Integrating Disaster Risk Reduction and Climate Change Adaptation in Development Planning and Decision-making Processes: The Philippines Experience 1

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1 Integrating Disaster Risk Reductin and Climate Change Adaptatin in Develpment Planning and Decisin-making Prcesses: The Philippines Experience 1 Abstract As glbal climate change escalates, the risk f flds, drughts and severe strms increases. In the Philippines, ne f the cuntries in the wrld that is highly prne t natural hazards, the situatin is further aggravated by the effects f climate change. While natural hazards and climate change cannt be prevented frm happening, the vicius cycle f disasters and underdevelpment can be reversed. This can be dne thrugh mainstreaming disaster risk reductin (DRR) and climate change adaptatin (CCA) in the develpment planning and decisin-making prcesses. While mainstreaming effrts are being strengthened, institutinal mechanisms are likewise being reinfrced. This is manifested with the creatin f Climate Change Cmmissin (CCC) in 2009 t mainstream climate change, in synergy with disaster risk reductin, int natinal, sectral and lcal develpment plans and prgrams amng its ther functins. In 2010, the Natinal Disaster Risk Reductin and Management Cuncil (NDRRMC) was created t deal specifically with disaster risks. In 2008, the Natinal Ecnmic and Develpment Authrity (NEDA) frmulated the mainstreaming framewrk that invlves tw prcesses. The first is disaster risk assessment (DRA) which analyzes the natural hazards f a place tgether with the risks t expsed elements. The DRA mdel cnsists f fur steps: hazard characterizatin and frequency analysis, cnsequence analysis, risk estimatin, and risk evaluatin. The secnd prcess cncerns hw the results f risk assessment enhance the develpment planning analysis leading t better design and priritizatin f interventins that are intended t reduce risks t and vulnerability f expsed ppulatin and prperty. The framewrk and the DRA are cntained in the DRR Guidelines that was fficially adpted with the issuance f Executive Order N. 1 directing the lcal gvernment units t adpt and use the guidelines and the DRA in their planning activities. The DRA mdel is being refined t incrprate climate change cnsideratins and the sectral impacts and vulnerability assessments. Tgether with ther prjects and activities, these initiatives supprts the tw lng term bjectives f adaptatin and mitigatin as embdied in the seven strategic pririties f the Natinal Climate Change Actin Plan (NCCAP) f fd security, water sufficiency, ecsystem and envirnmental stability, human security, climate-smart industries and services, sustainable energy, and knwledge and capacity develpment. 1 A paper presented in the UNFCCC Wrkshp n the identificatin f gaps and challenges in the implementatin f risk management appraches t the adverse effects f climate change, Octber 2011, Lima, Peru by Dr. Jacb Ti (Philippine Representative)

2 1.0 INTRODUCTION As glbal climate change escalates, the risk f flds, drughts and severe strms increases. At the glbal level, disasters have becme mre expensive. The Philippines is ne f the cuntries in the wrld that is prne t natural hazards. It recrded a ttal f 310 disaster events frm 1980 t The average annual cst f direct damage frm natural disasters frm 1970 t 2006 is estimated at PhP15 billin (US$ 333M) at 2000 prices. Declines in grss dmestic prduct (GDP) were estimated at: 0.5 percent average due t typhns alne every year. Disasters set back scial and ecnmic grwth as develpment effrts are disrupted by natural disasters. The situatin is further aggravated by the effects f climate change. While natural hazards and climate change cannt be prevented frm happening, the vicius cycle f disasters and underdevelpment can be reversed. This can be dne thrugh mainstreaming disaster risk reductin (DRR) and climate change adaptatin (CCA) in the develpment planning and decisin-making prcesses. This apprach is essentially based n the recgnitin that the pr are disprprtinately affected by natural hazards and climate change. As such, fr bth CCA and DRR, pverty reductin is an essential cmpnent fr reducing vulnerability t bth natural hazards and climate change. 2.0 LEGISLATIVE AND INSTITUTIONAL FRAMEWORK The Philippines signed the UN Framewrk Cnventin n Climate Change (UNFCCC) in 12 June Since then, varius institutinal entities have crdinated and mnitred the cuntry s participatin and initiatives n climate change and related issues culminating with the creatin f the Climate Change Cmmissin (CCC) with the enactment f Republic Act N (RA 9729) in 23 Octber The law, Climate Change Act f 2009, mandated the CCC t mainstream climate change, in synergy with disaster risk reductin, int natinal, sectral and lcal develpment plans and prgrams. In 27 May 2010, Cngress als enacted Republic Act N (RA 10121), Philippine Disaster Risk Reductin and Management Act f 2010, t deal specifically with disaster risks. The Natinal Disaster Risk Reductin and Management Cuncil (NDRRMC) was created t versee the implementatin f the law. The Strengthening Disaster Risk Reductin in the Philippines: Strategic Natinal Actin Plan (SNAP) , detailing the DRR radmap in based n the Hyg Framewrk f Actin (HFA), was adpted by Executive Order 888 in 7 June This was substantiated with a Natinal Disaster Risk Reductin and Management Framewrk which was adpted in June The Natinal Framewrk Strategy n Climate Change was adpted in 29 April 2010, and the Natinal Climate Change Actin Plan is awaiting the frmal signature f the President. 3.0 MAINSTREAMING DRR AND CCA DRR and CCA must be mainstreamed r made integral part f the develpment planning and implementatin prcess in rder t insure its sustainability. Hazard studies in DRR shuld be cmplemented by the wider perspective f CCA. And, the 2

3 effectiveness f this apprach can be maximized if implemented within the brader cntext f sustainable develpment. The main cnvergence is the lng range f analytical tls and methdlgies, in bth DRR and CCA, based n risk management appraches t assess risk and vulnerability as well as t identify pprtunities fr actin. 3.1 Mainstreaming DRR in Develpment Planning In 2008, the Natinal Ecnmic and Develpment Authrity (NEDA) was granted a Technical Assistance (TA) n Mainstreaming DRR Management in Subnatinal Develpment and Physical Planning in the Philippines with funding assistance frm Eurpean Cmmissin Humanitarian Aid Department Disaster Preparedness Prgram (EC-DIPECHO) and United Natins Develpment Prgramme (UNDP). The mainstreaming framewrk invlves tw prcesses. The first is disaster risk assessment (DRA) which analyzes the natural hazards f a place tgether with the risks t expsed elements. The secnd prcess cncerns hw the results f risk assessment enhance the develpment planning analysis leading t better design and priritizatin f interventins that are intended t reduce risks t and vulnerability f expsed ppulatin and prperty. The mainstreaming framewrk (see figure belw) illustrates hw DRA is undertaken and hw the results f the assessment are used t enhance all aspects f the planning prcess: frm visining, analysis f the planning envirnment, derivatin f develpment ptential and challenges and their translatin int the crrespnding gals, bjectives and targets, and finally t the specificatin f the apprpriate strategies and prgrams, prjects and activities (PPAs). The PPAs derived frm the plan frmulatin stage are the main inputs int the succeeding phases f the develpment planning prcess, namely, investment prgramming, budgeting, prject evaluatin and develpment, prject implementatin and mnitring and evaluatin. PPA utcmes and impacts that are determined during and pst implementatin shuld be able t reveal reductin in risks t ppulatin and prperty by increasing resilience r reducing vulnerability f these elements at risk. 3

4 Based n internatinally recgnized appraches, the DRA mdel is used t estimate (r quantify) risks frm natural hazards. The DRA methdlgy that was adpted was frmulated as fllws: Hazard Characterizatin/ Frequency Analysis Cnsequence Analysis Risk Estimatin Risk Evaluatin The guidelines were pilt-demnstrated in the frmulatin f the Reginal Physical Framewrk Plan (RPFP) f Ilcs and Caraga Regins, and the Prvincial Develpment and Physical Framewrk Plan (PDPFP) f Suriga del Nrte. The pilt-demnstratins were essentially used t demnstrate the DRA methdlgy, using the details f the cmputatinal and GIS techniques recmmended in the guidelines. Indicative lk-up tables fr return perid and factrs fr fatality and prperty damage fr varius hazard events as well as a methdlgy fr estimating cst f prperty damage per type f land use develped fr the guidelines were used in the pilt-demnstratin. The hazard maps used were thse prduced under the Hazards Mapping and Assessment fr Effective Cmmunity-Based Disaster Risk Management (READY) Prject. The pilt-demnstratin als shws hw the results f the DRA are utilized t enhance analyses in the varius phases f the plan frmulatin exercise: frm visining t the analyses f the planning envirnment; identificatin f develpment issues, gals, bjectives and targets; and their translatin int develpment strategies and PPAs r what is termed as mainstreaming in the plan frmulatin stage. The exercise als invlved the secndary entry pints fr DRR mainstreaming in plan implementatin, namely: investment prgramming, budgeting, implementatin and mnitring and evaluatin, with prject evaluatin and develpment as an added tl t imprve prject design and financing. Guide questins fr lgically framing mnitring and evaluatin during implementatin were develped t assess if planned risk reductin measures and develpment prgrams resulted t the desired utcmes and s further aid in future planning decisins. The DRR Guidelines was fficially adpted by the gvernment with the issuance f Executive Order N. 1 which directs the lcal gvernment units, particularly prvinces, t adpt and use the guidelines and the DRA in their planning activities. 3.2 Integrated DRR/CCA Mdel The DRA methd as described in the DRR Mainstreaming Guidelines is being enhanced r enriched t incrprate the impacts f climate change n hazards/natural disasters as well as include sectral impact assessment. Under the integrated DRR/CCA mdel, the DRA will be used t estimate the risks frm sudden 4

5 hazards (e.g., flds, landslides) supplemented by an impact analysis f chrnic r slw nset events (e.g., changing rainfall patterns n agricultural prductivity). The prcess f integratin is being undertaken in tw aspects. On ne hand, the hrizntal integratin essentially invlves the enrichment and enhancement f the DRA platfrm t incrprate bth sudden and slw nset hazards. On the ther hand, the vertical integratin ensures the cnsistency f the plans at varius planning levels (i.e., natinal, reginal, prvincial and lcal). The enrichment f the DRA prcess is cnsidered as the hrizntal integratin. As a basic principle, the apprach builds n experiences and success f cmpleted and ther n-ging prjects: Under this apprach, the risk management prcess will be used as the vehicle fr guiding adaptatin t climate change. This apprach ffers several benefits: Vulnerability assessment is an intrinsic element f risk management. It serves bth as the basis fr identifying adaptatin measures as well as the basis fr estimating risks. The cncept f managing risks is deemed t be a mre encmpassing as cmpared t adapting. The cncept may als be cnsidered as a mre familiar cncept that is easily understandable by mre peple. As a prcess, risk management prvides a means f addressing uncertainties explicitly. This characteristic is inherent t the prcess. Drawing frm the initiatives and utputs f ther prjects, the hrizntal integratin includes the fllwing (see figure fr reference): The climate scenaris and prjectins currently being develped by Philippine Atmspheric, Gephysical and Astrnmical Services Administratin (PAGASA) will serve as the initiating inputs fr the integratin f DRR and CCA. The physical impact (i.e., spatial and tempral distributins as well as frequency f ccurrence) f the varius climate scenaris n natural hazards is included in the assessment. Hazard maps develped under the READY Prject cntinue t serve as the primary inputs fr hazard characterizatin and subsequent assessment. This 5

6 apprach was previusly adpted by the NEDA-UNDP-EU DRR Mainstreaming Prject. Methds fr assessment r estimatin f sectral impacts were develped under the MDG-F Prject 2. Five (5) sectrs have been identified: agriculture, frestry, castal, water and health. The methdlgies that were develped was adapted fr sub-natinal (and lcal) develpment prcess enrichment. Salient elements f the vulnerability assessment methdlgy develped under the SNC Prject was utilized t enrich the mdel. In rder t cmplement the hrizntal integratin, the vertical integratin will ensure lng-term sustainability f the mainstreaming effrt. The existing develpment planning system and utputs prvide the pprtunity fr mainstreaming DRR/CCA in planning, particularly at the reginal and prvincial levels, since it is at these levels where linkages in plan prcesses are well defined. Furthermre, the gegraphic cverage f regins and prvinces allw fr a fairly cmprehensive analysis f hazards beynd lcal bundaries. As such, the vertical integratin will ensure cnsistency and linkage amng and between the different planning levels (frm natinal t lcal) and the crrespnding planning dcuments. 4.0 LOOKING TO THE FUTURE NEDA, in partnership with the UNDP and the Australian Agency fr Internatinal Develpment (AusAID), is currently implementing a Technical Assistance (TA) n Integrating Disaster Risk Reductin and Climate Change Adaptatin in Lcal Develpment Planning and Decisin-making Prcesses (Integrating DRR/CCA Prject). Tw f the key deliverables f the Prject are enrichment f the DRA prcess and the frmulatin f DRR/CCA-Enhanced PDPFPs. With additinal funding supprt frm the MDG-F Prject and the New Zealand Agency fr Internatinal Develpment (NZ-AID), the Prject is assisting the entire 79 prvinces in frmulating their respective DRR/CCA-enhanced PDPFPs. T date, --- prvinces have substantially cmpleted their hazard prfiles. The Prject is als develping the Climate Change and Disaster Risk Infrmatin System fr Planning (CRISP) t supprt the infrmatin requirement fr a DRR/CCAenhanced planning prcess. Pilt-testing is n-ging in Regin 2. The infrmatin system is intended t supprt analysis f thematic spatial data verlaid n base maps fr use in disaster and climate change risk assessment and evaluatin. As a tl and a platfrm, CRISP will include disaster/risk data rganizatin, infrmatin sharing and publishing, and infrmatin accessing, querying and reprting t supprt multi-mde (including map-based) database queries and flexible facilities fr reprt generatin. CRISP will als include prcedures and recmmendatins n data standardizatin, prtcls fr sharing, and analytical framewrk fr utilizing data t enhance planning analysis. Tgether with ther prjects and activities, the varius initiatives supprts the tw lng term bjectives f adaptatin and mitigatin as embdied in the seven strategic pririties f the NCCAP: Fd Security 2 MDG-F Prject: Millennium Develpment Gal Achievement Fund 1656: Strengthening the Philippines Institutinal Capacity t Adapt t Climate Change (MDG-F 1656 Prgramme), a Jint Prgramme f the Philippines and the UNDP with funding frm the Spanish Gvernment. 6

7 Water sufficiency Ecsystem and Envirnmental Stability Human Security Climate-smart Industries and Services Sustainable Energy Knwledge and Capacity Develpment Lking twards the future, the challenges facing the Philippines can be summarized as fllws: Access and availability f strategic knwledge Having access t relevant infrmatin and lcalizing it frm the Philippine perspective Creating a gd data management and reprting system Disseminating relevant infrmatin Capacity Develpment The need fr key stakehlders and institutins t frmulate their respective DRR/CCA agenda t serve as a guide t effectively address disaster risks as well as climate change adaptatin and mitigatin The need fr relevant, timely and accessible data and infrmatin is critical fr the planning and implementatin f DRR/CCA measures. The need t build knwledge and capacities f staff and fficers f agencies n DRR as well as climate change adaptatin and mitigatin Finally, t supprt all their pririties and plans, access t resurces must be ensured. The external flws frm bth bilateral and multilateral surces fr direct and indirect climate change adaptatin and mitigatin as well as disaster risk reductins may be cnsidered limited when cmpared t the budgetary apprpriatins by the natinal gvernment. In additin t the regular apprpriatin, the Cngress is currently drafting legislatins fr a Peple s Survival Fund that is specifically intended fr adaptatin activities. In additin t regular gvernment financing, there is a need t identify additinal surces as well as explre innvative financing schemes. 7

8 Reference: Ben Wisner et al. At Risk: Natural Hazards, Peple s Vulnerability and Disasters (2ed) Climate Change Cmmissin. Natinal Framewrk Strategy n Climate Change. April 2010 Climate Change Cmmissin. Natinal Climate Change Actin Plan (Final Draft). July 2011 Frank Thmalla et al. Reducing hazard vulnerability: twards a cmmn apprach between disaster risk reductin and climate adaptatin NEDA-UNDP-EU, Guidelines n Mainstreaming Risk Reductin in Sub-natinal Develpment and land use/physical planning in the Philippines O Brien, K. et al Disaster Risk Reductin, Climate Change Adaptatin and Human Security. Reprt prepared fr the Ryal Nrwegian Ministry f Freign Affairs by the Glbal Envirnmental Change and Human Security (GECHS) Prject, GECHS Reprt 2008:3 Prabhakar et al. Climate Change and Lcal Level Disaster Risk Reductin Planning: Need, Opprtunities and Challenges Tearfund: Paul Ventn (lead authr) and Sarah La Trbe. Linking climate change adaptatin and disaster risk reductin. July Tearfund. Mainstreaming disaster risk reductin: a tl fr develpment rganisatins. January