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Contributors

City Government of Naga

Hon. John Bongat, Mayor

Hon. Nelson Legacion, Vice Mayor
Hon. Jose Tuason, Councilor
Mr. Wilfredo Prilles, Jr., City Planning and Development Coordinator
Ms. Gregoria Nilda Abonal, City Treasurer
Engr. Rolando Campillos, Urban Poor Affairs Chief
Mr. Joselito Del Rosario, Public Safety Officer
Ms. Malou Del Castillo, Assistant Budget Officer
Mr. Anselmo Mao, Information Systems Analyst III, Electronic Data Processing Office
Mr. Lawrence Nogra, SMS Programmer, i-Serve Program
Mr. Reuel Oliver, Metro Naga Public Employment Services Office Head
Engr. Leon Palmiano, City Engineer

Private Sector and Civil Society Organizations

Metro Naga Chamber of Commerce and Industry

Philippine Red Cross Naga City Chapter
Practice Leaders

Dr. Renan Ma. T. Tanhueco, Risk Sensitive Land Use Planning Expert
Atty. Violeta Somera-Seva, Urban Disaster Risk Management (Incentives) Expert

EMI Project Management Team

Dr. Eng. Fouad Bendimerad, Project Team Leader

Mr. Jose Mari Daclan, Project Manager
Mr. Michael Adrian Padilla, Assistant Project Manager
Ms. Ayhen Loisse Dalena, Project Coordinator
Atty. Anne Ronelle Siders, Research Fellow
Mr. Robin Crozier, Research Assistant

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Acronyms

ADB Asian Development Bank

ASEP Association of Structural Engineers of the Philippines
AusAID Australian Agency for International Development
CBD Central Business District
CBMS Community Based Monitoring System
CCA Climate Change Adaptation
CCS Construction Codes and Standards
CCTs Conditional Cash Transfers
CLUP Comprehensive Land Use Plan
CPD City Planning and Development
CPDO City Planning and Development Office
DBM Department of Budget and Management
DILG Department of the Interior and Local Government
DPWH Department of Public Works and Highways
DRIVE Disaster Resiliency Initiative for Vulnerable Enclave
DRM Disaster Risk Management
DRR Disaster Risk Reduction
DRRM Disaster Risk Reduction and Management
DRRMO Disaster Risk Reduction and Management Office
EDPO Electronic Data Processing Office
GIS Geographic Information System
GIZ German Corporation for International Development
GOLD Governance and Local Democracy
HLURB Housing and Land Use Regulatory Board
HVRA Hazard, Vulnerability and Risk Assessment
iNRRP Integrated Naga River Revitalization Project
IRA Internal Revenue Allotment
KALASAG KAlamidad at Sakuna LAbanan, SAriling Galing ang Kaligtasan
KIIs Key Informant Interviews
LDRRMF Local Disaster Risk Reduction and Management Fund
LERC Least Economically Resilient Communities
LGU Local Government Unit
LIDAR Light Detection and Ranging
LUM Land Use Management
LUP Land Use Planning
MBAs Mutual Benefit Associations
MGB Mines and Geosciences Bureau
NAPC National Anti-Poverty Commission
NCG Naga City Government
NCDRRMF Naga City Disaster Risk Reduction and Management Fund
NDRRMC National Disaster Risk Reduction and Management Council
NEDA National Economic Development Authority
NEXUS Integrated Urban Development Project
NGO Non-Government Organization
NHA National Housing Authority
OBO Office of the Building official
OCD Office of Civil Defense

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 OECD Organization for Economic Co-operation and Development
PAGASA Philippine Atmospheric, Geophysical and Astronomical Services Administration
PCF Performance Challenge Fund
PCFIU Performance Challenge Fund Implementation Unit
PSF Peoples Survival Fund
PHIVOLCS Philippine Institute of Volcanology and Seismology
PhP Philippine Peso
PICE Philippine Institute of Civil Engineers
PPAs Programs, Projects and Activities
QRF Quick Response Fund
QUEEN Quality Universal Elementary and High School Education
REDAS Rapid Earthquake Damage Assessment System
RSLUP Risk Sensitive Land Use Planning
SFR Small Farm Reservoirs
SGH Seal of Good Housekeeping
SWIS Small Water Impounding System
SWOC Strengths, Weaknesses, Opportunities and Challenges
TA Technical Assistance
TDR Transfer of Development Rights
ToP Technology of Participation
UCPB United Coconut Planters Bank
UN United Nations
ZO Zoning Ordinance

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Table of Contents
Contributors
i
Acronyms
ii
Project Background 2
Case Study Location: Naga City, Philippines
3
Case Study #1: Risk Sensitive Land Use Planning
5
Introduction
6
Mainstreaming DRR into Land Use Planning in Naga City: Issues and Challenges 6
Way Forward
11
Case Study #2: Incentives for DRR
15
National DRR Incentives in the Philippines
16
Local DRR Incentives in Naga City
22
Designing Incentives for DRR in Naga City: Challenges and Priorities
25
Conclusions
28
References 30
Annexes 34
Project Background
The Asian Development Bank (ADB) is implementing a regional technical assistance (TA) project to
strengthen access to tools and guidelines on risk-sensitive land use planning and urban development
processes in the Asia-Pacific Region. The TA is expected to produce two regional outputs: (1) A
guidebook on integrating disaster risk reduction (DRR) into urban development processes, with sector
notes on risk-sensitive land use planning, risk-sensitive urban redevelopment, and risk-sensitive water,
wastewater, and storm water drainage system development; and (2) A discussion paper on
incentives/disincentives for investing in DRR.

Three study sites have been selected for the project, namely Naga City in the Philippines, Kathmandu
Valley in Nepal, and Da Nang in Vietnam. In this context, ADB has engaged two expertsRisk Land Use
Planning and Urban Disaster Risk Management (Incentives) Specialistsfrom the Earthquake and
Megacities Initiatives to work closely with the officials from Naga City Government to develop two case
studies on risk-sensitive land use planning and incentives for investing in urban DRR.

In the case studies, the national experts have accomplished the following tasks:

1. Documented land use planning practices in Naga City and reviewed development practices
that aim to strengthen resilience.

2. Collected information on different types of incentives provided by the national and city
governments to promote inclusive and sustainable urban development;

3. Identified relevant incentives that directly or indirectly contribute towards strengthening

disaster and climate resilience;

4. Identified different options for incentives that could help remove implementation bottlenecks
and framed these in the local, national and global contexts;

5. Provided recommendations on different types of incentives relevant to Naga City, and

6. Formulated suggestions on follow-up actions required for further development of specific

incentives.

It is hoped that the findings, outputs and recommendations of these case studies will contribute to
initiating dialogues and consultations with stakeholders that will help them to understand the issues that
limit investments in DRR, and the type of incentives that could promote resilient and sustainable urban
development.

Case Study Location: Naga City, Philippines

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Naga City has a history of good governance. It is the highest ranked city based on government efficiency
and competitiveness (National Competitiveness Council, 2014); so it represents a best case scenario in the
Philippines. Challenges experienced in Naga City are likely to be found, and possibly to be even more
prominent, in other Philippines cities.

Naga City is located in the center of the Bicol region, on the southeastern tip of the Philippine island of
Luzon, located 377 km south of Metro Manila. The city has a population of 174,947 (Philippine
Statistical Authority, 2013) within a geographic area of 84.5 sq. km, making it one of the most densely
populated cities in the region (Naga City Development Plan, 2011). Naga City is a major employment
base in the region and serves as a key hub for business and education in southern Luzon (Cities
Development Initiative for Asia, 2011). It is classified by the Philippine Department of Finance as a 2nd
class city, meaning that it has an annual average income of between US$ 6.8 M to 8.5 M.

Figures 1 & 2. Location of Naga in relation to the

entire Philippines, and location of Naga within its
region
Source:
http://www.zamboanga.com/z/index.php?title=Naga_
City,_Camarines_Sur,_Philippines

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Naga City is also one of the cities in the Philippines that is vulnerable to natural disasters. It has an annual
rainfall of 2,214 mm and is hit by an average of 2 to 3 typhoons every year.1 The city could also be
impacted by a possible magnitude 8 earthquake originating from the Philippine Trench, which could
affect the Bicol Region.2 These conditions, combined with the citys location in the Bicol River Basin,
expose the city to flooding risk. This risk is exacerbated by physical changes within Naga and its
surrounding area due to population growth and urbanization. The watershed areas of Mt. Isarog, east of
the city, have been greatly reduced due to unregulated logging outside the city territory and the
conversion of forest land for farming, settlements, and other uses. Rapid urban development has also
reduced the absorptive capacity of natural catchment areas along the Naga and Bicol Rivers.3

To support continued population growth, urbanization, and economic development while still reducing
disaster risk, Naga City must integrate DRR into land use planning as well as implement policy
mechanisms that encourage urban residents to comply with DRR regulations and voluntarily pursue
further DRR actions.

1
Naga City Profile (http://www.naga.gov.ph/cityprofile/topo.html), accessed 21 September 2015.
2
Manila Bulletin, 4 February 2015
3
E. Elcamel, 2002.

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 Case Study #1: Risk Sensitive
Land Use Planning
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Introduction

Mainstreaming disaster risk reduction (DRR) into land use planning, simply known as Risk-sensitive
Land Use Planning (RSLUP), is the concept and practice of integrating risk information into the content
of land use plans, as well as in the implementing tools, such as the zoning ordinance, building regulations
and investment programs, in order to influence land utilization and management, infrastructure design and
construction, and social and economic development. RSLUP is a new approach in protecting the
development gains of cities, by reducing exposure and vulnerability to hazards through land use planning
that considers disaster risk.

Most local governments in the Asia-Pacific region have limited knowledge and experience in integrating
DRR into land use planning and are only familiar with conventional development planning processes.
Availability and use of risk information is already a challenge to local government units, hence finding its
integration into land use and development plans is generally a daunting task. Even with the existence of
published RSLUP guidelines that identify entry points for mainstreaming DRR into conventional land use
planning theory and practice, the adoption of RSLUP into development planning has not been a
straightforward process for local governments in the Asia-Pacific, as has been the experience of the Naga
City Government (NCG) in the Philippines.

This case study was prepared to document the challenges associated with adopting RSLUP as a new
development planning approach for NCG, to identify the roadblocks, and to document the progress and
performance of the city in integrating DRR and climate change adaptation (CCA) into urban land use
planning.

Mainstreaming DRR into Land Use Planning in Naga City: Issues and Challenges

Being one of the most disaster-prone countries in the world, the Philippines has enacted the Climate
Change Act of 2009 and Disaster Risk Management Act of 2010, which call for the mainstreaming of
DRR in the development planning processes, including land use planning, at the national and sub-national
government levels. However, since these new requirements to make comprehensive land use plans
(CLUP) and related implementation instruments risk-sensitive were mandated, only a limited number of
local government units have been able to complete and implement an RSLUP. The national government
has provided DRR mainstreaming guidelines for the local governments to follow in CLUP development 4.
However, various issues and concerns have prevented the adoption of effective risk-based development
planning, as indicated in this study.

4 Such as the: Guidelines on Mainstreaming DRR in Subnational Development Land Use/Physical

Planning in the Philippines by NEDA; Reference Manual on Mainstreaming DRR and CCA into the CLUP
by the Housing and Land Use Regulatory Board (HLURB) and NEDA; Supplemental Guidelines on
Mainstreaming Climate and Disaster Risks in the Comprehensive Land Use Plan by the Housing and Land
Use Regulatory Board and CCC (2014); Guidelines on Mainstreaming DRRM/CCA in Local Planning
System and Guidelines on Mainstreaming Disaster Risks and Climate Change in Local Development Plans
by the Department of the Interior and Local Government.
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Updating the CLUP to a Risk-sensitive Land Use Plan

The 2002 Naga City CLUP is outdated and

unresponsive to Naga Citys existing
development requirements, especially in
terms of reducing risks from disasters.5 Land
use in Naga City has already deviated from
what was envisioned in the original 1978
Town Plan (Figure 3). Present challenges
include continuous land use conversion from
agricultural to commercial and/or residential
within the city center and its fringes, river
easement encroachments, poor drainage due
to blockages from garbage and related
sanitation problems and high incidence of
flooding. Undoubtedly, such actions increase the impacts of hazards such as floods and earthquakes.
Figure 3. 1978 Naga Town Plan.
The need to integrate the latest requirements
from the Housing and Land Use Regulatory Board (HLURB) has delayed the updating of the CLUP. In
2013, NCG initiated the updating of its CLUP using the NEXUS approach.6 Before the updating was
completed, the HLURB released its new CLUP guidebook and integrated model zoning ordinance, with
additional requirements for mainstreaming DRR into the CLUP. NCG has extended the updating of the
CLUP to comply with the new guidelines.

NCG has restarted the updating of the Naga City CLUP, but it is being hampered by limited internal
knowledge and experience in DRR. NCG is quite adept at the standard land use planning process, as
proven by the City Planning and Development Office (CPDO) having developed the 2002 CLUP together
with other city departments. However, the ongoing mainstreaming of DRR into the CLUP has been slow
moving, as the technical working groups tasked with the updating have limited access to information on
city-specific disaster risks and are unfamiliar with approaches on integrating risk parameters according to
the new CLUP Guidelines (See CLUP preparation process in Figure 4).

5 W. Prilles, personal communication, March 6, 2015.

6 The NEXUS approach, promoted by GIZ and ICLEI SEA, focuses on food, water and energy as the means
of linking the different sectoral priorities in a land use plan.
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 Figure 4. The New 12-Step Comprehensive Land Use Planning Process (HLURB, 2014).

NCG lacks the internal capacity to collect and process spatial data and information on local hazards,
exposure and vulnerabilities, that can be used to incorporate risk parameters in the formulation and
implementation of development programs, projects and activities (PPAs). A significant issue for the Naga
City Government is the access of city departments to updated spatial risk information, which can help
inform the preparation and implementation of the PPAs that will support the RSLUP. NCGs Electronic
Data Processing Office (EDPO)7 only has one staff member trained on Geographic Information Systems
(GIS), and the office has not yet acquired accurate terrain elevation data and high-resolution hazard maps.
There is also no inventory and digital database of public buildings and facilities, which can be used to
map exposures to hazards. NCG currently relies on hazard information drawn from experiences such as
from strong flood events. The limited documentation makes the information less reliable and outdated for
informing RSLUP and related PPAs.8

Limitations in the availability of science-based flood hazard information has resulted in NCGs using
anecdotal community knowledge and empirical experience from past floods in identifying flood-prone
areas.9 However, this process is unreliable because of the lack of documentation on the various flood
events (e.g., extent of affected area, depth, speed) and inaccurate in defining flood overlay zone
provisions. Given these limitations, NCG must identify the potential impacts to land use and decide on
mitigation options available to the city using what could be inaccurate and unreliable hazard information.

7 The EDPO manages the database system of NCG, which stores information on businesses, real
property, payroll, and human resources, etc. in Naga City. This database system, at the moment, while
serving other NCG departments, such as the City Assessors Office, and City Health Office, which updates
their data every six months, does not serve the CPDO. Furthermore, there is no data quality review
process put in place yet for this database system. Currently, there are 12 staff in the EPDO: 1
programmer, 2 database handlers, and 9 computer repair technicians.
8 E. Elcamel, personal communication, March 6, 2015
9 W. Prilles, personal communication, July 20, 2015
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The lack of capacity to prepare a scientific risk assessment makes it very challenging for the City to
complete the CLUP updating by the end of 2015 as mandated by the City Council.

Implementing a Risk-sensitive Land Use Plan

The Zoning Ordinance, which is the primary implementation tool of the CLUP, is similarly outdated and
does not contain zoning provisions to mitigate nor avoid hazards. The Zoning Administration Section10 of
the CPDO, which is in charge of the review and approval of locational clearances, has yet to comply with
2014 guidelines on Integrated Zoning set by the HLURB, and to ensure that hazard risk reduction (ex.
flood, seismic and fire) provisions are found in the new Naga City Zoning Ordinance to protect existing
and new developments in Naga City. Similarly, land use conflicts and zoning violations such as
encroachments in the three-meter legal easement set for urban areas specified by the Water Code of the
Philippines11 need to be addressed, along with other issues of delineating floodways (no build zones) and
flood fringes (possible buildable areas) and assigning them with clear flood hazard overlay zones
provisions.

Lack of manpower and technical capacity within city departments in implementing the Zoning Ordinance
and Building Regulations limit the responsiveness of relevant departments to effectively carry out safe
and risk-sensitive development in Naga City.12 The Office of the Building Official (OBO) is responsible
for issuing the necessary development permits to ensure compliance with the building construction
requirements13 in Naga City, following the latest National Building Code of the Philippines. Ensuring
compliance to the Building Code and Zoning Ordinance has been a challenge for the OBO and the City
Engineering Office because of the limited number of engineers and specialist staff14, who could improve
the process of reviewing building construction applications and the implementation of regulations related
to building construction and land development (e.g. documenting the number of privately owned
buildings in Naga City, checking compliance with construction regulations). Currently, the OBO only has
four engineers on staff, limiting its ability to carry out its mandates.

The mix of building stock in the city also poses a challenge to the OBO. While newly constructed
buildings in Naga City can be assumed to have satisfied the requirements of the Building Code, a

10 Aside from the CPDO Coordinator, there are 14 staff/personnel in the CPDO, who are assigned in the
following sections: Planning, Programming and Project Development Office, Zoning Administration,
Research and Statistics, and Administrative Functions.
11 It has not been verified how NCG implements the ruling on easements, and if other legal easements required in
agricultural and forest areas are also being uniformly complied with in Naga City.
12 L. Palmiano, personal communication, March 5, 2015.
13 OBO permitting requirements are enumerated in a checklist, which includes reminders to applicants
to comply with the building construction-related codes (building, structural, mechanical engineering,
architectural, electrical, plumbing), and other laws and ordinances affecting the design and construction
of buildings, such as environmental clearance certificationfrom the Environmental Resource Office
for commercial and industrial buildings. Additional permitting requirements in the checklist are soil
bearing and plate load test results for three-storey and four-storey buildings with attics, mezzanines,
and roof decks.
14 Specifically: materials, structural, geotechnical and sanitary engineers.
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substantial number of buildings over 30 years old are in need of structural and building assessments to
prioritize structures that need to undergo retrofitting measures (e.g. flood retrofit, seismic retrofits) to
ensure resistance to and functionality under strong natural hazards.15 This includes heritage sites and other
structures which contribute to the cultural and economic value of the city.

Similar to the situation with the Zoning and Building Regulations, Naga City also faces challenges in the
enforcement of Environmental and Sanitation Regulations in the city. Among the challenges encountered
by the citys Environment and Natural Resources Office (ENRO) is the violation of environmental and
sanitation regulations in Naga City. Untreated effluents (e.g. sewage/wastewater) have significantly
polluted the Naga River, turning it effectively into a waste collector. The ENRO has considered several
technologies to deal with the liquid waste generated in the city, such as the construction of a septage
treatment facility as part of the iNRRP being implemented by the Department of Public Works and
Highways and the Metro Naga Water District, and a previous project to develop16 a waste-to-energy
plant.17 Similarly, the large volume of solid waste produced in the city has rendered dumpsites to be near
capacity and scheduled for closure, clean-up and rehabilitation.

Monitoring and Evaluation of a Risk-sensitive Land Use Plan

There is a lack of monitoring and evaluation mechanisms in NCGs development planning system. The
citys Comprehensive Development Plan for 2011-2020 and the 2002 CLUP lack a framework and
methodology for monitoring and evaluating the implementation of development PPAs such as the
Integrated Naga River Revitalization Project (iNRRP), the Ginhawang Nagueo/Least Economically
Resilient Communities (LERC) Program, and the Kaantabay sa Kauswagan/Partners in Development
Program. Without a feedback mechanism or process to track and assess the implementation of
development interventions, it is difficult for NCG to evaluate whether the PPAs are achieving the
intended results, and if there is a need to alter or improve specific aspects of PPA implementation.

Similarly, the lack of monitoring and evaluation mechanisms for DRR and CCA in Naga City also makes
it difficult to assess the impact on DRR of national government-supported programs. NCG has made use
of existing incentive programs from the national government to fund development PPAs in order to
reduce disaster risks and build resilience in Naga City. Among these national government programs that
provide incentives for investments in DRR are the Local Disaster Risk Reduction and Management Fund
(LDRRMF), Performance Challenge Fund (PCF), and Seal of Good Governance. However, in the
absence of monitoring and evaluation in the NCG development planning system, it is not clearly known
whether these national DRR incentive investment programs have contributed substantially to disaster
resilience in Naga City.

15 According to the research study, Rapid Visual Screening of Public School Buildings within Naga City
(For Potential Seismic Hazard), of the Ateneo De Naga University, dated March 2014, there are 238 (out
of 480) buildings in areas of moderate seismicity that have been subjected to detailed investigations.
16 Because of the inability of the technology providers to deliver the solid waste treatment equipment,
the plant was dropped by NCG. Correspondingly, the planned conversion of a five-hectare area of public
land, near the foot of Mt. Isarog, into an industrial site for the plant by NCG was also halted.
17 W. Prilles, personal communication, March 4, 2015
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Way Forward

For the Naga City Government

While the NCG has complied with the DRRM Act and the National Climate Change Action Plan in terms
of the availability of plans (e.g. DRRM plan, CCA plan), and has provided for the organization and
operations of its local DRRM Office, risk management and risk assessment remain key processes which
need to be further developed and institutionalized to facilitate the integration of DRR and CCA into land
use plann3ing and other development processes.

Institutionalize Hazard, Vulnerability and Risk Assessment (HVRA) to Support the

Development Planning and Decision-Making Processes

1. An updated flood risk assessment should be made available to guide strategic and project
planning, and inform and update not only the citys plans, but also other plans prepared by
non-NCG agencies (e.g. water district, Naga River Revitalization Project components).
2. NCG should start collecting, processing and integrating risk information to be used for land
use plan formulation and for developing risk-sensitive strategies and PPAs. The city should
acquire good resolution hazard maps, as well as, LiDAR-based digital elevation models
developed by national government agencies, and validate and process these for use in
updating the citys land use plans.
3. Cooperation, knowledge sharing, establishing protocols for data sharing of data, trainings,
consultations and technical advice from various government units such as the HLURB,
Philippine Institute of Volcanology and Seismology (PHIVOLCS), Philippine Atmospheric,
Geophysical and Astronomical Services Administration, DILG, and Mines and Geosciences
Bureau are critical to the NCGs preparation of hazard, vulnerability and risk assessments,
and integration of the assessment outputs into the land use plans.
4. Training workshops (ex. Rapid Earthquake Damage Assessment System mapping, climate
projections) should be conducted so that NCG technical staff can better understand the flood
and seismic hazard characteristics and threats in Naga City, to help them interpret hazard
information and define hazard impacts and their implications to the citys sectoral and spatial
development plans.

Update the Comprehensive Land Use Plan and Zoning Ordinance by Making Them Risk-Sensitive or
Integrating DRR into the Land Use Planning Process

1. Once the flood risk assessment and a seismic risk assessment have been prepared (see Figure
5), socio-economic profiles and sectoral development plans prepared in 2011 by the NCG
need to be reviewed/updated in with these assessments.

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 2. Land use planning should be conducted following the new HLURB guidelines and with
guidance from this agency and risk assessment experts. The HLURB and the Provincial
Government of Camarines Sur can play important roles in providing trainings and workshops
on mainstreaming DRR in the land use
planning process.
3. In following HLURBs new 12-step land
use planning process, careful thought
should be given to the inclusion of the risk
assessment results into the situational
analysis steps in order to appropriately
strategize land use management. Workshop
sessions on how to consider hazard impacts
and their implications to strategic planning
should be conducted with risk assessment
experts.
4. The participation of the DILG and HLURB in
mainstreaming projects should be strongly
encouraged, and the NCG should engage Figure 5. Liquefaction Potential Map and Flood
these organizations in future projects to Hazard Susceptibility Map of Naga City Quadrangle.
ensure harmonization of the processes on (Source: dost.gov.ph)
profile preparation, sectoral and spatial
development plan preparation and the development of DRR/CCA programs, projects and
activities.
5. Updated land use and zoning guidelines prepared by the HLURB that take hazards, exposure,
vulnerabilities, and risk into consideration are available. Trainings and sharing of other cities
experiences in mainstreaming can reinforce the NCGs knowledge and understanding of how
to develop strategies, policies, and PPAs that support DRR.
6. NCG should pursue further engagement with local chapters of professional organizations such
as the Association of Structural Engineers of the Philippines (ASEP) and the Philippine
Institute of Civil Engineers (PICE), and academic institutions like the University of Nueva
Caceres and Ateneo de Naga to improve the collection and use of hazard and exposure
information.
7. A formal review of zoning violations and existing resolutions in Naga City should be
conducted, which should include the development of a plan for communicating the rationale
for hazard zoning, in order to build consensus for finding acceptable mitigation options and
incentives. The land use plan and zoning ordinance have to be updated with this in mind.

Develop a Monitoring and Evaluation Framework to Provide a Feedback Process for Risk-Based
Land Use Planning and Implementation

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 1. The City Planning and Development Office of Naga needs additional personnel and targeted
technical capacity building to manage the mainstreaming process in land use plan formulation
and implementation, and to monitor and evaluate the results of the process.

2. NCG has several PPAs, such as the Ginhawang Nagueo program, that address social
vulnerability reduction. These need to be reviewed, monitored and evaluated to determine
their impact on risk reduction.

3. Similarly, the capacity building component( e.g. disaster risk assessment and management,
flood database system, social preparation, waste management, spatial planning) of the iNRRP
has to be pursued to manage the different solutions proposed in the areas of environmental
management, flood alleviation and drainage, and riverside revitalization, among others.

For the Asian Development Bank

1. The study looked into the potential of Naga City to mainstream DRR into its governance
functions and processes. The study found that the city has the awareness and readiness to
pursue risk-sensitive development, and aspires to have their updated land use plans and zoning
ordinance approved, and held up as examples of risk-sensitive development. However, such
aspirations are hindered by several impediments as indicated previously.

2. The criteria and process used for assessing the risk-sensitivity of plans, programs, projects and
activities in this study can be challenged, since it is difficult to gather evidence on the
performance of PPAs identified in existing NCG plans that implement DRR, as there is no
monitoring and evaluation framework to guide such a review. This is a systemic problem
within local governments. Monitoring and evaluation criteria that establish benchmarks and
enable objective evaluations should be developed and tested.

3. One single case study cannot reflect the state-of-the-practice of RSLUP among LGUs in the
Philippines, nor can it reflect all the relevant issues. It is suggested that more case studies
should be looked into to review the experience and performance of Philippine cities that have
completed or are engaged in undertaking their risk-sensitive land use plans. Such local
governments include Surigao City, Cagayan De Oro City, Iloilo City, and the municipalities
of Bacuag, Surigao Del Norte and Opol, Misamis Oriental, to name a few.

4. What is evident however is that cities which were able to complete risk-sensitive land use
plans received major support from development partners and/or government institutions,
reflecting the systemic difficulties local governments are experiencing in making progress in
this particular sector. Without external support, it appears to be difficult for LGUs to complete
a competent RSLUP.

5. Even though there are a few local cases available on risk-sensitive development, the criteria,
indicators and measures on what makes a land use plan risk-sensitive still need to be
established to provide guidance, and allow for comparisons and sharing of experiences among
cities and municipalities.

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 Case Study #2: Incentives for
DRR
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Introduction

Incentives for disaster risk reduction (DRR) are policy mechanisms that encourage individuals,
businesses, or governments to take actions that reduce disaster risks.18 Unlike regulations, which impose
sanctions for non-compliance, incentives reward adoption and implementation of risk-reducing actions19
to create win-win situations.20 This report is one of a series of case studies on the use of incentives for
DRR by local governments.

In the Philippines, as in many developing nations, local governments are unfamiliar with the use of
incentive mechanisms for DRR. Research indicates that to date, incentives for DRR has primarily focused
on developed nations; furthermore, there is a lack of practical applied case studies to inform local
governments on the topic. Examples for the Naga City case study are reproduced in the following
sections.

National DRR Incentives in the Philippines

As one of the countries in the world most vulnerable to natural hazards and climate change, the Philippine
national government has taken several steps to promote climate change adaptation (CCA) and DRR
policies at the local level. The Philippine Climate Change Act of 2009 and Philippine Disaster Risk
Reduction and Management (DRRM) Act of 2010 both establish mechanisms to dedicate funding for
DRR. The national government also incentivizes local governments to be more transparent and focused
on DRR through several good governance initiatives, while insurance and micro-insurance initiatives
spread risk and can, through risk-based premiums, incentivize DRR behavior.

Financial Transfers and Mandates

One of the major challenges preventing local governments from investing in DRR is a lack of funds. Lack
of funding can arise because the city has insufficient revenue; but it can also occur in cities with
substantial revenue because the city government does not prioritize DRR. In the Philippines, the DRRM
Act 2010 requires local governments to dedicate a certain amount of their local revenue to DRR. The
national government also provides additional funding for CCA and DRR.

The Local Disaster Risk Reduction and Management Fund (LDRRMF)

The DRRM Act 2010 requires cities to use their existing funds for DRR purposes. Specifically, it requires
local governments to set aside five percent (5%) of their estimated revenue in a dedicated LDRRMF.
Local governments can contribute more, if they choose. Up to 70% of the LDRRMF can be used to
finance DRR, while 30% goes to a Quick Response Fund (QRF) designed to finance disaster relief. Local
governments have discretion on how to spend the funding, as long as they follow these allocation quotas
and have a DRRM plan that indicates programs, projects and activities.

18 AECOM, 2014
19 Ge, Peacock, & Lindell, 2011
20 Fujimi & Tatano, 2013
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The LDRRMF is not a traditional incentive, as it requires local governments to invest in DRR, rather than
merely encouraging them. However, the fund also provides cities with flexibility to invest in capital
projects and encourages ownership of DRR by local governments. Use of the LDRRMF is overseen by a
Local Disaster Risk Reduction and Management Council (LDRRMC).

The Naga City Disaster Risk Reduction and Management Fund has a 2015 budget of USD 967,000.00.21
It is being used for structural and non-structural investments, such as the development and extension of
the storm drainage system in multiple barangays22, emergency management trainings, and the purchase of
emergency operations equipment (rubber boats, rescue trucks, chainsaws, IT equipment). Some of the
funds have also been allocated to buy calamity insurance premiums for public buildings and
infrastructure.23

The Disaster Management Assistance Fund (DMAF)

The Disaster Management Assistance Fund (DMAF) established by the national government, provides
concessional loans to support the DRR objectives of local governments at interest rates that are lower than
those in the market. The fund provides concessional loans with 0 to 1.5% interest rate to provinces, cities
and municipalities for soft investments in disaster preparedness such as capacity building activities and
hazard and vulnerability assessments, as well as funding for infrastructure projects intended for disaster
mitigation. The requirements for repayment specify that loans must be repaid within the term of the local
chief executive, thus providing additional motivation for local officials to complete the funded projects on
time. Naga City has not availed of this incentive program.

Even with these funding allocation requirements and additional funding sources, the resources available
for DRR in local areas like Naga City may be insufficient. In addition, funding is necessary not only to
fund actual DRR projects but also to build technical capacity and acquire hazard and exposure data.
Experience from other local governments indicate that significant amounts of funding and technical
assistance are needed to overcome barriers such as developing high resolution hazard and risk maps,
acquiring complete exposure databases, and setting up modern technologies such as GIS.

In Naga City, funding DRR incentives is particularly controversial because the City Treasurers Office
fears that DRR mechanisms that use tax reductions as an incentive might mean a decrease in total revenue
collection and ability to support other programs.24 There is also the perception that Naga should first look

21 Naga City, 2015

22 The barangay is the smallest political unit in the Philippines, at the community or village level;
although in the Philippines a community can be composed of several thousand or even tens of
thousands of people. A city or municipality is typically subdivided into several barangays. The barangay
is headed administratively by a chairperson or captain, who is elected from within the community, and
serves with the support of a barangay council, whose members are also elected by the residents from
their own ranks.
23 Naga City, 2014

24 G. Abonal, personal communication, March 6, 2015

17 | P a g e
at providing incentives in the form of training and capacity building, which are still lacking. 25 This may
point to another challenge, which is an insufficient understanding of fiscal risks posed by disasters to the
city. Accordingly, the City Treasurers Office may be overlooking the adverse fiscal consequences of a
disaster event, as well as the long-term savings leveraged by disaster risk reduction in this case (with
predictably lower human and physical losses).

The Peoples Survival Fund (PSF)

The Peoples Survival Fund was introduced in 2012 as an amendment to the Philippine Climate Change
Act, through Republic Act No. 10174. It is designed to provide supplementary funding for local
adaptation projects that support the National Strategic Framework for Climate Change and the National
Climate Change Action Plan. The focus will be on projects addressing both environmental and
development challenges, as well as risks associated with climate-induced disasters. However, final
guidelines for the PSF have yet to be issued, so the PSF is not currently active.

Administrative Incentives

Governance in the Philippines is a continuing challenge, and the national government has created several
programs to encourage local governments to improve transparency, reduce corruption, and invest in long-
term planning. These good governance programs, when tied to DRR, can also be used as incentives for
risk-sensitive urban development.

Grassroots Participatory Budgeting Process

The Grassroots Process is implemented at a national scale under the common oversight of the Department
of Budget and Management (DBM), Department of the Interior and Local Government (DILG),
Department of Social Welfare and Development (DSWD), and the National Anti-Poverty Commission
(NAPC). Its objective is to help attain the Philippine Development Plans goal of inclusive growth and
poverty reduction through enhanced local participation and good governance processes. All projects
submitted to the national government for funding must contribute to the climate change adaptation
/mitigation and disaster preparedness goals of the government, alongside regular poverty reduction
objectives. Hence, the program could serve as a venue for civil society to participate in selecting projects
and formulating proposals that reduce disaster risks, and favors ownership of local stakeholders in pro-
poor DRR-related activities. This in turn, increases the awareness and knowledge of stakeholders in
disaster risk reduction, and contributes to forging a culture of resilience within civil society, while
promoting projects that will reduce disaster risks on the ground. In Naga City, the grassroots participatory
budgeting process has been used for greening and flood mitigation measures along the riverbanks.

Gawad KALASAG Award

25 G. Abonal, March 6, 2015

18 | P a g e
The Gawad KALASAG26 is implemented nationally by the National DRRM Council and the Office of
Civil Defense. The program was originally intended to recognize outstanding performance of
organizations in providing humanitarian assistance during disasters. However, since 2008 it has also
focused on local-level DRR. The main incentive mechanism is the recognition provided by the award,
which is both financial and symbolic, by highlighting local governments who can serve as models for
good governance in DRR. This recognition is not limited to the Philippines, such as in the case of the
province of Albay, which was consistently awarded the Gawad Kalasag for best Provincial DRRM
Council between 2009 and 2011, and was subsequently chosen as a UN Global Model in DRR and
Climate Change Adaptation.27

Naga City won the Gawad KALASAG award in 2004 and was awarded a USD1,000.00 grant. While the
local stakeholders value the importance of Gawad KALASAG in terms of recognizing and rewarding the
efforts of the local governments, the small amount of the grant awarded does not really provide direct
support for reducing disaster risks.

Seal of Good Local Governance

The DILGs Seal of Good Governance (formerly the Seal of

Good Housekeeping) was adopted in 2014 as a measure to
reward local efforts in good governance. It incorporates disaster
preparedness as one of the six core criteria to assess the
performance of local government units, alongside good financial
management, economic competitiveness, social protection,
environmental management, and peace & order.
Figure 6. Six Core Criteria to Assess for the
By incorporating DRR as an element of good governance, and
Seal of Good Local Governance.
tying funding mechanisms to good governance achievements,
the national government can promote DRR. The Seal of Good
Local Governance is a requirement for local governments that want to avail of loans from the Land Bank
or the Development Bank of the Philippines. It is also a requirement for eligibility for several funding
programs (see PCF below). Naga City was awarded the Seal of Good Housekeeping in 2012.

The Performance Challenge Fund (PCF)

The PCF was designed as an incentive program to promote good governance, but the program has been
used to encourage local governments to invest in DRR because one of the measures of good governance
includes an emphasis on DRR. To be eligible for PCF funding, the LGU must have been awarded a Seal
of Good Governance.

26 Kalasag is the Filipino word for shield. The KALASAG acronym in the award stands for Kalamidad at
Sakuna Labanan, Sariling Galing ang Kaligtasan, which can be translated to mean our own efforts are
what will save us from disasters.
27 Manila Standard Today, 29 March 2015

19 | P a g e
The PCF is administered by the DILG, which approves three types of projects for funding:
- Programs geared toward the attainment of the Millennium Development Goals;
- Activities that promote local economic development, and
- Climate change adaptation and DRR projects.

Naga City was awarded the Seal of Good Housekeeping by the DILG in 2011, and was provided with a
grant of USD 64,000.00 to be spent on a project entitled Lined Canal Project at Concepcion Pequena,
Naga City. The city constituted a task force to meet the administrative and monitoring requirements
under the PCF. Naga City Executive Order 2014-12 created the Performance Challenge Fund
Implementation Unit (PCFIU) to integrate, coordinate, facilitate, monitor and supervise the
outputs/activities of the local departments involved in the project.

The PCF is not adequate to fund large-scale infrastructure projects or other resource-intensive programs.
For such activities, the PCF subsidy serves more as a supplemental, rather than a primary source of
funding. Also, a stringent and slow administration of the fund makes implementation difficult.

Insurance and Micro-Insurance Products

Insurance is looked at here as a risk transfer mechanism. If we take

the standpoint of individuals, the incentive exists only if the pricing
recognizes positive actions taken by the policy holder to reduce
potential loss. However, if we take the citys perspective, there is an
incentive for government to promote non-life and calamity insurance
products, with or without risk-based pricing strategies, since it allows
for the transfer of risk to the private sector and hence reduces the
overall share of risk taken on by government (i.e., contingent
liability) if a disaster was to happen. Note however that insurance is
regulated by the national government, local government can buy
insurance to protect its own assets but has no authority over the
pricing or other regulatory matters.

Insurance covering perils from natural hazards, such as typhoons,

earthquakes or floods are provided by insurance companies in Naga
City, but these products are generally unpopular and seldom Figure 7. General Types of Insurance.
28
subscribed to. Limited uptake of insurance coverage is rooted in
rising poverty incidence among Filipino families, increasing cost of living and low levels of awareness
and understanding of insurance products.29 The Naga City Government has no program to promote
insurance either among its citizens or internally within the local government.

28 De Guzman, personal communication, May 5, 2015

29 Manila Bulletin, 2013
20 | P a g e
The Philippine Department of Finance recently prepared a draft Disaster Risk Financing and Insurance
Strategy with support from the World Bank. However, it is not yet publicly accessible at the time of
writing. Naga City Government is not privy to or aware of such an initiative.

Regarding agricultural insurance, the Philippine Crop Insurance Corporation (PCIC) covers insurance for
livestock, high value crops, corn, rice and farm implements. Farmers have the liberty to choose the extent
of coverage of hazards such as typhoons or earthquakes, with different costs associated with each type of
hazard coverage.

Micro-insurance products defined as insurance mechanisms with premiums below 5% of daily wage
and with a maximum benefit of 500 times the daily wage30 are also available in the Philippines, and are
intended to protect the poor from various risks, including natural disaster risk. As it has a lower cost and
more flexible payment terms compared to traditional insurance, it provides low income individuals and
families an accessible option for protecting their assets from disasters. There is also an incentive for local
and national governments to promote micro-insurance products as they allow transferring disaster risks to
private institutions, and hence lighten the financial burden from the governments shoulders in case a
disaster happens. However, micro-insurance penetration rate is low, due primarily to a lack of financial
education and awareness.31 Naga City does not have a strategy to support the development of micro-
insurance products, nor to improve financial literacy. Local stakeholders are not knowledgeable about
micro-insurance products and the benefits that they can bring to communities.

Training and Knowledge Transfer Incentives

The Philippines national government also seeks to promote DRR in local governments by providing
trainings and information regarding the benefits of DRR and DRM.

Training

As part of its legal mandate, the Office of Civil Defense (OCD) provides trainings in disaster risk
reduction and management to local government staff. The HLURB has also produced guidelines on how
to integrate DRR into land use planning, as well as developed a method has to lead hazard and
vulnerability assessments for a comprehensive range of risks, and integrate the results of these analyses
into CLUP formulation.

As a part of the Local Climate Change Action Plans, the

Climate Change Commission provides trainings to local
governments on how to lead climate-induced risk
vulnerability assessments. The current target for this year is to
train 150 local governments on how to conduct these
assessments.

30 Microinsurance Philippines, 2011

31 De Guzman, 2015

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Buildings and Construction Regulations32

Naga City is mandated to enforce the Building Code of the Figure 8. Naga City Holds Quarterly
Philippines, including the National Structural Code section. Nationwide Simultaneous Earthquake Drill.
In practice, oversight on construction is ensured by the Source: Naga City Smiles at the World, Naga City
Office of the City Engineer for public buildings, while the Facebook (2015)
Office of the Building Official enforces the provisions of the
National Building Code and other building regulations on both the public and private sectors. City
engineers usually divide their time between construction permit approvals in the morning and inspection
of construction sites and homes in the afternoon.33 As pointed out during interviews, the Office of the
Building Official and the Office of the City Engineer face a lack of human and technical resources to
ensure routine tasks including the monitoring operations. As such, even before providing stakeholders
with incentives to undertake voluntary DRR actions, one of the major challenges facing Naga City is
enforcing compliance with existing laws and ordinances.

Local DRR Incentives in Naga City

National incentives are designed to encourage local government units to engage in DRR, but local
governments can also use DRR incentive programs to encourage organizations, businesses, and
individuals within their jurisdiction to engage in DRR activities. At this local level, effective incentive
programs need to be targeted with a clear vision of the goal of DRR activities. Naga City does not
currently have direct DRR incentives, but the city does administer a series of programs that provide
incentives for development and poverty reduction that could be harnessed to promote DRR.

Investment Incentives Code of the City of Naga (Ordinance No.97-114)

The Naga City Incentives Code of 1997 is an ordinance passed by the local government to supplement the
investment incentives provided by the national government. This ordinance was purposely enacted to
encourage new investors in the city through the use of fiscal and non-fiscal incentives. Fiscal incentives
include exemption from city taxes, charges and fees. Non-fiscal incentives include assistance in securing
permits and licenses, assistance in identifying business locations, access to financial and technical
assistance programs, facilitating service connections with local utilities, and other non-fiscal incentives
needed by investors and firms. The code is not currently used to encourage DRR by investors, but it could
be modified either in its language or its implementation to promote DRR.

For example, a portion of the Incentives Code is dedicated to Green Investments. The main incentive
mechanisms used are tax discounts for repainting (city beautification), tree planting or landscaping
measures. Some of these incentives may contribute to DRR, such as tree planting to create green buffer
zones in environmentally sensitive areas. However, no one has availed of the re-greening incentives so

32 Even though building and construction regulations are not incentives per se, they are included here
for their relevance to Naga Citys challenges and importance for building DRR in general.
33 E. Cambo, personal communication, May 5, 2015
22 | P a g e
far.34 One possible explanation is that there is a lack of communication on the policy, generating an
information gap and a lack of knowledge of the availability of the incentive.35

Kaantabay sa Kauswagan or Partners in Development

Program (Ordinance No. 98-033)

The Kaantabay sa Kauswagan (KsK) or Partners in

Development Program is a social amelioration program that
aims to address two core issues faced by the urban poor: (1)
the absence of secure land tenure; and (2) the lack of basic
infrastructure and facilities in their communities. It also aims
to reduce the adverse effects of urban growth in public
health, safety and environment.36 The program is financed
using 10% of the annual NCG Urban Poor Trust Fund.
Figure 9. The KsK Program Pursues Tenure
While the KsK Program does not primarily aim to reduce Security Policy (Jones & Lang, 2007).
disaster risks, some incentives it has introduced contribute
indirectly to reducing beneficiaries exposure and vulnerability to disaster risks. As an example, the NCG
provides qualified beneficiaries with land for housing and relocation through on-site and off-site
redevelopment, usually in areas that are not hazard-prone. Resettlement in low-risk areas is not the result
of a formal guideline under KsK but rather a consequence of current urbanization patterns in high-ground
areas, which have little exposure to flood risk.37

The city government also gives allowances for housing materials, while the beneficiaries have to shoulder
the cost of construction. In addition, the NCG can endorse the beneficiaries to NGOs like Gawad Kalinga
and Habitat for Humanity, which provide additional housing construction assistance. Additionally,
program beneficiaries are provided with guidelines by the Housing and Settlements Office on how to
build houses with the basic structural and fire safety features, which could also be modified to more
formally support DRR.

KsK is supplemented by Bayadnihan, a cash-for-work program that provides temporary employment

opportunities to KsK beneficiaries. such as in the construction of city infrastructure projects, maintenance
of existing public infrastructure, and other projects such as the beautification of public plazas, monuments
and facilities.

The program has a number of limitations. The KsK project has only reached 6,000 of the initial 10,000
targeted beneficiary families.38 Also, support programs such as livelihood projects in the relocation sites
are not always available. It has been reported in the past that the Bayadnihan program was under-

34 R. Oliver, personal communication, March 6, 2015

35 W. Prilles, personal communication, July 6, 2015
36 R. Campillos, personal communication, March 6, 2015
37 W. Prilles, July 6, 2015
38 R. Campillos, personal communication, March 6, 2015
23 | P a g e
resourced, mostly due to a limited number of opportunities in government or private-sector projects. The
difficulty to sustain livelihood is made even more difficult in off-site developments, where transportation
and other living costs are generally higher for residents. This has had undesired consequences, such as
delayed amortization payments and reselling of lots.39

Due to the Citys resource limitations to monitor the compliance with building standards, it is unclear to
what extent displaced families are able to build back better in their new settlements.

Ginhawang Nagueo/Least Economically Resilient Communities (LERC) Program

LERC is a new program that is primarily aimed at eradicating poverty through values formation, as well
as through the provision of low-cost but resilient housing, jobs, and access to basic resources such as
potable water and electricity. The program is being implemented by virtue of an executive order signed
by the Mayor.

The program prioritizes on-site development, and makes use of participatory planning to directly engage
the program beneficiaries in the conceptualization and implementation of program components, as a
means to build community awareness and empower community members. On-site development is the
preferred option, although targeted beneficiaries living in hazard-prone areas will be relocated to safer
locations.40 In parallel with structural improvements and livelihood programs within the communities, the
LERC program will also include training on disaster risk management provided by the Naga City DRRM
Office, in order for people to better understand the risks that they face and invest more in their own safety
as their economic opportunities expand. A pilot project is currently being carried out in Barangay Balatas
for 47 families.41

Integrated Naga River Revitalization Project42

The Revitalization Project includes a resettlement component that places families in safer areas and
provides the resettlement areas with infrastructure and livelihood opportunities. Around 150 families from
Barangay San Francisco along the Naga River are being relocated under the project. They were resettled
in a less hazard-prone area previously owned by a private company, which the local government acquired
through eminent domain. The resettled families were provided with lots for their houses, and basic
services such as water and electricity.43 The resettlement area is also located relatively close to the area
they used to reside in. In order to ensure the continuity of livelihoods, each of the resettled families will
be provided with cycle rickshaws that can serve as a means of livelihood and transportation.
Beneficiaries selling the lots or houses acquired through the relocation program face fines or prison
charges, and are blacklisted from other city programs.

39 Jones & Lang, 2007

40 E. Salvino, personal communication, May 5, 2015
41 E. Salvino, 2015
42 For more details on this project, please see the EMI Case Study on Risk Sensitive Land Use Planning in
Naga City, Philippines.
43 D. Ludovice, personal communication, May 5, 2015

24 | P a g e
Designing Incentives for DRR in Naga City: Challenges and Priorities
Capacity for designing and implementing incentive mechanisms

Local government officials and staff in Naga City are not knowledgeable about DRR incentive
mechanisms, either financial or non-financial. Their experience with incentives has been limited to
programs focused on economic development and poverty alleviation, and officials do not see the potential
for incentive mechanisms to prevent future problems only to address existing challenges. For example,
officials in Naga City are not interested in pursuing density bonuses or transfer of development rights
because density has not yet become a problem in Naga City. They do not see the potential for these
mechanisms to prevent density from becoming a problem, or to use future growth as a way to encourage
DRR. (Refer to the Land Use Planning Case Study for more in-depth discussion on this topic.)

In addition, Naga City government is short-staffed and has limited technical capability. City staff lack
technical training in RSLUP, risk assessment, GIS, and other tools that could support DRR, and a
manpower shortage makes both planning and enforcement difficult. For example, the City is behind
schedule in updating its CLUP in part because its urban planning office has too few staff members. And,
as mentioned in the RSLUP case study, the city engineering office has too few personnel to effectively
monitor and enforce building codes and the Zoning Ordinance. Naga City has no enforcement mechanism
to monitor the effectiveness of its planning efforts, and even less information to evaluate incentive
mechanisms.

At the local level, Naga City could improve its capacity by increasing its DRR activities and planning
staff, by investing in technical training (coupled with retention mechanisms to ensure that trained staff
members stay in the city government), and by developing frameworks to increase awareness and
knowledge of DRR incentive mechanisms. This could include undertaking a study of incentive
mechanisms; establishing partnerships with academia, development partners, or national government
agencies; and creating a city-to-city sharing platform among cities that have experience with DRR
incentives. Funding from the local DRRM Fund can be used to fund some of these activities.

Naga City could also request assistance from International donor organizations in the context of their
DRR programs in the Philippines aimed at local governments. However, it is best to engage into
agreements envisioning long-term and large-scale technical assistance programs that can really make a
difference. As an example, the municipality of Opol realized its HVRA through Project Climate Twin
Phoenix44, with financial/technical support from HLURB and international donor organizations such as
AusAID. In this context, this study shows that there could be benefits for International donors to assist

44 Implemented by the Climate Change Commission Philippines with support from the United Nations
Development Programme and the Australian Government, Project Climate Twin Phoenix is a long term
capacity development program for cities and municipalities, addressing both risks from climate change
and other related natural hazards. The project promotes informed decision-making and policy change at
the local levels, empowering local governments and communities in coming up with better plans,
policies, and regulatory measures that will enable them to cope with climate-related natural disasters.

25 | P a g e
with the development of an international city-to-city knowledge sharing platform, to allow local
governments to learn from their peers rather than to struggle on their own into unchartered territory.
International donors could facilitate the knowledge sharing process and provide technical assistance to
demonstrate how DRR incentive mechanisms are established and could be used to evaluate their
effectiveness. There is currently very little experience in the Philippines and Southeast Asia with
comprehensive DRR incentive programs. Pilot projects with cities like Naga City would build the
capacity of the test city while also concretely testing the potential applicability of the incentive
mechanism to the region.

Incorporating DRR in existing land use plans, ordinances, and incentive programs for economic
development and poverty alleviation

DRR is not an explicit or central component of the existing Comprehensive Land Use Plan (CLUP),
Zoning Ordinance, Investment Incentives Code, or poverty alleviation programs such as KsK or LERC in
Naga City. However, disaster risk reduction is essential in building resilient low-income communities, by
further reducing their vulnerability and as important for Naga securing the development gains
achieved in the past. Strengthening the DRR component of these existing regulations and programs could
greatly enhance the overarching social development goals of Naga and contribute to the long-term
improvement of low-income communities conditions. It would also leverage Naga Citys experience and
success in executing these programs.

Additional or enhanced incentives for DRR can play a role in augmenting the results and success of
poverty alleviation programs by strengthening community ownership and community building measures.
As an example of workable incentives to build community ownership, livelihood opportunities can be
further harnessed to serve DRR goals, such as establishing cash-for-work programs (Bayadnihan) for
home improvements and safer structures. Additional training could be provided in home construction
projects on safe construction practices and DRR goals.

Similarly, the Investment Incentives Code is so far an untapped resource for DRR. It is an instrument
where fiscal and non-fiscal incentive mechanisms can be introduced to promote DRR objectives. Some of
these existing incentives could be used more proactively to achieve DRR if the Investments Incentives
Code was revised to include DRR as a goal. Currently, the Investment Incentives Code is focused on
creating jobs, preserving natural resources to provide for future generations, determining density and
spatial distribution of private investments for balanced growth, and encouraging commercial enterprises
and farmers associations/cooperatives to modernize the agricultural sector and improve overall
competitiveness. However, the Code could be revised to include DRR as an explicit objective.
Implementation would require enhanced coordination between city departments and the Investments
Board, so that the Board would be aware of and could support DRR objectives. It may also require the
development of an awareness campaign to educate local businesses about the provisions of the Code and
how they can benefit economic growth.

An updated and risk-sensitive CLUP and Zoning Ordinance could serve as a core to Naga Citys DRR
strategy. These policies will inform the development of further incentive mechanisms by, for example,
identifying less hazard-prone areas for KsK to focus re-settlement or for the Investment Incentives Code
to prioritize new commercial development. Naga Citys success in managing these existing programs

26 | P a g e
suggests that modifying these programs to include DRR could be a very effective way of promoting risk
reduction in the city.

Beyond Naga City, international donors and local officials should be aware of what incentive programs
even non-DRR programs exist within a city, as these existing programs offer the opportunity to leverage
existing management structures and build on past success.

Data acquisition, management, and use of risk information

Naga City does not currently have a comprehensive, multi-risk hazard and vulnerability assessment of its
territory. This should be made a priority in order to develop incentives that will enable risk-sensitive
urban development. Indeed, having a clear mapping of risks what are the hazards and how frequently
they occur, what zones and which populations are most vulnerable and what is the risk is needed to
design incentive programs that will shift development from risk-prone to non-danger zones in the city.
Additional data can also be used to increase awareness and public support for DRR efforts. For example,
individuals who find their home, school, or business on a hazard map may better understand the risks they
face and support greater efforts to reduce future risk.

Acquiring and using risk information is a resource-intensive process that should not be seen as a one-shot
deal but rather as a long-term work requiring updates through time. Managing and administering
incentives programs is also difficult and generally require substantial resources in order to function, such
as a high technical level among staff. In this regard, a challenge facing Naga City is that current
allocations of resources for DRR such as those provided under the LDRRMF are focused on structural
projects rather than on policy setting, capacity building, data management and human resources.

However, Naga City could improve its data acquisition by allocating a dedicated budget item (such as in
the LDRRMF) for data collection and hazard and risk assessment, and by building the strength of its
existing local assets, such as the GIS unit of the Electronic Data Processing Office, CPDO, DRRM
Office, Engineering Office, Office of Building Official, and others. Naga City could also partner with
national agencies (e.g., OCD, NEDA, HLURB, PHIVOLCS), academics, NGOs, or development partners
to complete a risk assessment of the city and to assist with technical capacity building and data
management.

International donor organizations could assist Naga City, and other similar localities, by encouraging or
requiring cities to make their risk data and assessments open access and by supporting the development of
an open access data sharing platform. Risk assessments should not merely be produced in the context of a
specific project but as part of a longer-term process wherein information can be used widely and is
accessible to professionals, practitioners and the general public in formats that are easily understandable.
Risk assessment outputs are often made by experts for experts and remain severely underutilized.

The development of an open access data sharing platform would enable LGUs to provide their data and
risk assessments in a public and transparent format. International donors could make open access data
sharing a requirement in their grants and aid packages, or they could provide bonus financing to cities
who make their assessments open access as an incentive.

27 | P a g e
Conclusions
In Naga City, Philippines, incentives for DRR activity are present both from the national government to
encourage action by the local government and from the local government to encourage action by
individual homeowners and businesses. At the national government level, incentives have focused
primarily on providing dedicated funding to local governments for DRR or providing additional funding
in exchange for good governance performance, or for poverty alleviation. At the local government level,
mechanisms exist to encourage investment by private companies and to change behavior of local
homeowners. , These mechanisms have been modestly used in practice to encourage DRR but could be
made even more effective by formally recognizing DRR as a priority goal.

Significant capacity building will be necessary to raise awareness and competency among local
stakeholders and local government officials on the need for incentives and the ways in which existing
programs can be adapted to promote DRR. Naga City can improve its DRR efforts by investing in
capacity building, data acquisition and use, and by modifying its existing successful incentive programs
to incorporate DRR. International donors can support these efforts by promoting long-term capacity
building projects, investing in pilot projects, establishing a city-to-city knowledge platform, and
encouraging open access data sharing. The national government for its part can promulgate supporting
policies and guidelines to incentivize DRR.

With these efforts, Naga City and similar localities, will be better prepared to promote DRR at all levels
of their city planning.

28 | P a g e
References

AECOM. (2014). Incentive for Disaster Risk ManagementDiscussion Paper. Shanghai, China:
AECOM Ltd.

Albay Dominates Gawad Kalasag (2015, March 29). Manila Standard Today. Retrieved From:
http://manilastandardtoday.com/2015/03/29/albay-dominates-gawad-kalasag/

Ateneo Social Science Research Center (ASSRC). (2009). Naga City: A Profile. Retrieved from
http://www.adnu.edu.ph/Centers/SSRC/nagaprofile.html

Bahadur, A., Kirbyshire, A., Khan, D. & Bhatt, M. (2014). What does it take to mainstream disaster risk
management in key sectors?. Retrieved from http://cdkn.org/wp-
content/uploads/2014/04/CDKN_Guide_Mainstreaming_dr_management_final_rev_web-res.pdf

Barbat, A.H., Khazai, B., Burton, C.G., Bendimerad, F., Carreo, L. & Cardona, O.D. (2015). A Guide to
Measuring Urban Risk Resilience: Principles, Tools and Practice of Urban Indicators. Retrieved from
http://emi-megacities.org/wp-content/uploads/2015/03/ResilienceIndicators_Pre-release_March20151.pdf

Barcia, R. B. (2015, February 5). Phivolcs warns Bicol LGUs to brace for magnitude 8 quakes.
Philippines News Agency, Retrieved from http://pnabicol.blogspot.com/2015/02/phivolcs-warns-bicol-
lgus-to-brace-for.html

Bayadnihan Ordinance, 1-20 (2001)

Bendimerad, F., Seva, V. & von Einsiedel, N. (2010, October). Disaster Risk Reduction of Highly
Vulnerable Urban Areas through Urban Re-Development Case Study of Barangay Rizal, Makati,
Philippines. Paper presented at the 9th Symposium on New Technologies for Urban Safety of Mega
Cities, Kobe, Japan.

Benson, C. (2009). Mainstreaming Disaster Risk reduction into Development: Challenges and
Experiences
in the Philippines. Retrieved from http://ipcc-wg2.gov/njlite_download.php?id=6996

California Residential Mitigation Program. (n.d.). Earthquake Brace + Bolt (EBB). Retrieved from
http://www.earthquakebracebolt.com/

Cities Development Initiative for Asia (CDIA). (2011). Project Overview: Naga City, The Philippines.
Retrieved from http://cdia.asia/2011/09/28/project-overview-the-philippines-naga-city/

City and County of San Francisco. Earthquake Safety Implementation Program. Retrieved from
http://www.sfgsa.org/index.aspx?page=6048

Dela Cruz, A., Hernandez, R. & Bonifacio, L. (2013). Accessing the People's Survival Fund: Finding the
Right Balance With Access Modalities and Institutional Arrangements for the PSF. Retrieved from
http://www.ejeepney.org/wp-content/uploads/2013/09/Accessing-the-Peoples-Survival-
Fund_iCSC.pdf

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Earthquakes and Megacities Initiative (EMI). (2015). Urban Resilience Master Planning: A Guidebook
for Practitioners and Policymakers. Retrieved from http://emi-megacities.org/wp-
content/uploads/2015/03/URMP_Pre-release_March20151.pdf

Elcamel, E. (2002, September 24-26). Managing Urban Disasters: The Naga City Experience on
Mitigation
and Planning. In Proceedings of the Regional Workshop on Best Practices in Disaster Mitigation
(pp. 200-203). Retrieved from http://pdf.usaid.gov/pdf_docs/pnadk776.pdf

Figueroa, R.J. & Hutagaol, M. (2014). Empowering the Urban Poor: The Case of Kaantabay sa
Kauswagan Program [Prezi frames (slides)]. Retrieved from
https://prezi.com/mbrjpaibhnk0/partners-for-
development/?utm_campaign=share&utm_medium=copy

Fujimi, T. & Tatano, H. (2013). Promoting Seismic Retrofit Implementation Through Nudge: Warranty
as a
Driver. Risk Analysis, 33 (10), 1858-1883.

Gall, M., Cutter, S.L. & Nguyen, K. (2014). Incentives for Disaster Risk Management (IRDR AIRDR
Publication No. 2). Beijing, China: Integrated Research on Disaster Risk

Ge, Y., Peacock, W.G. & Lindell, M.K. (2011). Florida Households Expected Responses to Hurricane
Hazard Mitigation Incentives. Risk Analysis, 31(10), 1676-1691.

Insurance Commission of the Philippines (IC). (n.d.). Magpaseguro Para Protektado: A Roadmap to
Financial Literacy on Micro Insurance. Retrieved from
http://www.insurance.gov.ph/micro/html/..%5C..%5C_@dmin%5Cupload%5Cmicro%5Croadmap.
pdf

Jones, A. & Lang, L. (2007). Sustaining the Kaantabay Sa Kauswagan in Naga City: Strenghts,
Challenges
and Recommendations [PowerPoint slides]. Retrieved from
http://www.slideshare.net/jackryan68/sustaining-the-kaantabay-sa-kauswagan-program

Legacion, N.S. (2013, December 5). SP HIGHLIGHTS: Naga river rehabilitation and development fund.
Bicol Mail. Retrieved from http://www.bicolmail.com/2012/?p=12846

Manila Bulletin. (2015). Phivolcs warns of magnitude-8 quake in Bicol. Retrieved from
http://www.mb.com.ph/phivolcs-warns-of-magnitude-8-quake-in-bicol/

Microinsurance Primer. (2011). Microinsurance Philippines. Deutsche Gesellschaft fur Internationale

(GIZ). Retrieved From: http://microinsurance.ph/index.php?id=about-microinsurance#p1q1.

Naga City, Camarines Sur, Philippines,

http://www.zamboanga.com/z/index.php?title=Naga_City,_Camarines_Sur,_Philippines (last modified 11
Sep 2013).

Naga City Government (NCG). (2014). Exec. Order No. 2014-019, 1-12 (2014).

NCG. (n.d.). Incentives. Retrieved from http://www.naga.gov.ph/investments/incentives.html

30 | P a g e
NCG. (2011). Comprehensive Development Plan 2011-2020.

NCG. (2002). Comprehensive Land Use Plan 2002. Retrieved from

http://www.naga.gov.ph/cityprofile/nclup.pdf

NCG. (2014). Local Disaster Risk Reduction and Management Fund-Annual Investment Plan. [Naga
City, Philippines].

NCG. (2015). Local Disaster Risk Reduction and Management Fund-Annual Investment Plan. [Naga
City, Philippines].

NCG. (1997). The Kaantabay sa Kauswagan Ordinance, I-XII 1-40 (1997).

NCG. (2014). Local Disaster Risk Reduction and Management Fund-Annual Investment Plan. [Naga
City,
Philippines]: Author

Naga City Smiles at the World, Naga City Facebook (2015),

https://www.facebook.com/media/set/?set=a.931672736883478.1073742038.122597411124352&type=3)

NCG & Naga City Governance Institute (NCGI). (n.d.). Kaantabay sa Kauswagan Project: Empowering
the Urban Poor in Naga City, Philippines [PowerPoint slides]. [Naga City, Philippines]: Author

Naga City Investment Incentives Code, I-XII 1-65 (1997)

National Competitiveness Council (NCC). (2014). Naga City (CS). Retrieved from
http://www.competitive.org.ph/cmcindex/cityprofile.php?city=Naga%20City%20%28CS%29

National Structural Code of the Philippines, I 101-109 (2010)

Philippine Statistics Authority (PSA). Population of Camarines Sur reached 1.8 Million (Results from the
2010 Census of Population and Housing). Retrieved from
http://web0.psa.gov.ph/content/population-camarines-sur-reached-18-million-results-2010-census-
population-and-housing

Philippines Has The Least Insurance Penetration In Asia Philam Survey. (2013, January 3). Manila
Bulletin. Retrieved From: https://ph.news.yahoo.com/philippines-least-insurance-penetration-asia-
philam-survey-090755225--finance.html

Philippines Climate Change Act of 2009 (Republic Act No. 10174)

Philippines Disaster Risk Reduction and Management Act of 2010 (Republic Act No. 10121)

Philippines Has The Least Insurance Penetration In Asia Philam Survey. (2013, January 3). Manila
Bulletin. Retrieved From: https://ph.news.yahoo.com/philippines-least-insurance-penetration-asia-philam-
survey-090755225--finance.html

31 | P a g e
Philippine Statistics Authority (PSA). Population of Camarines Sur reached 1.8 Million (Results from the
2010 Census of Population and Housing). Retrieved from http://web0.psa.gov.ph/content/population-
camarines-sur-reached-18-million-results-2010-census-population-and-housing

Republic Act No. 6541, I-XXI 1-21 (1977)

Republic Act No. 10121, 1-30 (2010)

Republic Act No. 9729, 1-26 (2009)

Republic of the Philippines, Department of Finance & Insurance Commission. (2014). Key Statistical
Data,
2009 - 2013. Retrieved from
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Surez, D.C. (2011). Disaster Risk Reduction in Latin America, Improving Tools and Methods Regarding
Climate Change: The Case Study of Colombia and the City of Manizales. Retrieved from
http://idea.manizales.unal.edu.co/gestion_riesgos/descargas/DRRinLatinAmerica.pdf

Sudmeier-Rieux, K., Fra Paleo, U., Garschagen, M., Estrella, M., Renaud, F.G. & Jaboyedoff, M. (2014).
Opportunities, Incentives and Challenges to Risk Sensitive Land Use Planning: Lessons from
Nepal, Spain and Vietnam. Retrieved from
http://www.preventionweb.net/english/hyogo/gar/2013/en /bgdocs/Sudmeier-
Rieux%20et.al.%202012.pdf

United Nations Human Settlements Programme (UN-Habitat). (2015). Government of India Supports
Housing Efforts in Sri Lanka. Retrieved from: http://unhabitat.org/government-of-india-supports-
housing-efforts-in-sri-lanka/

World Bank. (2014). Philippines - Disaster Risk Management Development Loan with a Catastrophe
Deferred Drawdown Option (CAT DDO): P125943 - Implementation Status Results Report:
Sequence 06. Retrieved from http://www-
wds.worldbank.org/external/default/WDSContentServer/WDSP/EAP/2014/11/24/090224b08288a9
e8/1_0/Rendered/PDF/Philippines0000Report000Sequence006.pdf

World Bank and EMI. (2014). Legal and Institutional Arrangements Framework Guidebook. [Quezon
City, Philippines]: EMI.

World Bank and EMI. (2014). Risk Sensitive Land Use Planning Guidebook. [Quezon City, Philippines]:
EMI.

World Wide Fund for Nature (WWF) Philippines & Bank of the Philippine Islands (BPI) Foundation.
(2013).
Business Risk Assessment and the Management of Climate Change Impacts. Retrieved from
http://wwf.org.ph/wwf3/downloads/publications/Business%20Risk%20Assessment%20and%20the
%20Management%20of%20Climate%20Change%20Impacts%20-%2012%20Cities.pdf
Annex A: Assistance to the Naga City Government in the Updating of their CLUP

Rationale for assisting Naga City with their CLUP updating

32 | P a g e
In the course of developing the case studies on RSLUP and incentives for urban DRR in Naga City, the
EMI study team identified four key challenges preventing the city government from updating the CLUP,
namely:
1. The technical working groups tasked with CLUP updating are not familiar with approaches for
integrating risk parameters into the CLUP as prescribed in the new HLURB guidelines.
2. The city government has made limited use of accessible science-based flood hazard information.
3. The city government lacks the internal capacity to collect and process spatial data and
information on local hazards, exposure and vulnerabilities.
4. The city government departments also lack the capacity to update existing spatial risk information
that they have on hand.
Three activities were carried out to address these challenges and support the NCG in incorporating hazard
and risk information into their CLUP. These included:
1. Identifying necessary data and other information relevant to natural hazards in Naga City, and
assistance in the acquisition of the needed data;
2. Providing basic GIS training to selected NCG staff to support the mapping requirements of the
CLUP updating;
3. Reviewing the draft updated Naga City CLUP and providing guidance on next steps in the
updating process.
Figure A1 illustrates how each of the activities mentioned above addressed Naga Citys challenges in
updating its CLUP.

Overview of the support activities

Under the first activity, a checklist was developed to serve as a guide for the NCG on the specific hazard
and socio-economic data required to update their CLUP based on the 2014 HLURB Supplemental
Guidelines45. The checklist contains a listing of hazard maps and the different types of data necessary for
exposure analysis and vulnerability mapping that can be acquired from national government agencies and
city government departments. To complement the checklist, assistance was also provided to the NCG in
drafting letter requests for hazard data from the Mines and Geosciences Bureau and the Philippine
Institute for Volcanology and Seismology. The checklist and sample letters are in the attached Annexes B
and C, respectively.

For the second activity, a training workshop on the use of GIS in risk-sensitive land use planning was
conducted at the Bicol Science and Technology Centrum in Naga City from Oct. 7-9, 2015. The intent of
the workshop was building the capacity of selected NCG staff on the following:
1. Use of GIS in development planning,

45
Copies of the 2014 HLURB Supplemental Guidelines can be downloaded from this link: http://hlurb.gov.ph/wp-
content/uploads/services/lgu/CLUP/HLURB_Supplemental_Guidelines.pdf

33 | P a g e
 2. Basic GIS tools and applications,
3. Map preparation,
4. General concepts of hazard, vulnerability and risk assessment,
5. Identification and visualization of hazards and exposure, and
6. Identification of high risk areas (i.e., hotspots).
Issues related to CLUP updating in Naga City

Lack of internal capacity

Lack of familiarity Limited access to Limited availability
to collect and process
in integrating risk information on of science-based
spatial data and
parameters into city-specific flood hazard and
information on local
the CLUP disaster risks risk information
hazards, exposure and
vulnerabilities

Provide basic GIS training to Develop a checklist of hazard and

Provide expert guidance on next
selected NCG staff to support the socio-economic data needs
steps in integrating risk
mapping requirements of CLUP required for integrating risk
parameters into the updated CLUP
updating parameters into the CLUP

Support provided to Naga City for CLUP updating

Figure A1. Activities addressing Naga Citys challenges in updating its CLUP

34 | P a g e
The GIS workshop covered the following topics:

1. Database Management 8. Table querying

2. Digitizing 9. Spatial querying

3. Table manipulation (Populating features 10. Table manipulation (Joining tables from
with attributes) excel files and CSV files)

4. Resource mapping 11. Buffer analysis

5. Manipulating symbology 12. Geoprocessing tools (Joining attributes

of different shapefiles/layers)

6. Hazard overlay 13. Table manipulation (Using the field

calculator)
7. Visualizing exposure

The workshop was attended by 23 participants from the following city government departments:
1. Planning and Development Office (3 representatives),
2. Engineering Office (1 representative),
3. Assessors Office (2 representatives),
4. Disaster Risk Reduction and Management Office (3 representatives),
5. Environment and Natural Resources Office (3 representatives),
6. Information Technology Office (1 representative),
7. Community-Based Monitoring System (4 representatives),
8. Naga City Police Office (6 representatives).
Samples of the participants outputs from the workshop are provided below.

36 | P a g e
 Figure A2. Total affected households located within 100m from the river

Figure A3. Flood-affected households with limited access to hospitals

37 | P a g e
There was some difficulty in carrying out the third activity, as the NCG had not yet completed the draft version
of its updated CLUP at the time of the submission of this report. In place of a review of the updated CLUP,
several sessions were conducted during the GIS training workshop focused on providing additional
recommendations to assist the NCG in mainstreaming DRR into their land use plan. These sessions focused on
the following:

Need for integrating DRR in the CLUP

Identifying DRR entry points in the CLUP

Identifying conditions that increase risks in urban areas

Choosing risk reduction strategies

Implications of hazard and risk mapping on Naga City land use planning and urban development.

Next steps
The three activities accomplished the following:
1. Sensitized the department heads and technical staff from the city government on the concepts of hazard,
vulnerability and risk, and the importance of considering these concepts in the context of their CLUP
updating;
2. Provided the City Planning and Development Office with a clear idea of the specific types of
information (hazard maps and socio-economic data) required for integrating disaster risk into their
CLUP, as well as the sources from where such data can be requested;
3. Expanded the number of technical staff capable of carrying out basic hazard, exposure and risk mapping
functions to support the integration of risk parameters into the CLUP;
4. Identified entry points where newly acquired hazard, vulnerability and risk (HVR) information can be
integrated into the CLUP process, and provided guide questions on how to evaluate the implications of
such information on land use planning in Naga City.
While these activities have provided additional capacity and confidence to the Naga City Government for
updating its CLUP, several key and complex tasks still need to be carried out by the city government in order to
complete its land use plan updating, specifically:
1. Acquire the required hazard maps and socio-economic data;
2. Integrate the HVR information into the situational analysis and develop hazard overlays, according to the
2014 HLURB Guidelines;
3. Interpret the HVR information and identify its implications to the CLUP and other development plans;
4. Review and revise the following items, in light of the new HVR information and identified implications:

a. Vision statement
b. Major problems, issues and opportunities in the sectoral analysis
38 | P a g e
 c. Identified land use issues
d. Land use issue matrix
e. Inventory of land uses
f. Land use and zoning plan proposals
g. Development strategies, alternative spatial strategies, and development controls;

5. Prepare a new structure plan;

6. Detail the general/urban land use plan;
7. Develop the policies, strategies, zoning and other implementing tools (e.g. regulations, incentives) for
the preferred plan;
8. Draft the Zoning Ordinance; and
9. Complete the Comprehensive Development Plan for the city.

While NCG shows institutional willingness to complete its Risk-sensitive CLUP, there are still systemic
weaknesses in the technical capacity that could hinder a satisfactory outcome. More sustained technical
sustained support will be required to produce a competent RSLUP and ensure enforcement and monitoring
processes are in place.

39 | P a g e
Annex B: Checklist of Hazard Maps and Data Sources (Modified from Supplemental Guidelines 2014, HLURB)

Hazard Data Source/s Scale46 Remarks47 Available Format48 Acquired

Maps Datum:
Reference:
Scale:
Flood Mines and 1:50,00049 Depicts areas susceptible Yes 1: 50,000
Susceptibility Geosciences to floods, classified as
Bureau high, moderate and low
with supplemental
information on flood
heights. Available for
selected regions,
provinces and
municipalities/cities.

Map availability can be

viewed through
http://gdis.denr.gov.ph/

46
Make sure geographic reference and datum is provided and preferably request for shapefiles or high resolution digital maps
47
Always ask for accompanying technical report (if any)
48
Ask your GIS specialist for the details
49
1:50,000-- Indicative maps useful for general planning purposes; evaluation of infra and housing projects; threatened municipalities and cities
1:10,000 and higher --Definitive maps for general planning, engineering works, locating evacuation &relocation sites, detailed land use planning, assessing
escape routes and for land zoning

40 | P a g e
 Hazard Data Source/s Scale46 Remarks47 Available Format48 Acquired
Maps Datum:
Reference:
Scale:
mgbviewer/
Philippine 1:50,000, Identifies areas prone to No
Atmospheric, 1:10,000 floods representing a
Geophysical and worst case scenario.
Astronomical Services Selected provinces and
Administration municipalities/cities
(PAGASA50), Office of generated through the
Civil Defense (READY READY Project.
Project)
Map availability can be
viewed
through
http://www.ndrrmc.gov.
ph/
Department of Science Various Flood hazard maps of Yes
and Technology- Map selected areas within 18
Nationwide Scales major river basins.
Operational Provides flood inundation
Assessment of Hazards zones are based from 5-,
Project (DOST-NOAH), 10-, 25-, 50-, and 100-

50
Request for training-workshops about how to prepare climate change projections for Camarines Sur .

41 | P a g e
 Hazard Data Source/s Scale46 Remarks47 Available Format48 Acquired
Maps Datum:
Reference:
Scale:
DRREAM Project year rainfall recurrence
interval, with indicative
flood heights.

Map availability for

selected areas can be
verified through
http://noah.dost.gov.ph/

Rain-induced Mines and 1:50,000 Depicts areas susceptible Yes (partial 1:50,000
Landslide Geosciences 1;10,000 to rain-induced landslide, coverage of 1:10,000
Bureau (inquire if classified as high, Naga City)
available) moderate and low.
Available for selected
regions, provinces and
municipalities/cities.

Availability can be viewed

through
http://gdis.denr.gov.ph/
mgbviewer/
Office of Civil Depicts areas susceptible No (OCD)

42 | P a g e
 Hazard Data Source/s Scale46 Remarks47 Available Format48 Acquired
Maps Datum:
Reference:
Scale:
Defense (READY to rain-induced landslide,
Project) classified as high,
moderate and low.
Available for selected
provinces and
municipalities/cities
generated through the
READY Project.

Map availability can be

viewed through
http://www.ndrrmc.gov.
ph/
Ground Philippine Institute of 1:50,000 Depicts areas with known Yes
Rupture Volcanology and and inferred faults. (PHIVOLCS)
Seismology Selected provinces and
(PHIVOLCS)51, Office of municipalities/cities No (OCD)
Civil Defense (READY generated through the
Project) READY Project.

Map
51
Request training workshops for utilization of REDAS Tool. Training of Quantum GIS (open-source) is also necessary to transfer REDAS outputs to GIS format .
43 | P a g e
 Hazard Data Source/s Scale46 Remarks47 Available Format48 Acquired
Maps Datum:
Reference:
Scale:
availability can be viewed
through
http://www.ndrrmc.gov.
ph/
Ground Philippine Institute of 1:50,000 Composite ground Yes
Shaking Volcanology and shaking levels based on (PHIVOLCS)
Seismology(PHIVOLCS, hypothetical maximum
Office of Civil Defense credible earthquake No (OCD)
(READY Project) scenarios. Selected
provinces and
municipalities/cities
generated through the
READY Project.

Map availability can be

viewed at
http://www.ndrrmc.gov.
ph/ and
http://www.phivolcs.dost
.gov.ph/
Liquefaction Philippine Institute of 1:50,000 Composite liquefaction Yes
Volcanology and susceptibility map based (PHIVOLCS)

44 | P a g e
 Hazard Data Source/s Scale46 Remarks47 Available Format48 Acquired
Maps Datum:
Reference:
Scale:
Seismology on hypothetical
(PHIVOLCS), Office of maximum credible No (OCD)
Civil Defense (READY earthquake scenarios.
Project) Selected provinces and
municipalities/cities
generated through the
READY Project.

Map availability can be

viewed at
http://www.ndrrmc.gov.
ph/ and
http://www.phivolcs.dost
.gov.ph/
Earthquake- Philippine Institute of 1:50,000 Composite earthquake Yes
induced Volcanology and induced landslide map (PHIVOLCS)
Landslide Seismology based on hypothetical
(PHIVOLCS), Office of maximum credible No (OCD)
Civil Defense (READY earthquake scenarios.
Project) Selected provinces and
municipalities/cities
generated through the

45 | P a g e
 Hazard Data Source/s Scale46 Remarks47 Available Format48 Acquired
Maps Datum:
Reference:
Scale:
READY Project.

Map availability can be

viewed at
http://www.ndrrmc.gov.
ph/ and
http://www.phivolcs.dost
.gov.ph/
Volcanic Philippine Institute of 1:50,000 Areas depicting volcanic Yes
Hazards Volcanology and associated hazards (PHIVOLCS)
Seismology (i.e. lahar and pyroclastic
(PHIVOLCS), Office of flow). Available for No (OCD)
Civil Defense (READY selected active volcanoes,
Project)
Map availability can
be viewed at
http://www.ndrrmc.gov.
ph/ and
http://www.phivolcs.dost
.gov.ph/

46 | P a g e
Data for Exposure Analysis and Vulnerability Mapping

Prepare an inventory of elements affected and conduct surveys to provide detail on their location, condition
or situation. See Annex C tables in the 2014 HLURB Guidelines for more information on attributes of
elements.

Sector Maps Data Source/s Remarks52 Acquired

Administrative HLURB Use of global
boundaries (ex. barangay, NAMRIA positioning system
municipal/city Bureau of Soils and Water device for geotagging
administrative Management-BSWM ( for residential buildings
boundaries, land cover land cover) and locating
image) DENR boundaries
Google Maps, Google
Earth, Open-streetmap
General population(e.g. National Statistics Office Use of global
barangay housing, Use of GPS positioning system
population, density, device for geotagging
informal settlements, residential buildings
residential subdivisions); and locating
boundaries
General population(e.g. NSO, Use of global
barangay housing, Community based positioning system

52 Check the Inventory Tables in Vol. 2 of the HLURB 2014 Guidelines (Sectoral Analysis and Tools for Situational Analysis)

47 | P a g e
 Sector Maps
population, density,
informal settlements,
residential subdivisions);
Vulnerable Population
(e.g. elderly, women and
youth, indigenous
peoples, persons with
disabilities);
Education sector(e.g.
primary, secondary,
tertiary, special schools);
48 | P a g e
Data Source/s Remarks52 Acquired
monitoring system device for geotagging
(CBMS) structures and
Philippine Red Cross data locating boundaries
in Naga City
HLURB regional office
Naga City CPDO
Department of Social
Welfare and
Development (DSWD)
Naga City Elderly or Use of global
Senior Citizens Office positioning system
DSWD device for geotagging
locations of their
buildings
Dep-Ed District Office, Department of
CHED Education conducts
Google maps for assessment on the
location of structures effects on the
Use of global positioning education sector,
system device for school
 Sector Maps
Hospital, healthcare &
sanitation facilities (ex.
regional & local hospitals,
burial sites & cemeteries,
dumping sites and
landfills, Health care
units, rural health units
(RHUs));
49 | P a g e
Data Source/s Remarks52 Acquired
geotagging structures facilities/buildings and
provide an inventory
of school buildings
used as evacuation
center. The official
website
http://www.edu.gov.p
h can be used to get
the need information
and directory of the
key personnel to get
pertinent data for
estimation.
Naga City Health and Department of Health
Sanitation Office, assesses damage on
Environment Office health facilities and
status of health
services including
water and sanitation.
The official website
http://www.doh.gov.
ph can be consulted
to get the directory of
the key personnel to
get pertinent data for
 Sector Maps Data Source/s Remarks52 Acquired
estimation.53

Use of global
positioning system
device for geotagging
residential buildings
Protection services (e.g. Naga City PNP Use of global
police, firefighting, Bureau of Fire Protection positioning system
disaster risk reduction DRRMO disaster reports device for geotagging
and management unit); residential buildings
Economic activities (e.g. City Assessors Office Use of global
agricultural land, forest DENR ( Forest land Use) positioning system
land, mining sites, Department of Agriculture device for geotagging
business & commercial Bureau of Mines and Geo- boundaries and
establishments, SAFDZ Sciences (Mining sites, structures
areas); permitted areas)
Naga City Departments
Infrastructure, lifelines ( City Engineers Office Use of global
e.g., water, roads, Department of Public positioning system
railways, ports) and Works and Highways device for geotagging
buildings, historic sites, Department of buildings and
hazard control structures telecommunications infrastructures,

53
Source: NEDA Mainstreaming Guidelines, 2008

50 | P a g e
 Sector Maps Data Source/s Remarks52 Acquired
and other systems; National Irrigation facilities.
Authority
Department of Energy Consult Department
of Public Works and
Highways regional or
district offices. Assess
damages on
infrastructure and
public works such as
flood control,
international and local
roads and bridges and
other vital installation
and facilities. The
official website
http://www.dpwh.gov
.ph can be used to get
the directory of key
personnel from
regional and district
offices for acquiring
required information

Department of Energy
conducts damage
51 | P a g e
 Sector Maps
Environment ( e.g. DENR
protected areas, land use
zoning, coastal areas,
wetland, and fishery
areas
Land Use ( e.g.
residential, commercial,
industrial, mixed use,
informal areas)
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Data Source/s Remarks52 Acquired
assessment on power
generating facilities.
The regional offices
can be consulted to
estimate the cost of
the power plants,
transmission lines and
grid station.
Dept of
Transportation and
Communications
conducts damage
assessment on
communication and
transport facilities
Use of global
positioning system
device for geotagging
boundaries of these
areas
HLURB Use of global
DENR positioning system
Naga City Planning and device for geotagging
Development Office boundaries and
 Sector Maps Data Source/s Remarks52 Acquired
conflict areas

FOLLOW UP SURVEY QUESTIONNAIRE FOR NAGA CITY CAPACITY NEEDS ASSESSMENT

Name of Department: Date:
Name of Respondent: Current Position:
Years Served in Current position:

Once you have completed the checklists, answer the following questions.
You may use additional sheets of paper if you wish to elaborate on your answers.
PART 1. ON HAZARDS, VULNERABILITIES AND RISKS OF NAGA CITY
A. HAZARDS , DISASTERS AND PLANNING ANSWERS (After completing the hazard inventory, check on the space if it
applies)

1.) What natural hazards have created a natural Climate and Water related Hazards
disaster in your area? Please check appropriate 1 droughts____ 2 rain induced landslides_____
spaces. 3 river floods ____4 strong winds/ cyclones_____
5 Others, pls.specify____________________________________
Disaster is defined as an event where external
Earthquake induced hazards
assistance is sought by the city or municipality from
6 Severe ground-shaking______ 7 ground rupture/surface breaks_____ 8
the Province or Region due to the impact of a natural Liquefaction_____ 9 ground expansion________
hazard. 10 landslide______ 11 Land mass movement______
12 Others,pls. specify:___________________________________

Volcanic Hazards

13 Lava flow______14 Explosive Eruptions/Tephra falls______

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 15 Pyroclastic Flows_____16 Lahars______ 17 Debris Avalanche
18 Others, pls. specify:____________________________________
Erosion
19 Soil Erosion___20 River Erosion___ 21 Coastal Erosion___
12 Others, pls. Specify_________________________
2) Indicate the degree in which Naga City Planning MEASURES LEVEL LEVEL LEVEL LEVEL
1 2 3 4
and Coordination Office/DRRMO has undertaken the
Delineate danger zones you have
following physical planning measures. Please check
identified as threatened by natural
the space corresponding to the number of your
answer. hazards (in map form)
Identify easements and
boundaries for danger zones on
Meanings: the ground
Identify the emergency routes and
1- We have barely accomplished this temporary relocation sites and
2- We have accomplished about 25% of needed evacuation zones (in map form or
action
3- We have accomplished about 50% of the identified sites)
needed action
4- Accomplishment is substantial ( about 75% or Identify suitable areas where 1 2 3 4
more) settlement growth or where
development should be allowed
or encouraged
Verified and listed areas or
buildings that require structural
intervention ( engineering
retrofits) or non-structural
interventions( no-development
zones, easement) against floods,
earthquakes, fire hazards and
others.
Naga City has legislation in aid of

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 disaster mitigation
Other physical planning actions/measures You have done in the
City pls. specify here or in another sheet:

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 Annex C: Sample Data Request Letters to National Agencies

September 10, 2015

DR. RENATO U. SOLIDUM, JR.

Director
Philippine Institute of Volcanology and Seismology
C.P. Garcia Ave., U.P. Campus, Diliman, Quezon City

Request for Datasets on Exposure to Natural Hazards

Dear Dir. Solidum:

Naga City is in the process of updating its Comprehensive Land Use Plan (CLUP), to include
information on the different natural hazards that may affect the City. In that regard, the hazard
maps produced by the Philippine Institute of Volcanology and Seismology (PHIVOLCS) will
provide valuable inputs on the exposure of Naga City to different types of natural hazards. We are
therefore requesting for the following datasets relevant to Naga City, for use in our CLUP
updating:

1. Ground rupture maps (1:50,000 scale) and GIS shapefiles

2. Ground shaking maps (1:50,000 scale) and GIS shapefiles
3. Liquefaction maps (1:50,000 scale) and GIS shapefiles
4. Earthquake-induced landslide maps (1:50,000 and other scales) and GIS shapefiles
5. Volcanic hazard maps (1:50,000 and other scales) and GIS shapefiles.

These datasets will support the integration of risk parameters into Naga Citys land use planning
and ensure that future development in the city is risk-sensitive. Rest assured that PHIVOLCS will
receive due credit and acknowledgment for its contribution to the CLUP updating.

Mr./Ms. ____________________ of the City Planning and Development Office (contact details)
will be following up our request with your office.

Thank you very much for helping us on this important matter and we look forward to your
favorable action on our request.

Sincerely,

Hon. John G. Bongat

Mayor
September 10, 2015

HON. RAMON J.P. PAJE

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Secretary
Department of Environment and Natural Resources
Visasyas Avenue, Diliman, Quezon City

Request for Datasets on Exposure to Natural Hazards

Dear Sec. Paje:

Naga City is in the process of updating its Comprehensive Land Use Plan (CLUP), to include
information on the different natural hazards that may affect the City. In that regard, the hazard
maps produced by the Mines and Geosciences Bureau will provide valuable inputs on the
exposure of Naga City to different types of natural hazards. We are therefore requesting for the
following datasets relevant to Naga City, for use in our CLUP updating:

1. Flood susceptibility maps (1:10,000 and 1:50,000 scale) and GIS shapefiles
2. Rain-induced landslide susceptibility maps(1:10,000 and 1:50,000 scale) and GIS
shapefiles

These datasets will support the integration of risk parameters into Naga Citys land use planning
and ensure that future development in the city is risk-sensitive. Rest assured that the DENR and
MGB will receive due credit and acknowledgment for its contribution to the CLUP updating.

Mr./Ms. ____________________ of the City Planning and Development Office (contact details)
will be following up our request with your office.

Thank you very much for helping us on this important matter and we look forward to your
favorable action on our request.

Sincerely,

Hon. John G. Bongat

Mayor

Cc: Engr. Leo L. Jasareno

Director, Mines and Geosciences Bureau

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