ENHANCING INSTITUTIONAL
ARRANGEMENTS FOR CLIMATE
CHANGE ADAPTATION: THE
CASE OF PASIG CITY IN METRO
MANILA
by
Emma Porio, PhD
Professor of Sociology and Chairperson, Department of Sociology and Anthropology,
School of Social Sciences, Ateneo de Manila University. Paper presented at the Cities at
Risk II Conference, Academia Sinica, Taipe, April 11-13, 2011. For comments send to:
eporio@ateneo.edu
•!
•!
•!
Urban governance structures/institutions in
Philippine cities are weakly adapted to climate
change !heightened by poverty, environ’tl
vulnerability and institutional weaknesses of
a highly decentralized/democratized gov’t!
Need to establish the data bases re: cities’
ecological-environmental vulnerabilities and
how this is intimately connected to climate
change-related risks ! NEED to
Integrate spatial-ecological based planning,
green development/technologies to “climateproof” urban planning/development initiatives
•!
•!
•!
•!
Climate Change Study Among the Urban
Poor Riverine Communities of Metro
Manila: Vulnerability, Adaptation, and
Resilience Among Marginal Populations
(Porio/JICA)
Access to Justice Among the Urban Poor in
the Philippines: Conflicts Regarding Urban
Assets (Land, Housing, Services (Porio)
J. Birkmann’s Urban Governance
Adaptation Framework
R. Fuch’s/H. Virji’s/G.McBean’s Concepts/
Framework
•!To create an information and knowledge base to identify, develop
and implement effective responses
•!Identify the available adaptation options, climatic conditions
under which they will work, anticipated benefits, resource
requirements and requisite institutional structures and processes
•!Lessons from short-term responses and implications for
mainstreaming disaster management and adaptation into
long term development planning, and
•!Specifically,
urban
governance
adaptation for DRRM-CCA of cities
re-arrangements
or
•!
•!
•!
•!
•!
•!
Mostly Located in Coastal Areas/Flood Basins
Infrastructure/Urban Basic Services:
Sometimes non-existent; NOT “Climate Proofed”
Located along Seismic Lines (e.g., Ring of Fire,
Marikina Earthquake Fault)
Wetlands/Marsh/Swampy Lands: inferior soil,
subsidence, habitat for disease-bearing vectors
Sea Level Rise and the low-lying areas of most
coastlines and related river systems
Environmental Pollution/Degradation
Metro Manila: Marikina City’s/Pasig City’s
Governance and Climate Change Adaptation
Sources of Risk/Exposure:
•!Population: 12 M; daytime:
16-18M people
•!Poverty Incidence: 20-30 percent
•!Percentage of population living in
informal settlements/no security of
tenure: 40-50 percent
•!National capital—below sea level
•!Located in 3 flood basins
•!Density: 18,000 per sq.km.
•!Urban-Economic Primacy—pop.
12x the next largest city; accounts
37 % of national GDP
•!Earthquake fault runs through the
metropolis (cf. Loyzaga’s slides)
•!Governance (decentralized and
democratized): MMDA (16 cities)
and local government units (17)
Continuous increase in
population and density
Mega Manila Region: Population Density, Urban Primacy,
and Climate Change
Pampanga
Pampanga
Bulacan
Bulacan
Rizal
Rizal
Metro
Manila
Metro
Manila
Cavite
Cavite
Laguna
Batangas
1980
Laguna
Batangas
2007
Figure 1. Population Trends of Metro Manila (1970-2020)
Figure 1. Population Trends of Metro Manila (1970-2020
..
.
Source: UN 2007.
Research Sites: 15 Urban Poor Communities in Three Flood Basins
Table 2. Environmental Vulnerabilities of Places: Sources of
Vulnerabilities for Urban Poor Households in the
Three Metro Manila Flood Plains
Flood Environmental characteristics:!
Socio-eco.
Plains !
characteristics: Sources
Sources of vulnerabilities!
PasigMarikina!
KAMANAVA!
West
Mangahan
Living in flood-prone areas along
riverlines/riverbanks, subsidence,
clogged waterways!
Living along flood-prone riverlines;
near the coast (prone to floods and
sea level rise/tidal surges), land
subsidence, clogged waterways!
Living along flood prone riverlines
(Mangahan Floodway, Napindan
Channel) near Laguna Lake,
swampy lands/wetlands,
subsidence, clogged waterways!
of vulnerabilities!
Mdn monthly income:
P18,000;
Ave.Education--9.5 yrs.!
Mdn monthly income:
P15,000 !
Ave. education: 11 years!
Mdn monthly income:
P8,000;Educ: 7.5 years;
Housing dilapidated, light
materials, migrants,
renters, women-headed
households, no services!
Flood Map:
Flooded
Areas-10,
30, 100 Year
Flood in
Metro Manila
Rescue Operations in Marikina City
Metro Manila Flood Control Stations
(Right)
Source: Manda, E. (2009)
Source: Manda, E. (2009)
Large
Source: Manda, E. (2009)
Case Study of Pasig City, MM: Environmental &
Socio-economic Characteristics
•!Earthquakes: 1824, 1863; (39)1880, 1937 (57); 1968
•!Water bodies: Marikina River, Pasig River,
Manggahan Floodway (total 19 kms.) !Pasig River
connects Laguna de Bay (lake) to Manila Bay
•!17 creeks and esteros/water canals
•!Flooding (e.g., 70 percent flooded during Ketsana
Storm)
•!Poverty incidence: 20 percent
•!Pop without security of tenure: 35 percent
•!Density/congestion: 17,000/km.
•!Industrial-25 percent
Source: Gonzales, Anna Maria M. “Reminders from little brother Ondoy” Philippine Daily Inquirer. 4 Oct. 2009.
Pasig City Flood Maps
SEPT. 26, 2009
Typhoon ONDOY/KETSANA
First Hit early morning 5 am to 8
am
2nd Hit morning 9 am onwards
Flooded Areas
Water Level:
RED – 2 feet up
BLUE – 2 feet below!70 percent flooded
FLASHFLOOD along major and minor
streets.
Houses near the river (Santolan) water level
reaching 20 feet above with strong current.
SWAT and Pasig City Rescue Officials
in the Immediate Rescue and
Evacuation Plan for Flood Victims
Hospital, City Hall, Market Submerged:
Unserviceable for 2-4 weeks; City
created alternative service areas
SWAT and Pasig City Rescue Officials
in the Immediate Rescue and
Evacuation Plan for Flood Victims
Establishment of Official Relief Centers:26 in
schools, gym, basket ball courts, Bo. Centers
6 Days After Typhoon Ketsana:Children Looking at playground in Manila
Cost of Health Services During Ketsana
to Climate Change-Related Complaints
Service
Estimated Cost
PhP300-500 up to 1,500
!!!!!!!!!!"#$%&'#(!)*+),-./!
PhP750-1,500
!!!!!!!!!!0/.1.2!'&'3(4%45)*+),-.6!
"#! $%&'(%!7#+8+##+$!19!/.:3%)!*94/%1'34!
;*+#+!/'<+&1!/'(!2%&%2'3!/'(2+&1=>!
PhP35,000-60,000
(US$800-$1,400)
)#!*%+,-.+/0-./.! #+8+##+$!19!/.:3%)!*94/%1'34! PhP10,000-50,000 (US
7
;*+#+!/'<+&1!/'(!2%&%2'3!/'(2+&1!9#!8#++=>!
$250-$1,200)
0+#?%)+4!@%?+&!/#9-:9&9!9#!)*'#@+!2%&%2'33(!!19!.#:'&!/99#!:(!2+$%)'3!2%44%9&4!
!!!!!!!!!!!A399$!'&'3(4%4!
P2320 = PhP750-3,200
!!!!!!!!!!B#%&+!'&'3(4%4!
P90 = P700
!!!!!!!!!!A399$!1(/%&@!
P90 = P700
!!!!!!!!!!CDE!
P90 = P1,500 – 2,500
!!!!!!!!!!F-#'(!
P90 =P500
G*(4%)'3!CH'2!I!7%&)3.$%&@!!A399$!D*+2J!A399$!1(/%&@!'&$!CDE=!
P490 = P2,500
Estimated Damages: Post Ondoy/Ketsana
Damages for Pasig City Local Gov’t:
•! Buildings (P11,800,000,000-US$3 B)
•! Roads/drainages(P1,500,000,000-US
$36B)
•! Gov’t bldgs: schools, health centers,
playgrounds (P800,000,000 or US$20 B)
•! Government vehicles, equipment and
facilities (P14, 609, 791or US$3.5M)
Before: Ave. daily 110 trucks a day
Ondoy : 250 trucks/day for 30 days
Sanitizing Operation:1 month-3 US$ M
G#9)+44!89#!K+?+39/%&@!'!D%1(!I$'/1'<9&!G3'&!
89#!D3%2'1+!D*'&@+!7)8QR)E#'&'*'&!+1!'3=!
I44+442+&1!98!?.3&+#':%3%1(!19!
49)%9-+)9&92%)!41#+44+4!
I44+442+&1!98!?.3&+#':%3%1(!19!
)3%2'1+!)*'&@+!%2/')14!
O9)'3!+)9&92%)!$+?+39/2+&1!
41#'1+@%+4N!%&1+@#'1+$!
$+?+39/2+&1!/3'&4N!%&1+@#'1+$!
2.&%)%/'35)%1(!+&?%#9&2+&1!
/3'&4!
L'<9&'35M+@%9&'3!)3%2'1+!
)*'&@+!41#'1+@(N!
O9)'3!7:'#'&@'(5)%1(=!)3%2'1+!
)*'&@+!'44+442+&14!
"?+#3'(!19!%$+&<8(!?.3&+#':3+!'#+'4!
K+?+39/!'$'/1'<9&!9/<9&4!'&$!')<9&4!
G#%9#%<P+!')<9&4!89#!DDI!
DIG!!
7D%1(!I$'/1'<9&!G3'&=!
Organization:Solid Waste Mgt.
Program of Pasig City
Waste Diversion Strategies
Pasig City Materials Recovery
Facilities
Pasig Environment Program LGU Partners
Manila Water,
Meralco, SM,
Asahi, Medical
City, etc.
Cong.
Romulo
IPM
Garbage
Hauler
Kiwani’s
Club
Pasig
Chamber of
Commerce
DepEd
Rotary Clubs
DENR
Ortigas
Center
Assoc.
Market
Vendor’s
Assoc.
Balikatan sa
Pamayanan
LTO
City
Engineering
MAYOR
Association
of Barangay
Chairmen
Pasig Nat’l
Police
Eusebio
City
Prosecutor’
s Office
Pasig
Pastoral
Council
C3
Barangay
Affair’s
Office
Pasig City
Council
Pasig
Greenheart
Movement
Federations
of Parents
Teachers
Association
MMASBA
Metro Manila
Anti-Smoke
Belching
Assoc.
Kilus
Foundatio
n Inc.
Green
Police
Volunteers
Clean and
Green Office
Solid Waste
City Parks
Office
Assoc. of
Metro Manila
Environment
Officers
Federatio
n of
Jeepney
Assoc.
Lion’s Club
Catholic
Church
DOH
ACTO
Transport
Group
LLDA
Pamantasa
n ng
Lungsod
ng Pasig
Partnership
for Clean Air
Green City
Program
CENRO –
major office
Committee
on Ecology
and
Environment
Protection
Integrating Disaster Risk Reduction and Climate
Change Adaptation Programs into Governance
Deepening the Pre-Disaster Preparedness Program
1.!Pasig Rescue-Rehabilitation System (Communication,
Command and Control System-CCTV, GIS, geomapping, GPS vehicle monitoring)
2.!Integrating DRRM-CCA into Planning and
Development: a) comprehensive land use plans b)
revision of building codes/standards c) upgrading of
resettlement/relocation sites near waterways
3.!Pasig City Integrated Environmental Program
a. Integrated Com. Based Disaster Risk Reduction
Mgt. Council with City and MMDA —green police,etc.
b. SWC, MRFs and Livelihood Centers
c. Partnership with business, NGOs/POs, schools
Governance, Disaster Risk Reduction and
Climate Change Adaptation (cont’d)
4. Anti-Emission/Pollution Reduction
5. Systematic Capability-building and Training program
for DRRM-CCA (LGU, Community Groups, NGO/Private
Sector Partners)
6. Climate proofing the Infrastructure: Investments in
rehabilitation and upgrading building standards
7. Integrated Green and Clean Movement –community,
public/private institutions and across sectors
Governance, Disaster Risk Reduction and
Climate Change Adaptation (cont’d)
Institutional Arrangements of CBDRRM-CCA in Pasig City:
•!Technical Working Group
– 4 groups of 10 (reps from each sector)
--40 trained (training of trainors)
--replicated in the 30 barangays
(Barangay DRRM-CCA)
•!City Integrated Environment Program—carbon sink campaign,
informal settlement program, anti-smoking/anti-smoke belching,
•! Legal bases: RA 10121 (DRRM Act of 2010)-allows fast
tracking CCA; allows disbursement calamity fund w/o calamity
for capability-building; now in danger of being scrapped by
Congress
•!
•!
•!
Strengthening the policy-framework of urban
governance adaptation for DRRM-CCA: 1)
drastic revision of Disaster Management
Council to DRRMC (nat.); 2) Revision of
DRRM-CCA in Pasig City
Mobilizing multi-sectoral/integrated
initiatives: balancing decentralized,
democratized and centralized model of urban
governance
Incentivizing the institutional partnershipbuilding of LGU/Gov-NGO/PO-Private Sector
for
DRRM-CCA
Challenges:
1)Technical Data Needs (updated elevation map,
flood map,cross-sectional map of the river system,
etc.)!establish the non-negotiables (e.g. min bldg
standards in hi subsidence areas, waterways)
2. Risk communication (cf.Beck)--risk, scale,
complexity (maximizing expert-local knowledge)
2.1 Integrating adaptation initiatives at the household,
community (micro), institutional (meso), and macro
levels and across sectors in each of these levels
Challenges (cont’d):
3.Reconciling ecological boundaries w/
pol-eco-adm boundaries !Moratorium
of industrial/mining, quarrying, tourism,
residential development in the uplands
4. Reconciling governance levels and
sectoral initiatives: local, across local
gov’ts, metropolitan-wide, regional,
national
•! Concluding remarks
Maraming salamat po!!!
Thank you very much!