DISASTER PREPAREDNESS LEVEL OF TACLOBAN CITY: A FUNCTION OF

BARANGAY OFFICIALS’ COMPETENCY AND BARANGAY

SOCIO-DEMOGRAPHIC STATUS

ALVIN PAUL T. RIEL

University of The Philippines in the Visayas Tacoban College
alvinptrielpostgrad@gmail.com

ABSTRACT
The aim of this study is to determine the level of Disaster Preparedness of Barangays of Tacloban
City through evaluation of barangays’ preparedness and competence of barangay officials.

The study attempted to look into barangays’ status of preparedness by using data sets analysis and
empirical investigation. The data were provided by Philippine Statistics Authority and Tacloban
City Planning and Development Office, as well as the responses of barangay officials. The
instrument was designed using a set of 5-point scale Likert-type survey questionnaires and
Flanagan’s CIT (with local dialect translation and written guidelines in filling and answering the
instruments) distributed to the respondents (with 187 participants out of 138 barangays) through
Barangay affairs Office Coordinator.

With a total of 187 respondents from 138 barangays, the research findings revealed that the levels
of preparedness of barangays were practically low. Data showed that the conditions of these
barangays generally at High Vulnerability Level and at Not Prepared Level status (2010/2012
Mean=2.94, SD=1.1412; 2014/2015 Mean=2.83, SD=0.9264; f=0.014319; p≥0.01).

Keywords: disaster, disaster risk reduction, disaster mitigation, capacity development

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Background of the Study

Megatyphoon Yolanda (Haiyan), the deadliest typhoon ever recorded in Philippines
history, posted figures of deaths and injured individuals last November 2-11, 2013. Reports of
NDRRMC (2014), 6,300 died while the report of Philippine National Police Region 8 posted it to
approximately 10,000.

WHO (2014) reported 12,544 injuries and 1,186 persons were missing. DOH (2014)
reported that figures ticked higher with 11,904 more deaths after Yolanda, from January to
September 2014, in whole Eastern Visayas. The hypothetical analysis of deaths, injuries, missing
and more deaths are caused by High Level of Vulnerability and Low level of disaster preparedness
of communities.

This study is aimed to help evaluate, appraise and identifying the level of preparedness
with the following objectives:

1. to gather data about the bio-personal profile and evaluate the competence about
disaster, vulnerability, risks, reduction, response and capacity development of the
barangay officials of Tacloban City;
2. to gather data about the past (before typhoon Yolanda or year 2010-2012) and present
(2014-2016) Socio-economic and demographic profiles of barangays of Tacloban City;
3. to determine any significant difference between levels of preparedness (past and
present) of the barangays of Tacloban City in relation to the barangay officials’
competence and barangays socio-demographic status.

The null hypotheses of the study are stated as:

Ho1: there is no statistically significant relationships between the barangay profiles and
level of preparedness of the barangays of Tacloban City; and

Ho2: there is no statistically significant difference between the past and present level of
preparedness in relation to socio-demographic status of barangays and barangay officials’
competence.

The alternative hypotheses of the study on the other hand are as follow:

Ha1: there is statistically significant relationships between the barangay profiles and level
of preparedness of the barangays of Tacloban City; and

Ha2: there is statistically significant difference between the past and present level of
preparedness in relation to socio-demographic status of barangays and barangay officials’
competence.
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Conceptual Framework & Reviewed Evidences

Khan, Guirca & Khan (2008) included the lack of resources (poverty; poor communities)
or limited access to resources, illness and disabilities, age, and sex in “vulnerability”. Agustin
(2016) provided the conceptual model on how to reduce the risks involved sensitive to
vulnerability and exposure from uncertain and immeasurable impact of hazards which may be
uncontrollable. The risks of great loss of life, properties, livelihood, injuries, illnesses and diseases,
and social activities interruptions can be lessen if vulnerability is lessen to its least possible extent.
Figure 1 model shows how the impact of hazards will be limited as “vulnerability” decreases.

Figure 1. Disaster Risk as a Function of Vulnerability Based Social Vulnerability Index

Reviewed Evidences

For a steady process of elimination validation, and to proceed with the search for a credible
set of methodology, evidences from studies of WB, IFRC, and Ash Center are evaluated. Tsunami
and flood victims in Indonesia, donated their land properties for shelters to ease the population
density, and for road and drainages improvement to prevent the impact of floods. Indonesian
national and LGUs spent more on capacity development while Japan involved local community
participation to prevent from happening again the losses (WB, 2009; IFRC, 2012). Albay posted
zero-casualty from 1995 to 2005. In 2006, however, typhoons strike and left with death tolls.
Learned by the experience, Early warning system, prevention and reactionary measures are
provided led by a barangay official. DRRM involved LGUs (Ash Center, 2011). Governor Joey
Salceda relocated the constituents with safe relocation sites with concrete housing units and made
significant clusters for their economic activities (Ash Center, 2011).
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Methodology & Research Locale

The study used the Descriptive-Ex post Facto research design. The researcher investigated
the Yolanda incident through descriptions of the past and present competency of the barangay
officials, and the past and present level of preparedness of the barangay communities which mega-
typhoon Yolanda occurred.

The research is conducted in all one hundred thirty eight (138) barangays of Tacloban City
(figure 2).

Figure 2. Multi-Hazard Map of Tacloban City (City Planning, 2016)

Research Respondents and Sampling Method

The respondents of the study are the Barangay Chairpersons and or BDRRM committee
chairpersons or any council members. There are 138 barangays and expected participants are at
least 138 and not more than 276 respondents. The actual respondent-participants are numbered to
one hundred eighty seven (187).

The researcher used nonprobability sampling method. The respondents were chosen based
on judgmental sampling which is a common non-probability method. The researcher is confident
that the chosen respondent-participants are truly representatives of the entire population of the
barangay officials.
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Validation of the Instruments

The questionnaires are formulated by the researcher and validated by raters. The raters
include the research adviser/lecturer, U.P. Prof. Roselyn Pangilinan-Segura, MMPM and U.P.
Professor Amy Joan E. Exconde, Head of UP Tacloban Management Division, and Rannie C.
Agustin, NGO/NPO official. Raters reviewed all of the items for readability, clarity and
comprehensiveness and meet some level of agreement as to which items should be included in the
final instrument to ensure that questions fully represent the knowledge and skills, attitudes,
motivations and behaviors of the barangay officials and the barangay communities’ status that
affect the level of vulnerability or “preparedness” of the barangays.

Data Gathering and Processing Procedures

The researcher asked the permission and recommendation from the City Mayor Cristina G.
Romualdez for the distribution of the research instruments to the Barangay officials as respondents
in her city territory.

The Barangay Affairs Office assisted the researcher in distribution and retrieval of the
questionnaires with instruction-guidelines printed in English and Waray languages. The Critical
Incident Technique (CIT) and 5-point scale Likert-type instruments included the instructions for
the respondents not to consult each other on their respective responses to the questions and that no
person was allowed to influence them to ensure influence-free responses.

Processing of data includes preliminary coding and subsequent grouping according to

conventional categories. The variables are tabulated and presented using frequency percentage,
weighted means and SD. The relationship of Pearson Product Moment Correlation r is tested with
ANOVA coefficient f.

Qualitative Data Analysis

Quantitative description used is not enough. The additional documentation transcripts, field
notes, experts’ suggestions and comments are provided which are the qualitative descriptive
accounts without much explanation of the background and fundamental theoretical and conceptual
frameworks.

The researcher further explored and interpreted (coding) the data within the conceptual
framework to make sense of the data analysis and transcriptions made.

Some of data including the data sets from NSO and City Planning Office along with the
primary data gathered from CIT and 5-point Scale Likert Type survey-interview instruments are
gathered throughout the research from formulation of Conceptual Framework and Related
Literature. Some data are modified (like combining 2012 data gathered to 2010 that is not available
to 2010 data sets, so as with 2014/2015) or balanced with as empirical data collected gave more
meaning and inform subsequent information through the research secondary data gathering.
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Results
The results for years 2014/15 derived from the data set are categorized as Moderately
Vulnerable (Female) and Highly Vulnerable (Children and Senior Citizen) due to population
distribution as shown in Table 1. F Mean 2.36; C & SC Mean 2.22).
Table 1. Vulnerability Distribution among Females, Child and Senior Citizens

2010/12 Total Female Population Children Senior Citizen

Population (%)(Mean) (%) (Mean) (%)(Mean)
219,314 110,043 73,143 14,069
(50.18%) (33.35%) (6.14%)
(2.37) (2.0) (2.0)
2014/15 Total
Population
118,890 74,745 16,213
239,938 (49.55%) (31.15%) (6.75%)
(2.36) (2.22) (2.22)

On the other hand, Table 2 shows the Mean for the Type of Tenancy, Safe Drinking Water
Accessibility and Total number of HH without toilet (2014/15 Mean of 1.14, 4.03 and 2.76,
respectively). Tacloban City barangays are categorized as Extreme (Tenancy), Low (Water
Access) and Highly vulnerable (Toilet). Other variables including population density (𝜒=2.20),
house materials (𝜒=3.8), garbage collection (𝜒=3.05), and health care provider are used as
predictors.
Table 2. Vulnerability Level in Terms of other Predictors—Tenancy Type, Access to Water, and Toilet

Year Total Total HH Total HH Total HH

HH Renting, Vulnerability without Vulnerability without Vulnerability
Sharing, (Mean) safe (Mean) Toilet (Mean)
Informal drinking (using open
2010/12 45,478 Settlers
9444 Extreme (1.0) 2,733
water, Low (4.04) 6,096
pit, pail, High (2.0)
2014/15 50,890 30,018 Extreme (1.14) water
3,876 Low (4.03) river,
4,311 High (2.76)
connection drainage)

Barangay Officials should be Experts or at least Advanced in their job. They must have
focus on strategic planning and execution with consistent excellence in applying governmental
principles and legal framework across multiple projects and barangay affairs. They must create
new applications for capacity development and execute the undertakings. The results of the
diagnostic test of the Barangay officials, however, generally fall to Intermediate Competency
Level (Mean=3.39) as shown in Table 3.
Table 3. Competency Level of Barangays Officials in Terms of DRRM

ITEMS MEAN DIAGNOSTIC

INTERPRETATION
Risk Reduction 3.362 Intermediate
Response, Rescue and Relief 3.544 Advance
Rehabilitation & Recovery (Building back better) 3.355 Intermediate
Capacity Development 3.324 Intermediate
Overall Mean 3.396 Intermediate
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Table 4 shows the results of the prognostic test of the Barangay officials. It is generally
evaluated and interpreted as Intermediate Competency Level (Mean=2.65). Barangay Officials at
Intermediate Competency Level are able to successfully complete tasks if requested or instructed.
Help from an expert are required from time to time, but can usually perform some tasks
independently. Their focus is on enhancing knowledge and skills. They can apply their competency
to situations occasionally but needing minimal guidance to perform successfully. They understand
and can discuss the application and implications of changes to processes, policies, and procedures.

Table 4. Leadership and Interpersonal Skills of Barangays Officials

ITEMS MEAN PROGNOSTIC

INTERPRETATION
Leadership 2.81 Intermediate
Project Management 2.68 Intermediate
Strategic Management 2.46 Intermediate
Initiative/Proactive 2.50 Novice
Management by Objective 2.70 Intermediate
Coherent Decision Making 3.09 Intermediate
Objective Decision Making 2.63 Intermediate
People-oriented 2.59 Intermediate
Open-mindedness 2.55 Intermediate
(partnership, consulting, out-sourcing) Overall Mean 2.65 Intermediate

The Trainings Undertaken by the barangay officials have significant relationship. The
coefficient r is posted at 0.68 with the 3.544 Mean and diagnostic interpretation as Advance, but
the competence factors have an Overall Mean of 3.396 or Intermediate. The leadership and
interpersonal competency is Intermediate with a Mean of 2.65. Advocated by Harvard’s Project
Zero, performance is closely related to learning-for-understanding. With the significant value of f
which is ≥ 0.01, the ANOVA test result of coefficient f =0.014319 suggested that there is a
significant difference between the 2010/12 and the 2014/15 Barangay Communities’ Vulnerability
or Preparedness level in relation to trainings of Barangay officials and socio- demographic
status of the barangays. The null hypotheses of the study are rejected.

Table 5. One-way ANOVA Coefficient f-test Result of Multivariate Relationship r between 2010/12 and
2014/15 Barangay Vulnerability and Preparedness Levels

Year Multivariate Mean SD f

2010/2012 Sex, Age, HH situations, 2.94 1.1412
Brgy Officials’ 0.014319
Competence
2014/2015 Sex, Age, HH situations, 2.83 0.9264
Brgy Officials’
Competence

Likewise the result of data analysis and data gathered and processed indicated that there is
a statistically significant difference between the 2010/12 and 2014/15 Barangay Vulnerability
and Preparedness levels in relation to competency levels of Barangay officials and socio-
demographic status of barangays.
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Conclusion
The use of Critical Incident Technique by the researcher as framework in formulating the
survey questionnaires, Flanagan (1954) delineates underlying principles and specific components
to be included. Principles include a focus on a preference for the reporting of facts according to
those participating in the study (NSO, Tacloban City Planning Office, barangay officials of
Tacloban City, academic and private professional and expert consultants) versus general
impressions (opinions, hearsays and subjective observations of non-participants); and investigated
only the behaviors which competent observers feel contribute to the activity under study.

The cohorts defined the barangay officials’ behaviors and competence; determined the
Yolanda incident, level of vulnerability & preparedness through established data sets, data
gathered and processed and methods and data analysis procedures.

In conclusion, there is a significant relationship between the competence and socio-

demographic variables and the incident that resulted to a number of deaths and injuries which
could be determined by the level of preparedness and level of vulnerability, and further the
difference of weighted Means of 2010/12 and 2014/15 Barangay Vulnerability and Preparedness
levels is related to the predictors.

There is significant difference between the 2010/12 and 2014/15 Barangay Vulnerability
and Preparedness level in relation to Barangay officials’ competence and socio-demographic status
of barangays.

Thus, the null hypotheses of the study, considered as false, are rejected and accepted the
alternative hypotheses as true.

In legal perspective, a legal maxim says “ignorantia legis neminem exusat” or ignorance
of the law excuses no one. However, managerial and leadership ignorance or incompetence is not
against nor a violation of the laws. The researcher analyzed the data gathered and processed and
found out that at present time, the levels of knowledge and behavioral aspect of the barangay
officials are at Intermediate level. These mean a lot in barangay community situations. The
barangay officials have direct relationship and effects to the communities. The barangay
communities in general are still at High Vulnerability Level and Not Prepared Status. Barangays
have minimal achievements that show inadequate levels of adherence to requirements.
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Recommendations
Training in Organizational Culture is important, it is the link between the organization of
work and the organization of culture, and was rather envisaged by Gramsci as the new
‘professional culture’, the new technical and vocational preparation needed by manpower (from
the skilled worker to the manager) to control and to lead development, as well as the society which
this development inevitably generates (Agustin, 2015).

The low level of competency (intermmediatethat resulted to disaster is not found by the
researcher as liability but opportunity for collaborative undertakings.

Barangay communities will be ideally resilient by having a common organizational culture.

Aspirations for a safe, worry-free and happy community is a culture. Training is one of the
strategies of uniting people with diverse skills, interests and subcultures. The researcher prescribes
the following:

1. Tacloban City Executive Case Study (Sendai Framework, 2015) for the systematic and
cyclical measurement, monitoring and reporting of progress in achieving the set goals and
objectives with 7 Targets (1, global disaster mortality reduction; 2. Global disaster-
affected people reduction; 3. Disaster economic loss reduction; 4. Reduce disaster damage
to social and economic infra and services disruption; 5. Increase the national and local
disaster risk reduction strategies; 6. Enhance international cooperation; and 7. Increase
the availability and access of DRRM resources) and 4 Priorities of Action (1.
Understanding disaster risk; 2. Strengthening governance; 3. Investing in risk reduction
and resiliency; and 4. Build Back Better for the improvement of preparedness level and
resiliency) as guidelines in formulating capacity development programs and policy, and
(employment rate and individual income and savings-critical);

2. Training (series and programmed Executive and Managerial Level);

3. Seminar-Workshop (Benchmarked Situations and respective local situations and dynamic

alternatives, series and programmed); and

4. Specific, Measurable, Attainable, Realistic and Time-bounded (SMART) Output.

The researcher highly seeks the attention of the concerned authorities particularly the Chief
Executive of Tacloban City, CDRRMC, DILG City Operations Officer and BAO overseers to
adopt and implement the prescribed alternative course of actions to be executed in partnership with
the Division of Management, University of The Philippines in the Visayas Tacoban College.
 10

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