FINAL REPORT Appeal No. 13/95 PHILIPPINES : TYPHOONS, FLOODS AND LAHAR FLOW Duration : 27.09.1995 to 31.03.96
1 1. DESCRIPTIVE SUMMARY 1.1. The Disaster The Philippine Archipelago, a country of over 7,100 islands and an estimated population of 60 million (1989 figure), lies in the circum-pacific belt of typhoons, earthquakes and volcanoes. The Philippines experiences an average of 20 typhoons a year, eight to ten of which are turbulent and destructive. On average, two million Filipinos suffer yearly from their effects. In 1995, the development and recovery programmes of the Philippines were again hampered by tropical disturbances and typhoons, the worst of which occurred from September onwards. On 17 September tropical Storm Mameng caused heavy destruction, its 120 kph winds triggering lahar flows, flashfloods and landslides in Central Luzon and seven other regions. On 24 October tropical depression Oniang passed over Luzon, dumping heavy rains that caused floods in Bulacan and renewed lahar flows in Central Luzon. Four days later, tropical storm Pepang blew across Leyte, Samar, Central Visayas, Panay Islands and Palawan. Assistance had just begun for those affected by Oniang and Pepang, when supertyphoon Rosing (Angela), with 205-250 kph centre-winds and gusts of up to 280 kph, wreaked devastation in 29 provinces and half of the country s regions. About 4.9 million persons, nearly half of them in the Bicol region, were severely affected by the four tropical disturbances. The combined death toll reached 1,043, while the estimated loss to property and infrastructure was about PHP 3 billion. The worst damage was caused by Rosing, which blew down 176,000 houses and seriously damaged 485,408 others. Immediately after the first assessment of the typhoon damage the President of the Philippines, Fidel V. Ramos, declared a state of calamity in the affected provinces and released funds for initial disaster relief. 1.2. The Appeal Tropical storm Mameng and its heavy rains triggered massive flows of lahar from the Mt. Pinatubo eruption in 1991 that covered essential farming areas and part of the capital town of San Fernando in Pampanga. The Philippine National Red Cross (PNRC), finding itself facing a major disaster with a relief budget exhausted after operations earlier in 1995, decided to seek international assistance through the Federation. On 10 October the Federation launched Appeal 13/95, seeking CHF 645,000. After the deadly impact of typhoon Rosing, the PNRC and the Federation decided to increase the Appeal budget to CHF 1,620,000 (PHP 35,543,000) to cope with the new needs. This budget included an ECHO grant of ECU 500,000 (PHP 14,768,695 received by the PNRC) channelled through the Danish Red Cross as part of the appeal. Thanks to generous support from National Societies (CHF 525,529 received by the Secretariat in Geneva), ECHO (CHF 762,500), the Hong Kong Red Cross (CHF 359,115) and donations received directly by PNRC (CHF 357,310) the appeal was completely covered.
2 The number of beneficiaries targeted by the appeal totalled 60,000 (including extended beneficiaries of consequent typhoons). All were rural people, of all ages, living in poverty, mainly in coastal areas. They comprised: 10,000 persons in Pampanga, primarily in evacuation centres 30,000 persons in the provinces of Ifugao, Bataan, Nueva Ecija, Tarlac, Aurora and Laguna, who lost their food stocks and had their homes damaged 5,000 persons in Region I, II, III, Southern Tagalog, Samar, Manila left without food supplies 15,000 persons in Bicol region left homeless and without supplies of any kind after typhoon Rosing. 1.3. The Operation The relief operation after typhoon Mameng started on 15 October and was supposed to terminate on 15 December 1995. However, after three more storms occurred, it was extended until 15 March, 1996, in order to include rehabilitation projects in Bicol Region, Pampanga and Iloilo provinces. The operation aimed at providing food, household starters, basic kitchen utensils, and primary medical care for survivors in evacuation centres in Pampanga, and people in the provinces of Ifugao, Bataan, Nueva Ecija, Tarlac, Aurora and Laguna. It was expanded to include provinces in Southern Luzon and Central Philippines hit by the three later storms, as well as to provide rehabilitation programmes for the worst affected areas, comprising housing repair and rehabilitation, water and sanitation improvement, and livelihood opportunities. The operation financed by the Federation appeal was part of a much larger relief and rehabilitation programme of the PNRC which at its close had reached 1,091,591 persons (please refer to Annex A-E). To give a complete picture of assistance the entire operation, including its Federation components, is described here. A separate report is available on the ECHO grant, which financed food, construction of housing, livelihood projects and water and sanitation improvements. Rescue After typhoon Mameng on 1 October, the PNRC rescue efforts in Pampanga were fortified with the deployment of two rescue teams from Manila. The teams were equipped with basic rescue facilities as well as rubber boats which they used to transfer persons trapped on their rooftops. They also helped save the equipment and facilities at the Pampanga Chapter which was submerged by floodwaters and silted with fine lahar sediments. First aid and rescue teams in Bicol Region were mobilised to evacuate families at the height of typhoon Rosing. The Albay-Legaspi Emergency Rescue Team (ALERT) organised by Albay-Legaspi City Chapter mounted search and rescue operations after at least 100 families (600 persons) were isolated following landslides in Manito, Albay, as well as flashfloods in Bacon, Sorsogon.
3 Food Relief Assistance The PNRC began food relief assistance in October and terminated it in mid-january 1996. The assistance, which was extended for a month due to monsoon rains which resulted in floods and landslides in Bicol Region, took the form of rice, sardines, pork and beans, noodles and other canned goods. These goods were procured in volume in Manila, and subsequently distributed after being repacked in the Chapters. During the emergency period, however, the Chapters used goods acquired through local suppliers. For more than three months, the PNRC assisted 182,589 families, or 963,030 survivors of the typhoons, through 47 Chapters. These numbers do not include families and persons who received rations for a food for work programme financed by the ECHO grant. Evacuation Centre Adoption The destruction brought about by renewed lahar flows led the PNRC to "adopt" seven big evacuation centres in San Fernando, Pampanga, sheltering 6,926 persons who were awaiting permanent relocation. It catered for the basic needs of these survivors with the support of more than 100 private groups and businesses, the US Agency for International Development (USAID) which helped its Relief and Sanitation Assistance Programme, and the International Federation. A holistic approach was taken in Pampanga with the deployment of a composite Disaster Response Team in October to December last year. Other than the provision of food relief, household starters, and health assistance, the team also engaged in disaster preparedness, health and sanitation, stress debriefing and recreational activities with the evacuees. Through a Temporary Shelter Assistance Project with USAID, supporting the construction of 79 bunkhouses, the PNRC will be able to temporarily transfer evacuees from schools to Arayat and San Fernando, all in Pampanga. The bunkhouses are expected to serve 430 families, or 2,580 persons, while the government completes its identification of relocation sites. These temporary shelters are equipped with 70 toilets and bath rooms, pump wells and seven mobile water tanks. The PNRC Chapter building, which was buried under lahar, was reconstructed in a safe area in San Fernando, Pampanga. Housing Construction and Repair The PNRC was able to serve 2,476 homeless families, (approximately 14,856 persons) through the reconstruction of 537 houses and the repair of 1,939 others in six provinces in Bicol, including Iloilo. The project was implemented together with the Local Government Units (LGUs) which provided the land, and other agencies which provided the labour. The PNRC procured the lumber and hardware materials which were purchased locally. Water and Sanitation Projects The operation facilitated the construction of 135 shallow pump wells, and the improvement/restoration of four water lines in five provinces in Bicol Region, and Iloilo province. The water projects, benefiting 4,460 families, or 24,346 persons, were implemented through a needs-based and community-identified scheme. Local officials presented water-supply proposals which were reviewed by the Chapter. After the erection sites were identified by the communities, water analyses were conducted by sanitary engineers prior to the installation of the pump units.
4 Improvement of water disposal facilities was also undertaken: they assisted 3,984 families (23,594 persons) who received individual toilet bowls, or communal toilets which were constructed through community efforts. Livelihood Projects About 2,285 no-income families (13,710 persons) were beneficiaries of 18 family/community livelihood projects. These were mostly small-scale and agriculturally-based endeavours (farming, fishing or livestock raising) which aimed to assist survivors of the five worst-hit provinces in Bicol Region. Through the Chapters, the PNRC provided the beneficiaries with materials for the projects, which were implemented with the support of specialists in the local communities. These livelihood projects are on-going and will be closely monitored by the Chapters. They will also be followed up by technical staff from the Disaster Preparedness & Relief Service (DPRS) and Social Service (SoS). Health Services The PNRC reached 45,489 persons, mostly children and mothers, through various health activities undertaken by the Chapters. These included health education classes, medical check ups through medical missions, barangay clinics and consultations, and special health projects. These health activities were made possible through the mobilisation of local health practitioners, Red Cross trained barangay health workers, and the deployment of nurse affiliates from nursing schools in Manila. With medicines purchased in Manila, and distributed to the Chapters, the PNRC was able to respond to the following main ailments: acute respiratory infection, diarrhoea, fever, anaemia, skin problems and other communicable and infectious diseases. 1.4. The Delegation The Federation Delegation consisted of its country Representative and two local support staff. The delegate served as Federation Representative and as ECHO Delegate, and was responsible for the Hong Kong Red Cross funds that were transferred directly and for funds received directly from embassies. The geographical spread of the operation to 29 provinces demanded extensive travel. 1.5. Participation of Operating National Society The PNRC implemented the programme utilising its established policies and guidelines in disaster management. Through its network of Chapters, emergency relief assistance was extended to the beneficiaries immediately after the typhoons. The implementation of post-emergency activities was also boosted with the deployment of a monitoring team of technical staff from Manila who assisted the Chapters. The team was supervised by an overall coordinator who reported to service managers and the director on the progress of the programmes.
5 1.6. Cooperation with Authorities and with other agencies The PNRC relief and rehabilitation programmes were closely coordinated with the National Disaster Coordinating Council, through the National Relief and Rehabilitation Service Committee (NRRSC) which orchestrated the relief efforts of various agencies and organisations. Efforts at the Chapter (branch) level were reported to the local DCCs. The rehabilitation efforts in Bicol were linked up with the SOLCENTAF, a task force mandated by the government to coordinate the rehabilitation and restoration endeavours in Southern Luzon and Central Philippines, including those of the NGOs. The National Society also closely worked with the Department of Social Welfare and Development (DSWD) which headed the task force on housing. The Local Government Units (LGUs) were involved in the implementation of the rehabilitation projects through the local social welfare and health offices. They screened and identified beneficiaries for the housing and livelihood support through the data and information from their offices. These data were however validated by local staff. All wells were tested by local health units and all approved with potable water. The housing, water and sanitation projects were tied with the LGUs and other government agencies through sharing of costs and materials. More than 120 small organisations and private groups channelled their assistance through the Red Cross which facilitated the distribution of this assistance. 2. ANALYSIS OF THE OPERATION. 2.1. Needs Assessment. Before PNRC launched it appeal for international assistance a survey and needs assessment was conducted. The initial assessment was done in Pampanga on 4 and 5 October and in other affected provinces between 28 September and 4 October. With the impact of typhoon Rosing on 2 to 4 November, a renewed survey was carried out in all accessible areas between 7 and 11 November. The assessments were carried out by a composite team from PNRC NHQ, consisting of: the Manager, Disaster Preparedness & Relief Service, Manager, Community Health and Nursing Service, Manager, Social Service and the Federation Delegate. The Director of Services took part in some surveys. Staff from the provincial chapters played a vital role in all surveys and assessments. The surveys and assessments reflected the overall situation, although many parts of the worst affected areas were totally inaccessible, due to continuous rain. The assessment was revised as soon as PNRC was able to visit these areas.
6 2.2. Objectives/Plan of Action. The objectives in the Plan of Action were all met. However, as mentioned above, the Plan of Action was modified in accordance with new data. The operation as a whole was carried out as conceived. Priorities were to make PNRC assistance as sustainable as possible. This included giving priority to water systems and to toilets, both private and communal, and building disaster resistant homes. The houses PNRC normally constructs are around 20 sq. m. each and of local materials. This time houses were constructed that were only 12 sq. m., but they were made of typhoon resistant materials. They have high roofing and can easily be extended to normal size with light materials. If a typhoon hits these houses, the extension will most likely blow away, but the central part will remain. As the number of victims was far higher than the beneficiaries of the operation, screening was difficult to explain to those not scheduled to receive any assistance. However PNRC criteria are clear: it only helps the poorest of the poor who have no other source of assistance. PNRC, which is very experienced in food distributions, was able to provide food assistance to a much higher number than originally planned by distributing smaller amounts of foodstuffs than the scheduled full rations. All distributions took place in good order and without any tension among beneficiaries. One area of concern was the purchase of rice, the basic food commodity. At the time of the operations the Philippines was in the midst of a rice crisis, during which both government and commercial rice stocks were dwindling. New imports of rice and constant PNRC/Federation representations to the authorities helped overcome this problem. Relations with both local and national authorities were good and effective on the technical level. Co-operation, particularly with the Department of Health, helped with the implementation of health, water and sanitation projects. As usual, there were attempts from local provincial politicians to interfere with distributions and the selection of beneficiaries. These problems were solved as they arose, due to the strong, independent status of PNRC at national level. Financial resources received enabled all scheduled assistance to be provided. Funds received directly by PNRC were used for additional housing projects, the majority of the livelihood projects and for restocking supplies in regional warehouses. Staff, communications, warehousing and transport did not pose any problems since a fully implemented and sustainable Disaster Preparedness Project has equipped the PNRC chapters with warehouses, radio communication, vehicles and thousands of highly trained staff and volunteers. 3. FINANCIAL REPORT See attached financial statement on the funds received by Geneva. Please note that the direct contributions (including funds donated by ECHO and the Hong Kong Red Cross) were reported and accounted for separately.
7 4. CONCLUSIONS Once again PNRC demonstrated the importance of professionalism in a major relief operation. This, and its high degree of commitment showed not only donors and beneficiaries, but also government authorities how much can be achieved for a relatively humble amount. PNRC was everywhere the first agency to respond (and, unfortunately, often the only one). One innovation during this disaster operation -- the despatch of professional teams from PNRC NHQ to monitor and assist in the operation -- gave the involved chapters a valuable boost when they were close to exhaustion. One lesson learned by PNRC is that in future operations these teams should be deployed to the field at the very beginning of the operation. Another lesson learned is the need to construct water and sanitation installations. This was seen to be often more important than other assistance. The last lesson learned is the importance, when constructing houses, of teaching beneficiaries how to build typhoon resistant structures. Xusheng Yang Desk Officer Asia & Pacific Department Jerry Talbot Director, Asia & Pacific Department