Session 4: Establishment of Community-Based Flood Early Warning System (CBFEWS)

Department of Science and TechnologyPhilippine Atmospheric, Geophysical and Astronomical Services Administration

Establishment of Community-Based Flood Early Warning System (CBFEWS)

The Philippine Experience

Rosalie C. PAGULAYANWeather Specialist II, Hydrometeorology Division

[email protected]

Disaster Risk Reduction Practitioner’s Workshop14 November 2013 * Bangkok, Thailand

mailto:[email protected]

Outline of Presentation:

Geographical landscape of the Philippines and the different weather systems that govern its climatic condition

Existing flood early warning system

Community-based flood early warning system

Why is the Philippines prone to flooding?

The climate of the Philippines is influenced by the complex interactions of various factors such as:

Philippine Geography and Topography

Linear systems

Principal Air Streams

Semi-permanent cyclones and anti-cyclones

Tropical Cyclones

Ocean currents

Windward side

Associated hazard: flashflood

Name of River Basin Drainage Area (square kilometer) River Length (km)

1. Cagayan 27,280 505

2. Mindanao 23,169 373

3. Agusan 10,621 350

4. Pampanga 9,759 260

5. Agno 5,952 206

6. Abra 5,125 181

7. Pasig-Marikina-Laguna Bay 4,678 78

8. Bicol 3,771 136

9. Abulog 3,372 175

10. Tagum-Libuganon 3,064 89

11. Ilog-Hilabangan 1,945 178

12. Panay 1,843 152

13. Tagoloan 1,704 106

14. Agus 1,645 36

15. Davao 1,623 150

16. Cagayan De Oro 1,521 90

17. Jalaur 1,503 123

18. Buayan-Malungon 1,434 64

River basins in the Philippines

Existing Flood Forecasting and Warning System in the Philippines

Telemetered River Basins:• Pampanga• Agno• Bicol• Cagayan

Telemetered Reservoirs:• Angat• Pantabangan• Magat• Binga/Ambuklao• San Roque

2012 – Caliraya Dam FFWSDO started its operation

Communication tower

Fixed and mobile warning facilities

Rain gauge & solar panel

Rainfall station Flood Forecasting and Warning-Main Operation Center

River Center & its Operation Room

Telemetry Equipment

Water level gauge

Flood forecasting and warning system for telemetered river basins

Community-Based Flood Early Warning System (CBFEWS)

A “Non-Structural” flood disaster mitigation/management program that is based on the operative capability of the community operating it.

Conceptualized in 1999. The initiative of the Province of Bulacan to address the need for an early warning system in their flood prone areas was the pilot CBFEWS in the country, which was set-up in 2003, followed by the City of Dumangas, Iloilo in 2005. Both LGUs utilized their own funds for this endeavor.

2006 launching of the READY Project (Hazard Mapping and Assessment for Effective Community-Based Disaster Risk Management). It was aimed at addressing the problem of Disaster Risk Management (DRM) at the local level. Three (3) main components:

1. Multi-hazard identification and disaster risk assessment - Multihazard mapping (1:10,000 scale for landslide and

floods; 1:50,000 scale for earthquake/volcano-related hazards and storm surge)

Development of CBFEWS in the Philippines

2. Community-Based Disaster Preparedness2.1. Development of Information Education and Campaign (IEC) strategies and materials for specific target groups2.2 Installation of Community-Based Early Warning System (CBEWS) for hydrometeorological and geologic hazards

3. Mainstreaming of Disaster Risk Reduction into the local Disaster Preparedness Plan

Development of CBFEWS in the Philippines

PAGASA provides the technical assistance.

PAGASA develops the standard methodology on how the CBFEWS shall be established in two (2) phases: implementation phase and operational phase

LGUs to ensure the sustainability of the CBFEWS thru Municipal Resolution, Ordinance, etc.

It empowers local government units (LGU’s) and the communities to protect themselves against floods.

The community and LGUs are in the best position to undertake preparedness measures against floods, since the CBFEWS will make the most out of the indigenous/home-grown practices of the community in mitigating the impacts of flooding in their area.

It is economical and easy to maintain.

It is one way of addressing the need for an EWS in a small communities that are not covered by the conventional (telemetered) flood forecasting and warning system.

Why pursue a CBFEWS?

Strategies in setting-up a CBFEWS

1. River basin approach2. Community participation or

involvement – Local government units (LGUs)/Communities do the observation and are trained to analyze the data; issuance of advisory

3. Mainstreaming of CBFEWS in the Disaster Contingency Plan of the community – to ensure the sustainability of the system.

Activities in the establishment of CBFEWS (Implementation Phase)

1. Consultation with the LGUs/Community and other stakeholders – roles and responsibilities LGUs and stakeholders are explained; proposed network design is presented, counterpart activities, MOA, etc.

2. Ocular survey of proposed sites – for site verification, check available means of communication, conduct survey of flooding scenarios, check availability of warning system (if there are any), indigenous practices that could be integrated in the CBFEWS.

3. Installation of monitoring equipment, flood signages, and hydrographic survey


4. Training of observers

5. Conduct of Special IEC and Pilot testing/Dry-run


6. Turn over of CBFEWS to the Local Government Units


Activities in the establishment of CBFEWS (Operationalization Phase)

1. Observation and recording of rainfall and water level data at specified time interval described in the DATA OBSERVATION PROTOCOL (cited in the CBFEWS Operation Manual).

Output: Hourly, daily, monthly data summaries, daily hydrological advisories2. Analysis of observed data &/or preparation & issuance of flood

advisories/warnings during inclement weather conditions described in the WARNING PROTOCOL (Manual)

Output: Flood advisories/flood warning; actions to be undertaken, disaster & rescue activities undertaken during inclement weather conditions

3. Physical check, maintenance & repair, if necessary, of installed instruments & communication system by observers and LGUs;

Output: Working/operational instrument and communication system4. Post flood survey and evaluation/documentation of flood warning activities

that would serve as reference to improve the subsequent operation of CBFEWSOutput: Flood warning activity reports – actions taken and recommendations; record of flood marks, correlation between rainfall & water level

Threshold for Warning for Rainfall Intensities(Based on Standard Raingauge)

Rainfall Values Meaning Flood Warning

Rainfall observation of 15 mm – 20 mm for the past hour

Awareness READY

Rainfall observation is 60 mm – 80 mm for the past 3 hours

Preparedness GET SET

Continuous rainfall for the last three hours and 3-hourly observation is more than 80 mm

Response GO

* Values are arbitrary and will be modified when sufficient data becomes available.

Values are arbitrary and will be modified when sufficient data becomes available.

* Values of RR for the digital raingauge is in inches (in)

Rainfall Values Meaning Flood Warning

Rainfall observation of 006 – 008* for the past hour

Awareness READY

Rainfall observation is 008 to 024 for the past 3 hrs

Preparedness GET SET

Continuous rainfall for the last three hours and 3-hourly observation is 024- 032 or more

Response GO

Threshold for Warning for Rainfall Intensities(Based on Digital Raingauge)

Actual Water Level (m)

Meaning Flood Warning

Level 1 1.1 m Awareness READY

Level 2 1.5 m Preparedness GET SET

Level 3 2.0 m Response GO

GO1

23

* Values are arbitrary and will be modified when sufficient data becomes available.

Threshold for Warning (Assessment Water Levels)

* Rainfall & water level criteria are preliminary estimates and still requires validation during actual events to refine the rainfall criteria.

Standard Manual Rain Gauge Staff or Water Level

Gauge

Digital Rain Gauge

006 008to

LEVEL 115-20mm

“READY” Warning is issued when the following criteria exists:

Standard Manual Rain Gauge

Staff or Water Level Gauge

Digital Rain Gauge

008 024to

60-80 mm in 3-hours

“GET SET” Warning is issued when the following criteria exists:


LEVEL 3More than 80 mm in 3 hours

River conditions show signs of mud-like color; with debris

“GO” Warning is issued when the following criteria exists:

Digital Rain Gauge

024 032 or to

Standard Manual Rain Gauge

Staff or Water Level Gauge


Flood Warning Protocol for Batingaw (Fabricated Bell)

Communication Scheme

◄◄

PDCC RDCCFlood info

WarningPhase1 - READYREADY2 -Get SET3 - GO

Wea

ther

Upd

ate

/ Inf

o

Dat

a / F

lood

A

dvis

ory

/W

arni

ng

Target Community

Disaster Operation Center

(DOC)Municipal Hall

Communication of Warning1 - MDCC2 – BDCC3 – Local

Volunteers

Weather Update / Info

BatingawSitio/PurokLeadersWater Level

Observers

PAGASA- Field Station

RR Observers

Flood Advisory

BandilloMegaphone w/sirenChurch Bells

River Observation1 – Color2 – Speed of Flow3- Sound4 – Presence of

Debris

Legend: ◄ Information starts here in case of large-scalesystem (Ex. typhoon and monsoon).

Information starts herein case of local/ small-scale system (Ex. Thunderstorm and ITCZ).

◄◄

◄

◄◄

Evacuation Center

◄◄

PDCC RDCCFlood info

WarningPhase1 - READYREADY2 -Get SET3 - GO

Wea

ther

Upd

ate

/ Inf

o

Dat

a / F

lood

A

dvis

ory

/W

arni

ng

Target Community

Disaster Operation Center

(DOC)Municipal Hall

Communication of Warning1 - MDCC2 – BDCC3 – Local

Volunteers

Weather Update / Info

BatingawSitio/PurokLeadersWater Level

Observers

PAGASA- Field Station

RR Observers

Flood Advisory

BandilloMegaphone w/sirenChurch Bells

River Observation1 – Color2 – Speed of Flow3- Sound4 – Presence of

Debris



◄◄



◄◄

◄

◄◄

Evacuation Center

Other activities1. Agreement among the stakeholders Prior to installation, a Memorandum of Agreement (MOA), which stipulates the roles and responsibilities of the LGUs and community, including their full support in all the activities that will be undertaken and the involved institutions, is prepared, agreed upon and signed. 2. Enhancement of a Local Ordinance for Operation and Maintenance The MOA is binding only within the tenure of the Local Chief Executive, which is 3 years. To ensure the sustainability of CBFEWS, particularly the allocation of a reasonable amount for the O&M, a local Ordinance has to be enacted by the City or Municipal Council.

ORDINANCE NO 2005-01 entitled, “AN ORDINANCE PROVIDING AN ANNUAL APPROPRIATION FOR THE MAINTENANCE AND OTHER OPERATIONAL EXPENSES OF THE COMMUNITY-BASED FLOOD AND DROUGHT FORECASTING AND WARNING SYSTEM IN DUMANGAS, ILOILO”.

The improvement in warning systems and better preparedness has resulted in the reduction of casualties due to flooding.

- The passage of Typhoon Fengshen (locally known as Frank) in June 2008 saw the death of hundreds of people and damage to infrastructure and agriculture in the island of Panay. In the municipality of Dumangas, Iloilo (a CBFEWS site), there was no reported casualty and was even able to send emergency team to assist their neighboring towns in the rescue operation.

- In August 2009, the province of Zambales was devastated by flooding due to passage of a Typhoon Kiko but no casualties were recorded. This was mainly attributed to the community based flood early warning system (CBFEWS) in place.

- On 16 Dec 2011, Surigao del Sur recorded 2 casualties compared to Cagayan de Oro and Iligan City (more than 1,000) due to the passage of TS Washi. In 2005, CBFEWS was established under the UNDP Ready project. People in the area still remember the lessons during the flood drills conducted. LGUs immediately convened the local DRRMC in anticipation of storm Washi.

Surigao de Sur

Cagayan de Oro

Benefits of CBFEWS

During the Revisit of Ready Team on 6016 May 2008: Success stories were noted in the municipalities of Hinatuan, Barobo &Tagbina in SDS, in Libjo for Dinagat Island & in Mainit & Surigao City.

Observed data were used to forewarn the threatened communities, i.e. before the landslide that occurred in Surigao City in Feb 2008 and in Hinatuan river basin.

Lessons learned1. Operation and Maintenance

- responsibility of the concerned LGUs. CBFEWS should be included in the planning process of the LGUs.

2. Institutional stability of CBFEWS- DOC should be an integral part of the institutional set-up of the LGUs.- Some DRRMCs are organized but not functional. - The tenure of the LCEs (3 years) is often the major constraint in the sustanability of the CBFEWS.

3. Differences in political affiliation, priorities and agenda- can often negate the benefits of undertaking a community-based system - river basins encompasses so many barangay, municipalities. Importance of data/information sharing is encourage.

Lessons learned

4. Sustainability- The passage of an Ordinance is the most effective mechanism that will ensure the sustaiinability of CBFEWS as this will go beyond the tenure of the local officials.

5. Acceptability of CBFEWS- often those who have experienced a major disaster are more appreciative of CBFEWS. The increasing trend in hydrometeorological hazards, such as flood, contributed to the shift on disaster preparedness and prevention/mitigation, instead of the usual disaster response, recovery and rehabilitation.

Lessons learned

6. Institutionalization of Partnership among Stakeholders- CBFEWS often involves several stakeholders such as technical agencies from the national agencies, LGUs, private sector, academe, NGO and even the media. It is important that the various stakeholders convene on a regular basis to discuss the issues and concerns of the CBFEWS, including the limitations and possible improvements of the system.

7. Role of Volunteers and Schools- The basic activities of CBFEWS is observation of RR and WL by the observers designated by the LGUs. School children are also tapped as volunteer observers who are often supervised by their teachers. These kind of observations boost the observation network.

Challenges/Way forward

1. Hazard maps – how can this be appreciated by people who are color blind? Or the warning siren by people with hearing impairment?

2. Laymanizing technical terms – translating scientific knowledge/information into something that the community could understand and would comple them to take appropriate actions.

3. Fast turn-over of leadership at the community level

Thank you for your kind attention

http://kidlat.pagasa.dost.gov.ph/annualreport/annualreport2010.pdf

Session 4: Establishment of Community-Based Flood Early Warning System (CBFEWS)

Technology

Transcript of Session 4: Establishment of Community-Based Flood Early Warning System (CBFEWS)