of JICA Philippine Office), Mr.
Hirosato Yoshino (second secretary of the Japanese
Embassy), and Hon. Estrella F. Alabastro (secretary of
the Department of Science and Technology of
Ms. Susan R. Espinueva delivers a special

1

lecture on community-based early warning
systems.

PAGASA), also made an opening speech at the ceremony. The seminar was televised in a local
news program.

The opening ceremony was followed by a special lecture by Ms. Susan R. Espinueva of PAGASA
on “Community-Based Early Warning System.” She concluded her lecture by saying, “The successof an early warning system is implicit in the operative capability and the response of thecommunity which operates it.” Her remark was of great importance especially to the ICHARM
staff, because the concept was exactly in line with the promotion of “Local Practices,” one of
ICHARM’s focus areas. It certainly reminded them of the crucial role of the community in disastermanagement.

After the lecture, the seminar participants from different countries made 15-minutepresentations on progress and issues on FHM in their countries and had discussions based onthem. (For more information on the presentations, see the latter part of this report.)

Day 2
In the morning, the participants were divided into
four groups and tried “Problem Analysis” to clarify
their issues on FHM. Problem Analysis was a part of
the “Project Cycle Management” exercise. In theafternoon, the participants visited Kawit City in
Cavite Province, located south of Metro Manila, andThe participants work on Problem Analysis

received a presentation by Ms. Anabelle L. Cayabyab
on community-based FHM activities led by JICA. Her
presentation revealed that the community was
involved in not only hazard mapping itself but also
activities to enhance disaster preparedness on a local
basis, including the Town Watching exercise as part ofthe mapping process. The seminar participants also

Ms. Anabelle L. Cayabyab explanins
Kawit’s community-based FHM activities.

learned that community leaders felt grateful for the
FHM activities. It was a pleasant surprise to find out that FHM had made more progress in the2

Philippines than expected.

Following the field trip to
Kawit City, the director of
PAGASAinvitedtheseminar participants to awelcome party at PAGASA.
The occasion helped all of
the participants including
the

ICHARM

staff

todeepen the friendship andpartnership.

Kwati’s community-based FHM. Residents participated in the production
process of this map.

Final Day
The ICHARM staff explained about FHM guidelines on which the institute has been working.
Also, the seminar confirmed the current status of FHM and the achievement goal for each country.
Finally, five primary issues on FHM were given to the participants for discussions, which helped
them learn more about and gain better understanding of FHM. (For more information on thediscussions, see the latter part of this report.)

The participants exchanged various views in the

ICHARM

general discussion.

Jayawardena thanks Ms. Paridah for her great

Research

job as a moderator.

3&

Traning

Adviser

The seminar ended with the closing ceremony. Each participant was awarded with a certificate
for completing the seminar by Science & Technology Department Director Nilo, ICHARM
Research & Training Advisor Jayawardena, and ICHARM Team Leader Shigenobu Tanaka. Dr. Li
Na and Ms. Paridah were additionally prized with a special present by ICHARM for theircontributions to the seminar as moderators. This year’s seminar was also successfully completedwith great support from people and organizations in the Philippines and other countries.

2. Results
ICHARM requested each seminar participant to write a “Progress Report” to understand thecurrent status of FHM in each country and to speak about a part of the report in the seminar. The
participants were asked to present FHM-related issues in their countries, such as the current andexpected types of flood hazard maps and sample cases of FHM. More information on the reportcontents can be found in Appendix 1.

2.1 Current and expected types of flood hazard maps in each country
Table 1 was provided for the participants to find out the types of the current and expected flood
hazard maps in their countries. The table below shows the types of the current and target flood
hazard maps in different countries. For example, Malaysia’s current hazard maps are categorized
into type C based on Table 1, but they think that they should improve them to be type F or G.

The table below reveals that all the countries except Bangladesh have developed flood hazard
maps of some type. Although most of the countries see the needs of type F, which requires
inundation analysis, and type G, which can provide real-time flood information, they also
recognize the practical needs of type B (showing contours but no inundation depths), which issimple enough for local residents to produce, and type C, which only shows the maximum
inundation depth in the past.

Country
Philippines
China
ThailandBangladesh

Current

TargetB, C, E
D, E, F
A, B, C, E, F, G
G (large scale)C, D, E (combined)(A), G
F, G
C, E

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Malaysia
Lao
Viet NumCF
A (communities)， G (pilot project)
C, E, F

F, G
B
B, D, F

IndonesiaC
G (Jakarta)
EE, F
G (large cities)
A, B, C, D, E, F, G

Nepal

F (9 basins)

2.2 Current efforts in FHM in each country
The following are excerpts from the participants’ reports.

Bangladesh: In Bangladesh, where annually 22%, over 60% in worst cases, of the national landis flooded, little effort has been made in FHM, and no legal framework has been establishedconcerning FHM.

China: China has been active in FHM. In 2004, the country established the Office of State FloodControl and Drought Relief Headquarters (OSFCH) and started FHM as a pilot project. They
designated the years 2004-2007 as the first phase and 2008-2010 as the second to produce
effective flood hazard maps for various parts of the country. They developed over 300 hazard mapsof type E or F in the first phase and also held two FHM seminars by themselves. However, nomaps have been made available for public use.

Malaysia: Malaysia has produced flood hazard maps to cover the entire national land based on
past inundation records, although the maps for Kota Tinggi Province are the only ones withinundation depths. They have also produced flood hazard maps based on hydrological simulation
for the Damansara basin and are currently working on the same kind of maps for other six river
basins. They are planning to produce such 30 flood hazard maps by 2010.

Indonesia: Indonesia has been promoting the production of type-G flood hazard maps, having
recognized the importance of this type of maps due to the 2007 flood in Jakarta. They havedeveloped flood hazard maps for design floods of different return periods of 1, 2, 5, 10, 25, 50, and5

100 years. Like China, however, Indonesia has not made the maps available for public use.

Lao: Lao experiences flood events as other countries do, but they usually cause a fewer numberof deaths because the flooding occurs very slowly. However, they have produced flood risk maps
for one of the six major river basins and are developing such maps for two others. After the 2007
flood in the Xedone River basin, flood hazard maps were made for that river basin.

Nepal: In Nepal, JICA-led FHM projects started in 1999. Flood hazard maps have so far been
produced for nine river basins. Despite this active production of the maps, the country has notmade them available for the public and has not highly recognized their effectiveness in disastermanagement from the outset.

Philippines: In the Philippines, PAGASA (Department of Science and Technology) and MGB (Minesand Geo-sciences Bureau of Department of Environment and Natural Resources) have been taking theinitiative in their FHM efforts. They have divided the entire country into 236 zones to produce
1:50,000-scale flood hazard maps, which have already been completed for 165 of the 236 zones.
They have also developed 1:10,000-scale flood hazard maps for more than 10 zones in the
PAGASA-UNDP READY PROJECT.

Thailand: Thailand has been active in FHM and developed all types of flood hazard maps except
type D. They think that at least type-F maps are necessary to issue effective flood warnings. They
have also collected sufficient hydrological data to develop flood hazard maps for all river basins in
the country and working on DEM data to cover the entire national land. Thailand has already had
a good deal of knowledge and technology for FHM, and their next challenge should be to makepolicies to promote FHM. Like many other countries, Thailand has not yet established a legal
framework for FHM and designated a responsible public agency.

2.3 Discussions
Discussions
On the final day of the seminar, the participants discussed issues under the following five themes.
Below are some opinions and comments made by the participants.
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Theme 1: What kind of “Flood Hazard Map” do you need?


Flood hazard maps should be as simple as possible for people to read and interpret themeasily. (Philippines)

Different kinds of flood hazard maps should be made as well. For example, maps showing
inundation zones based on different occurrence frequencies or inundation depths inseveral past flood events. (Philippines)

Different types of flood hazard maps should be available for different purposes. Also,
different organizations should be able to make different types of maps. Simple flood
hazard maps, such as type A and C, are necessary. (China)Provinces and cities need flood hazard maps produced based on both past flood records
and simulation results, but simpler maps are more effective at the local level.

Flood hazard maps reflect the needs of local residents. Even in the same area, different
types of maps will be made if the purposes are different. (Thailand)

GIS analysis is useful even at the community level.

In some cases, many flood hazard maps exist for the same area. They should be put
together to make a single map.

Types B and C are good enough for rural areas, where not many people live, but morescience-based types G and F is necessary for urban areas. (Lao)Type C is simple and useful enough at this moment. Type G is necessary for early
forecasting and warning.

Theme 2: Why do you need such FHM?


In most cases, to lessen flood impacts. To some extent, such flood hazard maps can beused for development/land-use planning. (Philippines)

FHM and structural measures should be integrated in disaster management. The
current design flood is set based on a flood of merely 25-year recurrence frequency, andstructural measures based on such design flood have given stakeholders andcommunities a wrong impression on safety. (Philippines)

Flood hazard maps are cheap and affordable. They are necessary for policy making, and7

donor agencies need them to be informed of local situations to implement projects.
(Nepal)

Flood control infrastructures are old in Indonesia, and supplementary tools are necessary.
(Indonesia)

Flood forecasts and warnings that are easy-to-understand and reliable should be
provided to people. Flood hazard maps are a part of such a flood management system.
(Thailand).



Flood hazard maps should be developed for every river basin and flood-prone community,
because people need to be informed of possible flood-affected areas. Government agencies
also need them to plan development activities. (Vietnam)

Theme 3: How do you use FHM? How do you improve the use of FHM?


Flood hazard maps are used to identify the locations and types of structures inflood-prone areas. (Philippines)

Flood hazard maps are used to plan land use. (Lao)

Flood hazard maps are useful in flood fighting. They are used to identify and monitor
high-risk areas in the typhoon season.



Flood hazard maps are used to identify what population is likely to be the mostvulnerable in what area.



Flood hazard maps are used to promote appropriate land use and arrangement ofresidential, agricultural, and other purposeful areas.

Flood hazard maps are used for vulnerability assessment of existing infrastructures fortheir effective use. Many levees have been constructed in Bangladesh, but they are also
very susceptible to river erosion.

Theme 4: What kind of information should be included in a training material?
Fundamental knowledge like river analysis. Also, how to conduct field investigations,
how to read contour maps, basic technical knowledge like HEC-HMS.



Different types of training should be provided for different population. There should betraining specifically targeting communities, developing countries, or countries with
sufficient or insufficient data.
8How to collect, improve, or correct data.

Not only how to make flood hazard maps but also how to distribute the maps effectively.



Different types of training should be available for different levels of participants.



People should be informed of negative effects possibly posed when flood hazard maps are
made publicly available.

Theme 5: About “Community“Community-based activities”
When hydrological data is not sufficiently available, the community-based approachworks better. However, technical advice from experts is necessary.



Since we are working for people, we should be well aware of this community-based
approach.

Technically-advanced flood hazard maps take a fair amount of time to complete.
Community-based maps should be considered as a cheap, fast alternative in appropriate
situations.



In cases where residents spread throughout the area, it is difficult to develop
community-based flood hazard maps.

Young community members are usually not willing to participate in such activities as
FHM. Only the elderly and retired are.



In China, local people join field investigations for FHM. In particular, elderly people whohave had to live with floods throughout their lives can provide precious technical advice
to technical experts. We should get communities involved in FHM. Every community has
volunteers to warn people in case of emergency. For example, if a typhoon warning isissued, fishermen can play the role of messengers.

The best way to gain cooperation from local people and other stakeholders is to interview
them right after a disaster and collect relevant information. If they are fully aware ofrisks posed by hazards such as floods, people are willing to support and join suchactivities as FHM.

2.4 Future challenges
One of the findings from this seminar was that the participating countries have alreadydemonstrated a fairly high FHM capability, although they are not still fully self-sustainable and9need support form overseas organizations such as JICA. The next step should be to promote theeffective use of flood hazard maps to mitigate flood damage. In this sense, the Philippine’s Kawit
City is an excellent pilot case of FHM, which should be introduced as a good example to othercountries to disseminate FHM.

3. Conclusion
This year’s FHM seminar also ended successfully. The participants joined enthusiastic
discussions and produced highly valuable results to bring home. The seminar was also to conclude
the five-year project, the Flood Hazard Mapping training course, which came to its end in 2008.
Floods are different from country to country. Historical and social backgrounds are also different.
Keeping that in mind, we at ICHARM think that the efforts to promote FHM should not bedirected to standardize the FHM procedures and use. Rather, the efforts should be focused on therecognition of differences in production and use of flood hazard maps among different countries
and the acquisition of insights and implications for future FHM activities in each country.

The FHM training course was held annually for the past five years. In the first three years, thetraining focus was placed on the technical aspect of FHM, and little time was spent on theeffective use of flood hazard maps. The same was true of the previous two FHM follow-up
seminars. However, while conducting other training courses such as the Tsunami Disaster
Management course, ICHARM gradually deepen its understanding of the crucial role ofcommunities in disaster management. We eventually realized that effective and efficient disastermanagement depended on not only the technical capability of FHM but also the active
involvement of communities in the activity.

In general, FHM requires the following five steps: 1) collection of hydrologic and topographic data,
2) inundation simulation, 3) production of anticipated inundation maps, 4) distribution of themaps to the public, and 5) promoting of public understanding of the maps. When FHM is carriedout on a community basis, it is possible to combine and execute all the five steps at the same time.
Also, the process is likely to help community members raise their level of disaster preparedness.
In fact, we planned activities and a field trip in this year’s seminar from that perspective. We
hope that the seminar provided a chance for the participants to reflect on the possibility of FHM
10

in developing countries, especially based on the community-based FHM activities in Kawit City.

In face of emergency such as disasters, people will have to protect themselves. Governments willor can provide almost no help. At the same time, what an individual can do is also very limited.
This is why the community-based approach is important in disaster management. ICHARM willcontinue studying community-based FHM activities and develop FHM guidelines which can beapplied to different situations in developing countries.

Finally, ICHARM would like to express deep appreciation to people at PAGASA and JICA, whooffered their generous cooperation and made this seminar a great success.

The participants smile for photos at the seminar’s opening ceremony.

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Appendix 1

Contents of “Progress Report”
ICHARM
1. Objectives of this report :This “Progress Report” will be prepared by each participant as materials fordiscussion during the seminar and the research of Flood Hazard Map (FHM) by
ICHARM.



The content of this report consists of two items as follows; please write each item
based on not only your own ideas/opinions but also the official standpoint/data atpresent ( Official Web site is best!).

Item A: FHM-related situation in your country
A-(1) Current/target situation of FHM in your country(by using official information/data and your opinions)(1)-1 Please select current stage of FHM in your country/region/city from the 7 types(Map-A,B,..G) of map shown in Table 1.
(Please refer Table 2 as a selection flow.)(1)-2 Please describe the outline of current situation of FHM in your country.
(How many FHMs or related projects do you have in your country? Etc.)(1)-3 (If you have FHMs,) Please write maximum 3 good practices.
(Please make sure Where?

Why?

When?

By Who?

To Whom?

How?)(1)-4 Please select target/necessary stage of FHM in your country/ region/city from the
7 types (Map-A,B,..G) of map shown in Table 1, and describe the reason.
(Please refer Table 2 as a selection flow. Which type of FHM do you think is necessary in yourcountry? Which type of FHM is desirable? And why?)A-(2) For making of FHM(2)-1 Institutional situation for making FHM(Is there any FHM-related law? Or governmental system? If yes, which organizations do takeresponsibilities for making FHM?)(2)-2 Hydrological/topographical data situation for making FHM
1

(If the situation is different by a basin and a river, please clarify the data source.)(2)-3 Problems for making FHM in your country
A-(3) For disseminating/use of FHM(3)-1 Institutional situation for disseminating/use FHM(Is there any FHM-related law? Or governmental system? If yes, which organizations do takeresponsibilities for disseminating FHM?)(3)-2 Problems for disseminating/use of FHM in your country(3)-3 Other how to use FHM in your country(If you have any idea for use of FHM except for types of Table 1, please describe your ideas.)

Item B: For improvement of FHM research by ICHARM(This item is not included in the presentation)
B-(1) For efficient/effective disaster preventions(1)-1 Saturation level of TV, Radio, Internet and Newspaper in your country(by using official information/data)(1)-2 The flow of information related to evacuation in flood(Who issues the flood alert and evacuation order in your country? For example in Japan, in floodtime the Japan Meteorological Agency (governmental agency) issues forecast of heavy rain andmunicipalities (city/town) issue evacuation recommendation / order.)(1)-3 Please describe how high the “awareness level for disaster prevention by
residents” in your country is.
(For example in Japan, some communities organize “Voluntary Disaster Prevention
Organization” and act for awareness for disaster such as evacuation drills.)

B-(2) “Flood Hazard Map Manual" made by ICHARM
Please suggest improving the “Flood Hazard Map Manual" to become useful in yourcountry. Is the manual applicable in your country or not?

2

Table 1 List of Maps according to the level

Map without inundation area
A: Location map not including elevation data

B: Location map including elevation data

Map predictable inundation area

Map showing past inundation areas
C: Past inundation area of a single past flood(ex: maxinum flood)

Map without inundation analysis
but including past inundation area

D: Past inundation areas of several large floods
with corresponding rainfall

Map based on inundation analysis
E: Past inundation area based on simulation(ex; design flood is the biggest past flood)

F: Inundation area of the design flood
bigger than past floods

G: Indication forecast by real time analysis