Analysis on

Local Policies Related to Climate Change Adaptation and Disaster Risk Reduction
Situational Analysis of the Economic sector of Municipality of Palanas, Masbate

December 3, 2021

Kaaia Hymna Tala G. Endaya

Marlon Garcia
Mark Yvanne A. Mendres
Ariessa Adelei S. Serquina
Rani Amor B. Serquina
Eunice Karla Suza

HUME 123-T

Submitted to Prof. Maria Emilinda Mendoza in partial fulfillment of the requirements of

HUME 123: Climate Change Adaptation and Disaster Risk Reduction in Human Ecosystems
I. Trigger Factors of Disasters and its Effects on Human Lives and Livelihood

The Municipality of Palanas is a fourth-class municipality in Region V, Bicol Region.

Fourth class municipalities are provinces and cities with an average annual Php 10 million or
more but less than PhP 15 million. Palanas ranks 522nd out of all the cities and municipalities
of the country in terms of economic dynamism (Department of Trade and Industry, n.d).

The Municipality of Palanas primarily supports its population of 26,222, with

agriculture as one of its major assets and potential ecotourism sites. However, these are not
enough to assist its people when disasters form and sometimes lead to losses and damages
of human lives and property.

Palanas’ geographical location is prone to storm surges, tsunami, etc. The

settlements within the municipality, especially the urban areas, are usually coastal
barangays and these barangays are very vulnerable to high storm surge levels and flooding.
For example, according to Lapidez et al. (2015), Masbate is at risk of a maximum surge
height of 5.45, affecting its population density by 100-250 per km2. With a high vulnerability
like this, other trigger factors affect how Palanas deal with the formation of natural disasters.

Food security and limited employment and livelihood opportunities

Disasters directly impact farmers, fishers, and other small communities in developing
countries (FAO, 2015). The municipality’s working population generally focuses on farming,
livestock, poultry raising, and fishing. Palanas depend on agricultural production; however,
their volume and value fecrease each year, and their soil productivity declines. This case
threatens the municipality’s food security, nutrition, agriculture, and food safety/public health
(FAO, 2015). Since opportunities are lacking in the city, there is high dependence on
conditional cash transfer programs (i.e., 4Ps) among the population of Palanas, and 41% of
the total municipal households are listed as beneficiaries of the said program.

Poor communications network

Investments are lacking to improve the network and communication services in

Palanas. This serves as one of Palanas’ major concerns, especially during emergencies.
Moreover, the risk associated with communication failures, especially in the interior
barangays of Palanas increases their vulnerability to damage since, in modern times, there
is a growing dependence upon these tools for emergency operations (Townsend & Moss,
2005).

Transportation
 The need for transportation for mitigation of, response to, and recovery from
disasters and emergencies is also a concern of the municipality. Palanas is primarily
dependent on tricycle and habal-habal, and these are not enough to cater to the needs of
the entire municipality in times of disaster. According to the U.S Department of
Transportation (2020), the role of transportation management centers during emergencies is
vital. It must undergo planning, training, and practice to ensure efficient and effective
handling of incidents. These are all necessary to avoid worst-case scenarios.

Lack or Insufficient Legal Instrument to guide the development of the municipality

Since the geographical location of the Municipality of Palanas is highly susceptible to

natural disasters like tsunami, storm surge, flooding, etc.; plans like coastal resource
management and comprehensive development plan should be within reach and discussed
thoroughly; however, these are what the municipality lacks. It risks the people, livelihood,
etc. of the municipality as these management and development plans encompass strategies
on how to achieve an orderly development that may include dealing with factors that lead to
the formation of disaster/s that result in losses/damages to human lives and property.

II. Academic Disciplines towards Understanding DRM/CCA

In order to address the issues brought about by trigger factors, various disciplines are
necessary to understand the problems better. On a larger scale, prioritizing the overall
resilience of a community rather than concentrating on the response can help a community
bounce back better. Although response and adaptation are essential, complementing them
with the prevention, mitigation, and preparedness is the key to achieving sustainable
development regarding disasters happening on an immediate or long-term level. Generally,
as communities adapt to disasters, they encountered from the past, looking at the large
array of data guide communities to apply initiatives that allow them to pass from a
challenging situation and learn from failed approaches. Disciplines such as Human Ecology,
Sustainability Science, Data Science, Public Administration, and Environmental Planning
can provide beneficial approaches regarding community resilience.

For instance, when it comes to natural hazard, Climate Disaster Risk Assessment
(CDRA) is important in determining both the level of risks and vulnerabilities that would lead
to the recommendation of programs and projects that will help cater major decision areas:
this involves the six major steps that facilitate the identification of priority decisions (Climate
Change Commission, CRDA). Furthermore, mainstreaming Climate Disaster Risks in
Comprehensive Land Use Planning will serve as an instrument in promoting sustainable
development; integrating the linkages of CLUP in the local sector development would help
address the climate and disaster risks. Moreover, academic disciplines like Community and
Regional Planning can guide the local government and initiate programs in Climate Change
Adaptation- Disaster Risk Reduction for policy creation, development, and implementation to
make Palanas a resilient municipality.

In particular, disasters have a negative impact on the economic systems of a

community, specifically the loss of jobs, income, and property. Experts in the economy and
policymakers can analyze economic disruptions and may aid post-disaster recovery. A
particular example of this is the Disaster Risk Financing and Insurance Strategy established
in 2015. This will help ensure that the local sectors will develop sustainable financing
mechanisms. The Comprehensive Land Use Plan of Masbate 2020-2030 aims to guide the
municipality’s development, especially focusing on the economic sector with the help of
agriculture, which is the predominant sector within the municipality. The Provincial
Development and Physical Framework Plan is an essential guide for the existing trigger
factors to prevent and lessen the losses/ damages.

Overall, applying perspectives in Human Ecology and the academic disciplines

mentioned above can allow inclusive development and a grassroots approach wherein the
local government sector prioritizes feasible strategies to support the agriculture sector. One
of which is agriculture boosted by the tourism sector, improving economic opportunities and
promoting inclusive growth. This can help to support maximizing potential agriculture sector.
People empowerment such that skills development will increase the functional labor force.
Structure plan, ensuring the viability of the infrastructures: the demand for efficient building
facilities, improving road systems, protection of areas, etc.

III. Best Practices in the Economic Policy Arena of DRM/CCA

Economic policies are especially important in the discourse on climate and disaster
risk reduction management. Assessments on hazards and risks pinpoint the verity that the
scale and impact of disasters in a locality bank upon the vulnerability of its economy and its
people (Asian Development Bank, 2013). In this regard, national and local governments
have and should have developed economic safeguards for stability and for the community to
build back better amid disasters. Among the national policies set for DRM/CCA is the
Climate Change Act of 2009 (R.A. 9729) and the Disaster Risk Reduction Management Act
of 2010 (R.A. 10121). However, local policies at the LGU level provide more contextual
action steps in terms of economic safeguards based on the vulnerability of the locality
towards hazards and risks (National Disaster Risk Reduction Management Council, 2010).
 Among the best practices in the policy arena centering on economics, as observed,
is the thorough assessment of the economic impacts of disasters. Assessment on losses
has been proven to be a stimulus in addressing the climate change problems due to the
gravity of the casualties. National and local governments are now more aware of the loss of
economic opportunities if DRM/CCA is not given enough attention in policymaking and
implementation. With the enactment of laws, climate change projections have now been part
of DRM/CCA practices. In line with a thorough assessment of situational factors, hazard and
mitigation planning is also a central practice championed in DRRM/CCA policies. Economic
investments are now directed towards infrastructure development that is climate-resilient and
sustainable and conservation and protection of the natural environment. There is also a
substantial change in the funding for DRM/CCA at the national and local level, with the
provision of the Local Disaster Risk Reduction and Management Fund (LDRRMF). The
LDRRMF has allocated 70% for prevention, mitigation, and preparedness, while the
remaining 30% is for Quick Response Fund (QRF). Evidently, there are economic policies to
strengthen resiliency among localities (UN Office for Disaster Risk Reduction, 2019).

Zeroing on Palanas, Masbate, the best practices as laid out by national policies are
also evident in the development plan of the locality. The Comprehensive Land Use Plan
(CLUP) of Palanas, Masbate, for 2020-2050 has resulted from a thorough assessment of the
losses and impacts of climate change in the locality. With this plan and policy, some pillars
highlight economic resilience amid disaster, one of which is the provision of opportunities
among the marginalized subsectors in the community— namely, farmers and fisherfolk.
Furthermore, resource mobilization before disaster helps in funding DRM/CCA projects,
providing the people with better economic opportunities for them to sustain themselves, and
if ever, build back better come disasters. Success indicators are also indicated in the overall
plan to ensure that proper implementation of policies is met (Municipality of Palanas
Government, 2019).

V. Economic Policy Gaps in DRM/CCA

The policies and plans present and enforced by the municipality are remarkable;
however, there are still some gaps identified in the economic sector. Although there are
already some pre-disaster mitigation policies, these are not enough to mitigate the
community’s losses and the minimal presence of post-disaster strategies to bring back the
economy efficiently (Betito et al., 2009).

One of the gaps in the mitigation is the implementation of agritourism, where specific
products will be produced by the different areas in the municipality (Municipality of Palanas
Government, 2019). This will encourage monocropping in these areas prone to soil
degradation that might reduce the profits earned from this specific agritourism plan in the
longer run. The study of Betito et al. (2009) recommended the usage of mono-cropping
techniques to solve soil degradation issues and sustainable farming practices because the
farmers use harmful fertilizers that lessen the soil quality and affect the water marine
ecosystem in the municipality. Additionally, it is linked to another main livelihood of the
residents in the community, which is fishing. The excessive usage of chemical fertilizers will
encourage algal bloom in the waters (Chakraborty, S., Tiwari, P.K., Sasmal, S.K. et al.,
2017), which would lower the number of fish in the sea. This traditional farming practice
alone affects two livelihood opportunities in the area, so the local government needs to
educate the farmers with sustainable farming practices and implement incentives and
subsidies for economic support. However, aside from the mentioned agritourism strategy,
there are still more sources for Agri and nature-based tourism, so these should be
considered and prioritized in the tourism scope. At the same time, the agricultural sector
should focus on long-term mitigation and adaptation practices for a more productive
economy.

Due to the decreased opportunities in livelihood, more residents have depended on

Conditional Cash Transfer Programs (Municipality of Palanas Government, 2019). This
dependence is detrimental to the economy; therefore, the municipality should invest in
livelihood programs for their residents and promote the products effectively with a
grass-roots form of development. The kind of livelihood programs to be implemented is also
not specified in the plans. The overall planning process would be more helpful if these were
identified to better direct community planning and preparations. However, it will be
challenging for the residents to promote their products if they cannot connect digitally
because their communications network is poor. Moreover, all of these livelihood initiatives
will be impeded if the local government does not allow enough budget to create roads and
pathways to exchange and distribute goods. Lastly, the kinds of infrastructure and
developments that are needed to be built or improved for the mitigation and adaptation were
not specified. This might prolong the process and conflict with the budget allocations for
DRM and CAA.

The absence of funding support in the municipality is one of the biggest problems in
the economy as a post-disaster strategy. With this, the existing loans taken by the residents
have quite a big interest that impedes or even halt their economic productivity. This should
be looked into by the local government. Furthermore, the kind of financial support and
investments should be implemented with collective action from the different financial sectors
in the community.
 To address these gaps effectively, the local government should budget their
expenses wisely following the projects needed with a balance in both pre-and post-disaster
strategies and work harmoniously and transparently with other departments and sectors to
minimize the impacts on the economy.

V. Transdisciplinary Approach in DRM/CCA

According to the definition of the United Nations International Strategy for Disaster
Reduction (2009), hazard refers to a threatening occurrence, substance, or material that can
be natural or man-made. It may cause loss of human life, injury, or illnesses. Hazard also
refers to possible property damage, economic loss, social disruption, or environmental
degradation. However, as these unfortunate phenomena happen in the form of a disaster,
human lives are affected. In fact, disaster can only occur when an event disrupts human
lives and livelihoods. Disaster impacts households, infrastructures, schools, health, and
economic systems (Reddy, 2011). Through these definitions, disaster risk reduction and
management are not only for a sole sector in society such as the government or health care
system. Hence, multiple disciplines and stakeholders are responsible for reducing and
managing hazards, risks, and disasters. In line with this, incorporating transdisciplinary
approaches and the field of human ecology provides resolution for the problem when it
occurs and prevents the happening of a dangerous event in the future.

In the climate and disaster risk assessment of Palanas, Masbate, hazards, and
disasters such as increased rainfall, flooding, ground shaking, landslides, and soil
liquefaction are identified. As discussed in the case, the impacts of the disasters mentioned
above are not limited to the physical well-being of people living in the community.
Community functions, livelihood, and household disruptions are also existent. For instance,
increased rainfall induces flooding, which damages crops and livestock. Flood also impose a
hindrance for farmers to perform their agricultural work. Hence, the disaster leads to poor
harvest and loss of income (Betito et al., 2009). Furthermore, the disaster also lessens
economic opportunities through damaging infrastructures and limiting tourism activities in the
affected areas. People are hindered from performing the functions of their jobs because they
need to protect themselves first (Johnson, 2017). By looking through a transdisciplinary
human ecological lens, people can understand how each system relates to another. For
example, an intensive study that uses tools like focus group discussions can thoroughly
identify hazards and vulnerable sectors, then connect past and present local initiatives to
assess the overall capacity of a certain community. Experts are bound by what people need
by reaching people at the grassroots level. Furthermore, through a transdisciplinary
approach, the locals are treated as a source of information and as experts who construct
new knowledge in the field in which they belong and act to find a solution for their particular
concerns.

VI. Recommendations to DRM and CCA Policies and Practices

According to Mami Mizoturi, Special Representative of the Secretary-General for

Disaster Risk Reduction and Head of UNDRR, there is no denying that disasters of any kind
are expensive both to human life and economies. She also described the vicious cycle of
disaster > response > dependency > repeat. While this phrase looks at development as
something that cannot stop the havoc that disasters bring, there is some sort of truth in this
cycle. Disasters are not something we can control or stop, but how we improve how we
respond is in our power.

Palanas, Masbate, is an area vulnerable to many disasters and hazards such as

landslides, flooding, ground shaking, soil liquefaction, etc. But, they have existing DRM and
CCA Policies that help them through each disaster that comes their way, all of which can be
further strengthened and improved. Therefore, for better strategies for disaster risk
management and climate change action, the recommendations will enhance existing policies
and practices, particularly the four priority thematic areas.

Disaster Prevention and Mitigation

At present, the first thematic area involves the assessment of infrastructure,

construction of access roads, box culverts, spillways, and the construction of slope and
riprap. Additionally, early warning systems are also present in various areas, especially
those in high-risk locations. However, precautions were mainly focused on infrastructures
according to what was observed. Therefore, some of the recommendations for disaster
prevention and mitigation are to thoroughly assess those infrastructures and implement
reconstructions or renovations if necessary. In addition, some materials like plywood and
substandard materials are vulnerable to many disasters and threaten people’s safety, so it is
best to replace infrastructures made out of these materials with something steadier.

Moreover, besides focusing on infrastructures, conducting surveys on the

population’s needs is also essential. With insights and experiences from past disasters and
worries and needs in future situations, hearing what the people have to say is vital in making
policies and plans that can cater to their worries and needs. Regular conducting climate
change vulnerability assessment (CCVA) and Disaster Risk Assessment (DRA) is also
advised to change or retain plans accordingly. It is important to note that during disasters,
one of the most affected is the economic sector of an area, so reducing the damage that
infrastructures can have is one of the best ways to prevent greater losses.

Disaster Preparedness

Currently, the second thematic area focuses on conducting regular meetings and
training that may come in handy during the disaster. Examples of these are evacuation
preparedness, first-aid training, lifeguard training, and search and rescue operations
orientations. In addition to that, the acquisition of search and rescue equipment is also
prioritized.

When it comes to strengthening the disaster preparedness thematic area, it is

recommended to make sure that training and seminars conducted are attended by the
majority of the population, especially those in far-fetched areas and high-risk locations.
Moreover, disaster preparedness should also iconstantly remind peoplewhere they can ask
for help and assign various emergency hotlines for them to contact. Furthermore, concerning
disaster preparation and mitigation, part of disaster preparedness is reinforcing practices to
protect and lessen possible damages and losses. Furthermore, when it comes to disaster
preparedness for the economic sector, training and seminars regarding how to protect their
means of livelihood, such as crops, poultry, and other means of livelihood, are
recommended.

Disaster Response

The third thematic area contains a lot of policies and practices, all of which are
helpful during a disaster. For example, at present, disaster response in the municipality of
Palanas includes public advisories, relief goods distribution, evacuation, relief shelters,
spaces to keep livestock safe, medical consultations, and damage repairs and clearing
operations.

Regarding the disaster response, it is recommended to go through all the plans

annually to check if aspects might be overlooked. Reports regarding these should also be
analyzed and compared with previous ones. While saving and tending to everything and
every one is essential, having annual reports and analyzing the impacts of a particular policy
or practice can help LGUs improve their disaster response plans and strategies.

Disaster Recovery and Rehabilitation

 Currently, the fourth thematic area involves conducting Post-Disaster Needs
Assessment (PDNA), restoration and revival of livelihood activities, relocation sites,
rehabilitation, and improvement and repair of infrastructure facilities.

Some of the recommendations regarding this aspect include making reports about
the damages and marking areas damaged the most. This will be helpful when it comes to
future planning so that the risk of damaged infrastructure and a threat to the safety of people
can be mitigated. Since one of the most vulnerable population sectors is informal settlers,
conducting assessments and making reports about these will be handy for future policies,
practices, and projects.

Overall, it is recommended that the focus is on pre-disaster mitigation above all.

While disaster response and disaster recovery and rehabilitation are essential, reducing the
possibility of greater risks and damage should come first. Additional recommendations are to
conduct and update mapping and status of the area and make progress reports about
infrastructures that can be considered safe and sturdy. Conducting thorough assessments,
interviews, and surveys will also benefit the LGUs. After all, the grassroots approach is one
of the essential things to utilize when planning.

VII. Word Cloud

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