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Program for Hydro-meteorological Disaster Mitigation
in Secondary Cities in Asia
Governance
Philippines
Flood Disaster Mitigation and River Rehabilitation
by Marikina City, Philippines
Abstract
Urban riverine flooding can be
worsened by local urban processes
and activities that cause river flow
obstruction and pollution. This case
study presents the flood mitigation
efforts by Marikina City's local
authority and people, with a special
focus on how the physical restoration
of the riverbanks and solid waste
clean-up contributed to flood disaster
mitigation.
What's inside
1
Flooding by the Marikina River
1
River Rehabilitation in
Developing Countries
1
Policy Environment
1
Emergency Preparedness and
Rescue 161
1
Save the Marikina River
Program
1
Lessons Learned
August 2008
22
In the 19th century, the Marikina riverbanks were Marikina town's picnic ground
and site of religious town celebrations called fiestas. By the 1970s, the river was all
filth and stench. Uncontrolled encroachment on the riverbanks by informal settlers,
structures within the river, plus the indiscriminate disposal of both domestic and
industrial wastes worsened the impacts of the annual river flooding events. The
`Save the Marikina River' Program was begun in 1993 to revive the river and its
environs, and develop the waterway into the city's biggest recreational and sports
area. While the main objective was to rehabilitate the river, the program actually
started from the idea of mitigating the annual flooding to ultimately contribute to
river rehabilitation objectives.
Introduction
Marikina City lies within Marikina Valley and is bounded by Quezon City and the Marikina river
on the west, Pasig City and Cainta to the south, Antipolo City in the east, and by San Mateo
to the north. The city has an estimated population of 490,612 for 2008, and its major industry
is shoemaking.
1
Marikina river is the major waterway in the city; it flows through the center
of Marikina Valley
between Capitol Hills
and the Sierra Madre
mountain range. It
also flows alongside
the Valley Fault Line,
and so Marikina faces
riverine flooding,
earthquakes from the
fault, and liquefaction
along the Marikina
riverbanks.
Marikina City began as
a town established by
Jesuit priests in 1630.
By the 19
th
century,
the riverbank area
evolved into the most
important hacienda
(farming estate) that
produced rice and
vegetables in great
quantities. The city
was industrialized in
the 20
th
century, with
a shift in emphasis
from agriculture to
shoemaking and
heavy industries. With industrialization came population increases and the conversion
of rich agricultural land into residential areas. The river became heavily polluted with
domestic sewage and industrial waste. The quarrying on the riverbanks led to scouring
and erosion. The end result was poor water quality and flooding that claimed lives and
destroyed property. Informal settlements along the riverbanks added to the pressures of
pollution and flooding.
Source: http://gis.marikina.gov.ph/website/map2/viewer.htm
Marikina City: Location and
Boundaries
Figure 1
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Figure 1
Informal Settlements in the Riverbanks; Source: Marikina City Government
The river's importance to modern Philippine society stems from an
old maritime and riverine culture. Filipinos trace their roots largely
from seafaring Malays who came over in frail wooden boats called
balangays, and subsequently established villages called barangays
along the island shores or farther upriver. Even the name of the
main ethnic group in Metro Manila -Tagalog - means from the (taga)
river (ilog). Through much of Philippine history, Manila Bay was the
archipelago's front door, while Pasig River and its tributaries (such
as Marikina river) were the major passageways to the various
settlements.
Even though the river had destructive flooding events in modern
times, the riverbanks were still considered as potential settlement
sites by those who could not afford to buy land or property in safer
parts of the city. Despite the water pollution, informal settlers still
drew on the river for cooking and washing needs. Rehabilitating
the river could have a great cultural and health impact for the city
residents. Furthermore, the approach taken that was based on flood
disaster mitigation, and so the flood risk could be reduced for the
city's constituents in general and for informal settlers in particular.
Flooding by Marikina River
Marikina River drains the Pasig-Marikina River Basin. The river
basin is located east of the Metro Manila region with a total drainage
area of 377.82 km
2
. It drains through the Marikina River and then
the Pasig River before it empties into Manila Bay. It has a Type I
climate, meaning its annual rainfall is from 1,700 to 3,200 mm/year,
with about 80% of the rainfall occurring from May to October. Serious
flooding usually occurs from August to November. Most of the floods
in the urban region's low-lying areas are runoff from the slopes of
the Sierra Madre mountain range that run along the east of Marikina
Valley (Badilla, 2008).
The entire length of the Pasig-Marikina river is 27 km with several
catchment areas (at Napindan junction, Rosario Weir, Sto. Ni?o
water level gauging station, and Montalban water level gauging
station). Napindan Channel (a river) and the Mangahan Floodway
connects it to Laguna Lake, the country's largest lake and temporary
storage for excess flood water from Pasig and Marikina rivers.
Vulnerability
By the 1980s, more than 2,000 households resided on or near the
riverbanks. Whether in its normal or flooded state, the river was a
hazard to these communities. During continuous heavy downpours
or typhoons, the river level rose so much that informal settlers
had to vacate their homes and stay in evacuation centers until the
floodwaters receded.
In normal times, the river was
a health hazard for the locals
who bathed and washed their
clothes and dishes in the river.
Sanitation was a major concern
since the households either
created make-shift toilets near
the riverbanks or disposed of
their wastes directly into the
river. They could not have
access to basic facilities such
as potable water and sanitation
because of their status as informal occupants of the land.
In the early 1990s, the environmental problems included limited
garbage collection and dumping of wastes on open land and
waterways. Aside from being irregular, the garbage collection service
did not reach the settlements near the riverbanks. Some parts of
the riverbanks turned into small illegal dumpsites; piles of wastes
that would fall from these dumpsites into the river were carried by
the current and eventually impeded the flow of water.
River Rehabilitation in Developing Countries
Towns and cities worldwide have historically been established
close to or around waterways that provide access to food, water
and transport. Subsequent increases of urban dwellers, especially
along streams and rivers, affect the appearance and water quality
of nearby water bodies). Continued urbanization and the use of
alternative water sources for human consumption have made urban
waterways a convenient drainage for sewage and storm water. For
instance, the shape of the river channel becomes wider, deeper and
more uniform, while its water quality degrades due to pollution from
sewage effluent and storm water.
Urban rivers are influenced by the above-mentioned processes
and activities that pollute the water resource. The UN World Water
Development Report (2003) states that 50% of the population in
developing countries are exposed to polluted water sources. Asian
rivers are the most polluted in the world, with three times as many
bacteria from human waste as the global average and 20 times more
Sanitary Conditions of Informal
Settlements; Source: Borje et al., 2004c
Source: Badilla, 2008.
The Pasig-Marikina river basin
and its river systems.
Figure 2
lowerma
rik
in
a
river
upper marikina river
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Safer Cities 22, PROMISE
lead than rivers in industrialized countries.
UNEP (1997) reports that more than
90% of sewage in developing countries
is discharged directly into rivers, lakes,
and coastal waters without treatment
of any kind; the report urged that large
cities make wastewater management a
high priority.
Dead rivers used to be found in developed
countries including Singapore and
Australia; many of these countries have
cleaned up their rivers and constructed
water treatment facilities, although
integrated management of the basin, use
of alternative technologies and public participation are still needed
(UNEP, 1997).
Most examples of river rehabilitation deal with measures like
restructuring of banks, construction of in-stream structures or
local widening (Fette et.al., 2007), with particular emphasis on the
significance of the different aspects of sustainability. Sustainability
includes environmental (such as protection of nature), social
(like flood protection and recreation) and economic aspects
(like economic proportionality) (Hostmann, 2005). However, the
sustainable approach should include the following components:
(1) flood control; (2) environmental management; and (3) housing
and resettlement. The approach usually includes the following
components:
Flood Control. Urban rivers are usually part of cities' drainage
systems so that flooding especially during typhoons and the rainy
season are very likely. River rehabilitation programs therefore involve
flood mitigation through the construction and/or improvement of
revetment, parapet or river wall and soil
embankment among other flood control
operations like dredging, sanitation
works and warning systems. The clearing
of structures, dredging the river, and
cleaning all the esteros and waterways
that drain into the river are done to reduce
frequency and degree of flooding.
Environmental Management. River
ecosystems will remain degraded if
solid and liquid wastes are untreated
before entering the watercourse.
The establishment of environmental
management systems (EMS) geared
to improve solid waste collection and management as well as
sewage treatment will help address pollution problems. The EMS
may include regulations on river easement in order to minimize or
prevent solid waste dumping, and policies to abate pollution loading
from untreated industrial wastewater and sewage.
Housing and Resettlement. Many of the urban riverbanks are
lined with informal settlements, so that the orderly and peaceful
relocation to identified resettlement sites is relevant for the health
of the river ecosystem and the safety of riverbank communities.
Affected communities are moved to secure and affordable socialized
housing projects and are given a stake in the formal housing sector.
A livelihood program can be provided to affected communities to
maintain, restore and/or enhance their incomes that may have been
disrupted due to relocation. Despite planned strategies, community
people may still protest against many demolition and subsequent
relocation projects for economic reasons. This can be addressed
by opening avenues for their participation within the formal planning
process.
Flooding Problems in Marikina, 1992; Source: Borje et al., 2004a.
The UN World Water
Development Report (2003)
states that 50% of the
population in developing
countries are exposed to
polluted water sources.
Within Marikina City, Marikina River has a length of about 11km and
an area of about 220 hectares (1 hectare = 10,000 m
2
). Its depth
can go from 3 m to as high as 21 m during heavy downpours. The
flooding map of the city identified the whole stretch of its riverbanks
as flood-prone. Structures built on the creeks, riverbanks and other
waterways ran the risk not only of being flooded, but also of being
carried away by strong river currents.
Although there is no established flood historical record for the river,
some idea of the typical flooding pattern can be gained from the
flooding event in 1992, when an area of about 6.4 km
2
(27.52% of
the entire city) was flooded. Flood events like these were considered
normal for the rainy season. In part, this situation was due to an
inefficient drainage system as well as obstructions along and within
the river.
More than 27% of Marikina including the river was classified as a
flooded area in 1992, with over 10,000 homes exposed to flooding
(Borje et.al., 2004a). Using an average annual budget of PhP 43
million (USD 1.08 million), Marikina began a flood-control project
for 12 barangays that included:
? Construction or rehabilitation of major outfalls.
? Improvements in the networks of canals, drainage systems,
creeks and waterways. Improvements were done to sidewalks
and the drainage network, as well as part of a 6-km road dike.
? Paving roads to reduce the amount of sand, pebbles and mud
that enters the drainage system. In 1992, less than half of
Marikina's 500 km of roads were paved. Under this activity, the
city's engineering department brought the length of paved road
up to 350 km by year 2000.
? Removal of informal settlements through the resettlement program,
and the removal of commercial buildings, slaughterhouses and
other industries from the riverside.
? Regular river dredging, which is a responsibility of the national
government that the city government took on.
As of 2004, only the seven barangays closest to the river still needed
attention. Structural mitigation efforts, however, were expensive and
were limited to the city government's administrative area, and only
one km out of a six-km road dike was finished as of 2004 (Borje,
2004a).
Flood Structural Mitigation
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Policy Environment
The Sangguniang Panlungsod ng Marikina (Marikina City Council)
has enacted many ordinances and resolutions (local laws that apply
only to the Marikina City administrative area) related to emergency
preparedness and disaster management. The policy environment
emphasized the public safety and quality of life of the city's residents
and businesses. The key ordinances include:
? Ordinance 59 of 1993: keeping sidewalks, alleys and public
spaces clear to maximize free movement of vehicular and human
traffic (essential during emergencies).
? Ordinance 10 of 1994: declaring an easement of 96 meters from
either side of the Marikina River centerline, and authorizing the
relocation of all residents found within the easement to safer
ground.
? Ordinance 264 of 1998: creating a Disaster Management Office
also known as Rescue 161, to be responsible for emergency
preparedness, coordinating response, for first response skills
training, and monitoring during emergencies. The ordinance
defines the staff for the office, their salaries, and that the city
will provide the annual budget for the office.
? Ordinance 171 of 1999: declaring two titled lots found by
the river as a danger zone and non-buildable area, revoking
unused building permits for the area, and prohibiting any new
construction.
? Ordinance 54 of 2005: authorizing the use of 20% of the
Calamity Fund for Disaster Preparedness, specifically for
disaster-related tools, gadgets and equipments to be used during
emergencies.
? Ordinance 109 of 2005: creating the Comprehensive Earthquake
Disaster Reduction program and action plan, and identifying the
roles of 20 offices/agencies of the local authority.
Other ordinances support the resettlement of informal settlers,
monitoring of water quality, and promoting solid waste management
as part of a sanitation code.
Two important actors were key in advocating for the necessary
local policies and institutional arrangements of the city government
? Mayor Bayani F. Fernando (1992 ? 2001) and Mayor
Ma. Lourdes C. Fernando (2001 ? 2010). They both had
consistently pushed for the welfare of their constituents.
Mayor Bayani Fernando was the prime mover behind
the Save the Marikina River program that prompted the
flood disaster mitigation efforts, and Mayor Ma. Lourdes
Fernando pushed for the Comprehensive Earthquake
Disaster Reduction program as well as the Eco-Savers
program that promotes solid waste management at the
household and school levels.
Emergency Preparedness and Rescue 161
Marikina raised its emergency preparedness and
response capacity by setting a target response time
of five minutes to reach emergency situations. With
Ordinance 264 of 1998, it set up an emergency
operations center called "Rescue 161", named after the
three-digit telephone number of the emergency service.
Representatives of the first responders ? police, fire and
ambulance services ? receive phone calls and coordinate
the response to emergencies. Their physical presence
in the center is a hallmark of governance since none of
them are under the jurisdiction of the city government.
However, the city government inked Memoranda of
Understanding with their respective organizations,
and jointly developed standard operating procedures, monitoring
systems and alert systems.
The city government expanded the service by setting up three more
public safety centers in strategic locations, to serve as additional
staging areas for emergency response. The effort has paid off; in
2004, the average response times of Rescue 161 first responder
services were: police ? 3 minutes; fire ? 4 minutes; ambulance ? 3.2
minutes (Borje, 2004d).
The Rescue 161 program won in the DILG Galing Pook Hall of Fame
award for 1999.
2
In the same way, 161 rescuers were the overall
champions at the Department of Health 2006 Skills Benchmarking
with an average response time of three minutes. Marikina City was
among the eight Pacific healthy cities in 2006, cited by the World
Health Organization for outstanding achievements in emergency
preparedness and response planning.
Because the city has an earthquake risk, the city government has
invested in pontoon bridges (in the event of bridge collapse) and
several Collapsed Building Retrieval Boxes, each containing digging
and lifting tools, hand tools, personnel safety equipment, lighting and
shelter equipment, and a first aid kit. During emergencies, Rescue
161 can use the city government's heavy equipment (e.g. excavators,
cranes, pay loaders and water tanker trucks) and light equipment
(e.g. power saws, generators, rubber boats with outboard motors,
and search lights). The city government operates a narrowcast
radio station (DZBF-1674 MHz) with daily programming; in times
of emergencies, the radio station transmits public information and
emergency alert signals.
Public Awareness
The city government has some unique efforts to raise public
awareness and disaster management and emergency preparedness.
The city has established a Disaster Preparedness Education Center
that features an Audio Visual/Training Room, a small disaster
management museum, and a disaster management library for
children and adults.
The city government has
reached out to companies and
non-governmental organizations
to join its efforts at disaster
management. As a result, the city
government can tap a volunteer
fire brigade, six private hospitals,
heavy equipment, about 2000
public order and safety volunteers
(Bantay Bayan and Civic Action
teams), and army reservists.
The city has published a Disaster
Management Handbook that
contains instructions on how
the public should prepare for
emergencies, lists what to do
during emergencies, and the
procedures followed by Rescue
161. This handbook is distributed
to the presidents of the different
homeowners associations, as well
as to mayors of other cities and
municipalities.
Non-Structural Mitigation
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Safer Cities 22, PROMISE
community leaders, (2) monitor the building of illegal structures
within their areas of assignment, (3) serve as watchdogs of the
community in case of emergency or of any other problems, (4)
organize associations where necessary, and (5) ensure that all
other problems resulting from the relocation of the community
were answered (Chuico-Tordecilla, 1998).
? The Marikina River Park Authority develops the river by planning
and designing the various facilities. It leads tree planting
activities. It works with the Engineering Department during creek
and river clean-up, and helps enforce regulations on waste
disposal of factories and homes.
Relocation of Informal Settlements in the Riverbanks
The resettlement of the families living within the defined easement was
a major program geared towards rehabilitating Marikina River. The
city considered the riverbank area as a danger zone, and intended
to utilize it for projects that could rehabilitate the river and mitigate
flood disasters. Ordinance 10 of 1994 combined with the resettlement
program made it possible to relocate the settlers and demolish the
houses along the river, creeks and government-owned land.
Resettlement required a combination of several activities: a city-
wide registration and census of informal settlers; identification
of resettlement areas in the city; demolition of illegal structures;
resettlement in new sites; and monitoring against the construction
of new ones within the easement and resettlement areas.
Census of informal settlers. A census was taken of informal settlers
from 1992 to 1994; 23,000 families were found who stayed along the
river banks, esteros and creeks, on private property, and on public
land targeted for infrastructure development.
Identification of resettlement areas. The MSO identified potential
resettlement sites through city mapping and land surveys. Since
these were usually occupied by informal settlers, the land owners
were approached and persuaded by the officials from the MSO
and the Community Mortgage Program (CMP) to sell their lands
as settlement sites. Tax incentives were given to the land owners
for their cooperation, with some bargaining over the value of the
property versus the costs of removing the informal settlers. Six
relocation sites were eventually used for the city's resettlement
program (Malanday, Nangka, Tumana, Dona Petra, Tanguile, and
Save the Marikina River Program
Removal of informal settlements from the riverbanks, just like river
dredging, would be a repeated task unless a comprehensive effort
was made to make resettlement an attractive option, and the use
of the riverbank converted into something compatible with flood
management. The program started in 1993 with the principle: "The
people have to touch and smell the water." Many thought it would
take a miracle to restore the river because past attempts at removing
trash and relocating informal settlers along the banks have failed.
Surprisingly, the program generated enthusiasm from socio-civic
groups, NGOs and city residents.
An important basis for the river rehabilitation program was a 1987
study that cited the need to improve the riverbanks for better water
discharge, reduced flooding, and to serve as a safe inundation
area. Furthermore, the Department of Public Works and Highways
(DPWH) encouraged Marikina city government to remove illegal
structures and prevent the construction of new ones within the
easement laid down by Ordinance 10 of 1994. The rehabilitation
plan was laid out: (1) building access roads to allow men and
equipment to go near the river and undertake the necessary
cleaning and clearing operations; (2) clearing the banks both of
its informal settlers and other encroachments; (3) improving the
river water quality by demanding industries to set up and maintain
water treatment facilities; (4) creating sports facilities, historical and
cultural structures and; (5) enhancing the aesthetic appeal of the
river environment by planting various flora.
After more than a decade of development, Marikina's riverbanks now
have an 11-km jogging/biking lane, the biggest roller skating rink in
the country, trees, picnic grounds, children's playgrounds, sports
facilities like a baseball field and basketball court, a Youth Camp, a
Chinese Pagoda, a Roman Garden, a gazebo, a riverboat, floating
stages used for cultural events, an amphitheater, and a Senior
Citizens' Lifestyle Center. Some of the city's annual celebrations,
such as the Mama Mary Fluvial Parade and Festival and the Marikina
Christmas Festival, are held in the river and riverbanks. Its success
may be partly due to the motivation that the program will not only to
rehabilitate, improve and restore the environmental qualities of the
river, but also facilitate sustainable development in Marikina.
Organizational Structure
The city government recognized that it needed to modify its
organizational structure in order to implement the river rehabilitation
program and closely monitor its progress. Two new offices were
created within the city government to implement the program ? the
Marikina River Park Authority and the Marikina Settlements Office.
These two offices and the Engineering Department were identified as
key program implementers while the city council was identified as a
necessary partner who could create an enabling policy environment.
The roles of the various actors were:
? The Sangguniang Panlungsod ng Marikina passes the
necessary ordinances for the rehabilitation and relocation
programs, especially on issues pertaining to resettlement. These
ordinances created the legal bases for changing the land use of
the riverbanks.
? The Engineering Department looks after structural flooding
mitigation along the riverbanks, and provides basic services and
infrastructure in the resettlement areas.
? The Marikina Settlements Office (MSO) promotes community
participation in the program's delivery and management. The
MSO organized community associations to help the communities
become active and self-reliant towards their own development.
The office hired some of the program beneficiaries as project
officers for specific tasks: (1) liaise with barangay officials and
Source: Borje, J. et.al. (2004b)
Location of Settlement Areas
in Marikina City
Figure 3
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for engineering equipment to conduct regular
creek and river clean-up, therefore mitigating
obstruction problems that could lead to or
exacerbate flooding. About 500 hectares were
freed for development this way, whereas only
106 hectares of private land were required for
resettlement.
Compatible Land Use of the Floodplain
After the flood-mitigation work in the river and
removal of structures, the riverbanks (which
is the river's floodplain) were designated as
recreational land. The land use was converted
into parks, sports facilities, historical and
c u l t u r a l
structures (like the Chinese Pagoda and Roman
Garden).
These land uses facilitate the timely evacuation
of anyone
who happens to be on the riverbank, and allow for
the river
to safely enter its floodplain.
Establishment of a Solid Waste Management System
The inefficient collection of solid wastes was seen as a major
contributor to river pollution, either through direct dumping of wastes
in the waterways or via throwing of uncollected garbage near the
riverbanks. Solid waste accumulated as sludge in the waterways
and impeded the drainage of flood waters. Upon recognizing this,
the local government strictly enforced an anti-dumping ordinance
and introduced a refuse collection policy.
By 1996 the Waste Management Office (WMO) was established with
the responsibility of delivering the city's solid waste management
services and managing facilities related to sanitation. The office
helped draft an ordinance that adopted the Users Pay Principle in
2002. This was aimed at persuading commercial establishments
to minimize garbage while generating funds to augment the costs
incurred in managing solid wastes. Establishments pay more for
generating more garbage, while residents are asked to pay a flat
rate of PhP 50 (USD1.25) per month regardless of the amount of
garbage the household produces.
Residents are initially informed of the collection schedule and how
to dispose of their garbage (to place wastes in plastic bags or trash
receptacles, and put bags or receptacles outside their gates or
in areas where the garbage compactor may pass). Garbage was
allowed to be placed outside the home only on the day and time of
collection; non-compliance had a penalty of PhP 2,000 (USD 50).
By 1999, the estimated total solid waste generation in Marikina was
between 150-200 tons or roughly 400 m
3
per day. During the same
year, the city is credited with a high garbage collection efficiency
rate of 98%. This was due to many factors including the effective
deployment of equipment and manpower, the use of a Garbage
Transfer Station, as well as the establishment of a collection system
in coordination with the residents and other constituents (CPO,
2007). However, the amount of garbage generated within the city
grew over time (see Table 1).
Estimated waste generation: 1999
400 m
3
/day
Estimated waste generation: 2004
690 m
3
/day
Proportion of biodegradable waste (2004)
45%
Proportion of non-biodegradable waste
(2004)
55%
Source: WMO, 2007; Gawad Galing Pook, 2004
Solid Waste Generation of Marikina City
Table 1
San Miguel Realty); the families from the
riverbanks were moved to only three sites
(Barangay Malanday, Nangka and Tumana).
Figure 3 shows the resettlement sites, with a
total area of about 106 hectares.
Resettlement. Resettlement areas were
made available with reliable utilities, basic
infrastructure, garbage collection, and access
to emergency services; these urban amenities
were not possible on the riverbanks. Small
lots (24 m
2
) were sold to the settlers under
the Community Mortgage Program (CMP),
wherein each family paid monthly mortgage
amortizations from PhP 250 to 400 (USD 6
to 10). The program established several criteria for
identifying
its potential beneficiaries, as defined under
the Urban
Development and Housing Act (Republic Act 7279
of 1992):
? Filipino citizen
? Underprivileged and homeless
? Does not own real property, whether in urban or rural areas
? Not a professional squatter, nor a member of squatting
syndicates
? Member of a community association (the MSO helped the
informal settlers form a total of 168 associations)
The mortgage program itself is run by the national government,
but the city government acted as a facilitator to assist the families
in getting the mortgage and forming the required community
associations. Marikina City Government added its own criteria
(Chuico-Tordecilla, 1998):
? Settlers who are renting from others and paid between PhP 150
to 400 (USD 4 to 10) per month are eligible
? Married children and other relatives of the owner are not entitled
to a relocation site
Of course, there was some resistance to resettlement. The city
government employed a strategy of using massive flood events
as an opportunity to evacuate the informal settlers and then seal
off the area under Ordinance 10 of 1994. Under these conditions,
the informal settlers would see the advantage of moving into the
resettlement areas.
Monitoring illegal structures. Encroachment of new settlers on the
easement was controlled by reinforcing an existing law that the city
government must issue a permit for new construction and could
demolish new structures without this permit. The building of illegal
structures was monitored with the help of barangay officials, while
the city government established a demolition unit that served in
many demolition operations. It grew to include members who once
had their homes demolished.
Even when there are existing laws that support the need to
keep riverbanks and other waterways free from obstruction, the
resettlement of people and clearing away structures are always
difficult undertakings. While supporters to the program claimed
that the local government was pro-people throughout the entire
relocation process and that they even volunteered to help demolish
their own structures, non-supporters believed that their rights were
violated. In spite of the controversy, the resettlement program has
received recognition within the Philippines as a good initiative by a
local authority, having won the Galing Pook Award in 1998. About
22,000 families were resettled, and only 800 families are still living
within the easement.
The clearing of settlements ensured the safety for both people
and structures close to waterways, and made the area navigable
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Safer Cities 22, PROMISE
The city aimed to maintain the high garbage collection efficiency
rate by introducing capacity-building projects for waste management
by the manufacturing business community, ecological solid waste
management plans at the barangay level, and the noteworthy Eco-
Savers Program.
Introduced in June 2004, the Eco-Savers program instills waste
segregation and recycling practices at the household level. Once
a week, students are required to bring recyclable waste from their
respective households during an assigned Eco Day. Accredited junk
shops weigh the waste, value it according to the prevailing market
price, convert it into points (PhP 1.00 = 1 point), record the points in
Eco Savers passbooks, and haul away the collected waste. Points
earned entitle the Eco-saver to shop in the Eco-Savers Mobile
Store that visits the school twice within the school year, bringing
educational materials such as dictionaries, books, school supplies
and educational toys. Individual savings within one school year
ranges from PhP 50 to PhP 1,800 (USD 1 to 45), and helps reduce
family spending.
For the city, Eco-Savers meant reduced waste collection trips from
50 truckload-trips a day to an average of 30 trips a day, reduced
traffic decongestion and air pollution, conserved fuel, and it provided
junk shops with a regular supply of recyclable materials. Through
this program, a total of 238,000 kg of waste with a value of PhP
1.3 million (USD 26,000) have been diverted from dumpsites and
reduced the sludge that accumulated in the waterways. Eco-Savers
won a Gawad Galing Pook in 2004.
Water Quality Improvement
In the 1970s, Marikina River was rated as clean enough to be used
as public water supply. By 2002, the overall water quality of Marikina
River had deteriorated (LLDA, 2002), due to untreated domestic and
industrial wastes discharged directly into canals that ultimately flow
into the river. The worsening water quality is related to incidence of
water-borne diseases, and is likely to increase the negative impact
of floods on human health. Table 2 shows the incidence of water-
borne diseases in Marikina City.
Disease
2005
2006
Diarrhea
1,438
1,189
Unspecified intestinal parasitism
555
154
Typhoid
2
32
Viral hepatitis
2
5
Amoebiasis
107
64
Ascariasis
152
33
Source: WMO, Marikina (2007)
Number of Cases of Water-borne
Diseases in Marikina City
Table 2
Conclusion
The impact of the flood mitigation program can be derived from
a comparison of 1992 and 2004 figures for the extent of the
floods and the number of exposed buildings (see Table 3). The
program shows some improvement and requires monitoring.
Urban flood mitigation is a complex effort wherein both structural
and non-structural mitigation play equally important roles. In the
case of Marikina City, the local authority was able to sustain its
efforts that began in 1998.
The local authority was able to promote good urban governance
by engaging the participation of key actors: the city council to
provide the needed policy environment, the community to act
as volunteers, companies and NGOs who make their equipment
and medical facilities available during emergencies, and other
national agencies who coordinated police and fire services with
a common emergency response effort for Marikina City.
Other programs that have flood disaster risk reduction as a
secondary benefit are sustaining the disaster risk reduction
effort. Examples of such programs include the relocation of
informal settlers to safer places, emergency preparedness
efforts, river rehabilitation, and solid waste management.
Exposed Item
during 1992 flood
during 2004 flood
Land (flooded
area)
6.36 km
2
4.40 km
2
Residences
10,446
4,789
Businesses
450
289
Critical Facilities
11
9
Source: WMO, Marikina (2007)
Exposure of selected items to 1992 and
2004 floods
Table 3
? Urban flood mitigation requires the coordination of efforts by multiple agencies. The governance approach promotes and recognizes
transparency and consensual decision-making by stakeholders can facilitate coordination efforts. This is supported by Marikina's
experience in establishing and maintaining the inter-agency Rescue 161 emergency operation center.
? The political will exhibited by the mayors not only sustained the disaster management effort, but also motivated support from the
other key actors like the city council, the dedicated staff of the concerned departments of the city government, private companies
and NGOS, national agencies for emergency response, and the relocated communities.
? It is important to integrate disaster risk reduction in all development projects. A river rehabilitation program is an example of how
to mainstream flood disaster risk reduction by removing obstructions in the waterways and riverbanks, designating compatible
land use for the floodplain area, managing solid waste, and improving water quality.
Lesson Learned
The city government decided to improve water quality by
constructing wastewater treatment plants in strategic areas, and
improve sewage disposal. It is aided by the Manila Water company
that holds the water service concession for the East Zone of Metro
Manila (including Marikina). Through a public-private partnership
between the city and the company, Manila Water began massive
pipe-laying operations to provide potable water to all of the city's
households, and will be constructing a wastewater treatment plant
in Marikina. Manila Water also conducts free scheduled septic
tank emptying services to customers not connected to a sewer
network under the `Sanitasyon Para Sa Barangay' (Sanitation for
the Barangay) program.
background image
References
Badilla, Roy. "Flood Modelling in Pasig-Marikina
Basin," M.Sc. thesis, ITC, March 2008, http://www.
itc.nl/library/papers_2008/msc/wrem/badilla.pdf
Borje, Julie et al. 3cd Sound Practice Series.
No. 5, "Marikina City Flood Mitigation
Countermeasure Program," 2004a, http://emi.
pdc.org/soundpractices/Metro-Manila/SP5-
MM-Flood-Mitigation-Marikina.pdf
No. 6, "Save the Marikina River," 2004b, http://
emi.pdc.org/soundpractices/Metro-Manila/SP6-
MM-Save-the-Marikina-River.pdf
No. 7, "Marikina City Squatter-Free Program,"
2004c, http://emi.pdc.org/soundpractices/
Metro-Manila/SP7-MM-Marikina-Squatter-Free.
pdf
No. 8, "5-Minute Quick Response Time:
Rescue 161 in Marikina City," http://emi.pdc.
org/soundpractices/Metro-Manila/SP8-MM-5-
Minute-Quick-Response.pdf
Chuico-Tordecilla, C. "The Gatekeepers of Marikina:
A Case of In-City Relocation and Management of a
Squatter-Free Community," a case study for the Best
Practices on the Urban Development and Housing
Act Seminar, ASG, 1998.
LLDA (2002). The Water Mondriaan: Monthly
Water Quality Status Report, January 2002, http://
www.llda.gov.ph/SD_Mondriaan/MonthlyReport_
files/2002/January_Home.htm
Fette, M., and C. Weber, A. Peter, B. Wehrli.
"Hydropower Production and River Rehabilitation:
A case study on an Alpine River," Environmental
Modeling and Assessment, 12(4), 2007, pp. 257-
267.
Gawad Galing Pook awards description, 1994 to
latest awards: http://www.galingpook.org/awardees.
htm#year
Hostmann, M. "Decision Support for River
Rehabilitation," dissertation, Swiss Federal Institute
of Technology Zurich, Diss. No. 16136, 2005.
Marikina City Development Authority ? City Planning
Office (CPO). "2007 Comprehensive Land Use
Plan"
UNEP. "Freshwater Issues," Global State of
Environment Report, 1997, http://www.unep.or.jp/
ietc/Issues/Freshwater.asp
UN. World Water Development Report, 2003,
http://www.wateryear2003.org/en/ev.php-
URL_ID=3129&URL_DO=DO_TOPIC&URL_
SECTION=201.html
Yu, Carlyne. "Urban River Rehabilitation in a
Developing Country: A Case Study in Marikina City,
Philippines," M.Sc. thesis, AIT, May 2008.
Endnotes
1 http://city.marikina.gov.ph
2 This refers to the Gawad Galing Pook, an award
for innovative practices by local authorities in the
Philippines. The winners are chosen from a national
search of local governance programs, evaluated
through a multi-level rigorous screening process
based on positive results and impact, promotion
of people's participation and empowerment,
transferability and sustainability, and efficiency of
program service delivery. Winning programs become
models of good governance. The award is conferred
by the President of the Republic of the Philippines.
Acknowledgment
Mayor Ma. Lourdes Fernando, Marikina City, 2001
- 2010
Julie Borje, Center of Excellence, Marikina City
Government
Lolita E. de Leon, Secretary of the Sangguniang
Panlungsod ng Marikina
Ory Buenaventura, Waste Management Office,
Marikina City Government
Other Relevant Safer Cities Studies
SC 13: What is the Appropriate Mitigation Mix?
Structural and non-structural mitigation in Hat Yai,
Thailand
SC 16: Cooperation between Local Authority and
Communities
SC 17: Good Governance and Post-Tsunami
Recovery in Patong
Safer Cities is a series of case studies that illustrate how people, communities, cities, governments and businesses have been able to make cities safer before
disasters strike. The series presents strategies and approaches to urban disaster mitigation derived from analyses of real-life experiences, good practices and lessons
learned in Asia and the Pacific. This user-friendly resource is designed to provide decision-makers, planners, city and community leaders and trainers with an array of
proven ideas, tools, policy options and strategies for urban disaster mitigation. The key principles emphasized throughout Safer Cities are broad-based participation,
partnerships, sustainability and replication of success stories.
The contents here may be freely quoted with credit given to the implementing institution, Asian Disaster Preparedness Center (ADPC), and to the Office of Foreign
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end of this material. Publication of this case study was made possible through the support provided by the OFDA, USAID, under the terms of Cooperative Agreement
No. DFD-G-00-05-00232-00.
PROMISE
During the implementation of the Asian Urban Disaster Mitigation Program (AUDMP), ADPC recognized the importance of interventions in urban areas and accordingly
identified Urban Disaster Risk Management as one of its core thematic areas of work, experiences from which have also guided the selection of the target secondary
cities. ADPC has developed `Strategy 2020 for Urban Disaster Risk Mitigation in Asia' which aims to reach 200 cities by the year 2020.
The need to minimize the destructive impacts of these hydro-meteorological events on the vulnerable communities, particularly the urban communities and the
economic infrastructure through enhanced preparedness and Mitigation is therefore the main trust of the present intervention in implementation of the Program for
Hydro-Meteorological Disaster Mitigation in Secondary Cities in Asia (PROMISE).
ADPC considers PROMISE program as an opportunity to associate with many communities living in Asian cities vulnerable to hydro-meteorological hazards with the
aim of reducing the impacts of such events and demonstrate innovative applications for community preparedness and mitigation.
This case study documents the efforts under a specific program objective to increase stakeholder involvement and further enhancement
of strategies, tools and methodologies related to community preparedness and mitigation of hydro-meteorological disasters in urban
communities.
Editorial Board
Safer Cities 22 has been reviewed by:
Dr. Bhichit Rattakul, ADPC
Mr. N.M.S.I. Arambepola, ADPC
Mr. Aloysius Rego, ADPC
Mr. A.R. Subbiah, ADPC
Author:
Ms. Gabrielle Iglesias
Ms. Carlyne Yu
Designer:
Lowil Fred Espada
The Asian Disaster Preparedness Center (ADPC) is a regional resource center dedicated to safer communities and sustainable development through disaster risk
reduction in Asia and the Pacific. Established in 1986 in Bangkok, Thailand, ADPC is recognized as an important focal point for promoting disaster awareness and
developing capabilities to foster institutionalized disaster management and mitigation policies.
For more information, please get in touch with us at:
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Tel: (66-2) 2980681-92
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URL: http://www.adpc.net
Safer Cities 22, PROMISE