Integrating Disaster Risk Management in Local Governance Facilitators’ Guide and Sourcebook Barangay Disaster Management Training Workshop
The views expressed in this publication are those of the authors and do not necessarily reflect those of the United Nations or UNDP.
Edited by
Zenaida Delica Willison Advisor, Disaster Risk Reduction Regional South-South Unit UNDP Regional Centre in Bangkok
Design/Layout by
Keen Publishing (Thailand) Co., Ltd. 75/42 Ocean Tower II, 22nd Fl. Sukhumvit 19 Bangkok 10110 Thailand
Copyright Š 2006 Special Unit-South South Coorperation UNDP Regional Centre in Bangkok United Nations Service Building, 3rd Floor Rajdamnern Nok Avenue Bangkok 10200 Thailand Tel:
(66 2) 288 2129
Fax:
(66 2) 288 3032
Email:
regionalcentrebangkok@undp.org
Website: http://regionalcentrebangkok.undp.or.th
ISBN: 974-68507-4-2
Foreword
The World Conference on Disaster Reduction held in January, 2005 in Kobe, Japan provided a framework for building the resilience of nations and communities.This is outlined in the “Hyogo Framework for Action 2005-2015”. One of the overarching principles highlighted in the framework is the enhancement of the current capacities of local communities in order to resist disasters. Certainly, the role of local governance in strengthening communities’ capacities is paramount. The Special Unit for South-South Cooperation (SU-SSC) in United Nations Development Programme (UNDP) was tasked by the General Assembly to promote technical cooperation among developing countries. At the first regular session of its Executive Board on 20-28 January 2005, the Special Unit was mandated to include disaster risk management in the implementation of its Third Cooperation Framework. Following this mandate, the SU-SSC has responded to the “double” disaster of earthquake and tsunami in the four countries affected. It has recently developed and launched a programme called Global Facility for Community-Based Disaster Risk Management (GFDRM). The GFDRM is envisaged to contribute to the current innovative approaches and pilot projects, which are designed to help reduce present and future disaster risks. The GFDRM provides a forum for sharing good practices for possible replication in other vulnerable communities. The GFDRM also provides a venue for networking among people involved in making their communities safer within their own countries and globally. Essentially, the facility is the Special Unit’s contribution to the Hyogo Framework of Action to help countries in the South attain their targets on disaster risk reduction. In May 2006, the Regional South-South Unit (RSSU) was formally established in the UNDP Regional Centre in Bangkok to carry forward the tasks of the Special Unit on disaster risk management. The manual Integrating Disaster Risk Management in Local Governance, a Facilitators’ Guide and a Sourcebook for Barangay Disaster Risk Management Training Workshop is a pioneering collaborative effort in disaster risk management in the Philippines. The project was conceptualized, drafted, pre-tested and developed by an ad hoc Working Group, composed of many individuals involved in disaster risk management. They represented various government and non-government entities. They coordinated and cooperated amongst themselves during the whole process of developing a tool to assist the Local Government Units (LGUs). The initiative is vital in pooling resources, knowledge and expertise for the country’s benefit and for achieving national goals in disaster risk reduction. The project is about working together to find solutions to address disaster and development challenges. It is an example of collaboration to advance the cause of disaster risk reduction/management, a kind of initiative that the Regional South-South Unit is promoting under the GFDRM.
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The RSSU is publishing this manual for use by trainers and facilitators who are helping local government units in conducting a workshop on disaster risk management.Though the training context is entirely within the Philippines setting, the content and methodology in facilitation can be universally applied. The RSSU is delighted to present this manual, an output of successful collaboration in line with the SU-SSC platform on “Sharing of Southern Development, Knowledge and Solutions�.
Denis Nkala Chief, Regional South-South Unit UNDP Regional Centre, Bangkok
iv Barangay Disaster Management Training Workshop
Acknowledgements There are many people representing various organizations, who are behind the development of this Facilitators’ Guide and Sourcebook. The guidance and inputs of the members of the ad hoc Working Group, who belong to different government and non-government organizations are crucial in the realization of this training manual. The Regional South-South Unit is proud to be associated with the group through the publication of its output, “Integrating Disaster Risk Management in Local Governance, a Facilitators’ Guide and a Sourcebook for Community Disaster Risk Management Training Workshop”. Acknowledgement with thanks goes to the following: From the government: Undersecretary Melchor Rosales, Director Manuel Gotis, Ms. Madel Go, Ms. Sylvia Carvajal, Dir. Marivel Sacendoncillo and Ma. Rosalinda Lacsamana of the Department of Interior and Local Government (DILG) Director Priscilla Duque and Lucy Espino of Office of Civil Defense (OCD); Ms. Jing Lopez of the Philippines-Canada Local Government Support Program; Mr. Cedric Daep and Governor Fernando Gonzales of the Provincial Government of Albay; and, Mr. Isaias Panganiban of the Municipal Disaster Coordinating Council, Guagua. From the non-government organizations (NGOs): Mr. Bong Masagca of the Pampanga Disaster Response Network (PDRN) and National Anti Poverty Commission, Ms. Mayet Lupig-Alcid of the Corporate Network for Disaster Response (CNDR), Ms. Corazon Alma de Leon of the Asian Disaster Preparedness Center (ADPC) and Ms. Lorna Victoria of the Center for Disaster Preparedness (CDP). The draft curriculum was critiqued by the following participants, whose comments contributed to the finalization of this user-friendly manual for pre-testing: From the government: Ms. Sylvia Carvajal and Mr. Jose Gonzalo Ablay of the DILG; Mr. Rudy Eduave ofthe Liga ng mga Barangay; Dir. Ramon Santiago and Ms. Maria Corazon Macasieb of the Metro Manila Development Authority (MMDA); Mr. Ernesto Elcamel of Naga City; Ms. Lucy Espins of the OCD; Ms. Ma. Victoria Marica of the Philippine Atmospheric, Geophysical and Astronomical Services Administration (PAGASA) Dir. Renato Solidum of the Philippine Institute for Volcanology and Seismology (PHIVOLCS), Mr. Cedric Daep, Mr. Isaias Panganiban and Ms. Lucy Espino. From the non-government and peoples organizations; Mr. Goran Hansen and Ms. Minchin Tan of the Adventist Development and Relief Agency; Mr. Manuel Garduque of Balay Rehabilitation Center; Ms. Rita Estrella and Mrs. Remedios Paras of Barangay PhilAm, Quezon City; Mr. Noli Abinales of BUKLOD TAO ; Mr. Celso B. Dulce representing CARE-Philippines Mr. Jhun Lucero and Mr. Rolando Libang of the Citizens Disaster Response Center (CDRC); Mr. Danny Ocampo of the
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Catholic Relief Services; Ms. Floreen Simon of the CNDR; Ms. Yasmin O. Hatta of Christian Aid; Ms. Graciela Peters Guarin of the International Institute for Geo Information Science & Earth Observation; Ms. Carina Pamintuan of the National Council of Churches of the Philippines; Mr. Ricky Pinlac of PDRN; Ms. Magdalena Mendoza of Brgy Sta. Catalina, Minalin, Pampanga; Mr. Soc Evangelista and Mr. Ronnie Ragasa of Philippine Relief and Development Services; Mr. Dick Balderama & Ms. Mary Jane Munoz of Sentro para sa Ikauunlad ng Katutubong Agham at Teknolohiya; Ms. Gezella Gonzales and Professor Emmanuel Luna of the University of the Philippines; and, Ms. Eufemia Castro-Andaya, Ms. Malu Cagay, Ms. Nikki de Vera, Ms. Mayfourth Luneta, Ms. Marita Santos and Ms. Jelyne Gealone of the CDP. The final draft of the curriculum was pre-tested in Barangay Banugao, Infanta, Quezon with the following participation or support: Hon. Mayor Filipina Grace. America, Mayor of Infanta; Mr. Protacio Resplandor of Barangay Banugan; 24 participants from Infanta Community Development Association, Inc; three observers from OCD Region IV and three from CDRC. Special thanks go to the facilitators: Ms. Lucy Espino, Cedric Daep, Ms. Lorna Victoria and Mr. Ron Crisostomo and the three personnel of CDP, who provided technical support. The working group acknowledges the financial support of Peace and Equity Foundation to this very important activity that will help advance the cause of disaster prevention, mitigation, preparedness and emegency response. The working group also recognized the work of many agencies involved in disaster risk management by liberally using their training materials, which are compiled in the Sourcebook, part two of this manual. Special thanks go to them. The overall coordinator of the project and convener of the working group, Ms. Lorna Victoria of the CDP, deserves special mention for seeing through the completion of the draft manual. She worked hard to coordinate, facilitate and compile the work of many people. To all, thank you for providing the Regional South-South Unit an opportunity to serve your country and others, through the publication of this manual.
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Contents Foreword
iii
Acknowledgements
v
Acronyms
x
Glossary
xii
Introduction
1
PART I: GUIDEBOOK Opening Activities Summary
3
Module1 - Introduction to Disaster Risk Management Summary Session 1: Local Disaster Experience Session 2: National Disaster Situation and the Philippine Disaster Management System Session 3: Understanding Disasters and Disaster Risk Management
13 18
Module 2 - Barangay Governance and Disaster Risk Management Summary Session 1: Good Governance Session 2: Disaster Management Responsibilities of the Barangay Session 3: Relevant Laws and Regulations
23 24 28 32
Module 3 - Barangay Risk Assessment Summary Session 1: Introduction to Risk Assessment Session 2: Hazard Assessment Session 3: Vulnerability and Capacity Assessment Session 4: Barangay Disaster Risk Assessment Fieldwork
35 36 39 44 50
9 10
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Module 4 - Barangay Risk Reduction Planning Summary Session 1: Identifying of Risk Reduction Measures (Using the Results of Barangay Risk Assessment) Session 2: Introduction to Barangay Disaster Risk Reduction Planning Session 3: Planning Workshop
56 61 64
Closing Activities Summary
67
55
PART II: SOURCEBOOK Sourcebook: References for Opening Activities 0.1 Example of a Training Design 0.2 Example of a Four-day Workshop Schedule 0.3 Different Ways of Introduction and Generating Expectations 0.4 Participatory and Learner-centred Training
69 72 74 77
Sourcebook 1: References for Module 1 - Introduction to Disaster Risk Management 1.1 The Philippine Disaster Situation 81 1.2 The Philippine Disaster Management System 82 1.3 Defining a Few Key Terms 87 1.4 Basic Concepts: Hazard, Vulnerability, Capacity and Disaster 90 Sourcebook 2: References for Module 2 - Barangay Governance and Disaster Risk Management 2.1 The Barangay 97 2.2 Good Governance 100 103 2.3 The Millennium Development Goals 2.4 Barangay Development and Governance System Framework and Barangay Organizational Reform Agenda 105 2.5 On Disaster Management and Leadership 111 2.6 Local Disaster Coordinating Councils (LDCCs) 113 2.7 Laws and Regulations on Disaster Management 115
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Sourcebook 3: References for Module 3 - Barangay Risk Assessment 3.1 Community Risk Assessment: Hazard, Vulnerability, Capacity Assessment 3.2 Major Kinds of Hazards 3.3 Categories and Factors for Capacities and Vulnerabilities Analysis 3.4 Guidelines for Elaborating a Community Risk Map
121 123 132 134
Sourcebook 4: References for Module 4 - Barangay Risk Reduction Planning 4.1 Identifying Risk Reduction Measures 4.2 From Risk Mapping to Preparedness and Mitigation Planning 4.3 Early Warning 4.4 Evacuation 4.5 Public Awareness 4.6 Summary of the Hyogo Framework for Action 2005–2015 4.7 The ‘A to Z’ of Facilitating Community Planning
139 142 144 148 150 152 154
Sourcebook: References for Closing Activities Evaluation Form
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Acronyms ADPC AFA BADEGOS BDCC BLGD-DILG BORA CBDRM C/M/P/RDCC C/MDCC CDP CENRO CNDR CRED CVOs DA DCC DECS DILG DMP DRM DSWD ECHO EO GDP IRA IRR JICA LCE LEAD LGA-DILG LGU MDG MGB-DENR MMDA MMEIRS
Asian Disaster Preparedness Center Aundanao Fishermen Association Barangay Development and Governance Systems Barangay Disaster Coordinating Council Bureau of Local Government Development – Department of Interior and Local Government Barangay Organizational Reform Agenda Community-Based Disaster Risk Management City/Municipal/Provincipal/Regional Disaster Coordinating Council City/Municipal Disaster Coordinating Council Center for Disaster Preparedness Foundation, Inc. Community Environment and Natural Resources Organization Corporate Network for Disaster Response Center for Research and Epidemiology of Disasters Community Volunteer Officer Department of Agriculture Disaster Coordinating Council Department of Education Culture and Sports Department of Interior and Local Government Disaster Management Plan Disaster Risk Management Department of Social Work and Development European Commission Humanitarian Aid Office Executive Order Gross Domestic Product Internal Revenue Allotment Implementing Rules and Regulations Japan International Cooperation Agency Local Chief Executive Livelihood Enhancement for Agriculture Development Local Government Academy – Department of Interior and Local Government Local Government Unit Millennium Development Goal Mines and Geosciences Bureau – Department of Environment and Natural Resources Metro Manila Development Authority Metro Manila Earthquake Impact Risk Reduction Study
x Barangay Disaster Management Training Workshop
NAFC NDCC NGO OCD PAGASA PD PDOC PHIVOLCS P/M/C/BDCC PMP PMO PNRC PO PPSEMO PRA RA RCB RSSU RBA SARS SK SU-SSC UNDP UNDRO UNEP UNHCR UNISDR USAID
National Agricultural and Fishery Council National Disaster Coordinating Council Non-Government Organization Office of Civil Defense Philippine Atmospheric, Geophysical and Astronomical Services Administration Presidential Decree Provincial Disaster Operations Center Philippine Institute of Volcanology and Seismology Provincial/City/Municipal/Barangay Disaster Operations Center Preparedness Mitigation Prevention Presidential Management Office Philippine National Red Cross People’s Organization Provincial Public Safety and Emergency Management Office Participatory Risk Assessment Republic Act Regional Centre in Bangkok Regional South-South Unit Rights-Based Approach Severe Acquired Respiratory Syndrome Sangguniang Kabataan Special Unit for South-South Coorperation United Nations Development Programme Office of the United Nations Disaster Relief Coordinator United Nations Environmental Programme United Nations High Commissioner for Refugees United Nations International Strategy for Disaster Reduction United States Agency for International Development
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Glossary Barangay
Smallest political and administrative unit in the Philippines. It serves as the primary planning and implementing unit of government policies, plans, programs and projects. A barangay may be created out of a contiguous territory which has a population of at least 2,000 inhabitants but for highly urbanized cities, the requirement is at least 5,000 people. Punong Barangay or Barangay Captain
The head of the executive branch of the barangay government and is responsible for policy directions, programme development and implementation, and general administration. Sanggunian Barangay or Barangay Council
The legislative functions are performed by the Sanggunian which is composed of the Barangay Captain and seven elected Barangay Council Members and the Chairman of the Youth Council. Its major function is the approval of barangay budget and passing resolutions and ordinances. Barangay Disaster Coordinating Council (BDCC)
The BDCC is formed and staffed in accordance with the Barangay Disaster Preparedness Plan. It is composed of residents chosen on a “best qualified� basis, taking into consideration prior training, experience or other special capability.The action and staff services shall constitute the BDCC. The action services are: warning, rescue, evacuation, disaster relief and medical service. Liga ng mga Barangay sa Pilipinas is the League of Barangays in the Philippines, an association of barangays all over the Philippines.
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Introduction The handbook,“Integrating Disaster Risk Management in Local Governance: a Facilitators’Guide and a Sourcebook for Barangay Disaster Risk Management Training Workshop” is developed by a group of people, who take upon themselves the task of promoting disaster risk reduction/ management. The primary objective of the handbook is to provide local government units a guide so that they can push forward the agenda of reducing risks at the community or local levels. After all, it is the local government units that are legally mandated and morally bound to protect their constituents from harm and danger posed by disaster risks.They have to promote and realize safer communities. The handbook has two parts. The first is the “Facilitators‘ Guide”, which contains four modules and each module contains three to four sessions.The guide is a step-by-step instruction on how to facilitate sessions and modules. Each module contains a summary and session titles. Each session contains learning objectives, key points to remember, methods to be used, step-by-step process on how to deliver the session, materials needed in delivering the session, duration (how long will it take to effectively deliver the session), tips to facilitators, and required readings. The following are the modules:
Module 1: Introduction to Disaster Risk Management This module has three sessions that pertain to the disaster situation at the local and national level and to disaster risk reduction/management concepts, principles and activities. The main objective of this module is for the participants to understand and differentiate hazards from disasters and to appreciate that disasters can be prevented through a combination of various strategies at the local level with support from other key players in disaster risk management.
Module 2: Barangay Governance and Disaster Risk Management This module has three sessions dealing with governance, such as the roles and responsibilities of barangay officials in disaster risk management and the pertinent laws and regulations. The main objective of this module is for the participants to grasp the important roles of officials and community members in ensuring the safety of their homes, property and livelihood. The function of the officials with regards to disaster risk management is incorporated in the local government code.
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Module 3: Barangay Risk Assessment This module contains four sessions pertaining to community disaster risk assessment. Disaster risk is a concept that needs to be understood in the context of natural and human-sourced hazards; vulnerability of the elements-at-risk; and the capacity of the people exposed to hazards.The main objective of this module is for the participants to be able to learn and practice the participatory tools and methodologies in assessing community disaster risks.
Module 4: Barangay Risk Reduction Planning This module has three sessions about barangay disaster risk reduction planning. The main objective of this module is for the participants to appreciate the value of taking into their own hands the course of their present and future safety through planning and implementing risk reduction measures. It directs the participants on how to plan in a step-by-step approach. A planning workshop, wherein the participants will draft a risk reduction plan is the highlight of this module. The second part contains the “Sourcebook�, which is the twin of the Guidebook. The guide will not be able to stand alone without the Sourcebook. The Sourcebook is needed to deliver the course effectively. The Sourcebook contains the reference materials or the required readings for each session in the four modules mentioned above. The Sourcebook includes key selected materials.
2 Barangay Disaster Management Training Workshop
Part 1: Guidebook
Guidebook
PART 1
Opening Activities
Opening Activities
Opening Activities Summary Opening activities provide the participants with an overview of what should be expected of the training. In this opening session, facilitators and participants are introduced in a way that will make them comfortable and familiar with each other. Expectations from the workshops are generated and clarified. Social contract is established to agree on the “do’s” and “don’ts” that will be binding throughout the course. The training schedule is also discussed in this session. The following is the suggested flow of the opening activities.
Objectives of the Opening Activities •
Formally open the training
•
Introduce the participants and facilitators to each other
•
Clarify expectations of the participants
•
Unite on the training workshop objectives and programme of activities
•
Agree on technical arrangements such as schedule, house rules or “dos and don’ts,” and the creation of participatory management teams
Flow of Activities •
Invocation, national anthem (and provincial song)
•
Messages
•
Introduction of participants and facilitators
•
Expectations check
•
Overview of the training workshop design
•
Social contracting and technical arrangements
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Process •
Depending upon the preparation of the organizers of the workshop, the opening activities can be formal or informal. In some cases, there are speeches such as welcome, opening and inspirational remarks before the introduction. However, there are also cases in which a word of welcome by the barangay captain would suffice.
•
After welcoming the participants, the facilitators introduce the participants and themselves with “I am …, I have…, I can…, I will…” Choose from the list in Sourcebook 0.3: “Different Ways of Introduction and Generating Expectations. ”
•
After the introduction, proceed to generating expectations from the workshop. Suggested activity is the “Bus Stop” exercise. See Sourcebook 0.3: “Different Ways of Introduction and Generating Expectations”.
•
Then, introduce the training shedule. Distribute the hand-out on “Training Schedule”. See if the expectations match with the topics in the design. Tell the participants what expectations will be covered and what will not be covered. Tell them that there may be some opportunities wherein those topics may be discussed.
•
Organize the host teams that will manage the daily activities. Distribute the hand-outs on “Tasks of Host Teams”.
•
Facilitate the discussion on the daily schedule, house rules and other administrative matters.
Duration: 2 hours
Tips to Organizers/Facilitators •
The Training Workshop is designed for four days in order to have sufficient time for work groups. The design has 13 sessions contained in four modules, excluding opening and closing activities. The training can be done on a staggered basis, but ensure the attendance of the same participants for the successive sessions. For staggered training, remember to give a brief run-through of what was taken up at the end of the first set of sessions and to have a review of key concepts at the start of the second set of sessions. See Sourcebook 0.1: “Example of a Training Design”.
•
There are cases when a four-day workshop is not possible for various reasons. The training can be shortened to three days. Take note of the time allotment for each session and make sure that resource persons do not exceed the time allotted. Make allowance for discussion, questions and answers. See Sourcebook 0.2: “Example of a Four-day Workshop Schedule”.
4 Barangay Disaster Management Training Workshop
Opening Activities
•
While the first part of the opening activities can be formal with the guest speakers giving messages, it is important to establish an atmosphere of openness and trust among the participants and facilitators at the outset to have an environment conducive to sharing and learning.
•
Be culture and gender sensitive in the choice of games, exercises and ice breakers. Encourage, promote and affirm positive cultural values.
•
While choosing methods and workshop activities remember that when people listen to the information, they remember only 20 percent of what they hear. If they only look at the information, they remember about 30 percent. If they combine listening and looking, they remember about 40-50 percent. If they also talk about what they hear and see, they remember 70 percent. But best of all, If they also use what they have learned, they will remember 90 percent of it. Read Sourcebook 0.4: “Participatory and Learner-Centred Training”.
Reading for Facilitators: (See Sourcebook) 0.1 Example of a Training Design 0.2 Example of a Four-day Workshop Schedule 0.3 Different Ways of Introducing and Generating Expectations 0.4 Participatory and Learner-Centred Training
BARANGAY DISASTER MANAGEMENT WORKSHOP SCHEDULE MODULE
TOPIC/SESSION
METHOD
DURATION
OPENING ACTIVITIES
DAY 1 MODULE 1
2 hours
Opening Programme
Prayer, National Anthem, Provincial Song, Messages
Introduction
Various Methods
Expectation Check
Various Methods
Training Design
Discussion
Contracting and Technical Arrangements
Discussion
INTRODUCTION TO DISASTER
3 SESSIONS
6 hours
Local Disaster Situation
Workshop and Plenary Presentation
2 hours
National Disaster Situation and Philippine Disaster Management System
Gallery PowerPoint Presentation or paste-ups Interactive Lecture
1.5 hours
Understanding Disasters and Disaster Risk Management
Debate or Typhoon, Earthquake, War Interactive Lecture
2.5 hours
RISK MANAGEMENT
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BARANGAY DISASTER MANAGEMENT WORKSHOP SCHEDULE (continued) MODULE
TOPIC/SESSION
DAY 2
BARANGAY GOVERNANCE AND
MODULE 2
DISASTER MANAGEMENT
DAY 3 MODULE 3
DAY 4 MODULE 4
METHOD 3 SESSIONS
DURATION 5 hours
Group Work:“The highest tower” or Barangay Governance (Good and “Good governance is…” Democratic Governance) Interactive Lecture
1.5 hours
Disaster Risk Management Responsibilities of the Barangay
Group Work:“Our organization as a vehicle” Interactive Lecture
2 hours
Relevant Laws and Regulations
Buzz Session, “Matching” Interactive Lecture
1.5 hours
BARANGAY RISK ASSESSMENT
4 SESSIONS
8.5 hours
Introduction to Barangay Risk Assessment
Exercise: What do you see? Interactive Lecture
1 hour
Hazard Assessment
“Feel, Hear, See!” or “Recall of Disasters Experienced” Group Work Interactive Lecture
1.5 hours
Vulnerability and Capacity Assessment
“Webbing” Group Work Interactive Lecture
2 hours
Barangay Disaster Risk Assessment Field Work
Barangay Watching/Field Work
4 hours
BARANGAY RISK REDUCTION PLANNING
3 SESSIONS
6 hours
Introduction to Disaster Risk Reduction Planning
“Building our house” Interactive Lecture
1 hour
Identifying Appropriate Risk Reduction Measures
Untangling Exercise Sharing of Case Stories on local preparedness and mitigation measures, Interactive Lecture
3 hours
Planning Workshop
Action Planning Plenary Presentation Comments
2 hours
CLOSING ACTIVITIES
6 Barangay Disaster Management Training Workshop
1 hour
Opening Activities
Materials Needed •
Name tags
•
Manila/kraft paper or meta cards for Expectation Check
•
Coloured pens
•
Opening programme for distribution (if there is a formal opening)
•
Schedule of the training programme for distribution
•
Tasks of host teams for distribution
Tasks of Daily Management Teams (Host Teams) The Daily Management Team or Host Team is a group of participants that assumes responsibility to assist the facilitators/trainers in the daily management of the training with the following suggested tasks: •
Act as timekeeper for start and end of sessions
•
Provide ice breakers and energizers
•
Distribute hand-outs
•
Assist facilitator in posting visuals and cleaning the boards
•
Start daily activities with an invocation, recap of the previous day’s sessions and today’s announcements
•
Gather feedback and suggestions from participants and coordinate these with the facilitators and organizers of the training
•
Ensure order and cleanliness of classroom
Other tasks which may be given to daily management teams as necessary: •
Make arrangements for Solidarity Night
•
Make arrangements for Closing Programme
•
Acknowledging guests and thanking facilitators and the organizers on behalf of the participants
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Module 1
Module 1 Introduction to Disaster Management
Module 1
INTRODUCTION TO DISASTER RISK MANAGEMENT
Summary This module has three sessions that pertain to the disaster situation at the local and national levels and to disaster risk management concepts, principles and activities. The main objective of this module is for the participants to understand and differentiate hazards from disasters and to appreciate that disasters can be prevented through a combination of various strategies at the local level, with support from other key players in disaster risk management. Session 1: Local Disaster Experience Session 2: National Disaster Situation and the Philippine Disaster Management System Session 3: Understanding Disasters and Disaster Risk Management
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Module 1 Session 1: Local Disaster Experience Learning Objectives At the end of the session the participants should have: •
Described the ongoing threats as well as those disasters that happened in the past in the participants’ community, which caused substantial damage and loss
•
Explained how the community, households and individuals prepared for, responded to and recovered from those disasters; and
•
Discussed who was able to assist the community in disaster preparedness, emergency response and recovery.
Key Points •
Community profile is important – the barangay’s geographical location, physical characteristics, population, people’s livelihood, health conditions, culture and values. A spot map with basic information of the barangay helps in understanding the overall condition of the community.
•
Recalling the experiences of the participants about disasters (before, during and in the aftermath of a disaster and in the recovery period) is an important facet of this session. What actions that people undertook in the pre-, during- and post-disaster preriods should be highlighted.
Method •
Group work, presentation and plenary discussion
Process •
Introduce the module and the module’s summary.
•
Introduce the first session and its objectives.
•
Explain that this session is mainly group work, presentation, discussion and synthesis. Encourage active participation.
•
Divide the participants into four to five groups, depending upon the number of participants. Ideally each group should have only six members. Each group assigns its facilitator, documenter and rapporteur.
10 Barangay Disaster Management Training Workshop
Module 1: Introduction to Disaster Risk Management
•
The facilitator guides the group in its discussion of the following questions: a. What does the Barangay/Community Profile (land and people) look like? Geographical/physical characteristics Population Economy/livelihood General health conditions Culture and values Spot/base map of the community indicating key landmarks
b. What is the local disaster situation? What disasters were experienced in the past? When? Where? What was damaged? Who was affected? What are the other threats? How did the community, households and individuals prepare for, respond to and recover from disasters? Who and what agencies assisted the community, households and individuals?
•
Have each group pick a creative way to present the results of their group discussion such as: Talk show interview about the disaster situation in the community Community spot map indicating areas, facilities and families which have suffered damage and loss from disasters Skit or drama of how the community prepares for and responds to disasters Seasonal calendar showing periodic hazards and disasters Timeline showing years wherein disasters were major (big) or minor (small); Work groups explain their indicators of major and minor disasters
•
Then, ask each group to make a presentation in the plenary, Ask the rest of the groups to validate and add on to the data presented.
•
After all have reported, ask for questions, clarifications and comments on the group reports.
•
Summarize the local disaster situation. Point out that reference to the results of this first workshop will be made in the succeeding sessions. More details will be added to the community disaster situation during the discussion in Module 3 on Barangay Risk Assessment.
Duration: 2 hours
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Tips to Facilitators •
In preparation for the disaster management workshop, request the barangay council to prepare a community profile and five copies of the community spot map.
•
The discussion of the local disaster situation immediately generates involvement and interest among the participants with regards to the disaster management training workshop.
Materials Needed •
Manila/kraft or easel paper, different colours of Pentel pens and crayons
•
Cut-outs of different hazards
Photos of flooded Bulacan Barangay Hall from World Vision, Baguio earthquake from Phivolcs and of recovery effort in Infanta from the Municipality of Infanta, Quezon.
12 Barangay Disaster Management Training Workshop
Module 1: Introduction to Disaster Risk Management
Module 1 Session 2: National Disaster Situation and the Philippine Disaster Management System Learning Objectives At the end of the session the participants should have: •
Linked the local barangay disaster situation to the national (provincial/municipal) disaster situation; and
•
Explained the Philippine disaster management system.
Key Points •
The Philippines is one of the world’s most disaster prone-countries. Because of its geographical location and physical characteristics, the Philippines is exposed to a variety of natural hazards, ranging from typhoons and floods to earthquakes, volcanic eruption, tsunamis, landslides and drought.
•
Located near the Western North Pacific Basin, the Philippines is the busiest generator of tropical cyclones. It is part of the ‘Pacific Ring of Fire’ and lies between two tectonic plates. An archipelago, it is composed of 7,100 islands.
•
Aside from the country’s particular geographical location and physical characteristics, its social, economic and political environment is a big contributory factor of why hazards result in the destruction of human lives and property.
•
Human-made disasters such as armed conflict, sea mishaps, fire, and epidemics take a heavy toll on the vulnerable population and to the economy as well.
•
The Philippines is recognized internationally to have a well-articulated disaster manage ment system and institutional arrangements.
•
PD 1566, dated 11 June 1978,“Strengthening the Philippine Disaster Control Capability and Establishing the National programme to Community Disaster Preparedness”, lays down the policy, institutional and operational framework for disaster management in the country.
•
Although the Philippines is recognized to have a head start in implementing community- based disaster management, recurring occurrence of disaster necessitates widespread replication and application of disaster risk reduction activities.
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Integrating Disaster Risk Management in Local Governance
Methods •
“Gallery”
•
PowerPoint presentation or paste-ups
•
Interactive lecture
Process •
“Gallery”. Prior to the workshop, gather 10 to 20 pictures and news clippings of disasters from various places in the Philippines. Put these on a clothesline or paste them on the walls. Have the participants go around to view the exhibit.
•
Back in their seats, the participants are asked what have they observed. What types of disasters strike the Philippines? What gets damaged? Who is affected? What are the causes? What are the disaster preparedness, emergency response and recovery activities undertaken?
•
Summarize the participants’ observations through a brief interactive lecture on the Philippine disaster situation.
•
Present the following with the aid of either PowerPoint or slides:
Present that the Philippines is one of the most disaster-prone countries of the world. From 1900 to 1991, the Center for Research and Epidemiology of Disasters (CRED) recorded a total of 701 disaster incidents, or almost eight disasters a year. From 1987 to 2000, the National Disaster Coordinating Council (NDCC) recorded 523 disasters, an average of 37 disasters annually, with total damage estimated at Php 150.071 Billion. In the year 2000 alone, there were 259 disaster events noted, affecting 9,078,236 persons, with total cost of damage Php 7.739 Billion. Refer to Sourcebook 1.1: “The Philippine Disaster Situation”. The European Commission Humanitarian Aid Office Disaster Risk Indicators has ranked the Philippines as the 11th most disaster prone among 115 counties. In 2004, the Philippines was among the top ten countries of the world with most killed (1,918 persons, ranked sixth) and most affected by disasters (3,262,978, ranked fifth). Explain that the Philippines’ predisposition to natural hazards is, to a significant extent, a function of its geographical and physical characteristics. Located near the Western North Pacific Basin where 50 percent of the world’s tropical cyclones are generated, 20 typhoons enter the country’s area of responsibility in a year, of which nine make landfall. As an archipelagic country, composed of 7,100 islands with a total land area of 30 million hectares, the country has a long coastline. Communities along its 36,289 kilometres of coastline are prone to storm surges and sea level changes. Flooding, especially in low-lying areas is common due to rains brought about by typhoons, monsoons, thunderstorms, and the inter-tropical convergence zone. El Nino occurrences induce drought in many parts of the country, which poses a serious problem in agricultural production, potable water supply, and hydro-electricity generation.
14 Barangay Disaster Management Training Workshop
Module 1: Introduction to Disaster Risk Management
The country is part of the western segment of the Pacific Ring of Fire and lies in between two major tectonic plates, whose movements create mountain ranges, islands, volcanoes, earthquakes and tsunamis. The country’s topography thus varies from high mountains, accounting for 60 percent of landmass, to plains and freshwater swamps. There are 220 volcanoes, of which 22 are active. Five earthquakes, mostly imperceptible, occur daily. Heavy rains and earthquakes can trigger landslides and debris flows. Highlight that aside from its particular geographical location and physical characteristics, disaster occurrence is conditioned by the Philippines’ social, economic and political environment. Vulnerability factors such as poverty, environmental degradation, rapid urbanization, poor enforcement of public safety and environmental regulations, and reactive disaster management orientation are causes of, if not aggravating factors to, recurring and chronic disaster situations. Deforestation has resulted in flooding, soil erosion, landslides and siltation. The destruction of mangroves and coral reefs has resulted in the decline of fish production and loss of natural protection to coastal communities from storm surges and beach erosion. These are barriers to the ability of individuals, households, communities and society to protect itself, prepare for, cope with, and recover from disaster events. Point out that the poverty situation of many Filipinos severely restricts capacity to cope with the many hazards and more so, to recover from the damages wrought by disasters. Adverse socio-economic situations lead people to inhabit high-risk areas and engage in unsustainable and dangerous livelihoods. Explain that human-made disasters also take a heavy toll. From 1982 to 1990, there were 224 maritime accidents, mostly associated with weather disturbances. The collision of MV Dona Paz with an oil tanker is the world’s worst peacetime sea mishap, with 4,342 confirmed dead. The Philippines also had a serious disco fire with 162 dead and 104 injured. Armed conflict in the country, especially in Mindanao, causes repeated displacement of whole communities, and contributes to the worsening disaster situation. Point out that although the Philippines is ranked among the most disaster-prone countries, it is also referred to internationally as a developing country with a well-articulated disaster management system and institutional arrangements in disaster management. Refer to Sourcebook 1.2: “The Philippines Disaster Management System”. The basic decree on the Philippines disaster management system is Presidential Decree (PD) 1566, dated 11 June 1978, “Strengthening the Philippine Disaster Control Capability and Establishing the National Programme on Community Disaster Preparedness.” PD 1566, lays down the policy, institutional and operational framework for disaster management in the country. Stress the importance given by PD 1566 to local disaster management. Point out, however, that it emphasizes preparedness for emergency situations more than prevention and mitigation. Discuss the salient features of PD 1566 – the disaster management doctrines, the setting up of the disaster coordinating council (DCC) at the national, regional, provincial, municipal and barangay level, the members of the DCCs and the organizational structure.
15 Facilitators’ Guide and Sourcebook
Integrating Disaster Risk Management in Local Governance
•
Show and distribute the visuals below to illustrate the multi-level and multi-agency disaster management system of the country.
•
Run through the other laws and policies on disaster management. Advise the participants that the laws and policies with particular relevance to the barangays will be elaborated in Module 2 on Barangay Governance and Disaster Risk Management. Mention that the Philippines is also recognized internationally as having a head start in implementing community-based disaster management, and that recurring disaster occurrence and loss necessitates widespread replication and application of the more proactive disaster preparedness, mitigation and prevention measures. The NDCC has taken on the community-based approach as a key strategy in disaster risk management.
•
•
End by answering participants’ questions and summarize the main points taken up in the session.
Duration: 1.5 hours
Tips for Facilitators •
Sessions 1 and 2 can be compressed to save time and can be called “Local and National Disaster Situation”. Similar to the “gallery”, pictures of disasters which happened in the locality can be the starting point. Note with the participants that the pictures of disasters which happen in other places look very similar to those that they experience locally since the whole of the Philippines is exposed to many hazards. Prepare pictures and/or news clips of disaster events from all over the country.
•
This session is a good prelude to the next session. Whether a disaster is major or minor, of national or local proportion, it is the barangay or community that suffers most from its damaging effects. The fresh experience from a disaster generates interest in the community to protect itself from future harm and suffering. Community members use coping and survival strategies to face and respond to the situation long before outside help arrives.
•
Option: Municipal Risk Assessment and Nature and Behaviour of Hazards in the Locality. Have someone give inputs on the municipal risk map for various hazards. Resource persons should come from scientific agencies specializing in the field of hazards.
16 Barangay Disaster Management Training Workshop
Module 1: Introduction to Disaster Risk Management
Readings for Facilitators: (See Sourcebook 1) 1.1 The Philippine Disaster Situation: Risk Profile CY 1995 to 2004, Office of Civil Defense, NDCC 1.2 The Philippine Disaster Management System, Office of Civil Defense, NDCC
Materials Needed •
About 10 to 20 pictures and news clippings of various disasters all over the Philippines hung on clothesline or pasted on the walls.
•
Straw and clips or masking tape
•
“Key Points” for distribution
•
PowerPoint presentation including the visual below
Materials Needed for Hand-outs
DCC ORGANIZATION NETWORK
NATIONAL DISASTER COORDINATING COUNCIL REGIONAL DISASTER COORDINATING COUNCILS 16 PROVINCAL DISASTER COORDINATING COUNCILS 80 MUNICIPAL DISASTER COORDINATING COUNCILS 1,494 CITY DISASTER COORDINATING COUNCILS 116 BARANGAY DISASTER COORDINATING COUNCILS 41,960
17 Facilitators’ Guide and Sourcebook
Integrating Disaster Risk Management in Local Governance
Module 1 Session 3: Understanding Disasters and Disaster Risk Management Learning Objectives At the end of the session the participants should have: •
Explained the relationship of hazard, vulnerability and capacity with disaster and disaster risk;
•
Given examples of disaster risk management (DRM) activities; and
•
Explained the importance and features of community-based disaster risk management (CBDRM).
Key Points •
A hazard is a phenomena, event, occurrence or human activity which has the potential for causing injury to life or damage to property, livelihood, community facilities, and the environment.
•
Vulnerability is a set of prevailing and long-term factors, conditions and weaknesses, which adversely affect the ability of individuals, households, organizations and the community to protect itself, cope with or recover from the damaging effects of disasters.
•
Capacities are knowledge, skills, resources, abilities, coping strategies and strengths present in individuals, households, organizations and communities, which enable them to prevent, mitigate, prepare for and cope with damaging effects of disasters or quickly recover from them.
•
A disaster occurs when an emergency resulting from hazard cannot be managed by the communities alone, using their own resources. The community requires external assistance because the damage and destruction exceeds their abilities and capacities.
•
Disaster risk management or DRM is a range of activities (preparedness, mitigation, prevention, emergency response, recovery) that contribute to increasing capacities and reducing immediate and long-term vulnerabilities to prevent, or at least minimize, the damaging impact in a community.
•
The community-based disaster risk management or CBDRM approach involves activities, measures, projects and programmes to reduce disaster risks which are designed and implemented by people living in high-risk areas with the goal of building safer, disaster resilient, and developed communities.
18 Barangay Disaster Management Training Workshop
Module 1: Introduction to Disaster Risk Management
Method • •
Organize a “Debate” or play the “Typhoon, Earthquake, War” Interactive lecture
Process •
“Debate”. Ask participants to give their answers or positions on two questions: Is the Philippines poor because of disasters or do disasters occur because the Philippines is poor? Are typhoons, earthquakes or floods all disasters? Summarize the positions and use the results of the “Debate” to explain the relationship and definition of hazards, vulnerability, capacity, disaster, and disaster risk.
•
Alternatively, play the “Typhoon, Earthquake, War” game: Ask the participants to group into threes. Within each group, show that two persons will hold their hands up high to form a roof and house the person in the middle. When typhoon is mentioned by the “It” participant, the house will move to form a new house for the person in the middle. When war is called out by the “It” participant, the person in the middle of the house will move to find another home. For earthquake, the houses and persons in the homes all move. The “It” participant tries to take his/her place as a house or person in the home for each call of “Typhoon”, “Earthquake”, or “War”. The person who is left out of group/home becomes the new “It” participant. Use the “Typhoon, Earthquake, War” game to discuss basic concepts and definitions.
•
After the activity, ask the participants: if a typhoon occurs in the middle of the sea, is that a disaster? Ask further: if a typhoon hits their community what happens? What is damaged? Who is damaged? Why? What do people do to prepare for typhoon? What do people do to respond to the disaster situation? Refer to results of the Session 1 on Local Disaster Situation and the discussion in Session 2 on the National Disaster Situation to explain the concepts of vulnerability and capacity.
•
Differentiate between hazard and disaster by defining both. Stress that a hazard is not a disaster but has the potential for becoming one, if the emergency caused by it is not managed well due to due to a lack of preparation. A disaster occurs when a hazard strikes a vulnerable community, whose capacity is inadequate to withstand or cope with its adverse effects, resulting in damages, losses and disruption in community functioning. The source of hazard can be natural, human or a combination of both.
•
Explain the key concepts as stated in the “key points”. Refer also to Sourcebook 1.3: “Defining a Few Key Terms”.
•
Differentiate natural hazards from human-made or human-induced hazards. War or armed conflict is human-induced while flooding and landslide can be a combination of natural and human factors. Earthquake and volcanic eruptions are examples of natural hazards.
19 Facilitators’ Guide and Sourcebook
Integrating Disaster Risk Management in Local Governance
•
Explain well the concept of disaster risk, which is the probability that individuals, households and the community may suffer damage or loss from a hazard. It is important to understand hazards, reduce vulnerability and increase capacity to manage disaster risks.
•
Take a break at this point before the discussion on disaster risk management. As preparation for the following interactive lecture, read carefully Sourcebook 1.4: “Basic Concepts”. Explain briefly the evolution of terms from “disaster management” in the past to “disaster risk reduction” being currently used. For the purpose of this training, disaster risk management and disaster risk reduction are the same.
•
Explain that disaster risk management or DRM activities to reduce vulnerabilities and increase capacities are categorized as prevention, mitigation, preparedness in the pre-disaster period, emergency response during the disaster, and rehabilitation and reconstruction for recovery in the aftermath of the disaster.
•
Underscore that to significantly reduce disaster damage and loss, stress has to be given to prevention, mitigation and preparedness activities.
•
Stress the importance of community participation in DRM. CBDRM involves activities, actions, projects and programmes to reduce disaster risks which are designed and implemented by people living in at-risk villages based on their urgent needs and capacities. The goal is building safer, disaster-resilient and developed communities.
•
Run through the following CBDRM process: Initiating the process and selecting a community Community profiling or initial understanding of the community Community risk assessment Initial community DRM plan Organizing and strengthening community DRM organization Community-managed implementation of the DRM plan Monitoring and evaluation and progressive improvements towards safety, disaster resilience and community development
•
Point out that in this workshop, they will conduct a community risk assessment and make an initial community DRM plan.
•
Answer questions and summarize key points that were taken up.
20 Barangay Disaster Management Training Workshop
Module 1: Introduction to Disaster Risk Management
Duration: 2.5 hours
Tips to Facilitators •
For the concepts of hazard, vulnerability, capacity, disaster and disaster risk, as well as for the DRM, discuss examples and cite experiences rather than getting absorbed in technical definitions.
Reading for Facilitators: (See Sourcebook 1) 1.3
Defining a Few Key Terms, from Living with Risk, UNISDR
1.4
Basic Concepts: Hazard, Vulnerability, Capacity Assessment, CDP CBDRM Training Hand-outs
Materials Needed •
“Key Points” for distribution
•
PowerPoint presentation and visual aid below for distribution
21 Facilitators’ Guide and Sourcebook
Module 2 Module 2
Barangay Governance and Disaster Management
Module 2
BARANGAY GOVERNANCE AND DISASTER RISK MANAGEMENT
Summary This module has three sessions dealing with governance, such as the roles and responsibilities of barangay officials in DRM and the pertinent laws and regulations. The main objective of this module is for the participants to grasp the important roles of the officials and community members in ensuring the safety of their homes, property and livelihood.The function of officials with regards to DRM is incorporated in the local government code. Session 1: Good Governance Session 2: Disaster Management Responsibility of the Barangay Session 3: Relevant Laws and Regulations
23 Facilitators’ Guide and Sourcebook
Integrating Disaster Risk Management in Local Governance
Module 2 Session 1: Good Governance Learning Objectives At the end of the session the participants should have: •
Identified the elements and characteristics of good governance; and
•
Explained the mutually reinforcing relationship of good governance and disaster risk management.
Key Points •
Governance refers to the exercise of economic, social, political and administrative authority to manage the country’s affairs at all levels. It is the process whereby elements in society wield power and authority by influencing and enacting policies and decisions concerning public life, economic and social development.
•
Characteristics of good governance include being responsive; participatory; consensus-oriented; fair and inclusive; accountable; effective; efficient;transparent; having a strategic vision; and following the rule of law.
•
As with the delivery of basic services for the community’s well-being, government also has the primary responsibility for DRM. Good governance provides the foundation for sustainable DRM. It also serves as the basis for effective poverty alleviation and for achieving the Millennium Development Goals (MDGs).
•
On the one hand, good governance is a precondition to sustain DRM at the local level. On the other hand, implementing DRM activities enhances effective governance in the progressive realization of public safety, disaster resilience, community development and general well-being.
Method •
Group Work:“The Highest Tower” or “Good Governance is…”
•
Interactive Lecture
24 Barangay Disaster Management Training Workshop
Module 2: Barangay Governance and Disaster Risk Management
Process •
“The Highest Tower”. Divide participants equally into four or five groups. Instruct the groups to build the highest tower utilizing any material and available resources in the session hall within 5-10 minutes. After all the towers have been built, process the activity. How did the group fare in achieving the task at hand to build the tallest tower? Use the results of the discussion to ask the participants about the characteristics, features and requisites for good governance.
•
“Good Governance is…” Divide the participants into four or five groups and distribute coloured meta cards with different colours per group. Each group will discuss what good governance means to them and write their answers on the meta cards, one idea per card. After 10 to 15 minutes, ask each group to report to the plenary, while the other groups take turns addig to the list posted on the board. Point out the ideas that are common and the ideas that are unique only to one group.
•
Discuss governance and its defining features by referring to the results of the group work.
Explain that the concept of governance refers to the complex set of values, norms, processes and institutions by which society manages its development and resolves conflict, formally and informally. Governance refers to the exercise of economic, social, political and administrative authority to manage a country’s affairs at all levels. It is the process whereby elements in society wield power and authority by influencing and enacting policies and decisions concerning public life, economic and social development. It involves the state and civil society at the local and national levels. Refer to Sourcebook 2.1: “The Barangay”. •
Point out that governance is a broader notion than government, whose principal elements include the constitution, legislature, executive and judiciary. Governance involves interaction between these formal institutions and those of civil society.
•
Define characteristics, features and/or requisites of good and democratic governance relevant to disaster risk management. Refer to Sourcebook 2.2: “Good Governance”. Elements of good governance: ¡
¡
¡
¡
¡
¡
¡
¡
¡
¡
Has strategic vision about social development agreed upon by all key actors Responsiveness of institutions and processes to stakeholders and citizens Participation of citizens’ stakeholders in decision-making and actions Decision-making by consensus Equity in sharing opportunities and benefits among groups of citizens Accountability to stakeholders and citizens Effective delivery of services Efficiency Transparency in goals and targets and functioning Follows the rule of law and has the ability to make right laws
25 Facilitators’ Guide and Sourcebook
Integrating Disaster Risk Management in Local Governance
•
Relate good governance with DRM. Good governance and DRM are mutually reinforcing. Good governance provides the foundation for DRM to become a sustainable process. Good governance is also an effective instrument for poverty alleviation and for achieving the MDGs. Refer to Sourcebook 2.3: “The Millennium Development Goals”.
•
While good governance is a precondition for an effective DRM at the community level, implementing DRM activities enhances effective governance to progressively realize public safety, disaster resilience, general well-being and community development. DRM is an important area of work that needs a responsive and effective governance. Refer to Sourcebook 2.4: “Barangay Development and Governance System Framework and Barangay Organizational Reform Agenda”.
•
Stress that DRM also needs to be mainstreamed across other functions typically assigned to various tiers of local governance, such as building design and construction, land use and shelter.
•
Show the visual below regarding the relationship between disaster and development. Disasters set back development by destroying years of development gains. Rebuilding after a disaster provides significant opportunities to initiate development programmes. While development programmes can reduce disaster risks, they can also increase a community’s susceptibility to disaster. Encourage participants to give examples.
•
Answer questions and summarize the key points taken up in the session.
Duration: 1.5 hours
Tips for Facilitators: •
The concept of “people-centred” development planning, which was popularized in the 1980s in the Philippines is making a comeback. Now people-centred governance is being advocated as a precondition for sustainable disaster risk management by some NGOs.
•
Electronic copies of the MDGs and the Medium-Term Development Plan 2004 to 2010 can be downloaded from www.un.org/millenniumgoals, www.undp.org/mdg/phil.pdf, www.neda.gov.ph/.
Reading for Facilitators (See Sourcebook 2) 2.1
“The Barangay”, by Local Government Academy
2.2
“Good Governance”, by Local Government Academy and Bureau of Local Government Development, Department of Interior and Local Government
2.3
The Millennium Development Goals
2.4
“Barangay Development & Governance System Framework and Barangay Organizational Reform Agenda” by Liga ng mga Barangay sa Pilipinas
26 Barangay Disaster Management Training Workshop
Module 2: Barangay Governance and Disaster Risk Management
Materials Needed •
“Key Points” for distribution
•
PowerPoint presentation and visual aid below for distribution
ANG RELASYON SA PAGITAN NG DISASTER AT DEVELOPMENT
Ang Developement
Ang Development na
na nagpapataas ng
nagpapababa sa
pagkabulnerable sa disaster
Ang Disaster ay nagpapaatras (setback) sa
pagkabulnerable sa disaster
Ang Disaster ay oportunidad para sa development
POSITIVE REALM
NEGATIVE REALM
Development Realm
development
Disaster Realm
Adapted from “An Overview of Disaster Management” p. 15, Disaster Management Training Program, UNDP & UNDRO, 1992
27 Facilitators’ Guide and Sourcebook
Integrating Disaster Risk Management in Local Governance
Module 2 Session 2: Disaster Management Responsibilities of the Barangay Learning Objectives At the end of the session the participants should have: •
From individual’s experience, rated the current performance of the Barangay Disaster Coordinating Council (BDCC) and various community organizations and actors in DRM;
•
Discussed the responsibilities of the BDCC in managing disaster risks in the community; and
•
Identified local actors involved in the barangay DRM activities.
Key Points •
During disaster situations, people have many expectations from their elected local leaders. Therefore it is important that the local officials are acquainted with and knowledgeable about their tasks, roles and responsibilities.
•
Prepared LGUs have enabling policies for disaster preparedness, conduct hazard assessments, drills and simulation exercises, have an early warning system, information managements system and disaster preparedness or contingency plans, provide training and education, network and link with outsiders, and have an organized local Disaster Coordinating Council (DCC).
•
The paradigm shift from emergency management to disaster risk reduction opens a lot of opportunities to link disaster prevention, mitigation and preparedness to development planning.
•
It is important to involve local actors to have participatory and empowering, multi-sectoral and multi-disciplinary disaster risk management.
Methods •
Group Work:“Our organization as a vehicle”
•
Interactive lecture
28 Barangay Disaster Management Training Workshop
Module 2: Barangay Governance and Disaster Risk Management
Process •
“Our organization as a vehicle”. Group the participants according to the organizations they represent. Ask each group to discuss their perceived strengths and weaknesses of their organization with regards to DRM.Then draw two vehicles which describe the state of the organization with regards to carrying out disaster risk management functions in the pre-, during-, and post-disaster periods: one vehicle to visualize the present state and another vehicle for the desired or envisioned state. Each group then reports to the plenary. Post the drawings on the walls or hang on straw on a clothes line. Thank the participants for their contribution and stress that the workshop is a giant step towards achieving their desired future state.
•
Tell the participants that since almost everyone has experienced and survived disasters, as discussed in Module 1, then all can be considered disaster managers. This is as an official function in our homes. Then proceed to the discussion of the primary tasks of a disaster manager, which is to effectively coordinate the delivery of mitigation, prevention, preparedness, response and recovery activities through the formulation and implementation of policies, plans, programmes and through partnerships.
•
During disaster situations, people expect their elected leaders to take immediate action to bring things back to “normal”, to generate or marshal resources, to channel efforts of NGOs and the private sector in the community, and to solicit outside assistance, if necessary. Refer to Sourcebook 2.5: “On Disaster Management and Leadership”.
Discuss the following standards of a prepared community: ¢ Has enabling policies for disaster preparedness ¢ Assessing hazards ¢ Early warning system in place ¢ Ongoing public awareness ¢ Conducting training and education ¢ Has disaster preparedness and contingency plans ¢ Information management system in place ¢ Networking and linkages with outside actors ¢ Has functional barangay disaster coordinating council Refer to Sourcebook 2.6: “Local Disaster Coordinating Councils”. •
•
Point out to the participants that while disaster preparedness is very important and necessary, it is focused only on the immediate term of preparing for impending disasters, and not on longer-term reduction of risks and vulnerabilities. The paradigm shift from emergency management to disaster risk management opens a lot of opportunities to link disaster prevention, mitigation and preparedness to development planning.
•
Stress the importance of involving local actors in DRM. Ask participants who should be
29 Facilitators’ Guide and Sourcebook
Integrating Disaster Risk Management in Local Governance
involved in DRM in the barangay. Discuss briefly the roles they play and contributions they can make to create a safer, disaster-resilient and developed community. The following are the local actors: ¢ Barangay officials ¢ Community – families, women, children, elderly, men ¢ School/academia ¢ Religious and interfaith groups ¢ Business groups ¢ Media ¢ Community-based or people’s organizations
Duration: 2 hours
Tips to Facilitators •
To reduce risks, local level coordination and cooperation is extremely important. Disaster risk management has to be multi-disciplinary, multi-sectoral and multi-stakeholder to be effective and sustainable.
Reading for Facilitators (See Sourcebook 2) 2.5
On Disaster Management and Leadership, from various sources
2.6
Local Disaster Coordinating Councils
Materials Needed • • • •
Coloured papers and pens Straw and pins or masking tape “Key Points” for distribution PowerPoint or visual aids including the visuals below
30 Barangay Disaster Management Training Workshop
Module 2: Barangay Governance and Disaster Risk Management
ORGANIZATION OF BARANGAY DISASTER COORDINATING COUNCIL DISASTER COORDINATING COUNCIL CHAIRMAN DISASTER COORDINATING COUNCIL ASST. CHAIRMAN
DISASTER OPERATIONS CENTER
STAFF ELEMENTS INTELLIGENCE AND DISASTER ANALYSIS Communication & Warning
PLANS AND OPERATIONS
UNITS
TASKS Transportation
Evacuation
RESOURCES
Rescue & Eng’g
Health
Fire
Police
Relief
Public Info
CROSS-ORGANIZATIONAL INTEGRATION Integration of disaster management within local government functions, in coordination with the national authorities and in partnership with the active agents of society Civil Society
National Authorities
Local Government
NGOs
Academia/Schools
Land Use Planning
Engineering
Building and Construction
Emergency Management
Social Services
Public Safety
Financial Planning
Education
Media
CBOs
Business
Source: Disaster Preparedness Seminar for Local Chief Executives, 2005 from the World Bank DRM Course on-line
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Module 2 Session 3: Relevant Laws and Regulations Learning Objectives At the end of the session the participants should have: •
Cited the legal basis of local disaster risk management; and
•
Answered frequently asked questions regarding laws, policies and procedures on barangay disaster risk management.
Key Points •
The basic law in the implementation of DRM programmes in the Philippines is PD 1566, “Strengthening of the Philippine Disaster Control Capability and Establishing the National Program on Community Disaster Preparedness”.
•
Republic Act (RA) 7160 the Local Government Code of 1991 reinforces the pursuit of DRM programmes at the local government level.
•
PD 1096, the National Building Code of the Philippines, and PD 1185, Fire Code of the Philippines, are concerned with building safety. RA 8185 s-1997 is related to fund allocation for DRM.
•
There has been concerted efforts to update PD 1566 in Congress. Executive Orders and NDCC Issuances have made guidance to policy and operational issues.
Methods: • • •
Buzz Session:“Frequently Asked Questions” “Matching Game” Interactive lecture
Process •
Ask participants to pair with his/her seatmate to the right. Give three minutes to discuss frequently asked questions they have encountered and questions they anticipate will be asked to them about the Philippine’s DRM system, programme and operations, especially at the barangay level, but not excluding questions in relation to higher levels. List all the questions that were generated during the exercise.
32 Barangay Disaster Management Training Workshop
Module 2: Barangay Governance and Disaster Risk Management
•
Proceed to the next exercise, the Matching Game: Divide the participants into two groups. Give out the title of the law, executive order or issuances and match them with a specific content of the law relevant to the barangays. After a quick discussion the two groups will post their matched items on the board or wall.When all participants are back in their seats, collectively look at which items are properly matched, using each item to elaborate on the content of the legislation, executive orders and NDCC issuances. Relate the result of the matching exercise with the list of questions. Most of the questions can be answered by citing the provisions in the laws and regulations. Refer to Sourcebook 2.7: “Laws and Regulations on Disaster Management”.
•
Stress that the barangay has the authority on local legislation for DRM and discuss the procedure for making resolutions. Use the results of the group exercise.
•
For questions which are not covered by this session, post them on the board. Point out to the participant which questions will be discussed in the succeeding modules and sessions.
Duration: 1.5 hours
Tips for Facilitators •
Usually, the most frequently asked questions at the barangay level are about financing disaster preparedness activities. RA 8185 specifies that the LGU has to declare a state of calamity before the 5% Internal Revenue allotment can be utilized.
•
LGUs can join the ongoing advocacy work to update and revise PD 1566. While the basic law has not yet been changed, Executive Orders, NDCC Issuances and Memorandum Circulars can make some changes, as allowed within the parameters of the law.
Reading for Facilitators (See Sourcebook 2) 2.7
Laws and Regulations on Disaster Management, DILG – BLGD and LGA
Materials Needed •
Copy of portions of laws and issuances on the Philippines disaster management system and programme, which are relevant to the barangays, for distribution
•
“Key Points” for distribution
•
Two sets of items to match for the Matching Game
33 Facilitators’ Guide and Sourcebook
Module 3 Barangay Risk Assessment
Module 3
Module 3
BARANGAY RISK ASSESSMENT
Summary This module contains four sessions pertaining to community disaster risk assessment. Disaster risk is a concept that needs to be understood in the context of natural and human-sourced hazards, vulnerability of the elements-at-risk and the capacity of the people exposed to hazards. The main objective of this module is for the participants to be able to learn and practise the participatory tools and methodologies in assessing community disaster risks. Session 1: Introduction to Risk Assessment (Hazard, Vulnerability, Capacity Assessment) Session 2: Hazard Assessment Session 3: Vulnerability and Capacity Assessment Session 4: Barangay Disaster Risk Assessment Fieldwork
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Module 3 Session 1: Introduction to Risk Assessment Learning Objectives At the end of the session the participants should have: •
Explained the purpose of community disaster risk assessment;
•
Identified the components of risk assessment; and
•
Explained why gender, socio-economic status, educational background, age, culture and ethnicity should be considered in risk assessment.
Key Points •
The barangay risk assessment is a participatory and systematic process to identify and analyse local disaster risks. It unites the community in common understanding of their disaster situation.
•
The barangay risk assessment is a necessary step for the adoption of appropriate and adequate countermeasures to prepare for and reduce disaster risks.
•
The barangay risk assessment involves four interrelated components: hazard assessment, vulnerability assessment, capacity assessment, and people’s perception of disaster risks.
Methods •
Exercise:“What do you see?”
•
Interactive lecture
Process •
Show one or two of the pictures below and ask the participants “What do you see?” Have the participants point to the features of what they see. If there is time, show another picture. Relate the differences in what the participants see in the picture to the varying perceptions of disaster risk among people or groups living in the same barangay. Ask the participants why is there such different perceptions of disaster risks.
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•
Summarize that people’s perception of disaster risks is influenced by age, educational background, occupation, length of stay in the community, economic status, culture, ethnicity, experience and gender. Likewise, local people and outsiders have differences in perceiving the disaster risks of the community. It is important to recognize the differences in perception, because it is the basis for people to identify actions that will address disaster risks.
•
Link the discussion of differing perception of disaster risk to the purpose of risk assessment. The barangay risk assessment unifies the people in understanding disaster risks confronting the community. Risk assessment is the basis for sound planning of appropriate and adequate risk reduction measures. Community risk assessment also aims to: ¢ Contribute to the community’s awareness of threats they did not know before; ¢ Provide information which can be used in situational analysis for community development programmes and in drafting emergency appeals; and ¢ Provide baseline data or indicators to measure changes in people’s vulnerability and capacity over time.
•
In Module 1, disaster risk management concepts were discussed. Ask the participants to recall the discussion on basic disaster management concepts and then run through the three components of disaster risks: hazard, vulnerability and capacity. Simply put, disaster risk assessment is assessing hazard vulnerability and capacity with the consideration of the people’s perceptions of risk. Some also call it participatory hazard, vulnerability and capacity assessment to stress the importance of involving the community and other key stakeholders in risk assessment. Refer to Sourcebook 3.1: “Community Risk Assessment”
•
Explain that participatory risk assessment combines science and technology (which are usually brought to the community by outsiders) and local knowledge and experiences of the community members (insiders). Tell the participants that details and tools for participatory risk assessment will be discussed in the following sessions. Review the key points discussed. Summarize the discussion by putting the results of the participatory hazard, vulnerability and capacity assessment into a map. Colours are used to indicate areas or delineate zones in the barangay which are at high, moderateor low risk to various threats, and which are safe or unsafe for settlements, economic activities and other community functions.
Duration: 1 hour
Tips for Facilitators •
You can refer to the web site of ProVention Consortium www.proventionconsortium.org for a collection of conceptual articles and various tools for community risk assessment.
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•
Depending on the grasp of the participants on DRM concepts and time availability, this introductory session can be expanded to cover more details on hazard, vulnerability and capacity assessment, and participatory tools in risk assessment and then immediately proceed to the Field Work. With this alternative, Module 3 is compressed to only two sessions.
•
Prior to this module, preferably the day before, distribute the chosen participatory tools for hazard, vulnerability and capacity assessment (see above tip for references on participatory tools). There will be no time to discuss each tool comprehensively. Therefore, stress to the participants that they are expected to study the tools by themselves. Give time for the participants to ask and clarify how to use the tools during the next three sessions. Relate this module to Module 1, Session 3.
Reading for Facilitators (See Sourcebook 3) 3.1
Community Risk Assessment, Center for Disaster Preparedness CBDRM Training Hand-outs
Materials Needed •
“Key Points” for distribution
•
Visual aids for interactive discussion
•
Pictures for “What do you see?”
Materials
What do you see?
38 Barangay Disaster Management Training Workshop
Module 3: Barangay Risk Assessment
Module 3 Session 2: Hazard Assessment Learning Objectives At the end of the session the participants should have: •
Identified and ranked the hazards or threats which may damage the barangay;
•
Described the nature and behaviour of several hazard types; and
•
Discussed participatory tools which can be used in hazard assessment.
Key Points •
Hazard assessment involves the identification of hazards or threats which may damage the barangay. It also involves the analysis of the nature and behaviour of the hazards or threats.
•
The analysis of the nature and behaviour of hazards looks into the force, warning signs, forewarning, speed of onset, frequency, period of occurrence and duration of the hazard.
•
Hazard assessment looks into the disaster history of the barangay – what disasters have been experienced in the past – as well as other hazards or threats which the community may not be aware of.
•
Various tools for barangay hazard assessment can be used to encourage participation and group discussion, triangulate and validate data, and have a visual record of results.
Methods •
Group Exercise:“Feel, Hear, See!” or “Recall of Disasters Experienced”
•
Interactive lecture
•
Group work for actual hazard assessment using various tools
Process •
“Feel, Hear, See!” Divide the participants into three groups. Pass around the sealed bag with various objects inside. Have the groups identify its content by touching, smelling and hearing its sounds. Each group then reports what items are in the bag. Link this game to the session on hazard assessment: the community needs to study the nature and characteristics of hazards to be able to design appropriate and adequate preparedness and mitigation interventions.
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•
“Recall of Disasters Experienced”. Ask the participants to recall the disasters that they have experienced in the past. Probe more and ask questions on how the participants knew that there was impending danger. Stress that to prepare for and reduce damage and loss from disasters, understanding the nature and behaviour of hazards is important.
•
Explain that hazard assessment involves the identification of hazards that may damage the barangay. Hazard assessment looks into the disaster history of the barangay – what disasters have been experienced in the past – as well as other hazards or threats which the community may not be aware of. Refer to Sourcebook 3.2: “Major Kinds of Hazard, Family and Community Disaster Preparedness: Guide for Training Families and Communities”. Hazard assessment also involves the study of the nature and behaviour of hazards by taking into consideration the following: ¢
¢
¢ ¢
¢
¢
¢
•
Remind the participants that in doing hazard assessment, the following also have to be considered: ¢
¢ ¢
¢
•
Forces that can damage: wind (typhoon and tornado); water (heavy rain, flood, river overflow, giant waves, dirty water causing epidemics); land (slide, erosion, mudflow, lahar), seismic (ground shaking, ground rupture, liquefaction, tsunami), conflicts (war, terrorism, aggression); industrial/technological (pollution, radioactive leaks); others Warning signs and signals: scientific and indigenous or local signs that hazard is likely to happen Forewarning: time between warning and impact of hazard Speed of onset: rapidity of arrival of hazard and its impact (very slow such as three to four months in the case of drought; three to four days in the case of cyclone; very rapid in the case of an earthquake) Frequency: does the hazard occur seasonally, yearly, once every ten years, once in a lifetime, etc. When: does the hazard occur at a particular time of the year (wet or dry season; in November or in April) Duration: how long the hazard is felt: earthquake and aftershocks; days/ weeks/months that the area is flooded; length of period of military operations
Secondary hazards: earthquakes can cause landslides and fires; cyclones can cause flooding and landslides; floods can cause epidemics Intensities of hazards: earthquake and cyclone Hazards or threats which the community has not experienced yet; combining scientific and technical information with local knowledge Hazard assessment results can be used for public awareness, designing early warning and evacuation plans
Given the knowledge and familiarity of the barangay from where the participants come, they could practise a hazard assessment in a classroom setting. Remember that the participants will go back to their barangay for field practice. This is an opportunity to validate their classroom hazard assessment. Group the participants to do the hazard assessment using the following tools:
40 Barangay Disaster Management Training Workshop
Module 3: Barangay Risk Assessment
¢ ¢ ¢
¢
Time-line of disasters or disaster history Seasonal calendar for the occurrence of hazards or threats Hazard map to pinpoint areas in the barangay which are prone to, or threatened by, hazards Hazard Assessment Matrix: the nature and behaviour of hazard
•
After groups have finished their discussion and visuals, each group presents to the plenary. Then other groups provide comments or challenge the information provided by the reporting group.
•
Summarize the session by reviewing the hazards which have caused (and can cause) damage in the barangay. Take note of the result as the participants will validate their perception with the rest of the community during the fieldwork.
Duration: 1.5 hours
Tip for Facilitators •
Do secondary data gathering for details of hazards, especially for those which the community has not yet experienced or may not be aware of. Check with PAGASA, PHIVOLCS and DENR for hydro meteorological, geological and environmental hazards.
•
Pointers in making a Barangay Hazard Map: a. Elements of the map ¢ Orientation: north, south, east, west should be indicated in the map ¢ Reference points: landmarks such as schools, rivers, roads, churches ¢ Legend: symbols, captions ¢ Political boundaries ¢ Others: street names, minor captions b. Plan ahead! How big a map do we want to make? Make the legends first, including agreeing on colours to use. c. Checklist of information needed to make a barangay hazard map: ¢ Community landmarks and major roads ¢ Safe and unsafe zones
Reading for Facilitators (See Sourcebook 3) 3.2
Major Hazards, Family and Community Disaster Preparedness: Guide for Training Families and Communities, Department of Social Welfare and Development.
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Integrating Disaster Risk Management in Local Governance
Materials Needed •
Spot map or base map of the barangay
•
Flip chart/easel paper or manila paper, different coloured markers or pencils
•
“Key Points” for distribution
•
Hazard Assessment Matrix for distribution
•
Summary of hazard assessment tools for distribution
Materials Needed for Distribution HAZARD ASSESSMENT MATRIX 1
2
3
4
5
6
7
What are the hazards
What are the forces
How do people
How rapid or slow is
How often does the
When or what
How long does a
that hit the
that can cause
know that a hazard
the approach of a
particular hazard
months does a
hazard last/stay?
community?
damage
is coming?
hazard from the first
occur?
particular hazard
What are other
– scientific or
signs to the
indigenous warning
destruction period?
possible threats?
signs (Forewarning &
(Disasters & Hazards)
normally occur?
(Force)
(Warning signs & signals)
42 Barangay Disaster Management Training Workshop
Speed of Onset)
(Frequency)
(When)
(Duration)
Module 3: Barangay Risk Assessment
Source: CBDRM Training Hand-outs, Center for Disaster Preparedness
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Integrating Disaster Risk Management in Local Governance
Module 3 Session 3: Vulnerability and Capacity Assessment Learning Objectives At the end of the session the participants should have: •
Described the elements-at-risk that can be damaged by the hazard (who, what, where, how many, how much?);
•
Analysed the factors and conditions for why the elements-at-risk can be damaged by the hazard;
•
Discussed how the community has coped with or prepared for hazards in the past and how they have survived disasters;
•
Identified capacities and resources present in the barangay and households which can be used for disaster risk reduction; and
•
Explained the process of conducting vulnerability and capacity assessment.
Key Points •
Vulnerability assessment is a participatory process to identify the elements-at-risk per hazard type, and to analyse the immediate and root causes of why these can be damaged.
•
Capacity assessment is a participatory study to understand how people cope with and survive in times of crisis and to identify resources which can be used to prepare for, prevent and/or reduce the damaging effects of hazards.
•
Various tools for vulnerability and capacity assessment can be used to enhance the participation of the community and key stakeholders, stimulate discussion, visualize and record assessment results.
Methods •
Group exercise:“Webbing”
•
Interactive lecture
•
Group work on actual vulnerability and capacity assessment
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Process •
“Web of Life”. Ask for a volunteer to play the role of Anna. Ask for 13 volunteers, who will form a circle. Anna will sit at the centre. Give the volunteers name plates for Hazard, Vulnerability, Development, Economic, Education, Gender, Culture, Health, Social, Location, Environment, Capacity and Political. Then pass around pieces of yarn to the volunteers who form a circle. As the “Web of Life” story is narrated and something related to their name plates is mentioned, the volunteers tie their yarn around Anna. After the story, ask Anna how she felt being tied up. Ask also what the volunteers and the participants observed and felt. Break the complex web of yarn by cutting the threads. Then, relate the exercise to the complex web of vulnerabilities and community problems, which disaster risk reduction seeks to untangle. See the “Web of Life” exercise at the end of this session.
•
Review with participants the concepts of vulnerability and capacity, learned from Module 4, Session 3.
•
Ask the participants who, what, where, how many, how much is usually damaged during disasters. Synthesize answers and discuss elements-at-risk. These are the people, households, houses, property, crops, livelihoods, community facilities, and the environments which may be damaged by the hazard. During vulnerability assessment, the elements-at-risk are analysed. Vulnerability assessment answers the questions: ¢ Who is at risk or can incur damage and loss? ¢ What are other elements-at-risk? ¢ What damage or loss can these people- or elements-at-risk suffer/incur? ¢ Why will these people- or elements-at-risk suffer or incur damage?
•
Explain that capacities are the strengths which individuals, households and the community possess. Capacities relate to resources, skills, knowledge, organizations and institutions, practices, attitudes and values. Coping refers to managing resources or survival strategies in adverse or crisis situations. Most notions of coping are positive, but it can also be negative if coping leads to increasing vulnerabilities such as sale of productive assets or engagement in anti-social or destructive activities such as prostitution and crime. For capacity assessment, these resources, strengths, coping/survival mechanisms and strategies are studied. Capacity assessment answers the questions: ¢ What are existing coping strategies and mechanisms during times of crisis? ¢ How have individuals, households and the community survived and responded to disasters in the past? ¢ What are the resources, strengths, local knowledge and practices that can be used for disaster preparedness, mitigation and prevention?
•
Vulnerabilities and capacities can be broadly categorized as physical/material, social/organizational and attitudinal/motivational factors and conditions. Refer to Sourcebook 3.3: “Categories and Factors For Capacities Vulnerabilities Analysis”.
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•
Distribute and discuss the tools for Capacity and Vulnerability Assessment.
•
Introduce the “Problem Tree” tool. Explain that one of the best tools for Vulnerability Assessment is the Problem Tree, wherein a current problem is analysed as to its causes and effects. The Problem Tree can probe deeper into the roots of vulnerabilities. This can also help identify preparedness and mitigation measures.
•
Explain that the “Gender Resources Map” is one of the recommended tools for capacity assessment. This is about mapping out the resources available in the community and identifying which resource is owned and managed by whom – by men or by women of by both.
•
In a plenary discussion, attempt to assess the vulnerability and capacity of the participants’ barangay, referring to the Hazard Assessment in the previous session. Use the Problem Tree and Gender Resource Map. Take note of the result as this will be validated with the community members during the fieldwork.
Duration: 2 hours
Tips for Facilitators •
Remember that it is important to recognize and build on existing capacities to avoid creating conditions of dependency. Even the poorest individual or family in the barangay possesses capacities.
Reading for Facilitators (See Sourcebook 3) 3.3
Categories and Factors for Capacities Vulnerabilities Analysis (Mary Anderson & Peter Woodrow, Capacity Vulnerability Assessment Workshop, Manila, 1992)
Materials Needed •
Story for “Web of Life” exercise
•
Flip chart/easel paper or manila paper, coloured markers or pencils, plastic sheets/cover for overlay on base map, yarn
•
Hazard map from previous session
•
“Key Points” for distribution
•
Visuals for summary of tools for vulnerability and capacity assessment for distribution
46 Barangay Disaster Management Training Workshop
Module 3: Barangay Risk Assessment
“Web of Life Exercise� shows complex web of vulnerabilities and community problems which disaster risk reduction seeks to untangle.
Instructions Thirteen volunteers are needed to form a circle in the middle of the room. Anna will stay at the centre of the circle. Each of the 13 persons shall hold one card with the following words written on each card: development hazard political capacity education culture environment
social location vulnerability health gender economic
As the case study is being read, the people in the circle are requested to raise their hands if a sentence or word has something to do or is attributed to one or more words written in the card. They can attribute as many words or sentences to as many of the 13 cards. Each time the audience attributes to any of the 13 cards, a yarn is connected between Anna and the word until the reading of the case study is finished.
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Integrating Disaster Risk Management in Local Governance
SYNTHESIS/PROCESSING OF WEBBING EXERCISE Reflect awhile on the activity, while looking at the “Web of Life”, which was just produced. The following questions may be asked: 1. What did we observe in the activity? 2. What are our insights from the activity? 3. How did the disaster affect the family? 4. How can a small programme or project impact this complex situation? 5. How are issues in the community related to disasters? 6. What is the relevance of CBDRM to this situation? Try to relate this short case example to the bigger picture THE CASE STUDY: Story of Anna Anna is an eight-year-old girl with kinky (curly) hair and black skin. At her age she is only a Grade One pupil. Anna is a polio victim. Being a polio victim and being a black-skinned Aeta , she usually is teased by her fair-skinned classmates. She was born at the foot of Mt. Pinatubo, a volcano. Her father is an upland farmer settler and her mother belongs to the Aeta tribe. Their house is constructed from cogon grass and bamboo. Anna’s family has been cultivating a small piece of land in the area. Their forefathers have been nurturing the land since time immemorial. A rich farmer was able to have the land of Anna’s family titled with the local registration bureau as Anna’s family had a different concept of land property right. Anna and her family do not know who owns their land. Their produce/harvest is not sufficient to feed the family of seven children. For additional income, her mother works as a laundry woman in the neighbouring town during dry seasons. Their place is about 10 kilometres away from the town and is not accessible to any type of vehicle except a water buffalo cart. There are no school facilities in the community. Anna has to walk three kilometres to reach the nearest school in the next Aeta village. During rainy seasons, Anna can not attend her class because the road gets muddy and the river overflows. Floods also affect drinking water sources during rainy seasons. One morning, Anna got sick and had a fever for almost a week. Anna's parents wanted to bring her to the hospital but they do not have the money to spend for hospitalization and medicine. The parents instead went to a "traditional healer" who performed some ritual to cure Anna. On June 12, 1991 Mt. Pinatubo erupted forcing her family to evacuate. Anna and her family stayed in a crowded evacuation centre. While at the evacuation centre, her family had a hard time looking for food to eat because government service was minimal. Anna prefers to eat root crops, but her family is forced to eat whatever food is given by the government and some NGOs from time to time. Some medical doctors were present and provided health services to the evacuees. The eruption covered their farm with ash and sand. Series of lahar flows, triggered by typhoons, completely buried her village. Anna’s parents did not know where to go or where to live and how to feed the family. The only work her father knew was farming.There was no other option, except to go to the resettlement project of the government. They were offered a house but they had to pay for the lot and cost of housing materials. The house would be beneficial for them, but the main problem was the means of livelihood. There was no land to till. There were no job opportunities in the resettlement area for her father who had only finished Grade Five. They decided to leave the resettlement project and they migrated to the city.They built a shanty along the riverbank. Anna’s father got some jobs from time to time as a labourer, helper and doing other odd jobs. Anna's mother worked as a housemaid. It has been 10 years now since Mt. Pinatubo erupted. Anna and her family are still poor. Anna never got to go back to school. 48 Barangay Disaster Management Training Workshop
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Materials Needed for Distribution
49 Facilitators’ Guide and Sourcebook
Integrating Disaster Risk Management in Local Governance
Module 3 Session 4: Barangay Disaster Risk Assessment Fieldwork Learning Objectives At the end of the session the participants should have: • Validated with the members of the community the result of the Hazard, Vulnerability and Capacity Assessment undertaken in the classroom and improved and revised it accordingly; and •
Raised awareness of the community on the disaster risks faced by the community and on the need to implement disaster risk reduction measures.
Key Activities •
Organizing and planning for the fieldwork
•
Orientation of the community on the purpose of the fieldwork
•
Data gathering and analysis using participatory tools with the members of the community representing various groups
•
Validation, reporting and synthesis
Process •
Preparation for fieldwork is undertaken long before the actual fieldwork by the facilitators and the barangay officials. The community should have been briefed as to the purpose of this fieldwork. This requires a lot of coordination with the barangay officials and with the community informal leaders. Date and time of the visit, venue for big and small group meetings and other logistical needs must be agreed. Preparation includes the grouping of the local people as resource persons for the participants during the data-gathering time. Grouping could be according to gender, age, occupation and institutions. It could also be mixed, but should ensure that men, women, children and the elderly are properly represented.
•
Before leaving for the field, organize the participants into data-gathering teams.
•
Instruct all the teams to study and use the sample Date-Gathering Plan and agree among each other on what data they should gather. Tell them not to forget to take with them the results of the classroom hazard, vulnerability and capacity assessment.
50 Barangay Disaster Management Training Workshop
Module 3: Barangay Risk Assessment
•
Run through the principles of community work regarding participation, proper behaviour and correct attitude in fieldwork. Remind the participants to be culture and gender sensitive with their constituents. Though they know each other well and though they are the recognized community leaders and officials, remind them that this time they are learners and this is an opportunity for gathering people’s perception of risk besetting the community. Also remind them to take the result seriously, as this will be the basis for community disaster risk reduction planning.
•
Agree which team will be assigned to particular groups.
•
Teams are composed of at least five members – lead facilitator, co-facilitator, two documenters and an observer. The barangay captain or designated official serves as the overall coordinator of the data-gathering teams.
•
The barangay captain or designated official should welcome everyone to this exercise and should reiterate the purpose of the fieldwork. It should be explained that though this is more of a field practice, the results will be used by the barangay for identifying risk reduction measures, therefore the barangay captain should encourage the participation of everyone.
•
After the general meeting, the teams go to their respective groups. In the small groups, the facilitators start the discussion, after a brief warm-up. As they discuss, the documenters take notes. Some of the information generated during the classroom exercise may or may not be validated. The documenters also take note of that. Participatory tools are used, ensuring that people participate in the discussion, drawing, sketching, etc. At the end of each meeting, the facilitators summarize the findings and ask if there are any corrections.
•
After the small group meetings or activity, all the teams meet in general, tabulate and put the result in the suggested community risk assessment format. It should be presented to the community for more discussion and general synthesis
•
After thanking the community, the whole group goes back to the classroom setting.
•
After getting back to the training venue, discuss the process and results of the community risk assessment. Learn from the field practice by pointing out what went well and what went wrong during the activity.
Duration: 4 hours
Tips for Facilitators •
During the fieldwork, the classroom data/information from the Hazard Assessment and Vulnerability and Capacity Assessment sessions are validated by the rest of the members of the community.
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•
Assign facilitators for the fieldwork who are good at involving people in the discussion.
•
This is the opportunity for the participants to practise the tools that they have read and learned.
•
The participants should familiarize themselves with the materials on “Data-Gathering Plan for Community Risk Assessment” and the “Suggested Format for Community Risk Assessment”. This should be distributed at the beginning of the module. Read also Sourcebook 3:4 “Guidelines for Elaborating a Community Risk Map”. The guideline can help in briefing and preparing the participants for the fieldwork.
Reading for Facilitators (See Sourcebook 3) 3.4
Guidelines for Elaborating a Community Risk Map by René Martorell and Rocio Sáenz, UNISDR Latin America & the Caribbean http://www.crid.or.cr/crid/CD_EIRD_Informa/ing/No3_2001/Pagina15.htm
Materials Needed •
Spot map of the barangay
•
Result of the classroom exercise on hazard, vulnerability and capacity assessment
•
Flip chart or manila paper
•
Coloured pens, pencils, crayons
•
Bond or coloured paper
•
Clay, seeds, sticks, stones
•
Sample Data-Gathering Plan for Community Risk Assessment for distribution
•
Format on Synthesis of Community Risk Assessment for distribution
Materials Needed for Distribution Sample Data-Gathering Plan for Community Risk Assessment INFORMATION NEEDS
TOOLS
What data is needed to gather for Hazard, Vulnerability, Capacity Assessment and people’s perception of their disaster risk?
Which tools can be used to collect the needed information?
INFO SOURCE/ INFORMANT
From whom or where will we collect the data (sources)?
52 Barangay Disaster Management Training Workshop
SCHEDULE/ SEQUENCE
When will you apply tools (start, middle or end)? Arrange tools according to sequence
WHICH TEAM? WHO DOES WHAT? ASSIGNMENT TASKING AMONG TEAMS WITHIN TEAM Which team will do what?
Who does what? Who within each team will do what? (facilitator, documenter, process observer, etc.)
Module 3: Barangay Risk Assessment
Suggested Format on Synthesis of Community Risk Assessment Hazard
Vulnerable Conditions and Factors Elements-atrisk (details of who, what, where damages or loss can occur)
Immediate cause Elements-atrisk/can be damaged
Long-term factors and causes
Capacities of Individuals, Households, Community Capacities of men
Capacities of women
Capacities of children
Community capacities
Typhoon
Flooding
Landslide
Earthquake
53 Facilitators’ Guide and Sourcebook
Module 4 Barangay Risk Reduction Planning
Module 4
Module 4
BARANGAY RISK REDUCTION PLANNING
Summary This module has three sessions about barangay disaster risk reduction planning. The main objective of this module is for the participants to appreciate the value of taking the course of their present and future safety into their own hands through planning and implementing risk reduction measures. It directs the participants on how to plan in a step-by-step approach. A planning workshop, wherein the participants will draft a risk reduction plan, is the highlight of this module. Session 1: Identifying Risk Reduction Measures Session 2: Introduction to Barangay Disaster Risk Reduction Planning Session 3: Planning Workshop
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Module 4 Session 1: Identifying Risk Reduction Measures (Using the Results of Barangay Risk Assessment) Learning Objectives At the end of the session the participants should have: •
Explained the process of identifying and prioritizing risk reduction measures; and
•
Identified risk reduction measures for particular hazards based on the barangay risk assessment results.
Key Points •
Risk reduction measures or disaster risk management activities are interventions, strategies and activities to reduce people’s vulnerabilities and strengthen their capacities.
•
Steps to follow in identifying adequate and appropriate disaster risk reduction measures should always begin by using the results of the barangay risk assessment.
Methods •
“Untangling Exercise”
•
Sharing of cases on disaster risk reduction measures
•
Interactive lecture
Process •
Group participants into three groups. Ask each group member to grasp with his/her right hand a hand of a participant and with the left hand a hand of another participant. Make sure that no participant is holding on to the right and left hands of just one person. Instruct the participants to untangle without letting go of each other’s hands and then form a circle. Ask the groups which were able to form a circle how they accomplished this. If a group was not able to do the task, ask why not. Relate the exercise to the complex web of vulnerabilities that has to be addressed to reduce disaster risk.
•
Define risk reduction measures as interventions, strategies and activities to reduce people’s vulnerabilities and strengthen their capacities. These are also commonly referred to as disaster preparedness, mitigation and prevention activities.
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•
Review the past learning by asking the participants,“how do we identify adequate and appropriate disaster risk reduction measures”? The key steps, some of which they have already learned and practised, are: ¢ Identify the hazard; ¢ Determine the elements-at-risk (people, property, community facilities, livelihood sources, environment, etc.) and the possible damages; ¢ Identify existing coping strategies and resources; ¢ Identify measures to reduce vulnerability of elements-at-risk; and ¢ Prioritize and/or select risk reduction measures.
•
Participatory tools can also be used in this Process. If a “Problem Tree”was made during risk assessment, convert the Problem Tree into a Solution Tree. If there are several options, a simple show of hands or ranking and scoring can be done to prioritize measures.
•
Share some cases of relevant prevention and mitigation measures to work out what may be the appropriate system and structure for the barangay. Stress the importance of formulating and enforcing local legislation in accordance with the municipal land use plan, disaster risk reduction and development plans. Refer to Sourcebook 4.1: “Identifying Risk Reduction Measures”.
•
Based on the results of the barangay risk assessment, give short inputs on preparedness measures such as hazard monitoring and early warning systems, communication protocols, evacuation procedures and evacuation centre management. Refer to Sourcebook 4.2: “From Risk Mapping to Preparedness & Mitigation Planning;” 4.3: “Early Warning;” and 4.4:“Evacuation”. Also discuss the roles and responsibilities of the barangay captain and the disaster coordinating council and committees. Refer to Sourcebook 2.6: “Local Disaster Coordinating Councils”. (Note that resource persons on specific preparedness measures can be invited to speak on certain subjects.)
•
Give examples of relevant mitigation and prevention measures for hazards in the barangay. Measures such as public awareness campaigns including contests and activities with school children and youth help in mitigating disasters. Refer to Sourcebook 4.5: “Public Awareness”. Also discuss opportunities for sustainable livelihood, community health and nutrition, community reforestation, and community clean-up of their surroundings and waterways through partnerships with various stakeholders. (Note also that you can invite people with expertise to give inputs on certain mitigation and prevention measures.)
•
Distribute the materials for hand-outs,“Examples of Activities for Prevention, Mitigation, Emergency Response and Recovery Measures at the Barangay Level”.
•
Briefly introduce the framework for reducing risks, which was agreed upon by the countries around the world. Refer to Sourcebook 4.6: “Summary of the Hyogo Framework for Action”.
•
Answer questions and summarize key points discussed.
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Duration: 3 hours
Tips for Facilitators •
Risk reduction measures to be adequate and appropriate should: ¢ Address or correspond to elements-at-risk ¢ Be from the community perspective ¢ Strengthen community coping strategies and capacities ¢ Not lead to or create other vulnerabilities
•
Risk reduction measures ensure public safety, protect community development, and contribute to achieving community resilience and development.
Reading for Facilitators (See Sourcebook 4) 4.1
Identifying Risk Reduction Measures, CDP CBDRM Training Hand-outs
4.2
From Risk Mapping to Preparedness and Mitigation Planning, Isaias Panganiban & Cedric Daep
4.3
Early Warning, CDP Hand-outs
4.4
Evacuation, CDRC DPT Hand-outs
4.5
Public Awareness, CDP CBDRM Training Hand-outs
4.6
Summary of the Hyogo Framework for Action 2005-2015: Building the Resilience of Nations and Communities to Disasters, Outcome of the World Conference on Disaster Reduction, Hyogo, Kobe, Japan, 18-22 January 2005, www.unisdr.org/wcdr
Materials Needed •
Visual aids for interactive discussion
•
Case stories of relevant preparedness and mitigation measures
•
Examples of Activities for Prevention, Mitigation, Emergency Response and Recovery Measures for distribution
•
“Key Points” for distribution
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Module 4: Barangay Risk Reduction Planning
Examples of Activities for Prevention, Mitigation, Emergency Response and Recovery Measures at the Barangay Level a. Before the disaster – prevention, mitigation and preparedness •
Some examples of prevention and mitigation measures: ü Structural measures: dikes, dams, drains, sea walls, raising of roads and houses, earthquake resistant construction, permanent houses ü Non-structural measures: ¢ ¢
¢
¢
¢ ¢
¢ ¢ ¢
•
Safety measures Community health and sanitation (improving nutrition, keeping the community clean, immunization, herbal gardens, training of community health workers) Strengthening livelihood and economic activities (sustainable agriculture, income generating projects, handicrafts, marketing cooperatives) Planting coastal shelter belts, for example with coconut trees, mangrove reforestation Building codes Legislation supporting community-based disaster management and environmental protection Savings Insurance Policy study and advocacy
Some examples of preparedness measures: ü Individual, family and community preparedness measures: knowing what to do before, during and after a disaster. ü Disaster preparedness training ü Community early warning system ü Public awareness activities: public awareness campaigns such as community
meetings and house-to-house information dissemination, posters and pamphlets, poster-making contest for school children, disaster consciousness day/week/month ü Formulation of community counter disaster plan or disaster management plan ü Formation and strengthening of community disaster management organization ü Evacuation drills and disaster simulation exercises ü Strengthening coordination, networking and institutional arrangements ¢ ¢
Ensuring availability of relief supplies (stockpile) and logistics Evacuation
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b. During a disaster – emergency responses
•
Some examples of emergency responses: ü Evacuation and evacuation centre management ü Search and rescue ü First aid and medical assistance ü Damage Needs Capacity Assessment ü Relief delivery (food and drinking water, clothing, blankets, kitchen utensils, etc.) ü Psycho-social counselling (comforting, prayers, critical stress debriefing) ü Repair of critical facilities and services ü Emergency Operations Centre (for major disasters)
c. After the disaster – recovery: rehabilitation and reconstruction
•
Some examples of recovery activities: ü Cleaning-up the debris ü Rebuilding and strengthening of damaged structures ü Relocation to safe place ü Income-generating projects
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Module 4: Barangay Risk Reduction Planning
Module 4 Session 2: Introduction to Barangay Disaster Risk Reduction Planning Learning Objectives At the end of the session the participants should have: •
Explained the importance of the barangay disaster risk reduction plan;
•
Described the process in crafting the barangay disaster risk reduction plan; and
•
Identified the main parts of the barangay disaster risk reduction plan.
Key Points •
Planning unites the barangay/community in commitment and action to reduce disaster risk.
•
The disaster risk management plan (risk reduction plan) is a blueprint or guide in charting the barangay’s progression to safety, disaster resilience and community development.
•
In planning, there are key sequential steps.
•
Disaster Risk Management Plan content and format corresponds to the results of the key planning steps.
Methods •
Group work:“Building our house”
•
“Planning Sequence”
•
Interactive lecture
Process •
Divide participants into four groups. Ask members of each group to form a line. Instruct the groups that each member will have a quick chance to draw one line to contribute to drawing or building a house without prior briefing and discussion with the group members. The line can be horizontal, diagonal, vertical, long or short. After all the groups have finished, ask for comments about the quality of the house drawn by each group. Would they like to live in such a house? Why and why not? Draw lessons from the exercise by asking the participants what should be the process and requirements in building the house to ensure the quality and occupants’ specifications.
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•
Relate the “building a house” exercise to the “Planning Sequence”. Prepare four sets of the planning steps on different coloured paper, one colour for each set. Separate participants into four groups. Have participants discuss the planning steps and put them in sequence, each step following the other from start to end. Have all groups post their answers on the board or walls, with one group reporting on the results of their group work while the other groups compare their outputs. Use the results to briefly enumerate the key steps in formulating the Disaster Risk Reduction Plan: ¢ Barangay Risk Assessment ¢ Identify objectives and targets (aims and goals) ¢ Identify risk reduction measures (strategies in the pre-, during emergency, post-disaster phase) ¢ Determine resources needed ¢ Assign responsibilities for activities ¢ Determine schedules and deadlines ¢ Lay down operational policies and procedures ¢ Identify and address critical elements and barriers to plan implementation ¢ Discuss with and gather commitment and support of community members and other stakeholders ¢ Implementation, period review and plan improvement ¢ Continued progress in ensuring public safety, building community resilience and attaining sustainable and equitable community development
•
Ask the participants, why plan, what to plan, and how to plan. Explain that if risk assessment unites the community in understanding their risks (hazards, vulnerabilities, capacities), elements-at-risk and why they are at risk, and local coping strategies and resources, then the plan unites the community in commitment and actions to reduce these risks.
•
Explain that the disaster risk reduction plan is a blueprint or guide in charting the barangay’s progression to safety, disaster resilience and community development. Using the results of the risk assessment, explain that the plan contains measures and activities to reduce vulnerabilities and increase capacities. The plan can also be called disaster preparedness and mitigation plan, community counter disaster plan, or even community development plan (when these measures to address vulnerabilities and strengthen capacities are integrated in the barangay development plan).
•
Briefly discuss the parts of the Barangay/Community Disaster Risk Management Plan (CDRMP), which include: ¢ Brief description of the community: location, population, livelihood, community in relation or significance to other villages ¢ Disaster situation (summary of Disaster History and Risk Assessment Results) ¢ Objectives and targets of the CDRMP ¢ Strategies and activities for risk reduction ¢ Roles and responsibilities (and organizational structure as needed) ¢ Schedules and timetables – including target completion dates ¢ Annexes (Risk Assessment Maps, list of community residents, directory of organizations and important contacts, list of members of the community disaster response organization, organizational procedures and policies, evacuation plan,
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•
•
Emergency Operation Centre policies, etc.) Explain the following characteristics of a good plan: ¢ Plans must be clear. Aims must be positive, clear and precise. ¢ Plans must be flexible. Events will seldom go exactly as anticipated. Planning data and assumptions will never be absolutely correct. ¢ Ensure there is an effective management information system. Good information is fundamental to sound planning and effective response. ¢ Continuity in management is essential. Wherever possible adhere to the existing organizational structure. ¢ Make maximum use of all resources. Planning is a cooperative effort. ¢ Create and maintain reserves. If the inventory of resources precisely matches the anticipated workload, there will not be enough. Always create and maintain reserves for the unexpected. ¢ Coordinate at all levels and at all stages. ¢ Train and practise regularly, not just once. Practise plans to: - identify and correct weaknesses in them - validate and evaluate; the lessons which have been learned can be applied in future plans. Answer questions and summarize key points discussed in this session. Refer to Sourcebook 4.7: “The A to Z of Facilitating Community Planning”.
Duration: 1 hour
Tips for Facilitators •
Risk reduction involves developing prevention, mitigation and preparedness plan. The plan addresses general or specific hazards and vulnerabilities.When there are signals of an impending emergency, however, there should be a specific plan to address this particular threat. Such a plan is called a contingency plan. NDCC and UNHCR have published the Contingency Planning for Emergencies: A Manual for Local Government Units in May 2003. This is available for download from the NDCC web site www.ndcc.gov.ph.
Reading for Facilitators (See Sourcebook 4) 4.7
“The A to Z of Facilitating Community Planning”, Nick Wates, Community Planning Handbook, http://www.communityplanning.net/principles.htm
Materials Needed • •
Kraft paper and coloured pens or blackboard and chalk Visual aids for interactive discussion
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Module 4 Session 3: Planning Workshop Learning Objectives At the end of the session the participants should have: •
Drafted an initial action plan that is good for at least six months.
Key Point •
Three hours is not enough to formulate a plan. What is important is that the participants undertake a process of discussion and deliberation to incorporate most of the things that they have learned into the draft plan. It is a must that the participants come up with a draft action plan. The sample format for Summary CDRMP can be used.
Methods •
Going back to the “Our Transportation” exercise
•
Group work
•
Plenary presentation and critique
Process •
“Our Transportation”: Ask the participants to recall the envisioned vehicles they drew in Module 2 Session 2: “Disaster Management Responsibilities of the Barangay” and ask them to go back to their groups that drew the vehicles. Ask them to concentrate on the future vehicle they drew and instruct them to improve or revise it based on what they have learned. This time they should be more realistic. They can replace the vehicle, if they want to.
•
Use this exercise to prepare the participants to make a disaster risk management action plan which will form part of their barangay disaster risk management plan. They should be able to translate elements into an action plan that can be realistically implemented in the short term, say 6 to 12 months.
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•
Remind participants that objectives should be SMART – Specific, Measurable, Agreed Upon/Achievable, Realistic, Time-Bound.
• •
After all groups have made visuals of their reports, have each group present and make comments on the plans. After the discussion of what should and should not be included, detail how the plan can be integrated, who will be responsible, by when, and who should receive copies of the plan.
•
Summarize the session.
Duration: 3 hours
Tips for Facilitators •
Give importance to the following points in giving comments to the disaster risk management action plan: ¢ Ensure that the plan is based on community risk assessment and perceived needs of the community ¢ Have a mix of short-term, medium- and long-term disaster management activities to reduce vulnerabilities and increase capacities ¢ Anticipate critical parts and work out solutions ¢ Conduct a community drill or disaster simulation exercise to practise the plan ¢ Have periodic review and improvement of the plan
Materials Needed •
Kraft papers and Pentel pens
•
Visual aids
•
Sample: Summary Community Disaster Management Action Plan Format
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Sample: Summary Community Disaster Management Action Plan Format (Timeframe January-June 2007) Objectives: To reduce the risk for typhoons and attendant risks Hazard: Typhoons, flooding, landslides, river erosion and health-related risks
ELEMENTS AT RISK
ACTIVITIES
SCHEDULE/ TIMETABLE
Before Disaster 1. 2. 3. 4. During Disaster 1. 2. 3. 4. After Disaster 1. 2. 3. 4.
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RESOURCES RESPONSIBLE EXISTING
TO LOOK FOR
SUPPORT AGENCY
Closing Activities
Closing Activities
Closing Activities Summary Closing activities provide the participant a closure for the training. Closing includes summarizing the whole training course, asking the participants if they have any more questions, and responding to questions, if any. The participants have the opportunity to evaluate the course. The highlight of the closing is the distribution of certificates to all who have completed the course.
Objectives 1. Formally conclude the training 2. Summarize the training course 3. Evaluate the course 4. Distribute certificates
Methods 1. The facilitators should be creative in concluding the training. After finishing the last module, the whole course should be summarized. It can be done by the participants themselves through creative presentations. 2. If this is the case, group the participants into three groups and ask them to present what they have learned during the four-day training in a creative way. The presentation could be in the form of drama, songs, debate, discussion or straight reporting. 3. Acknowledge the efforts of each group and clarify if there are wrong concepts. Ask if there are things that need more clarity and be prepared to discuss issues if there are more questions. 4. If everything is clear, then proceed to the evaluation of the course. This time the participants will have the opportunity to evaluate in writing the course programme, content and methodology, the facilitators and the logistical arrangement. The purpose of this evaluation is for everyone to know how to run it the next time in an improved manner.
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5. After collecting the evaluation forms, a closing ceremony follows. Like the opening, it could be formal or informal. There could be invited guests from the municipality or city to deliver the closing speech and inspirational talk. If not, the facilitators and organizers can proceed with the distribution of certificates. 6. A closing speech should be delivered by the barangay captain or his representative to thank the facilitators and the participants.
Duration: 2 hours
Materials Needed 1. Evaluation form 2. Closing programme (optional) for distribution 3. Certificates of completion
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Part 2: Sourcebook
PART 2 Sourcebook
Opening Activities
Sourcebook Reference for Opening Activities
Sourcebook
REFERENCES FOR OPENING ACTIVITIES
0.1 EXAMPLE OF A TRAINING DESIGN for the Barangay Disaster Risk Management Training Workshop
Target Participants: Thirty participants representing the following: 1. Barangay Council and Barangay Disaster Coordinating Council (BDCC) 2. People’s Organization (Pastoral Council, Women‘s Organization, Farmer‘s Association, Youth Organization) 3. Churches 4. Business Sector 5. Education Sector
Facilitators Depending on the local disaster context and disaster preparedness capabilities, multidisciplinary team could be composed, for example, of trainer(s) from the Department of Interior and Local Government (DILG), Municipal Planning & Development Officer, Municipal Disaster Action Officer, Municipal Social Welfare Officer, Barangay Council/BDCC, and resource persons from PAGASA, PHIVOLCS, OCD, Mines and Geosciences Bureau (MGB), and NGOs.
Duration: Four days
Training Objectives General objective To enhance the capacity of Barangay officials and selected community members in disaster management to: •
ensure “zero casualty” in times of emergency; and
•
contribute to public safety, disaster resilience and community development.
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Specific learning objectives At the end of the four-day training workshop, the participants should have: 1. Explained the basic concepts of disasters and disaster risk management; 2. Related the implementation of disaster risk management to achieving good, responsive and effective governance; 3. Assessed the hazards, vulnerable conditions and capacities of the community; and 4. Formulated a draft disaster management action plan.
Training Modules To meet the training objectives, the Barangay Disaster Risk Management Workshop is composed of four key modules, as follows: 1. Module 1 for Learning Objective 1 – Introduction to Disaster Risk Management Concepts 2. Module 2 for Learning Objective 2 – Barangay Governance and Disaster Risk Management 3. Module 3 for Learning Objective 3 – Barangay Hazard,Vulnerability and Capacity Assessment 4. Module 4 for Learning Objective 4 – Barangay Disaster Risk Management Planning
PROGRAMME OF ACTIVITIES (can vary according to training context)
Day 1
OPENING ACTIVITIES - Invocation, national anthem and provincial song - Messages - Introduction of participants and facilitators - Participant expectations, training objectives and programme - Schedules, ground rules and technical arrangements MODULE 1: INTRODUCTION TO DISASTER RISK MANAGEMENT CONCEPTS - Local Disaster Experiences and Responses - National Disaster Situation and Philippine Disaster Management System - Understanding Disasters and Disaster Management
Day 2
MODULE 2: BARANGAY GOVERNANCE AND DISASTER RISK MANAGEMENT - Barangay Governance - Disaster Management Responsibilities of the Barangay - Relevant Laws and Regulations
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Sourcebook: References for Opening Activities
Day 3
MODULE 3: BARANGAY HAZARD,VULNERABILITY AND CAPACITY ASSESSMENT - Introduction to Barangay Risk Assessment - Hazard Assessment - Vulnerability and Capacity Assessment - Fieldwork/Barangay Watching and Analysis of Results
Day 4
MODULE 4: BARANGAY DISASTER RISK MANAGEMENT PLANNING - Introduction - Preparedness Measures - Mitigation Measures - Barangay Action Planning Workshop CLOSING ACTIVITIES
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0.2 EXAMPLE OF A FOUR-DAY WORKSHOP SCHEDULE BARANGAY DISASTER MANAGEMENT WORKSHOP
MODULE
TOPIC/SESSION
METHOD
DURATION
DAY 1 OPENING ACTIVITIES
MODULE 1
MODULE 2
1 hour
Opening Programme
Prayer, national anthem, provincial song, messages
Introductions and Expectations Check
Buzz session, posting metacards, plenary
Training Design
Facilitated discussion
Contracting and Technical Arrangements
Facilitated discussion
INTRODUCTION TO DISASTER MANAGEMENT
2 sessions
2 hours
Local and National Disaster Situation and Philippine Disaster Management System
“Pin the Disaster!” PowerPoint presentation or paste-ups Interactive lecture
1.5 hours
Understanding Disasters and Disaster Management
Debate or “Typhoon, Earthquake, War” Interactive lecture
3 hours
BARANGAY GOVERNANCE AND DISASTER MANAGEMENT
3 sessions
3 hours
Barangay Governance and Disaster Risk Management Responsibilities
Group work: “The highest tower” or “Good governance is…” Interactive lecture
1.5 hours
Relevant Laws and Regulations (Laws, policies and procedures)
Buzz session: “Frequently asked questions” and “Matching type” Interactive lecture
1.5 hours
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Sourcebook: References for Opening Activities
BARANGAY DISASTER MANAGEMENT WORKSHOP (Continued)
MODULE
TOPIC/SESSION
METHOD
DURATION
DAY 2 MODULE 3
BARANGAY RISK ASSESSMENT
4 sessions
7.5 hours
Introduction to Barangay Risk Assessment
Exercise: What do you see? Interactive lecture
0.5 hours
Risk Assessment: Nature and Behaviour of Common Hazards in the Locality
Resource inputs from municipal government, PAGASA, PHIVOLCS, MGB (check availability and/or secure materials)
2 hours
Hazard Assessment
“Feel, Hear, See” group work Interactive lecture
1.5 hours
Vulnerability and Capacity Assessment
“Untangling Exercise” group work Interactive lecture
1.5 hours
Barangay Disaster Risk Assessment Fieldwork and Analysis
Barangay watching Fieldwork and analysis
2 hours
BARANGAY RISK REDUCTION PLANNING
3 sessions
8 hours
Introduction to Disaster Risk Reduction Planning
“Building our house” Interactive lecture
0.5 hours
Preparedness Measures: Hazard Monitoring, Early Warning System, Communication Protocols, Evacuation
Demonstration Case stories Interactive lecture
2.5 hours
Preparedness and Mitigation Measures: Public Awareness, Organizational Strengthening, Training, Indigenous and Appropriate Technologies
Demonstration Case stories Interactive lecture
2.5 hours
Planning Workshop
Action planning Plenary presentation and comments
2 hours
CLOSING ACTIVITIES
Certificates of participation acknowledgements
0.5 hours
DAY 3 MODULE 4
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0.3 DIFFERENT WAYS OF INTRODUCTION AND GENERATING EXPECTATIONS (from various sources)
Introduction To make the introduction lively and to build rapport at the very beginning of the training, here are some ideas from which the facilitators can choose from: •
Participants think of an adjective which starts with the first letter of his/her name to describe him/herself, or which describes qualities which s/he has or wants to have in relation to disaster risk management. “I am Abraham, I am Able”;“I am Peter, I want to be Prepared!”
•
Have participants make their own name tags using coloured paper or cards. Each participant then explains why s/he chose to use the particular shape, colour or name.
•
Each participant introduces him/herself to the group citing a personal characteristic which he/she wants the group to remember.
•
A ball of paper (or ball or orange) is thrown to each participant in the circle who introduces him/herself as in the above item. Aside from introducing him/herself the participant in turns also introduces those who had already introduced themselves earlier in the ball game.
Illustration from “Creative Training” by IIRR, VSO and PEPE
•
Participants look for an object in the room or immediate surroundings that symbolizes themselves with regards to experience in disaster or disaster risk management. “This is a blank paper. My house was washed out during the flash flood and my son is still missing. The blank sheet of paper symbolizes my desire to fill myself with information on how to prevent another tragedy from happening to our family.” “This is a picture of my son. It is always in my wallet even if he is now dead. It is so painful!”
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Sourcebook: References for Opening Activities
•
Participants are paired and interview one another about personal and work information. Each introduces his/her partner to the group. “This is my colleague Art, he is ….”
•
Participants draw self-portraits, write their names on the portrait and explain their drawing.
•
Each participants uses their body to gesture the spelling of their name.
•
Participants add phrases to the following as a way of introducing themselves and their feelings, expectations and contributions to the training: “I am _________. I am ____.” “I have ____.” “I can ____.” “I will ____.”
Expectations Check The following are suggested ways to generate expectations from the participants: •
“Bus Stop” (BS). Prepare four sheets of writing paper for each of the following questions: BS 1: BS 2: BS 3: BS 4:
What do you expect from the training? What can facilitate your learning and active participation? What can hinder your learning and active participation? What can you contribute to the success of the training?
Post the sheets of paper around the room as Bus Stop 1, 2, 3 and 4. Divide the participants into four groups. Assign a sequence to each group to put their answers on the papers, such as BSs 1234, BSs 2341, BSs 3412, BSs 4123. •
Discuss and summarize the expectations of the participants. Compare the expectations with the training objectives, content, methods and schedule. Run through what expectations can be covered by the training and what is not within the scope of the training.
•
Make adjustments to the prepared Training Design as necessary based on the results of the Expectations Check.
•
“Board Work”. For the same questions as above, ask participants to write their answers on coloured paper or meta cards. Use one colour for each question. Ask participants to post their answers for each question on the board or wall. Discuss answers and relate to the Training Design.
•
A ball of paper (or small ball or orange) is thrown to each participant in the circle who introduces his/herself and answers the same questions as in the above.
•
The facilitator takes notes on the board of the expectations. When all participants are finished, the facilitator discusses the answers and relates them to the Training Design.
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•
The participants add phrases to finish the sentence as follows: ¢
¢
¢
¢
I want to improve my knowledge, skills and attitude on ____. I will contribute my _____ (knowledge, time, skills, attention, etc.) to make this training successful. I want my co-participants to be ______ to make this training fruitful and successful. I will learn better and participate well in this training if the facilitator uses the following methods and approaches _______.
Sources 1. Participatory Learning & Action: A Trainer’s Guide by J. Pretty et al, 1995. 2. Training for Transformation: A Handbook for Community Workers Book 2 by Hope and Timmel, 1986.
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Sourcebook: References for Opening Activities
0.4 PARTICIPATORY AND LEARNER-CENTRED TRAINING (Various Sources)
“If you are thinking a year ahead – sow a seed; If you are thinking ten years ahead – plant a tree; If you are thinking one hundred years ahead – educate the people” Kuan Tzu, Chinese Poet
Introduction Learning is the process of acquiring new ideas, knowledge, skills and attitudes to effect change in behaviour and/or performance. When learners enter the session room, they bring along: •
Their wealth of experience, knowledge and skills
•
Their own beliefs, values and convictions
•
Their own perceptions, biases and feelings
Learners are motivated, not passively taught to seek knowledge, skills and behaviour. The learner is the richest resource in the learning process.
Key Principles •
No education is ever neutral. It is either designed to maintain the existing situation or designed to liberate people.
•
Relevance means that issues are of importance NOW to participants. People will act on issues about which they have strong feelings.
•
Problem-posing. The whole point of education and development is seen as a common search for solutions to problems.
Laws of Learning •
Law of Readiness: People learn more easily if they are interested and have the desire to learn.
•
Law of Effect: People learn quickly, retain longer and tend to repeat those things for which they can see and use and which give them satisfaction.
•
Law of Association: Every new fact, idea or concept is best learned if the learner can relate it to something he/she already knows.
•
Law of Exercise: Constant repetition/practice increases the probability of learning/retention.
•
Law of Stimulation: People learn when their senses are stimulated and when mental and physical responses are made to the stimuli.
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Principles in Adult Education •
No one directly teaches adults anything. What is taught should have a meaning for adults and should be relevant to their needs and problems.
•
While adult learners want to be independent, they also enjoy functioning interdependently. Learning is a cooperative and collaborative process.
•
Learners have feelings as well as thoughts. Learning is maximized when the words learners say reflect what they think and feel.
•
People learn best as a result of experience.
•
Learning is an evolutionary process. Learning is not imposed. It is a developing and evolving process.
Learning Cycle Learning is the transformation of information into useful knowledge. An effective approach when facilitating group activities includes: DO, DISCUSS, and APPLY. When facilitating group activities, learners should DO the activity, DISCUSS it by answering questions (such as,“What happened during the activity?”), and APPLY by discovering how the learning points apply to the job and to real life.
1. Direct Experience (Activity)
2. Reflecting on Experience (Analysis)
4. Application
3. Generalization about Experience 3. Generalization about Experience
•
The Experience: The learner uncovers new information that requires a response on his or her part.
•
Reflecting on the Experience: The learners sort out and analyse the information developed in the experience phase.
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•
Generalizing about the Experience: The learner interprets what the information means and determines what lessons can be learned and what principles can be drawn.
•
Application: The learner relates the new learning to his or her own life situation. The learner makes the connection between the training setting and the real world. This link can be strengthened through practice and planning for application after training.
Important Conditions in Learner-Centred Training •
Non-threatening climate
•
Atmosphere of openness
•
Cooperative evaluation and self-evaluation.
Implications •
Activities conducted in small break-out groups encourage shy or withdrawn individuals to participate. If managed effectively, break-out groups can encourage discussion, promote teamwork, and divert the focus from a dominant participant.
•
Seating arrangements impact learner behaviour. Ensure accessibility and visibility to other participants and to the facilitator in a u-shape or fan-style arrangement to encourage discussion and interaction.
•
Experiential and exploratory learning allows the learner to be self-directed and the facilitator acts as a resource for the learner.This type of training is useful when the learner is highly motivated and has strong content knowledge.
Education and Training Education is a long process that is wide-ranging in its scope and purpose. It is concerned with the process of individual development in intellectual, moral and social terms.
ATTITUDES
KNOWLEDGE
SKILLS
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Training activities have clear aims to equip persons to become more effective in their work through the development of the necessary knowledge, skills and attitudes leading to changes in behaviour. In culinary terms, education can be regarded as a nutrition guide, whereas training can be likened to a cookbook.
Facilitating a Positive Setting During the Training •
Provide learning objectives and an agenda
•
Establish ground rules or group guidelines
•
Provide comfortable seating and a place for participant materials
•
Ensure the room temperature is comfortable
•
Use fan-type or u-shape seating to allow for interaction, easy viewing of audio-visuals, and application of group work
•
Incorporate various delivery methods and minimize overuse of media
•
Actively involve learners – use case studies, role-plays, games, brainstorming, exercises, participative discussion, simulations
•
Allow for periodic breaks, adhere to start and end times
•
Acknowledge all responses and contributions
•
Reinforce positive behaviour
•
Value diversity
Sources •
Training of Trainers in Disaster Management Course, Center for Disaster Preparedness
•
Training of Trainers for Disaster Management Course, Ian Davis, Cranfield University
•
Human Resources Development Course, Ateneo University.
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Reference for Module 1
Sourcebook 1
Sourcebook 1
Sourcebook 1
REFERENCES FOR MODULE 1– INTRODUCTION TO DISASTER RISK MANAGEMENT
1.1 THE PHILIPPINE DISASTER SITUATION (Office of Civil Defense, NDCC) The Philippines is a country frequently affected by disasters. It is located in the western rim of the Pacific Ocean, the most geologically active part of the Earth, which is occupied by an ocean-circling belt of active volcanoes and earthquake generators. It is also located between two large bodies of water: the Pacific Ocean and the South China Sea, where tropical cyclones develop. Aside from the occurrence of most forms of natural hazards, factors such as current trends in industrialization, the level of economic development, rapid population growth, the pattern of human settlement and environmental degradation have all increased the country’s vulnerability to disasters. For the period 1995-2004, the NDCC was able to monitor and manage 3,023 disaster events, such as: 2,290 human-induced events; 84 destructive tropical cyclones; and 649 other natural hazards. A total of 172 tropical cyclones entered the Philippine area of responsibility. Other natural hazards monitored included floods, baby tornadoes, landslides, heavy rains, earthquakes, volcanic eruptions, drought and El Nino phenomena. Man-made incidents, which included fire, explosions, air, sea and road accidents, disease outbreaks and complex emergencies, were also monitored.
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1.2 THE PHILIPPINE DISASTER MANAGEMENT SYSTEM (Office of Civil Defense, NDCC) The Philippines had a legal framework for disaster management as early as 1978. It is known as the Presidential Decree (PD) 1566 “Strengthening the Philippine Disaster Control Capability and Establishing the National Program on Community Disaster Preparedness”. It was issued on 11 June, 1978.
PD 1566 – Disaster Management Doctrines: •
Self-reliance shall be developed by promoting and encouraging the spirit of self-help and mutual assistance among local officials and their constituents;
•
Each political and administrative subdivision of the country shall utilize all available resources in the area before asking for assistance from neighbouring entities or higher authorities;
•
The primary responsibility rests on the government agencies in the affected areas in coordination with the people themselves;
•
It shall be the responsibility of all government departments, bureaus, agencies, and instrumentalities to have documented plans of their emergency functions and activities;
•
Planning and operation shall also be done on the Barangay level on an inter-agency, multi-sectoral basis to optimize the utilization of resources;
•
Responsibility for leadership rests on the Provincial Governor, City/Municipal Mayors, and Barangay Chairmen, each according to his area of responsibility;
•
The national government exists to support the local governments. In time of emergencies and according to their level of assignment, all national government offices in the field shall support the operations of the local governments; and
•
To ensure that operational activities become automatic and second nature to all concerned, exercises and periodic drills shall be conducted at all levels, principally at the Barangay level.
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The National Disaster Coordinating Council (NDCC) A. Structure It is through the NDCC member agencies that disaster preparedness, mitigation, and response tasks are carried out. The NDCC does not have its own regular budget to disburse. It operates through member agencies and regional and local disaster coordinating councils. The members of the Council are the secretaries of the following departments: Department of National Defense (DND) as Chairperson; Department of Interior and Local Government (DILG); Department of Public Works and Highways (DPWH); Department of Health (DOH); Department of Social Welfare and Development (DSWD); Department of Agriculture (DA) Department of Education (DE); Department of Finance (DOF); Department of Labour (DOLE); Department of Trade and Industry (DTI); Department of Transportation and Communication (DOTC); Department of Science and Technology (DOST); Department of Budget Management (DBM); Department of Justice (DOJ); and the Department of Environment and Natural Resources (DENR). It also includes the directors of Public Information Authority (PIA) and the Philippine National Red Cross (PNRC); the Chief of Staff of the Armed Forces of the Philippines (AFP); and the Administrator of the OCD, as Executive Officer.
B. Functions •
The highest policy making, coordinating, and supervising body at the national level for disaster management in the country;
•
Advises the President on the status of national disaster preparedness and management plans; and
•
Recommends to the President the declaration of State of Calamity and release of National Calamity Fund to support urgent and emergency activities.
C. Disaster Coordinating Council (DCC) organizational network National Disaster Coordinating Council (NDCC) 16 Regional Disaster Coordinating Councils (RDCCs) 80 Provincial Disaster Coordinating Councils (PDCCs) 116 City Disaster Coordinating Councils (CDCCs) 1,494 Municipal Disaster Coordinating Councils (MDCCs) 41,960 Barangay Disaster Coordinating Councils (BDCCs)
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ORGANIZATION OF DISASTER COORDINATING COUNCILS (Provincial, city and municipal levels) CHAIRMAN CIVIL DEFENSE DEPUTIZED COORDINATOR VICE-CHAIRMAN
DISASTER OPERATION CENTRE STAFF COMMITTEES
PLANS & OPERATIONS
INTEL & DISASTER ANALYSIS
RESOURCES
SERVICE COMMITTEES
COMMAND WARNING
FIRE
TRANSPORTATION
HEALTH
RESCUE & ENG‘G
RELIEF
EVACUATION
REHABILITATION
D. NDCC Comprehensive Disaster/Emergency Management Framework
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POLICE
PUBLIC INFO
Sourcebook 1: References for Module 1– Introduction to Disaster Risk Management
The Office of Civil Defense (OCD) – As NDCC Executive Arm The OCD has the primary task of coordinating the activities and functions of various government agencies and instrumentalities, private institutions and civic organizations for the protection and preservation of life and property during emergencies.
Functions •
To establish and administer a comprehensive national civil defence and civil assistance programme.
•
To formulate plans and policies for the protection and welfare of the civilian population in times of war directly involving the Philippines, or other national emergencies of equally grave character.
•
To develop and coordinate a programme for informing, educating and training the general public, members of the disaster coordinating councils and disaster control groups on civil defence and civil assistance measures.
•
To furnish guidance to various provinces, cities, municipalities and barangays in the planning, organization and operation of their civil defence organization.
•
To estimate the total material, manpower and fiscal requirements of carrying out the civil defence programme, and allocate to the provinces, cities and municipalities such aid in facilities, materials and funds as may be made available from the national government.
Calamity Area Declaration A. When is an event a disaster? •
At least 20 percent of the population are affected and in need of emergency assistance or their dwelling units have been destroyed;
•
A great number, or at least 40 percent, of the means of livelihood, such as bancas or fishing boats, are destroyed;
•
Major roads and bridges are destroyed and impassable for at least a week, thus disrupting the flow of transport and commerce;
•
Widespread destruction of fish ponds, crops, poultry and livestock, and other agricultural products; and
•
Epidemics.
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B. Why the need for Calamity Area Declaration? •
To facilitate relief and rehabilitation efforts in calamity-affected areas;
•
To control prices and prevent hoarding of basic commodities; and
•
To carry out remedial measures in the affected areas such as grant of calamity loans to disaster victims, moratorium in the payment of taxes and release of funds from the national and local governments.
C. Who may declare a State of Calamity? 1. The President of the Philippines •
When two or more provinces or chartered cities are affected by a calamity, the NDCC shall recommend to the President the declaration of a State of Calamity over these areas, including the release of calamity funds, if necessary, and implementation of appropriate remedial measures.
2. Local Government Units (LGUs) •
Whenever a disaster or calamity occurs ,the local DCC shall conduct a survey of the affected area within 24 hours of impact to determine the extent of casualties and damages brought about by the calamity.
•
Based on the damage assessment and evaluation of the DCC, the Local Chief Executive (LCE) shall recommend to the local Sanggunian the declaration of a State of Calamity in the disaster area, together with appropriate disaster mitigation measures.
•
Within 24 hours from the occurrence of the calamity and acting on the basis of the recommendation of the LCE, the local Sanggunian concerned shall immediately convene and pass a Resolution declaring their area under a State of Calamity and adopt measures to protect the lives and properties in the area. When two or more barangays are affected by a disaster, the Sangguniang Bayan or Panglunsod, upon the recommendation of the Municipal/City Mayor, may declare the entire municipality or city under a State of Calamity. The Sanggunian Resolution embodying the declaration need not be reviewed or approved by the Sanggunian Panlalawigan.
•
•
When two or more municipalities or cities are affected by a disaster, the Sangguniang Panlalawigan, upon the recommendation of the Provincial Governor, may declare the entire province or a portion thereof under a State of Calamity. The Sangguniang Bayan/Panglunsod of the affected town or city need not declare their areas calamity areas.
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1.3 DEFINING A FEW KEY TERMS (Living with Risk: A global review of disaster reduction initiatives preliminary version, UNISDR Geneva, July 2002 pp. 25–26) Hazard: A potentially damaging physical event, phenomenon or human activity, which may cause loss of life or injury, property damage, social and economic disruption or environmental degradation. Hazards can include latent conditions that may represent future threats and can have different origins: natural (geological, hydro-meteorological and biological) and/or induced by human processes (environmental degradation and technological hazards). Hazards can be single, sequential or combined in their origin and effects. Each hazard is characterized by its location, intensity and probability. Vulnerability: A set of conditions and processes resulting from physical, social, economical and environmental factors which increase the susceptibility of a community to the impact of hazards. Capacity: Positive factors that increase the ability of people and the society they live in to cope effectively with hazards, that increase their resilience, or that otherwise reduce the susceptibility of a community to the impact of hazards. Risk: The probability of harmful consequences, or expected loss (of lives, people, property, livelihoods, economic activity, environmental capacity, and physical injury to people) resulting from interactions between natural or human induced hazards and vulnerable/ capable conditions. Conventionally, risk is expressed by the equation Risk = Hazards x Vulnerability/Capacity. Beyond expressing a probability of physical harm, it is crucial to appreciate that risks are always created or exist within social systems. It is important to consider the social contexts in which risks occur and that people therefore do not necessarily share the same perceptions of risk and their underlying causes. Risk assessment/analysis: A process to determine the nature and extent of risk by analysing potential hazards and evaluating existing conditions of vulnerability/capacity that could pose a potential threat or harm to people, property, livelihoods and the environment on which they depend. The process of conducting a risk assessment is based on a review of both technical features of hazards such as their location, intensity and probability, and also the analysis of the physical, social and economic dimensions of vulnerability, while taking particular account of the coping capabilities pertinent to the risk scenarios.
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Coping capabilities: This is the manner in which people and organizations use existing resources to achieve various beneficial ends during unusual, abnormal and adverse conditions of a disaster event or process. The strengthening of coping capacities usually builds resilience to withstand the effects of natural and other hazards. Resilience/resilient: The capacity of a system, community or society to resist or to change in order that it may obtain an acceptable level in functioning and structure. This is determined by the degree to which the social system is capable of organizing itself, and the ability to increase its capacity for learning and adaptation, including the capacity to recover from a disaster. Disaster: A serious disruption of the functioning of a community or a society causing widespread human, material, economic or environmental losses which exceed the ability of the affected community to cope using its own resources. A disaster is a function of the risk process. It results from the combination of hazards, vulnerable conditions and insufficient capacity or measures to reduce the potential negative consequences of risk. Risk management: The systematic management of administrative decisions, organizations, operational skills and responsibilities to apply policies, strategies and practices for disaster risk reduction. Disaster risk reduction: The systematic development and application of policies, strategies and practices to minimize vulnerabilities and disaster risks throughout a society, to avoid (prevention) or to limit (mitigation and preparedness) adverse impact of hazards, within the broad context of sustainable development. Prevention: Activities to provide outright avoidance of the adverse impact of hazards and related environmental, technological and biological disasters. Depending on social and technical feasibility and cost/benefit considerations, investing in preventive measures is justified in areas frequently affected by disaster. In the context of public awareness and education, prevention refers to attitudes and behaviour leading towards a “culture of prevention”. Mitigation: This refers to the measures aimed at minimizing the impact of a natural or man-made disaster on a nation or community in terms of casualties and damages. It also refers to measures designed to prevent natural phenomena from causing disasters or emergencies. Mitigating factors include: •
Insurance – property, personal, accident, fire, earthquake, etc.
•
Regulations – safety regulations, land use zoning, etc.
•
Codes – building and fire codes
•
Legislations – relevant laws and ordinances
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Preparedness: This refers to pre-disaster actions and measures being undertaken to avert or minimize loss of life and property. Measures may include community organizing, training, planning, equipping, stockpiling, hazard mapping and public information and educational initiatives. For example: •
Plans – contingency, fire and earthquake evacuation plan
•
Information – rapid dissemination of information through mass media, population awareness, etc.
•
Resources – available response units, capabilities, equipment, manpower, location, contact numbers, etc.
•
Education and training – training of local chief executives, provincial/municipal civic defence deputized coordinators, organic personnel, auxiliaries, volunteers, etc.
Response: This refers to any concerted effort by two or more agencies, public or private, to provide emergency assistance or relief to persons affected by disasters or calamities. Rehabilitation: This refers to the process by which the affected communities or areas of damaged public infrastructure are restored to their normal level or their actual condition prior to the occurrence of the disaster or calamity. Rehabilitation can include: •
Funding – emergency assistance from national and local calamity funds and various government and NGO sources
•
Loans and grants extended by NGOs and international NGOs
•
Assistance extended by government agencies, international and local NGOs, etc.
Early warning: The provision of timely and effective information, through identified institutions, that allow individuals at risk of a disaster, to take action to avoid or reduce their risk and prepare for effective response. Early warning systems consist of three elements: 1. Forecasting and prediction of impending events; 2. Processing and dissemination of warnings to political authorities and populations; and 3. Undertaking appropriate reaction to warnings.
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1.4 BASIC CONCEPTS: HAZARD, VULNERABILITY, CAPACITY AND DISASTER (Training Materials, Center For Disaster Preparedness; CBDM Participants’ Workbook, Asian Disaster Preparedness Center)
Hazard •
Phenomena, event, occurrence or human activity which has the potential for causing injury to life or damage to property and the environment. There are three types of hazard: 1. Natural: typhoon, earthquake, volcanic eruption, tsunami 2. Human-made: fire, pollution, oil spill, industrial accidents (such as leakage of toxic waste) 3. Combination or socio-natural hazards: flooding and drought can fall under this category if it is due to deforestation
Vulnerability •
Physical, social, economic, cultural and environmental factors and conditions which increase the community’s susceptibility to disaster.
•
Adversely affects the ability of individuals, households and the community to prepare for and respond to hazards.
•
Weaknesses, constraints or problems present in the community which hinder it from preparing for and protecting itself from incurring damage and loss.
•
Examples of vulnerability: 1. Poor locations 2. Houses made of light materials 3. Conflict in the community 4. Lack of knowledge and skills on preparedness and protective measures 5. Attitude of helplessness and dependence
Capacity •
Knowledge, skills, resources and abilities present in individuals, households and communities that enable them to prevent, prepare for, withstand, survive and recover from a disaster.
•
Some examples of capacity: 1. Permanent housing 2. Ownership of land 3. Adequate food and income sources
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4. 5. 6. 7.
Family and community support in times of crises Local knowledge Responsive local government Strong community organizations Disaster
Disaster •
Occurs when a hazard strikes a vulnerable community with low capacity resulting in damages, loss and serious disruption of community life.
•
The widespread human, material and environmental losses exceed the community’s ability to cope using its own resources.
Disaster risk •
Likelihood of a hazard striking a vulnerable community, causing injury, damage and loss.
•
The bigger the vulnerability, the bigger the disaster risk. The bigger the capacity, the smaller the disaster risk.
•
Disaster Risk = Hazard x Vulnerability Capacity
Elements-at-risk Who and what can be damaged: •
People (their lives and health)
•
Household and community structures (houses, community centres, schools)
•
Community facilities and services (access roads, bridges, hospital, electricity, water supply, etc.)
•
Livelihood and economic activities (jobs, crops, livestock, equipment, etc.)
•
Environment (natural resource base)
Disaster Risk Management: Objectives and Activities Disaster risk management •
Range of activities designed to maintain control over disaster and emergency situations and to provide a framework for helping at-risk persons avoid or recover from the impact of the disaster.
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•
A collective term for all activities that contribute to increasing capacities and will lead to reducing immediate and long-term vulnerabilities. Covers activities before, during and after a disaster.
Objectives •
To increase capacities and resilience
•
To reduce vulnerabilities
•
To avoid or reduce human, physical and economic losses suffered by individuals, families, communities and the country
•
To speed up recovery after a disaster
•
To reduce personal suffering
•
To provide protection to internal refugees or displaced persons whose lives are threatened by armed conflicts
Community-Based Disaster Risk Management Approach Why have a community-based disaster risk management (CBDRM) approach? •
Increasing trend in disaster occurrence and loss.
•
People in the community suffer most from disaster damages. In reality, they are first front-line responders. They undertake some precautionary measures and respond to the disaster before outside help comes.
•
The worldwide shift in focus from emergency management to disaster risk management recognizes the importance of community involvement.
•
CBDRM corrects the defects of the top-down approach. There is a meeting of the bottom-up (community and local level) and the top-down (national and higher level) approaches for an integrated and responsive disaster management system.
What is the CBDM/CBDRM Approach? •
Activities, measures, projects and programmes to reduce disaster risks are primarily designed by people living in high-risk communities, and are based on their urgent needs and capacities.
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CHANGING CONCEPTS IN DISASTER MANAGEMENT
Traditional Approach
CBDM Approach
Disasters are unforeseen events which cannot be prevented.
Disasters can be prevented. We can prepare to avoid and reduce damage and loss.
Stress is on emergency response and recovery.
Stress is on disaster risk management activities before the disaster – on prevention, mitigation and preparedness.
People affected by disasters are helpless victims and passive recipients of external aid.
People affected by disasters are active in rebuilding their lives and livelihoods. People’s existing capacities are used and strengthened.
Children are not consulted regarding their needs.
Children also participate in the creation and implementation of selected DM activities.
Disaster management is the sole responsibility of the disaster response agency and specialists like the scientist, economist, social worker, government and NGOs.
Recognition of the importance of community participation. Disaster management is everybody’s responsibility. Stress on building capacity at the national, local and community levels for an integrated and responsive disaster risk management system.
Focus on physical and material aid and technical solutions.
Assistance covers material, social and motivational aspects to reduce vulnerability.
Focus on individual households.
Focus on individual, family and community preparedness.
Donors (outsiders) decide on what the families and community need.
The community participates in decision-making to prioritize needs and risk reduction solutions.
The aim of disaster management is to reduce immediate suffering and meet emergency needs.
The aim is to reduce people’s vulnerabilities and increase capacities to better prepare and cope with disasters.
The goal is to bring things back to normal.
The goal is building a safe, disaster-resilient and developed community.
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Features of CBDRM ü People’s participation – the community is the main actor; it participates and benefits from risk reduction and development activities ü Priority for the most vulnerable – children, women, elderly, differently-abled, subsistence farmers, fisher folks, urban poor ü Recognizes existing capacities and strategies for survival and coping ü Risk reduction measures are community specific – based on analysis of the community’s disaster risk ü Aim of CBDRM – reduce vulnerabilities and increase capacities ü Goal – building safe, disaster-resilient and developed communities ü Links disaster risk reduction with development ü Outsiders have supporting and facilitating role
Principles of CBDM •
Participatory process and content: Community involvement in the risk assessment, identifying solutions to community problems and risk reduction measures; community directly shares in the benefits of disaster management and development
•
Responsive: Based on the community’s felt and urgent needs
•
Integrated: DM activities before, during and after disaster; linkage with other communities and the various levels of the disaster management system
•
Proactive: Stress on prevention, mitigation and preparedness
•
Comprehensive: Structural and non-structural risk reduction measures; mix of short-, medium-,and long-term measures to address vulnerabilities
•
Multi-sectoral and multi-disciplinary: Considers roles of all stakeholders; combines local knowledge and resources with science and technology and support from outsiders
•
Empowering: People’s options and capacities are increased; more access to basic social services; more control over the natural and physical environment; builds confidence to participate in other development endeavours
•
Developmental: Community development gains are protected; measures to address vulnerabilities are opportunities for development
•
Culture and gender sensitive
•
Child rights responsive
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STEPS IN THE CBDRM PROCESS – TRANSFORMING VULNERABLE COMMUNITIES TO DISASTER-RESILIENT COMMUNITIES Monitoring and evaluation Community-managed implementation Strengthening of CBDM organization Initial community disaster management Community risk assessment Community profiling Initiating the process
1. Initiating the process: Selecting the community based on priorities or based on requests from communities hit by hazards. This is the stage of building rapport with the people in the community. 2. Community profiling: Initial understanding of the community situation and an orientation on CBDRM. 3. Community risk assessment: Hazards, vulnerabilities and capacities assessment and consideration of people’s different perception of risks. 4. Initial community disaster management plan: Appropriate and do-able measures before, during and after the disaster; focus on prevention, mitigation and preparedness measures. 5. Formation and strengthening of community disaster management organization: Ensures implementation of Community Disaster Management Plan. 6. Community managed implementation: Implementation of risk reduction structural and non-structural measures to address vulnerability and increase capacity based on the Plan. 7. Monitoring and evaluation: Continuous monitoring of the situation and activities and improvement of CBDRM and community.
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Sourcebook 2 Sourcebook 2
Reference for Module 2
Sourcebook 2
REFERENCES FOR MODULE 2 – BARANGAY GOVERNANCE AND DISASTER RISK MANAGEMENT
2.1 THE BARANGAY (Local Government Academy, Philippines)
Barangay Defined The barangay is the smallest political unit in the country. It serves as the primary planning and implementing unit of government policies, plans, programmes, projects and activities in the community. The barangay is a venue where the collective opinion of the people is expressed, considered and formalized. It is also where disputes among barangay residents are amicably settled. As of 2004, there were 41,927 barangays in the Philippines.
The Role of the Punong Barangay (Barangay Captain) The punong barangays play a dominant role in administration of barangay affairs. Being elected, they head the executive branch of the barangay government and are responsible for policy direction, programme development and implementation, development planning, collection of taxes and other impositions, budget, personnel and general administration. A barangay captain is responsible for organizing and leading an emergency group whenever necessary for the maintenance of peace and order or on occasions of emergency or calamity within the barangay, among other functions.
Role of the Barangay Legislative Body (Sangguniang Barangay) The barangay legislative functions are performed by the sangguniang barangay which is composed of the punong barangay as presiding officer, and the seven elected regular sangguniang barangay members and the sangguniang kabataan chairman, as members. Its major function is the approval of barangay budget and the passing of resolutions and ordinances. One of its important functions relevant to disaster response is the provision for the delivery of basic services
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Barangay Administration Powers The governmental powers of the barangay are the following: Police power: This is the power to administer the affairs of the barangay to promote health and safety, enhance prosperity, improve morals, maintain peace and order and preserve the comfort and convenience of barangay dwellers. Power of eminent domain: The barangay body has the right to take away private property for public use upon payment of just compensation to the owner of the private property. Power of taxation: The barangay has the power to increase revenues by imposing taxes, fees and other charges on its barangay inhabitants and businesses. The sangguniang barangay exercises this taxation power.
Barangay Finance There are several sources of barangay funds. These include the following: •
Proceeds of Community Tax – 50 percent of the total collection of barangay treasurer
•
Proceeds of Real Property Tax – 25-30 percent goes to the barangay
The national government gives to the barangay a percentage of taxes collected, as follows: •
20 percent of Internal Revenue Allotment Share
•
35 percent of the 40 percent of the gross collection derived by the national government from the utilization of national wealth
The barangays may levy taxes, fees and charges.
Barangay Budgeting There are two elements of the barangay budget: income and expenditure. The punong barangay prepares the budget upon receipt of the estimated collection report (from local and national sources) from the barangay treasurer. The punong barangay then submits the yearly budget to the Barangay Legislative Body for enactment of the ordinance. The budget review for the barangay is conducted by the sangguniang bayan in cooperation with the city/municipal budget officer within ten days of its approval. A Commission on Audit representative periodically audits the annual barangay funds. He or she then submits the result of the audit to the sangguniang bayan.
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Supervision over Barangay Administration The duly elected mayor of the concerned city or municipality where the barangay belongs has the power to exercise general supervision over the barangay, and penalize according to existing laws and regulations on any erring official in the barangay. Barangay planning is done by the Barangay Development Council (BDC). The BDC is composed of the punong barangay, members of the sangguniang barangay, one-fourth of the members of NGOs situated in the said barangay, and the local Congressman’s representative.
Functions of the BDC: •
Ensure people’s involvement in developing the barangay development plans and programs based on local requirements;
•
Track down and review the implementation of programmes and projects of the local and national government; and
•
Special BDC functions are carried out as provided by law.
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2.2 GOOD GOVERNANCE (Department of Interior and Local Government – Bureau of Local Government Development and Local Government Academy)
Introduction The terms "governance" and "good governance" are being increasingly used in development literature. Bad governance is being increasingly regarded as the cause of major problems in society. Major donors and international financial institutions are increasingly making aid and loans available only on the condition that reforms ensuring "good governance" are undertaken. This section tries to explain, as simply as possible, what "governance" and "good governance" mean.
Governance The concept of "governance" is not new. It is as old as human civilization. Simply put, “governance" means: the process of decision-making and the process by which decisions are implemented (or not implemented). Governance can be used in several contexts such as corporate governance, international governance, national governance and local governance. Since governance is the process of decision-making and the process by which decisions are implemented, an analysis of governance focuses on the people involved in decision-making and implementing the decisions made and the formal and informal structures that have been set in place to arrive at, and implement, the decision. Government is one of the actors in governance. Other actors involved in governance vary depending on the level of government that is under discussion. In rural areas, for example, other actors may include influential landlords, associations of peasant farmers, cooperatives, NGOs, research institutes, religious leaders, financial institutions, political parties and the military.The situation in urban areas is much more complex. At the national level, in addition to the above actors, media, lobbyists, international donors and multinational corporations may play a role in decision-making or in influencing the decision-making process. All actors other than government and the military are grouped together as part of "civil society�. In some countries, in addition to civil society, organized crime syndicates also influence decision-making, particularly in urban areas and at the national level. Similarly, formal government structures are one means by which decisions are arrived at and implemented. At the national level, informal decision-making structures, such as "kitchen cabinets" or informal advisors may exist. In urban areas, organized crime syndicates such as the "land mafia" may influence decision-making. In some rural areas, locally powerful families may make or influence decision-making. Such, informal decision-making is often the result of corrupt practices or leads to corrupt practices.
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Barangay Governance and Disaster Risk Management Good barangay governance is a precondition for effective disaster risk management. It provides a sustainable and an effective instrument for reducing poverty and achieving the Millennium Development Goals. Good governance not only concerns the national level, but also the regional and the local levels. Concerning disaster risk management, local stakeholders are increasingly involved and barangay inhabitants are getting more and more responsibilities. The principles and norms of good barangay governance include, among others, the following: Accountability – To ensure that persons in authority and those who make decisions on behalf of the common good need to be accountable for results and the consequences of their actions or decisions. Transparency – To recognize that persons who carry out public functions and responsibilities need to build and protect the trust bestowed on them by the people, by making information accessible and available to constituents when needed. Civic engagement – To encourage and help citizens to express and articulate their interests and concerns directly or indirectly to influence decisions, actions and programmes that affect the quality of their lives and that of the community and country as a whole. Citizenship – To exercise one’s legal and universal human rights, contributing time, effort and resources to positively influence the direction government and business sectors will take, and volunteering to participate meaningfully in various aspects of local governance encompassing all the dimensions of community life. Equity –To create a conducive climate for human development by providing opportunities for all citizens to be included; to participate in decision-making, to have a hand in setting priorities and to gain a level of competence and contribute to the common good. Justice – To settle disputes and conflicts that inevitably arise by exercising virtues of honesty and fairness in all human transactions; mediating and resolving situations that result in the protection and enhancement of one’s self-esteem, dignity and unique character. Efficiency – To use resources in the most prudent manner by diligently avoiding waste in all its forms and optimizing the utilization of human resource endowments. Effectiveness – To provide basic human development services that meet the needs of the general public, particularly poor, vulnerable or marginalized individuals or groups; responding appropriately and with speed to citizen requirements without harm or damage to themselves and the environment. Sustainability – To protect and manage the environmental and ecological assets of local government by adopting environmentally-friendly habits and behaviour to ensure that present and future generations will benefit from the natural endowments and resources, for all citizens to enjoy.
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Strategic vision – To formulate a shared vision and development strategy supported by legislation and an adequate planning and budgeting system so that citizens become owners and stakeholders of barangay development programmes; they should also possess a sense of community pride, belonging and responsibility for the growth and further progress of the barangay, municipality or city. Peace – To foster friendliness and accord among citizens by building safe and orderly public service systems and institutions that enable everyone to gain a sense of belonging and harmony and a common fate; to place a high value and priority on preservation and protection of life and property in an atmosphere of trust and goodwill. Security – To build safe barangays through the vigilance and participation of all citizens by helping to preserve and protect the peace against internal and external threats, whether natural or man-made; to provide safeguards against forces that have the potential to disrupt the normal flow of social interaction. Spirit of volunteerism - A sound governance structure for disaster reduction encourages expressions of volunteerism and norms of social reciprocity during natural disasters. Multi-stakeholder participation – Provides an ample space for participation of business, educational and religious groups, the community itself and other players in the barangay.
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2.3 THE MILLENNIUM DEVELOPMENT GOALS (Local Government Unit Guide on Millennium Development Goals Localization, BLGD-DILG, January 2005) In September 2000, the United Nations General Assembly concluded the Millennium Summit with the adoption of a Millennium Declaration, renewing a global commitment to peace and human rights, setting specific goals and targets towards reducing poverty and the worst forms of human deprivation. The Millennium Development Goals (MDGs), with a deadline of 2015, affirm and reinforce the target of eliminating extreme poverty worldwide. The eight MDGs have clear objectives, measurable outcomes, timelines for achievements, and clear indicators for monitoring progress. The Philippines, as a UN member, is a signatory to the Millennium Declaration and has committed to craft its 2005-2020 Medium-Term Philippine Development Plan in accordance with the MDGs. By committing to this declaration, the country is trying keep pace with the rest of the developing world and is ensuring that we are able to maximize all available resources to provide the right policy framework in helping our people gain access to the best quality of life possible. As the goals are holistic and interrelated, the need to work together at the national, regional and local levels is very important. Meeting the requirements for the MDGs will entail collaborative efforts of major stakeholders such as national and local government units (LGUs). It will also require private sector participation and the inclusion of MDGs in the local development agenda.
The Millennium Development Goals and Targets Goal 1: Eradicate extreme poverty and hunger ü Reduce by 50 percent the number of people living in extreme poverty between 1990 and 2015; ü Reduce by 50 percent the number of population below the minimum level of dietary energy consumption and reduce by 50 percent the number of underweight children (under five years old); and ü Reduce by 50 percent the number of people with no access to safe drinking water or those who cannot afford it by 2015. Goal 2: Achieve universal primary education ü Achieve universal access to primary education by 2015.
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Goal 3: Promote gender equality ü Eliminate gender disparity in primary and secondary education, preferably by 2005, and all levels of education not later than 2015. Goal 4: Reduce child mortality ü Reduce the children under-five mortality rate by 67 percent by 2015. Goal 5: Improve women’s reproductive health ü Reduce maternal mortality rate by 75 percent by 2015; and ü Increase access to reproductive health services to 60 percent by 2005, 80 percent by 2010 and 100 percent by 2015. Goal 6: Combat HIV/AIDS, malaria and other diseases ü Prevent the spread and halt HIV/AIDS by 2015; and ü Reduce the incidence of malaria and other major infectious diseases. Goal 7: Ensure environmental sustainability ü Implement national strategies for sustainable development by 2005 and recover loss of environmental resources by 2015; and ü Achieve a significant improvement in the lives of 1.3 million informal settler families. Goal 8: Develop global partnerships for development ü Develop further an open, rule-based, predictable, non-discriminatory trading and financial system; include commitment to good governance and the development of poverty reduction, both nationally and internationally; and ü Deal comprehensively with the debt problems of developing countries through national and international measures in order to make debt sustainable in the long-term.
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2.4 BARANGAY DEVELOPMENT AND GOVERNANCE SYSTEMS FRAMEWORK AND BARANGAY ORGANIZATIONAL REFORM AGENDA (Liga ng mga Barangay sa Pilipinas)
The Liga ng mga Barangay sa Pilipinas (The League of Barangays in the Philippines) has developed a Barangay Organizational Reform Agenda (BORA), a system of rationalizing barangay functions into service areas and aligning and developing or allocating effort, time, and resources on key critical barangay needs. BORA is a template for basic service delivery. When adopted in a barangay, the BORA template seeks to rationalize basic services delivery into a comprehensive and integrated system, a system where citizens’ needs and requirements become the central focus and priority of barangay services and resources. The strategic and operational plans of a barangay must therefore be aligned to adequately provide or supply these basic needs. Barangay vision – a family-friendly barangay where: 1. Self-reliance, neighbourliness, collaboration, unity and harmonious relations are part of the culture; 2. Local government is well-managed with equity, justice, leadership competence and integrity; 3. Basic services are integrated, comprehensive and accessible, especially to the poor and marginalized; 4. Human resources are empowered, social capital is constantly developed and enriched, and economic activities are plentiful/robust and competitive; 5. Its ecology and environment resources are protected and managed for sustainability and enjoyment of future generations; and 6. Culture, arts and heritage/history are promoted, conserved and vibrant. The barangay council and other community leaders must be able to communicate the vision to everyone so that stakeholders support it and resources can be harnessed to the fullest. Eight service/thematic areas contribute to attaining the barangay vision: 1. Health care and well-being 2. Food security and nutrition 3. Water and environmental protection 4. Income/livelihood and employment promotion 5. Shelter and housing/infrastructure 6. Peace and order/public safety
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7. Education and functional literacy 8. Participation in governance
Organizational reform to implement the eight service/thematic areas The goal is to make services and products accessible to citizens by mobilizing the entire barangay leadership and engaging citizens in local governance and participating in the development process as stakeholders. Each Kagawad including the Sangguniang Kabataan Chairman could serve as Service Team Leader for one service area. This will put an end to the monopoly and dominance of punong barangays in the decision-making process. It also democratizes the other management services and liberates the punong barangay from the tremendous workload, likewise spreading accountability.
Measures and indicators for the eight service/thematic areas In the table that follows, suggested key indicators/measures can be found opposite each area. Depending on the scope, depth or nature of the barangay situation or condition, the quantity and quality of barangay services and products can be adjusted.There is no hard and fast rule or fixed target.
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2.5 ON DISASTER MANAGEMENT AND LEADERSHIP (Various Sources) “More effective prevention strategies would save not only tens of billions of dollars, but save tens of thousands of lives. Funds currently spent on intervention and relief could be devoted to enhancing equitable and sustainable development instead, which would further reduce the risk for war and disaster. Building a culture of prevention is not easy. While the costs of prevention have to be paid in the present, its benefits lie in a distant future. Moreover, the benefits are not tangible; they are the disasters that did not happen.” –Kofi Annan, UN Secretary General
People-centred governance is a prerequisite for disaster reduction. The most vulnerable people must participate in accountability processes in order to sustain governance for disaster reduction. Access to information on policies, rights and major decisions enables meaningful participation in disaster reduction. Stronger local governance enables locally appropriate decision-making for disaster reduction. Policies and obligations for disaster reduction need to be legally enforceable. Development projects must be subject to public scrutiny before approval, to ensure that they are not creating new disasters. There must be cooperation at a national level for disaster reduction to be effective. Effective trans-national accountability agreements will promote safety outside a country’s borders. –Action Aid International, World Conference on Disaster Reduction, 18-22 January 2005, Kobe
Appropriate governance for disaster risk management is a fundamental requirement if risk considerations are to be factored into development planning and if existing risks are to be successfully mitigated. –UNDP, 2004
Core competencies, skills and traits of a disaster manager ü Ability to read and write effectively ü Ability to plan ü Knowledge of appropriate legislation and government system ü Cultural knowledge and mathematical knowledge ü Negotiation knowledge
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ü Knowledge and understanding of different hazards ü Knowledge and understanding of roles and responsibilities of partner organizations ü Data interpretation knowledge ü Leadership –Disaster Preparedness Seminar for Local Chief Executives, Office Of Civil Defense c/o Atty/ Priscilla Duque, 2005
The Seven Habits of Highly Effective People ü Habit 1: Be proactive (The principle of personal vision) Highly proactive people recognize responsibility and do not blame circumstances or conditions if they fail to do something. ü Habit 2: Begin with the end in mind (The principle of personal leadership) Know where you’re going today, tomorrow and the days to come, so that the steps you take are always in the right direction. ü Habit 3: Put first things first Schedule your priorities; do not prioritize what’s on your schedule. Manage time effectively by increasing preparation, planning, prevention, recreation, relationship building, values clarification and self-empowerment. ü Habit 4: Think win/win (principle of interpersonal leadership) Frame your mind and heart to constantly seek mutual benefit in all human interactions. Agreements or solutions are mutually beneficial and mutually satisfying; all parties feel good about the decision and feel committed to the action flow. ü Habit 5: Seek first to understand, then to be understood (principle of emphatic communication) Listen with the intent to understand the person both emotionally and intellectually. Listen for feelings, for meaning and behaviour. Diagnose before you prescribe. ü Habit 6: Synergy (principle of creative cooperation) The whole is greater than the sum of its parts. The effort of one when combined with other efforts will produce better results. ü Habit 7: Sharpen the saw (principle of balanced self-renewal) Continue development, enhancement and improvement of a person’s physical, spiritual, mental, social and emotional assets. –Steven Covey, Characteristics of Highly Effective People, 1990
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2.6 LOCAL DISASTER COORDINATING COUNCILS (LDCCS) (The Philippine Disaster Management System, Contingency Planning for Emergencies: A Manual for Local Government Units, May 2003) The local DCCs are the closest to the people. It is at this level that emergencies are felt most. It is at this level that rescue, evacuation, relief and rehabilitation operations are launched and carried out. It is also at this level that damages are assessed and requirements evaluated so that the necessary actions can be dispatched with efficiency.This local responsibility was reinforced with the passage of the RA 7160 or the Local Government Code of 1991, which provides (among other provisions) for the devolution of basic services and functions to local government units and the allocation of a 5 percent calamity fund for emergency operations. At the local government level, the Chief Executives are, by law, the Chairmen of their respective Councils. Thus, the Governor is the Chairman of the Provincial Disaster Coordinating Council (PDCC). The PDCC is composed of organic key officers paid out of provincial funds and of national government agencies assigned to work in the province.The same is true in the case of the City Mayor who becomes the Chairman of the City Disaster Coordinating Council (CDDC). At the municipal level, the town Mayor is the Chairman of the Municipal Disaster Coordinating Council (MDCC), while the punong barangay acts as the Chairman of the Barangay Disaster Coordinating Council (BDCC).
Functions of the Provincial Disaster Coordinating Council (PDCC) •
Establishes a physical facility to be known as the Provincial Disaster Operations Center (PDOC);
•
Coordinates the disaster operations activities of the municipalities within the province from the PDOC ;
•
Implements within the province the guidelines set by the Regional Disaster Coordinating Council (RDCC);
•
Advises the City/Municipal and Barangay Disaster Coordinating Councils regarding disaster management;
•
Submits recommendations to the RDCC as necessary; and
•
Places the CDCCs/MDCCs and its tasked units under the operational control of the PDCC during an emergency, which affects the towns/cities.
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Functions of the City/Municipal Disaster Coordinating Council (CDCC/MDCC) •
Establishes a physical facility to be known as the City/Municipal Disaster Operations Center (C/MDOC);
•
Coordinates from the C/MDOC the disaster operations activities;
•
Implements within the city/municipality the guidelines set by the PDCC;
•
Advises the Barangay Disaster Coordinating Councils regarding disaster management; and
•
Submits recommendation to the PDCC, as necessary.
Functions of the Barangay Disaster Coordinating Council (BDCC) •
Establishes the Barangay Disaster Operations Center (BDOC);
•
Coordinates from the BDOC the disaster operations activities of its tasked units;
•
Implements within the barangay the guidelines set by the C/MDCC; and
•
Advises the members of the BDCC regarding disaster management.
CHART OF A TYPICAL BARANGAY DISASTER COORDINATING COUNCIL Chairman Bgy. Captain Vice Chairman DOC Teams
Staff
Transport Station
Supply
Security
Communication
Operating Teams
Warning
Medical
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Rescue
Evacuation
Fire Brigade
Relief
Damage Control
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2.7 LAWS AND REGULATIONS ON DISASTER MANAGEMENT (Department of Interior and Local Government, Philippines)
Basic Law in the Implementation of Disaster Management Programme in the Philippines Presidential Decree no. 1566 This Decree, which was promulgated on 11 June 1978, calls for the “Strengthening of the Philippine Disaster Control Capability and Establishing the National Program on Community Disaster Preparedness”. Salient provisions 1. State policy on self-reliance among local officials and their constituents in preparing for, responding to and recovering from disasters. 2. Organization of the National, Regional and Local Disaster Coordinating Councils (DCCs). 3. Preparation of the National Calamities and Disaster Preparedness Plan (NCDPP) by the Office of Civil Defense and implementing plans by the NDCC member agencies and local DCCs. 4. Conduct of periodic drills and exercises by concerned agencies and local DCCs. 5. Authority for the local government units to program funds for disaster preparedness activities such as the organization of DCCs, establishment of Disaster Operations Centers (DOCs), and training and equipping of DCC response teams.
Rules and regulations implementing PD 1566 Under the IRR of PD 1566, the disaster management activities of DCC member agencies, as well as procedures and guidelines for inter-agency coordination and dissemination of information during the three phases, are defined as follows: A. Pre-Disaster Phase 1. Planning for disaster •
Development/formulation of Disaster Management Plan (DMP) to be submitted to the RDCC through the OCD for review and evaluation.The plan should conform to the guidelines and shall be revised/updated as necessary.
2. Organizing • Organization of DCCs in accordance with the DCC structure set forth in the NCDPP, supported with a Sanggunian Resolution. •
Establishment of DCC guidelines for inter-agency coordination/ networking.
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3. Training •
Conduct of training on disaster management for DCC members and skills training for DCC operating teams, volunteers and community members in coordination with the following agencies: OCD provides guidance and assistance in the development/preparation of programmes of instruction and the conduct of training; DSWD provides guidance in the conduct of disaster preparedness of the barangay tri-sectoral group focused on relief; PNRC conducts disaster leadership training courses; DECS assists in the public education campaign through integration in school curricula of subjects relative to disaster; DTI trains disaster control groups/reaction teams in large buildings used for commercial purposes.
4. Drills •
Conduct of organizational and community drills/exercises periodically in order to assess effectiveness in responding to disasters. OCD shall assist/observe and provide critique in the conduct of drills and exercises.
5. Stockpiling •
Determination of food, clothing, shelter, medical supplies, transportation and other emergency requirements.
•
Taking of appropriate measures to stockpile the same.
6. Resource data canvassing •
Identification of existing resources.
•
Evaluation capability of resource organizations to carry out disaster-related tasks.
•
Allocation of suitable roles to resource organization.
7. Public information/awareness drive •
Conduct of public information/awareness campaign in coping with disaster situations in coordination with the Office of Civil Defense, Philippine Information Agency as well as other government/or private entities with facilities for dissemination of information.
8. Communications and warning activities •
Organization of warning units in the province.
•
Establishment of a warning system that must be clearly defined and written down in plans, standard operating procedures and other relevant documents.
•
Informing concerned officials and agencies in the province as well as the general public of the warning system.
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B. Emergency Phase •
Mobilizing of all emergency services of the DOC: rescue and engineering, evacuation, first aid and medical services, emergency relief, police and fire auxiliary, transportation, and survey and damage assessment, with the national government supporting the efforts of the Council.
•
Evaluation of survey results, submission of damage report and recommendation to NDCC through the RDCC.
C. Post-Emergency Phase 1. Cross-checking of data of damage report with pre-emergency data obtained to facilitate the location or whereabouts of persons and to assess available community resources for rehabilitation purposes. 2. Rehabilitation requirements: determining the nature and extent of rehabilitation efforts to be undertaken and requests for assistance from appropriate government agencies, private offices/agencies or individuals, if the situation goes beyond the capability of the PDCC.
Other Laws with Disaster Management Provisions 1. PD 1096 – the National Building Code of the Philippines. It specifies minimum requirements and standards on building design for buildings to be protected against fires and natural disasters. 2. Rule 1040 of the Occupational Safety and Health Standards provides for the organization of disaster control groups (or health and safety committees) in every place of employment and the conduct of periodic drills and exercises in work places. The administration and enforcement of Rule 1040 lies with the Department of Labour and Employment, in coordination with the local government unit where the work place is located. 3. PD 1185 – “Fire Code of the Philippines”. This Decree requires, among other provisions, that the administrators or occupants of buildings, structures and other premises or facilities and other responsible persons shall comply with the following: a. Inspection requirement by the Bureau of Fire Protection as a prerequisite to the granting of permits and/or licenses by LGUs or other government agencies concerned; b. Provisions for safety measures for hazardous materials as well as for hazardous operations/processes; c. Provisions for fire safety construction, protection and warning systems such as fire sprinklers, alarm devices, firewalls, fire exit plan, etc; and d. The conducting of periodic fire and exit drills.
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4. R.A. 7160 – the Local Government Code (LGC) of 1991. The LGC of 1991 contains provisions supportive of the goals and objectives of the disaster preparedness, prevention/mitigation programmes.These provisions of the LGC reinforce the pursuit of the Disaster Management Programme at the local government level.
Sec. 16: General welfare Every local government unit shall exercise the powers granted, those necessarily implied there from, as well as powers necessary, appropriate or incidental for its efficient and effective governance, and which are essential to the promotion of general welfare. Within their respective territorial jurisdiction, local government units shall ensure and support, among other things, the preservation and enrichment of culture, promote health and safety, enhance the right of the people to a balanced ecology, encourage and support the development of appropriate and self-reliant scientific and technological capabilities, improve public morals, enhance economic prosperity and social justice, promote full employment among their residents, maintain peace and order, and preserve the comfort and convenience of their inhabitants.
Sec. 17: Basic services and facilities devolved to LGUs This provision speaks of the basic services and facilities devolved to local government units. Specifically, among the devolved functions and facilities are (1) health services which include hospitals and other tertiary health services; (2) social welfare services which include programmes and projects on rebel returnees and evacuees; relief operations, and population development services, and (3) infrastructure facilities intended to service the needs of the residents of the province and which are funded out of provincial funds, including (but not limited to) provincial roads and bridges, inter-municipal waterworks, drainage and sewerage, flood control and irrigation systems, reclamation projects, and similar facilities.
Presidental Issuances •
EO 948, s-1984 on the grant of compensatory benefits to disaster volunteer workers (Note: This has yet to be enforced).
•
Proclamation No. 296, s-1988 as amended by EO 137, s-1999 on declaring the 1st Week of July of every year as Natural Disaster Consciousness Week (now Whole Month of July as National Disaster Consciousness Month)
•
PMO No. 36, s-1992 as amended by PMO No. 42, s-1997 on the establishment of a special facility for the importation and donation of relief goods and equipment in calamitystricken areas.
•
PMO dated 10 February 1999 on the guidelines on the programming and use of calamity fund.
•
EO 137 dated 10 August 1999, declaring the month of July of every year as National Disaster Consciousness Month and Institutionalizing the Civil Defense Deputization Program.
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NDCC Issuances •
Memo Order No. 02, s-1999 – Revised policies and procedures on calamity fund management.
•
Memo Order No. 04, s-1998 – Amended policies, procedures and criteria for calamity area declaration.
•
Memo Order No. 13, s-1998 – Amended policies and procedures on the provision of financial assistance to victims of disasters.
•
Others, such as policies and procedures on foreign disaster assistance, criteria and procedures on the search for outstanding DCCs and disaster heroes, community-based rescue, evacuation, and relief operations and volunteerism.
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Sourcebook 3
Sourcebook 3
REFERENCES FOR MODULE 3 – BARANGAY RISK ASSESSMENT
3.1 COMMUNITY RISK ASSESSMENT: HAZARD, VULNERABILITY, CAPACITY ASSESSMENT (Center for Disaster Preparedness CBDRM Training Hand-outs)
Community Risk Assessment •
A participatory process to identify and assess the hazards (which threaten the community) and the community’s vulnerabilities and capacities. It involves an understanding of how people in the community perceive and measure disaster risk.
Purpose of Community Risk Assessment •
Unites the community in a common understanding of their disaster risk – hazards, vulnerabilities and capacities
•
Basis for identifying appropriate and adequate risk reduction measures
•
Contributes to raising community awareness about potential risk they had not previously known of
•
Baseline data on the community situation – its vulnerabilities and capacities – when compared with data at a later period, can be used to evaluate the results of community disaster preparedness activities
•
Data generated can be used in situational analysis and needs for project proposals for mitigation and community development projects
Components of Community Risk Assessment •
People’s perception of risk - Understanding the perception of risk of different groups and sectors in the community
•
Hazard assessment - Assessing the nature and behaviour of hazards
•
Vulnerability assessment - Identifying the particular elements-at-risk and why they can be damaged
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•
Capacity assessment - Identifying people’s survival or coping strategies and what resources can be used in disaster management activities (before, during and after a disaster)
People’s Perception of Risk •
People’s vulnerability and how they perceive or view disaster risks are influenced by their socio-economic status.
•
Aside from income levels, age, gender, educational background, livelihood and employment, culture is an important consideration for why people have different ways of looking at the community disaster situation.
•
People’s perception of disaster risk is also influenced by previous experiences, like exposure to hazards and the specific preparedness and mitigation measures taken before, during and after the disaster.
•
Insiders (community members) and outsiders (NGOs, local and national government agencies) may also have differing perceptions of disaster risks.
•
The community risk assessment process provides the venue to share these different views or perceptions. Community risk assessment results in a common understanding of the community’s disaster situation, which becomes the basis for common actions to take in disaster risk reduction.
•
The community risk assessment process combines local knowledge with scientific and technical information (which outsiders usually bring into the community).
•
Various tools (which are adapted from participatory rural appraisal or participatory learning and action) are used in community risk assessment to bring in to the open different views and validate information.
•
The community measures its disaster risk as high, moderate or low for various hazards and delineates areas in the community which are safe and dangerous for housing, economic activities and other community functions.
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3.2. MAJOR KINDS OF HAZARDS (Major Hazards, Family and Community Disaster Preparedness: Guide for Training Families and Communities, Department of Social Welfare and Development)
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3.3 CATEGORIES AND FACTORS FOR CAPACITY AND VULNERABILITIES ANALYSIS (Mary Anderson & Peter Woodrow, Capacity Vulnerability Assessment Workshop, Manila, 1992)
Physical / Material •
Location and type of housing/building materials
•
Land, water, animals, capital, other means of production (access and control)
•
Infrastructure and services: roads, health facilities, schools, electricity, communications, transport, housing, etc.
•
Human capital: population, mortality, diseases, nutritional status, literacy, numeracy, poverty levels
•
Environment factors: forestation, soil quality, erosion
Social / Organizational •
Family structures (weak/strong)
•
Leadership qualities and structures
•
Legislation
•
Administrative structures and institutional arrangements
•
Decision-making structures (who is left out, who is in, effectiveness)
•
Participation levels
•
Divisions and conflicts: ethnic, class, caste, religion, ideology, political groups, language groups, structures for mediating conflicts
•
Degree of justice, equality, access to political process
•
Community organizations: formal, informal, traditional, governmental, progressive
•
Relationship to government, administrative structures
•
Isolation or connectedness
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Motivational / Attitudinal •
Attitude towards change
•
Sense of ability to affect their world, their environment
•
Initiative, getting things done
•
Faith, determination, fighting spirit
•
Religious beliefs, ideology
•
Fatalism, hopelessness, despondency, discouragement
•
Dependent/independent (self-reliant)
•
Consciousness, awareness
•
Cohesiveness, unity, solidarity, cooperation
•
Orientation towards past, present, future
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3.4 GUIDELINES FOR ELABORATING A COMMUNITY RISK MAP (René Martorell and Rocio Sáenz, International Strategy for Disaster Reduction Latin America & the Caribbean, 1994-2004, UNISDR)
These guidelines are meant as a tool to help local communities and organizations to produce a risk map, which can serve as a useful material to prepare and train community members on how to deal with the hazards and risks to which they are exposed. Its simplified format makes it easy to use by local organizations as well as by the facilitators and local staff of the institutions entrusted with disaster reduction in a variety of sectors.
What is a Risk Map? A Risk Map is a drawing that identifies the location of high-risk areas in the community as well as the chief settlements and infrastructure that might be affected in the event of a disaster. The Risk Map employs symbols to identify certain places that serve as points of reference, such as a Red Cross building, a health centre, the police station, the fire brigade station, churches, the municipal building, the school, the football field, rivers that flow through the area, and so on. Certain colours are used to indicate the level of risk – for instance, red for high-risk areas, yellow for medium-risk areas, and green for relatively risk-free areas.
What Is the Value of Risk Maps? •
They make it possible for all of us to participate. It is the result of how we all perceive our situation.
•
By producing a Risk Map, we get to know and identify the risks we face, helping us to find solutions or take precautions.
•
A Risk Map also helps us to locate the major hazards that, combined with human activity, generate risks.
•
The Risk Map provides the authorities and local organizations with shared, joint criteria for decision-making on the actions and resources needed to mitigate the impact of disasters.
•
The Risk Map also helps us to record historical events that have had a negative impact on the community and the population, enabling us to prevent similar occurrences in the future.
Who Can Participate? All of us can participate in the production of a Risk Map. No particular group should monopolize the effort. Therefore, it is important to have enough time to do the job properly, as well as the right setting in which the largest possible number of people can collaborate in a methodical manner.
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Key stakeholders that must take part in the process include the local authorities, members of community organizations, community leaders, NGOs that provide services in the area, professional and technical staff from public and private institutions, local health personnel, teachers and students, and representatives of the various groups in the community, whether formally organized or not.
How Do We Elaborate a Risk Map for the Community? To elaborate a community Risk Map, you need to take certain steps. Each step involves very specific activities. But bear this in mind: the steps to be taken depend on the community and how organized it is, as well as on the nature of the risks and hazards present in the area. It is the community itself that must decide which procedures best fit its own conditions, and which steps it should take to produce the map. These, then, are the steps or stages needed:
1) Organizing the work The first thing is to organize the work so as to find the needed information for producing the community Risk Map. •
Convene a work meeting. Invite the community, institutional representatives, local authorities and the population in general to participate in the meeting.
•
Explain the objectives of the meeting. The essential thing is to emphasize the importance of community preparedness and planning to confront emergencies.
•
Analyse previous experiences. The purpose is to allow participants to recall and voice their memories of previous emergencies. This helps to motivate participants by making them aware of the importance of working together to prevent emergencies and respond to them.
2) Discussing community risks and hazards It is vital to spend some time explaining the terms of risk, hazard, vulnerability, capacity and disaster, so that all participants understand and share the basic concepts. This will be useful later on, when a tour of the community is undertaken to identify risks and hazards. •
Present the concepts of risk, hazard, and vulnerability. This presentation must be carried out by people who are technically qualified to do so.
•
Identify, in general, what the major hazards are. The idea is for participants to answer questions such as, “What are the major hazards affecting the community?” “Of these, which is the most significant hazard we should bear in mind?”
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3) Preparing guidelines for observation and data collection It is important to produce guidelines to let stakeholders know what to look for during their tour. Certain questions may be asked, such as the following: •
If a flood hit this community as a result of an intense tropical storm or hurricane, which community areas would be most at risk of suffering an adverse impact? Which kind of infrastructure? Which settlements and groups? Why?
•
If a significant earthquake hit the community, which community areas would be most at risk of suffering an adverse impact? Which kind of infrastructure? Which settlements and groups? Why?
For example, let us consider the possibility of a tropical storm that could threaten a community with severe floods. The following questions might be asked: a. Which areas might be flooded if there was a strong storm? Why? b. Which areas have been flooded in the past in similar situations? c. Are there rivers that might overrun their banks? Where would this be most likely to happen? Are there houses in those places? How many are there? What kind of houses are they? Are there domestic animals there? d. What instabilities in the terrain might lead to an avalanche or landslide? Are there homes or crops that might be directly affected by such a phenomenon? e. What homes or neighbourhoods in the community might be affected in the event of a flood? Why? Is the risk obvious, or not so apparent? Why? f. What other structures, such as bridges, walls, roads, or buildings might be affected? g. Is there a risk of the community becoming isolated if connecting roads or bridges are damaged? h. What places would suffer the greatest risk of adverse effects as a result of a flood? i. Which places might be polluted as a result of a flood? Would water sources, landfills, etc. be impacted?
4) Touring the community Now, at last, everyone should be ready for a tour of the community to gather information on the local risks and hazards, and on which places might be used as shelters or security zones, in the event of a disaster, to care for the injured and the most vulnerable. These are the steps to be taken: • •
Establish groups and distribute the areas to be surveyed. Groups should be made up of five individuals or so. Define how long the tour will take. Arrange for a specific time when all the groups can come together and discuss their findings.
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•
Make sure each group has a copy of the observation guidelines. This will ensure that there is agreement about which hazards to pay attention to.
•
Engage in intra-group discussions. Each group may agree to meet by itself after the tour to discuss the findings and consolidate them before meeting with the others.
5) Discussing and Analyzing the Preliminary Results When the groups have completed their tour of the community and collected all the information, a Plenary Session must be held at a previously agreed-upon time and place. There, the results must be discussed and analysed, and priorities must be assigned. The steps to be taken may include the following: •
Present the information collected by each group. Each group should explain what hazards they found and what the risks are.
•
Discuss the findings. Have all participants discuss the findings, perhaps enriching them with their own memories or observations of the places inspected by the other groups, until there is at least preliminary agreement on what the major risks are.
6) Producing the Risk Map There are two possible ways of producing the Risk Map. •
Someone who is skilled at drawing prepares beforehand a general map of the community, showing the various settlements and landmarks. On this, the various hazards would be drawn and, once there is agreement that all the significant threats have been included, a final draft would be produced.
•
Each group can draw the portion of the community that they surveyed, identifying the most significant risks.Then the Plenary assembles, puts the maps together, discusses what is contained in each one, and a final, consolidated general map is produced including the observations of all the groups.
As already noted, these procedures are not ironclad. They can and should be adapted to the way each community has traditionally organized itself. What is important is that participation be high and include as many of the different groups of stakeholders as possible, since the purpose of the exercise is not only to produce a Risk Map – essential though this may be – but also to raise awareness of the importance of disaster reduction through prevention, mitigation and preparedness. Source: http://www.crid.or.cr/crid/CD_EIRD_Informa/ing/No3_2001/Pagina15.htm
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Sourcebook 4
Sourcebook 4
REFERENCES FOR MODULE 4 – BARANGAY RISK REDUCTION PLANNING
4.1 IDENTIFYING RISK REDUCTION MEASURES (CDP Training Handouts)
What are Risk Reduction Measures? •
Measures, interventions, solutions, strategies, activities to reduce people’s vulnerability and strengthen capacities.
•
Can be categorized as measures to limit the impact of hazards, to reduce vulnerability and to build capacity (including reinforcing people’s existing coping strategies).
•
Appropriate and doable disaster management activities to undertake before, during and after the disaster. ¢
¢
Structural and non-structural prevention and mitigation measures: dams, dikes, sea walls, coastal wind breaks or shelter belts (planting of coconut trees along the beach), mangroves reforestation, permanent houses, safe building design, safety measures at home and in the community, strengthening livelihood and community health, food security, nutrition improvement, literacy programme, relocation to safer location, advocacy for environmental protection and development issues. Preparedness: public awareness, early warning, evacuation drill, strengthening coordination and institutional arrangements, stockpile of supplies and logistics. Preparedness for responses to undertake during the disaster and recovery period: search and rescue, first aid, evacuation centre management, damage needs capacity assessment, immediate repair of community facilities and services, relief delivery, clearing the debris, psychosocial counselling and stress debriefing, medical services, and recovery after the disaster, such as rehabilitation and reconstruction activities.
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How to Identify Appropriate Risk Reduction Measures Using the results of the community risk assessment, here are the basic steps: a. Identify the hazard. b. Determine the elements-at-risk and possible damages. c. Determine conditions and factors of vulnerability. Why can the elements-at-risk be damaged? d. Identify existing coping strategies and capacities/resources. e. Identify measures to reduce the vulnerability of the elements-at-risk. f. Prioritize risk reduction measures to undertake: immediate, short-term, medium-term, long-term.
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Points to Consider in Prioritizing Risk Reduction Measures •
Addresses priority elements-at-risk and projected damages.
•
Resources to undertake the risk reduction measures are readily available or can be made available (manpower, materials, equipment, knowledge, skills, finances, technology).
•
Time consideration in implementing the risk reduction measures (seasonality of hazard, routine flow of activities in the community, negotiation of support from partner agency or agencies, etc).
•
Reliability and technical feasibility and suitability, especially for structural measures.
•
Protects local cultural heritage and values.
•
Strengthens coping mechanisms and builds capacity.
•
Management capability of the community: Will the immediate implementation of particular measures, especially big or complicated projects, strain the newly formed community organization? Will the implementation cause division instead of unity? What sequence of activities also leads to increasing build-up of management capability?
•
Gives immediate benefits to the whole or widest section of the community or to the most vulnerable groups.
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4.2 FROM RISK MAPPING TO PREPAREDNESS AND MITIGATION PLANNING (Isaias Panganiban, Disaster Management Action Officer, Guagua Pampanga and Cedric Daep, Head, Provincial Public Safety and Emergency Management Office, Province of Albay)
Risk/hazard mapping ¢
¢
¢
Undertake mapping of flood levels through colour codes Undertake mapping of potential sources of flash floods, dike collapse and avulsion landslides, and other identified risks Undertake mapping of safe sites for evacuation, exit routes and pick-up points
Risk/hazard assessment and monitoring ¢
Proper handling and processing of scientific data in relation to prevailing cultural “taboos”
¢
Establishment of monitoring work chart (before and during occurrence of disaster)
¢
Conduct of trekking, sounding and benchmarking
¢
Graduated cylinder alternative to rain gauge in measuring amount of rainfall
¢
Floating object as means to measure water velocity
Warning system ¢
Establish system of warning (church bells in lieu of sirens)
¢
Establish warning flow chart (including authorities and persons responsible)
¢
¢
Re-invent warning devices (such as localized radio, using amplifiers attached to VHF base hand-held radios) Establish secondary watch points (in case of failure of the principal warning post)
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Evacuation ¢
¢
¢
¢
Identification of safe evacuation site Make an inventory of resources available at the evacuation site (capacity of the rooms, availability of electricity, water source, comfort rooms vis-à-vis the expected evacuees) Re-invent access to other facilities, such as transport and food supplies Identification of exit route, convergence/pick-up points and alternative mode of transport (in case of failure of roads)
Communication protocol ¢
Hierarchical levels of authority in the local government set-up
¢
Essence of Section 27 of the Local Government Code (prior consultation requirement)
¢
Observance of on-scene command
Simple engineering intervention for mitigation ¢
Sandbagging as manifestation of bayanihan spirit (communal unity)
¢
Pilot channelling alternative to high-cost dredging
¢
Clearing of bridge girder and canal de-clogging before onset of rains
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4.3 EARLY WARNING (ADPC, CBDRM Participants’ Workbook; CDP Training Handouts)
What is Early Warning? Early warning is the relay to individuals, groups or populations of messages, which provide them with information about: •
The existence of danger; and
•
What can be done to prevent, avoid or minimize the danger.
Why Do We Give Warnings? To inform everyone about: •
Hazards
•
Elements-at-risk
•
Risks
•
The environment
•
Potential needs
To advise on: •
Means of protection Example: warning on contamination of water sources either from natural or human-made activities (contamination due to parasites/bacteria etc; contamination due to mining)
•
Means of preparedness Example: severe weather forecast/warning, preventive evacuation
•
Means of mitigation Example: sandbagging to reinforce the dike
•
Means of response to threat Example: warning that floodwater is about to breach dike; that there is need to reinforce dike (sandbag); warning that informs community of the presence of armed group in the area and that people are advised to congregate at the village square
To instruct individuals or communities •
What to do next, how, where, when and why
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Different Forms of Giving Warning and/or Receiving Warning •
Village/community meetings
•
Notices/posters/billboards
•
Verbal or pictorial messages
•
Cartoon series/mascots
•
Radio
•
Films
•
Other indigenous forms and channels
Things to Consider When Giving Warnings Inform the people of the different phases of the warning and their meaning. Example: Cyclone Warning Alert Level #1 or Cyclone Signal # 1 Alert Level #2 or Cyclone Signal # 2 Community-defined warning system/s: Flood Warning # 1 Flood Warning #2
2 feet of floodwater at village square 6 feet of floodwater at village square Main road is not passable
Inform or update the evacuees/community of the forecast and the warning of agencies or community monitoring team using symbols or sounds that everybody can understand. Example: Typhoon Warning
Symbol or Sound
Alert Level # 1 or Typhoon Signal # 1
# 1 sign or square or whistle
Alert Level # 2 or Typhoon Signal # 2
# 2 signs or triangle or drums
Alert Level # 3 or Typhoon Signal # 3
# 3 signs or rectangle or siren
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•
If symbols are to be used, these can be painted or mounted in plywood or boards that can be read or seen from afar
•
Make sure to change the symbol or sound when a change in the warning or forecast is made by warning agencies or by the community monitoring team
“Information Boards” can be placed in strategic or conspicuous places such as: •
Church patio, schools or government buildings
•
Mountains or high places
•
Stores and transportation facilities
•
Other places where people frequently pass or gather
Organize a committee on information. •
The task of this committee will be to monitor and prepare all aspects of information dissemination regarding the warnings or forecasts and the monitoring of all hazards (natural or human-made).
•
The flow of information from the "field" until it is processed and packaged for information dissemination to the community should be clear.
Identify roles and responsibilities. •
For any one element, an organization or an individual must be able to determine that it has: ¢
¢
¢
a primary role (responsibility for initiating and maintaining action); and/or a secondary role (responsibility for undertaking tasks in support of an organization or individual with a primary role); or no role at all.
•
Two methods of describing these roles and responsibilities can be used by the information committee: either list organizations involved and describe their roles for each hazard, or list hazards and identify the lead/support organizations for each hazard.
•
The description of roles and responsibilities by organization is useful for each team leader, coordinator or organization as it allows them to review their (individual and) organization’s overall involvement.
The warning should: •
Be area-specific and sector/people-specific
•
Be hazard-specific
•
Be based on the Community Hazard, Capacity and Vulnerability Assessment
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•
Give advice on what to do
•
Inform the community of the possible effects and risks that may happen if they do not do what is advised Example: Typhoon Warning Alert Level # 1 or Typhoon Signal # 1
Symbol or Sound/ Action # 1 sign or square or whistle / ready
Alert Level # 2 or Typhoon Signal # 2
# 2 signs or triangle or drums
/ get set
Alert Level # 3 or Typhoon Signal # 3
# 3 signs or rectangle or siren
/ go
•
The community should know the meanings of actions to be taken (What “ready”, “get set” and “go” mean). Recommended action should be very specific. For example:“pack up things”, “proceed to pick-up point”, or “proceed to evacuation site”.
•
The warning is given in simple form and in the local dialect. Example:
ATTENTION: Fellow citizens/residents of Romano village
Based on the latest warning of (warning agency), Typhoon X may pass Southern Luzon region within 24 hours. Calumpang River is expected to overflow and shall inundate Romano Village All residents are advised to evacuate to their designated Evacuation Sites. Please bring food, cooking utensils, bed sheets and water. Farm animals shall be evacuated to the stable on top of the hill. We have three hours to prepare before our organized evacuation. Proceed to the village square where vehicles are waiting to take us to the evacuation centre. It is estimated that floodwaters will recede within three days.We can probably go back to our homes on the fourth of November.
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4.4 EVACUATION (Citizens’ Disaster Response Centre, Disaster Preparedness Training Materials)
Evacuation is an organized movement of people from an area of risk to a safer location When? •
Inundation of living areas by flood, storm surge or tsunami
•
Volcanic eruption
•
Serious damage to construction of homes (typhoon, earthquake, etc)
•
Fire
•
Times of armed conflicts
Phases of evacuation •
Warning
•
Order to move
•
Actual evacuation
•
Evacuation centre management
•
Return to former or new place
Plan for actual evacuation •
Identify a safe place for evacuation
•
Identify the shortest and safest route
•
Identify and prepare alternative routes
•
Identify pick-up points or assembly points for people
•
Place "road signs" along evacuation routes
•
Prepare master list of evacuees and check at each pick-up point if the group is complete
•
Prepare evacuation schedules and groupings in case transportation will be used
•
Set provisions and plan evacuation of animals and other properties of evacuees
•
Organize an Evacuation Committee among community members
•
Identify and prepare requirements during evacuation (transport, gasoline, food, water, medicine, road signs, communication systems, etc)
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Tasks of Evacuation Committee Pre-evacuation: •
Prepare evacuation plan including warning system
•
Training and education of community members
•
Identify and prepare logistical needs for evacuation
•
Networking, coordination and resource generation for the purpose of evacuation
During evacuation: •
Give order to move
•
Manage logistical needs for the evacuation
•
Ensure orderly evacuation
•
Act as a marshals/guides during evacuation
•
Search and rescue
In Evacuation Centre: •
Coordinate with health, food, sanitation, security, information committee
•
Manage relief operations while in Evacuation Centre
•
Networking, public information, advocacy, resource generation
Evacuation Centre Management by Community •
Criteria for Evacuation Center selection: ¢
Availability of water
¢
Accessibility
¢
Topography and drainage
¢
Available space (people, animals, communal services, etc)
¢
Safety
¢
Soil type (drainage/farming)
¢
Land rights
•
Site assessment
•
Site planning (latrines, cooking, animals, etc.)
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4.5. PUBLIC AWARENESS (ADPC, CBDRM Participants’ Workbook; CDP Training Handouts)
Definition of Public Awareness •
The process by which vulnerable populations understand the nature of hazards and their potential for causing disasters.
•
A systematic distribution of information about potential hazards and threats and what people can do about them in order to encourage people to protect their lives and property.
•
The process through which people living in hazard-prone areas come to realize and understand that they live in areas of risks, know the specific dangers that they are exposed to and the warnings that are issued, and know the appropriate actions to be taken to protect their lives and minimize property damage.
•
Information and education successfully communicated on the effect of hazards to the community and the necessary precautionary measures to undertake.
Objectives of Public Awareness •
To increase the public’s knowledge about hazards and the consequences of their impact.
•
To increase knowledge about practical preparedness measures.
•
To inform the public about the warning system that will be employed and what they should do when they experience it.
•
To increase knowledge on how to respond to an emergency situation.
•
To mobilize support for disaster risk reduction plans or response activities.
Elements of Public Awareness •
The message
•
The means (posters, radio, calendars)
•
The audience
•
The intended result
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Structure of Public Awareness •
Long-term and repetitive approach
•
Consistent
•
Uses wide variety of methods and media
•
Aims at general and specific groups £
Utilizes normal and accessible sources of information
£
Concentrates on high-priority hazards in vulnerable areas
Features of an Effective Public Awareness Programme •
Ongoing process – Public awareness is an ongoing process, not simply a set of products such as posters, brochures, etc.
•
Participatory – The target population are active participants in programme design and implementation phases in partnership with individuals having the necessary technical skills.
•
Community-specific – The culture and the disaster history of the community should be considered.
•
Hazard-specific – An assessment of specific hazards is the essential basis for developing a public awareness programme.
•
Target population-specific – It must be based on the needs of specific group and offer information essential to them.
•
Integral part of local warning and response system.
Some Channels and Forms •
Community meetings, house-to-house campaign
•
Posters, poster-making contest among school children
•
Plays, drama/skits, songs
•
Leaflets, brochures, comics, calendar, manuals, books
•
Radio programme, television features, tapes, CD
•
Earthquake safety day, disaster consciousness day/week/month
•
Photo exhibit, forum, public speeches
•
Press releases, letters to the editor, articles in printed media
•
Disaster management orientation, disaster preparedness training
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4.6 SUMMARY OF THE HYOGO FRAMEWORK FOR ACTION 2005–2015: Building the Resilience of Nations and Communities to Disasters – Outcomes of the World Conference on Disaster Reduction, Hyogo, Kobe, Japan, 18–22 January 2005
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4.7
THE ‘A TO Z’ OF FACILITATING COMMUNITY PLANNING (Nick Wates, Community Planning Handbook)
Using what works in participatory methodologies in development planning will also help in community disaster risk management planning. The following are general ‘A to Z’ tips on how to facilitate participatory community planning. Accept different agendas. People will want to be involved for a variety of reasons, for instance: academic enquiry, altruism, curiosity, fear of change, financial gain, neighbourliness, professional duty, protection of interests, socializing.This need not be a problem, but it helps to be aware of people’s different agendas. Accept limitations. No community planning activity can solve all the world’s problems. But that is not a reason for holding back. Limited practical improvements will almost always result, and community planning activity can often act as a catalyst for more fundamental change. Accept varied commitment. Far too much energy is wasted complaining that certain people do not participate when the opportunity is provided. All of us could spend our lives many times over working to improve the local environment. Everyone has their own priorities in life and these should be respected. If people do not participate it is likely to be because they are happy to let others get on with it.They are possibly busy with things that are more important to them, or the process has not been made sufficiently interesting. Agree upon rules and boundaries. There should be a common understanding by all main interest groups of the approach adopted. Particularly in communities where there is fear (for instance that others may be trying to gain territorial advantage), it is vital that the rules and boundaries are clearly understood and agreed upon. Avoid jargon. Use plain language. Jargon prevents people from engaging and is usually a smokescreen to hide incompetence, ignorance or arrogance. Be honest. Be open and straightforward about the nature of any activity. People will generally participate more enthusiastically if they know that something can be achieved through their participation (e.g. if there is a budget for a capital project). But they may be quite prepared to participate ‘at risk’ providing they know the odds. If there is only a small chance of positive change as a result of people participating, say so. Avoid hidden agendas. Be transparent. The objectives and people’s roles should be clear and transparent at events. For instance, it may seem trivial, but the importance of name badges to prevent events being the preserve of the ‘in-crowd’ can never be stressed enough. Be visionary yet realistic. Nothing much is likely to be achieved without raising expectations. Yet dwelling entirely on the utopian can be frustrating. Strike a balance between setting visionary utopian goals and being realistic about the practical options available.
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Build local capacity. Long-term community sustainability depends on developing human and social capital. Take every opportunity to develop local skills and capacity. Involve local people in surveying their own situation, running their own programmes and managing local assets. Communicate. Use all available media to let people know what you are doing and how they can get involved. Community newspapers or broadsheets can be very useful. Encourage collaboration. Create partnerships wherever possible between the various interest groups involved and with potential contributors such as financial institutions. Flexibility. Be prepared to modify processes as circumstances dictate. Avoid inflexible methods and strategies. Focus on attitudes. Behaviour and attitude are just as, if not more, important than methods. Encourage self-critical awareness, handing over control, personal responsibility and sharing. Follow up. Lack of follow-up is the most common failing, usually due to a failure to plan and budget for it. Make sure you set aside time and resources for documenting, publicizing and acting on the results of any community planning initiative. Go at the right pace. Rushing can lead to problems. On the other hand, without deadlines, things can drift. Using experienced external advisors may speed up the process but often at the expense of developing local capacity. Get the balance right. Go for it. This is the phrase used most by people who have experienced community planning when asked what their advice would be to others. You are bound to have doubts, it is usually a leap in the dark. But you are unlikely to regret taking the plunge. Have fun. Getting involved in creating and managing the environment should not be a chore. It can be a great opportunity to meet people and have fun. The most interesting and sustainable environments have been produced where people have enjoyed creating them. Community planning requires humour. Use cartoons, jokes and games whenever possible. Human scale. Work in communities of a manageable scale.This is usually where people at least recognize each other. Where possible, break up larger communities or geographic places into a series of smaller ones. Involve all those affected. Community planning works best if all parties are committed to it. Involve all the main interested parties as early as possible, preferably in the planning of the process. Activities in which key players (such as landowners or planners) sit on the sidelines are all too common and rarely achieve their objectives completely.Time spent winning over cynics before you start is well worthwhile. If there are people or groups who cannot be convinced at the outset, keep them informed and give them the option of joining in later on.
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Involve all sections of the community. People of different ages, gender, backgrounds and cultures almost invariably have different perspectives. Ensure that a full spectrum of the community is involved. This is usually far more important than involving large numbers. Learn from others. There is no need to re-invent the wheel. One of the best sources of information is people who have done it before. Don’t think you know it all. No one does. Be open to new approaches. Get in touch with people from elsewhere who have relevant experience. Go and visit them and see their projects. Seeing is believing. Do not be afraid of experienced ‘consultants’ but choose and brief them carefully. Local ownership of the process. The community planning process should be ‘owned’ by local people. Even though consultants or national organisations may be providing advice and taking responsibility for certain activities, the local community should take responsibility for the overall process. Maintain momentum. Regularly monitor progress to ensure that initiatives are built on and objectives achieved. Development processes are invariably lengthy. The participation process needs to stay the course. If there has to be a break, start again from where you left off, not from the beginning. Periodic review sessions can be very valuable to maintain momentum and community involvement. Mixture of methods. Use a variety of involvement methods as different people will want to take part in different ways. For instance, some will be happy to write letters, others will prefer to make comments at an exhibition or take part in workshop sessions. Now is the right time. The best time to start involving people is at the beginning of any programme.The earlier the better. But if programmes have already begun, participation should be introduced as soon as possible. Start now. Personal initiative. Virtually all community planning initiatives have happened only because an individual has taken the initiative. Don’t wait for others. That individual could be you! Plan your own process carefully. Careful planning of the process is vital. Avoid rushing into any one approach. Look at alternatives. Design a process to suit the circumstances. This may well involve combining a range of methods or devising new ones. Plan for the local context. Develop unique strategies for each neighbourhood. Understand local characteristics and vernacular traditions and use them as a starting point for planning. Encourage regional and local diversity. Prepare properly. The most successful activities are invariably those on which sufficient time and effort have been given to preliminary organization and engaging those who may be interested.
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Process as important as product. The way that things are done is often as important as the end result. But remember that the aim is implementation. Participation is important but is not an end in itself. Professional enablers. Professionals and administrators should see themselves as enablers, helping local people achieve their goals, rather than as providers of services and solutions. Quality not quantity. There is no such thing as a perfect participation process. The search for one is healthy only if this fact is accepted. Generally, the maximum participation by the maximum number of people is worth aiming at. But any participation is better than none and the quality of participation is more important than the numbers involved. A well-organized event for a small number of people can often be more fruitful than a less well-organized event for larger numbers. Record and document. Make sure participation activities are properly recorded and documented so that it can be clearly seen who has been involved and how. Such records can be invaluable at a later stage. Respect cultural context. Make sure that your approach is suitable for the cultural context in which you are working. Consider local attitudes to gender, informal livelihoods, social groupings, speaking out in public and so on. Respect local knowledge. All people, whether literate or not, whether rich or poor, whether children, women or men, have a remarkable understanding of their surroundings and are capable of analysing and assessing their situation, often better than trained professionals. Respect local perceptions, choices and abilities and involve local people in setting goals and strategies. Shared control. The extent of public participation in any activity can vary from very little to a great deal. Different levels are appropriate at different stages of the planning process but shared control at the planning and design stage is the crucial ingredient. Spend money. Effective participation processes take time and energy. There are methods to suit a range of budgets and much can be achieved using only people’s time and energy. But over-tight budgets usually lead to cutting corners and poor results. Remember that community planning is an important activity, the success or failure of which may have dramatic implications for future generations as well as your own resources. The costs of building the wrong thing in the wrong place can be astronomical and make the cost of proper community planning pale in significance. Budget generously. Think on your feet. Once the basic principles and language of participatory planning are understood, experienced practitioners will find it easy to improvise. Avoid feeling constrained by rules or guidance (such as this handbook)!
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Train. Training is invaluable at all levels. Encourage visits to other projects and attendance in courses. Build training into all your activities. Trust in others’ honesty. Start from a position of trusting others and generally this will be reciprocated. Lack of trust is usually due to lack of information. Use experts appropriately. The best results emerge when local people work closely and intensively with experts from all the necessary disciplines. Creating and managing the environment is very complicated and requires a variety of expertise and experience to do it well. Do not be afraid of expertise; embrace it. Avoid dependency on, or hijacking by, professionals. Keep control local. Use experts ‘little and often’ to allow local participants time to develop capability, even if it means they sometimes make mistakes. Use facilitators. Orchestrating group activities is a real skill.Without good facilitation the most articulate and powerful may dominate. Particularly if large numbers of people are involved, ensure that the person (or people) directing events has good facilitation skills. If they don‘t, hire someone who does. Use local talent. Make use of local skills and professionalism within the community before supplementing them with outside assistance. This will help develop capability within the community and help achieve long-term sustainability. Use outsiders, but carefully. A central principle of community planning is that local people know best. But outsiders, if well-briefed, can provide a fresh perspective which can be invigorating. Getting the right balance between locals and outsiders is important. Avoid making locals feel swamped or intimidated by ‘foreigners’. Visualize. People can participate far more effectively if information is presented visually rather than in words. A great deal of poor development, and hostility to good development, is due to people not understanding what it will look like. Use graphics, maps, illustrations, cartoons, drawings, photo montages and models wherever possible. And make the process itself visible by using flipcharts, Post-it notes, coloured dots and banners. Walk before you run. Developing a participatory culture takes time. Start by using simple participation methods and work up to using more complex ones as experience and confidence grow. Work on location. Wherever possible, base community planning activities physically in the area being planned. This makes it much easier for everyone to bridge the gap from concept to reality. Source: http://www.communityplanning.net/principles.htm
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Closing Activities
Closing Activities
Sourcebook: References for Opening Activities
Evaluation Form Please answer this evaluation honestly to help improve the training! RATING : 1=Poor 2=Needs Improvement 3=Average 4=Good 5=Excellent
q
1. Meeting Objectives and Expectations Remarks:
2. Contents q A. Usefulness & Relevance q B. Adequacy Topics most relevant: Topics not relevant: Topics that should have been covered: New things learned/insights:
q
q
q
q
q
q
3. Methodology/Process: Appropriateness & Effectiveness Remarks:
4. Facilitation/Resource Persons Remarks:
5. Participation Remarks:
6. Host Team Performance Remarks:
7. Time Allocation and Management Remarks:
8. Venue/Food/Accommodation Remarks:
Accomplished by
(____/____/____) Name & Signature
Date 159