Phivocs Philippines Manila Earthquake Damage Scenario

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Chapter 2. Earthquake Damage Scenario Final Report CHAPTER 2. 2.1 2.1.1 EARTHQUAKE DAMAGE SCENARIO Earthquake Scenario Setting and Ground Motion Fault in the Philippines The Philippines is located in latitude 5° to 19°45' N. and longitude 116° to 128° E. Metropolitan Manila is located in the center of Luzon Island, between Manila Bay, which extends to the South China Sea, and Laguna de Bay. Many earthquake generators are distributed all over the country as shown in Figure 2.1.1. Figure 2.1.1 Source : PHIVOLCS Geological Faults in the Philippines -2-1- Earthquake Impact Reduction Study for Metropolitan Manila in the Republic of the Philippines 2.1.2 Earthquake Generators The Eurasian Plate (or South China Plate) subducts eastward beneath Luzon Island along the Manila Trench, and the Philippine Sea Plate subducts westward along the East Luzon Trench simultaneously as shown in Figure 2.1.2. Because of this complex tectonic setting, Luzon Island shows high seismic activity. The Philippine Islands are sandwiched between two opposite subduction zones. A long, inland Philippine Fault Zone (PFZ) lies parallel to the subduction trenches. The PFZ is assumed to release the shear stress caused by the oblique subduction of the ocean plates. Many faults are identified around Metropolitan Manila; the West Valley Fault (WVF) and the East Valley Fault (EVF), which run north to south along the west and east edge of the Marikina Valley, are thought to pose the greatest threat to Metropolitan Manila due to their proximity. Figure 2.1.2 Source: PHIVOLCS Subducting Plates under Luzon Island The faults and trenches around Metropolitan Manila are shown in Figure 2.1.3. The fault traces based on geological survey (bold lines) are used for the analysis of inland fault and the fault traces based on seismic activities (thin lines) are used for the analysis of offshore fault. Results of several trenching excavation surveys at WVF and EVF indicate that at least two or perhaps four large surface-rupturing events have occurred since AD 600. Therefore, the recurrence interval of the earthquakes generated is less than 500 years. Bautista (2000) has suggested that the 1658 and 1771 earthquakes could be candidate events for the EVF. However, no event along the WVF is known. If no earthquake had occurred at the WVF after the 16th century, then the earthquake occurrence along the WVF becomes a serious threat. -2-2- Final Report Figure 2.1.3 Source: PHIVOLCS Distribution of Faults and Trenches around Metropolitan Manila 2.1.3 Earthquake Condition The earthquakes that occurred before the start of instrumental seismic observation are called historical earthquakes. The distribution of collected historical earthquakes is shown in Figure 2.1.4 and the instrumentally recorded earthquakes after 20th century is shown in Figure 2.1.5. M.L.P. Bautista (2000) has selected 36 historical and recent earthquakes that caused some damage to Metropolitan Manila. These 36 events are listed in Table 2.1.1 and the years of their occurrence are shown in Figure 2.1.4 and Figure 2.1.5. The events, those with year of occurrence underlined in Table2.1.1, are the 10 most damaging earthquakes to Metropolitan Manila. In the five events in 1658, 1771, 1863, 1880 and 1937, shaded by dark gray in Table 2.1.1, Metropolitan Manila is supposed to have experienced over 100 gal PGA on average ground condition. As for the source fault of these earthquakes, M.L.P. Bautista (2000) has supposed EVF as the source fault of 1658 and 1771 event, Infanta Segment of PFZ as the source fault of 1880 event and Laguna-Banahaw Fault that runs north to south along the east coast of Laguna Lake as the source fault of 1937 event. In these 36 hazardous earthquakes, only the 1677 event and the 1863 event have the description of tsunami around Metropolitan Manila. Those faults are listed as the source faults of the scenario earthquakes. -2-3- Earthquake Impact Reduction Study for Metropolitan Manila in the Republic of the Philippines Table 2.1.1 Year 1589 1599 1601 1603 1635 1645 1658 1664 1665 1674 1677 1728 1767 1770 1771 1796 1824 1828 1830 11 8 7 7 12 11 11 12 2 11 10 11 1 6 1 Month Destructive Earthquakes that Affected Metropolitan Manila and Estimated PGA Day 21 1 Ms Distance(km) PGA(gal) 4.1 Year 1833 1852 1862 1863 1869 30 19 19 19 7 28 13 1 5 26 9 18 5.0 6.9 7.4 6.6 6.3 7.3 163.8 18.9 41.1 41.1 14.1 179.2 103.2 190.3 94.2 113.2 16.5 69.8 11.1 34.3 27.9 7.9 5.7 116.3 12.5 81.0 202.6 1880 1892 1937 1942 1968 1970 1970 1972 1973 1974 1977 1990 1994 1999 Month 11 9 3 6 10 7 3 8 4 8 4 4 4 3 2 3 7 11 12 Day 7 16 4 3 1 18 16 20 8 2 7 12 26 17 19 19 16 14 12 7.6 6.1 6.5 6.6 7.6 6.6 7.5 7.5 7.3 7.3 7.0 7.2 7.3 6.1 7.0 7.8 7.1 6.8 108.7 113.0 13.1 70.9 67.8 214.2 52.2 118.9 224.6 152.2 123.8 153.8 232.5 139.0 282.2 124.6 119.1 203.2 74.0 21.2 298.3 66.8 139.8 8.2 174.7 59.6 13.2 32.5 38.0 29.4 12.1 14.3 5.3 67.8 44.1 11.2 Ms Distance(km) PGA(gal) Source: PHIVOLCS and Study Team Figure 2.1.4 Distribution of Historical Earthquakes from 1608 to 1895 Source: M. L. P. Bautista and Oike K. (2000) -2-4- Final Report Figure 2.1.5 Distribution of Instrumentally Recorded Earthquakes from 1907 to 2002 Source: PHIVOLCS 2.1.4 Scenario Earthquakes A total of 18 scenario earthquakes were set. Three types of fault length were used for the West Valley Fault (WVF) considering the low continuity in the north and south. Tsunami was evaluated for the movement of Manila Trench and re-occurrence of 1863 earthquake. The source faults of scenario earthquakes are shown in Figure 2.1.6. The black solid line and shaded area show the fault of scenario earthquakes. The precise fault parameters are shown in Table 2.1.2. The empirical formula by Wells and Coppersmith (1994) was used to calculate the earthquake magnitude and fault width from fault length. -2-5- Earthquake Impact Reduction Study for Metropolitan Manila in the Republic of the Philippines Figure 2.1.6 Scenario Earthquake Fault Models for Hazard Estimation Source : PHIVOLCS and Study Team -2-6- Final Report Table 2.1.2 Fault Model Parameters of Scenario Earthquakes for Hazard Estimation Fault Length (km) Fault Width (km) Dip Depth Angle (km) Past Earthquakes along the Fault Y.M.D Ms No. Fault Name Tectonics Style Magnitude 1 2 3 4 5 6 7 8 9 PFZ: Digdig Segment PFZ: Infanta Segment PFZ Ragay Gulf Segment Casinguran Fault E-W Transform Fault East Luzon Trough West Valley Fault Crustal Crustal Crustal Subduction Crustal Subduction Crustal Crustal Crustal Crustal Subduction Subduction Crustal Crustal Crustal Crustal SS SS SS R SS R SS SS SS R R R SS SS SS SS 7.9 7.6 7.6 7.8 7.0 8.0 6.8 7.2 7.4 6.3 7.5 7.5 7.9 7.9 7.4 7.7 7.5 6.5 115 125 137 200 44 275 30 67 96 10 56 120 255 227 110 175 116 15 26 27 28 58 17 71 15 21 24 9 19 42 68 63 26 31 26 11 90 90 90 45 90 25 90 90 90 90 40 35 90 90 90 90 2 2 2 35 0 0 2 2 2 0 40 35 2 0 2 2 1645.11.30 1990.07.16 1880.07.18 1824.10.26 1973.03.17 1968.08.01 1970.04.07 1970.04.12 7.9 7.8 7.6 7.4 7.3 7.3 7.3 7.0 1658.08.19 1771.02.01 1937.08.20 1677.12.07 1972.04.25 1942.04.08 1863.06.03 5.7 5.0 7.5 7.3 7.2 7.5 6.5 10 East Valley Fault 11 Laguna-Banahaw Fault 12 West Boundary Fault 13 Manila Trench (16-14N) 14 Manila Trench (14-12.5N) 15 East Zambales Fault 16 Lubang Fault 17 Central Mindoro Fault 18 1863 Earthquake SS : Strike Slip, R : Reverse Fault 2.1.5 Earthquake Ground Motion The distribution of ground motion, seismic intensity, liquefaction potential, and slope stability were calculated for these 18 scenario earthquakes. Three modes, model 08 (West Valley Fault), Model 13 (Manila Trench), Model 18 (1863 Manila Bay), are selected for detailed mage analysis because these scenario earthquakes show typical and severe damages to Metropolitan Manila. The distributions of the seismic intensity in PHIVOLCS Earthquake Intensity Scale (PEIS) for the three models are shown in Figure 2.1.7. Table 2.1.3 shows definition of the PEIS. Corresponding Modified Mercalli Intensity (MMI) and Japan Metrological Agency Intensity (JMAI) are included in the table. -2-7- Earthquake Impact Reduction Study for Metropolitan Manila in the Republic of the Philippines Table 2.1.3 Intensity Scale I II III PHIVOLCS Earthquake Intensity Scale (PEIS) Description MMI I II III JMAI 0 1 2 Scarcely Perceptible - Perceptible to people under favorable circumstances. Delicately balanced objects are disturbed slightly. Still Water in containers oscillates slowly. Slightly Felt - Felt by few individuals at rest indoors. Hanging objects swing slightly. Still Water in containers oscillates noticeably. Weak - Felt by many people indoors especially in upper floors of buildings. Vibration is felt like one passing of a light truck. Dizziness and nausea are experienced by some people. Hanging objects swing moderately. Still water in containers oscillates moderately. Moderately Strong - Felt generally by people indoors and by some people outdoors. Light sleepers are awakened. Vibration is felt like a passing of heavy truck. Hanging objects swing considerably. Dinner, plates, glasses, windows and doors rattle. Floors and walls of wood framed buildings creak. Standing motor cars may rock slightly. Liquids in containers are slightly disturbed. Water in containers oscillate strongly. Rumbling sound may sometimes be heard. Strong - Generally felt by most people indoors and outdoors. Many sleeping people are awakened. Some are frightened, some run outdoors. Strong shaking and rocking felt throughout building. Hanging objects swing violently. Dining utensils clatter and clink; some are broken. Small, light and unstable objects may fall or overturn. Liquids spill from filled open containers. Standing vehicles rock noticeably. Shaking of leaves and twigs of trees are noticeable. Very Strong - Many people are frightened; many run outdoors. Some people lose their balance. motorists feel like driving in flat tires. Heavy objects or furniture move or may be shifted. Small church bells may ring. Wall plaster may crack. Very old or poorly built houses and man-made structures are slightly damaged though well-built structures are not affected. Limited rockfalls and rolling boulders occur in hilly to mountainous areas and escarpments. Trees are noticeably shaken. Destructive - Most people are frightened and run outdoors. People find it difficult to stand in upper floors. Heavy objects and furniture overturn or topple. Big church bells may ring. Old or poorly built structures suffer considerably damage. Some well-built structures are slightly damaged. Some cracks may appear on dikes, fishponds, road surface, or concrete hollow block walls. Limited liquefaction, lateral spreading and landslides are observed. Trees are shaken strongly. (Liquefaction is a process by which loose saturated sand lose strength during an earthquake and behave like liquid). Very Destructive - People panicky. People find it difficult to stand even outdoors. Many well-built buildings are considerably damaged. Concrete dikes and foundation of bridges are destroyed by ground settling or toppling. Railway tracks are bent or broken. Tombstones may be displaced, twisted or overturned. Utility posts, towers and monuments mat tilt or topple. Water and sewer pipes may be bent, twisted or broken. Liquefaction and lateral spreading cause man- made structure to sink, tilt or topple. Numerous landslides and rockfalls occur in mountainous and hilly areas. Boulders are thrown out from their positions particularly near the epicenter. Fissures and faults rapture may be observed. Trees are violently shaken. Water splash or stop over dikes or banks of rivers. Devastating - People are forcibly thrown to ground. Many cry and shake with fear. Most buildings are totally damaged. Bridges and elevated concrete structures are toppled or destroyed. Numerous utility posts, towers and monument are tilted, toppled or broken. Water sewer pipes are bent, twisted or broken. Landslides and liquefaction with lateral spreadings and sandboils are widespread. The ground is distorted into undulations. Trees are shaken very violently with some toppled or broken. Boulders are commonly thrown out. River water splashes violently on slops over dikes and banks. Completely Devastating - Practically all man-made structures are destroyed. Massive landslides and liquefaction, large-scale subsidence and uplifting of land forms and many ground fissures are observed. Changes in river courses and destructive seiches in large lakes occur. Many trees are toppled, broken and uprooted. IV IV 2-3 V V 3 VI VI 4 VII VII 4 VIII VIII, IX 5-6 IX X, XI 7 X XII 7 Source: PHIVOLCS web site, http://www.phivolcs.dost.gov.ph/Earthquake/Scale/peis.html MMI: Modified Mercalli Intensity JMAI: Japan Metrological Agency Intensity -2-8- Final Report Model 08 Model 13 Model 18 Figure 2.1.7 Distribution of Seismic Intensity in PHIVOLCS Earthquake Intensity Scale -2-9- Earthquake Impact Reduction Study for Metropolitan Manila in the Republic of the Philippines 2.2 2.2.1 Earthquake Damage and Urban Vulnerability Summary of Earthquake Damage Summary of earthquake damage for Model08, 13, 18 are shown in Table 2.2.1. Table 2.2.1 Model Summary of Earthquake Damage Model 08 7.2 Inland Fault Heavily 168,300 (12.7%) 339,800 (25.6%) 33,500 (0.3%) 113,600 (1.1%) 500 Wind Speed 3m/s 798 ha 42,100 buildings 1,710 ha 97,800 buildings 7,900 (0.1%) 18,300 (0.2%) Bridge Flyover Bridge Flyover 7 0 2 0 4000 points 30 km 95 km 8 - 10 % 20 – 25 % 11 % 27 % 2% 12 % 0 0 0 0 0 points 0 km 0 km 0 - 0.2 % 0 - 0.3 % 0.3 % 2.8% 0% 0.1% 0 0 2 0 200 points 4 km 11 km 0–1% 2 -3% 2.3 % 9.2 % 0% 0.5% Model 13 7.9 Subduction 1,900 (0.1%) 6,600 (0.5%) 100 (0.0%) 300 (0.0%) Model 18 6.5 Unknown 14,200 (1.1%) 52,700 (4.0%) 3,100 (0.0%) 9,500 (0.1%) - Scenario Earthquake Magnitude Fault Mechanism Residential Building 1,325,896 Damage Partly Dead Casualty Injured Population 9,932,560 Outbreak Fire Burnt area and building Wind Speed 8m/s Casualty Wind Speed 3m/s Wind Speed 8m/s Large possibility of falling-off Moderate possibility of falling-off Bridge 213 (with detail inventory and stability analysis 189) Flyover 80 (with detail inventory and stability analysis 38) Water Supply Distribution Pipes Total 4,615km Break of pipes or joints Cut of cables Cut of cables Heavily Damaged Partly Damaged Heavily Damaged Partly Damaged stories 119 Heavily Damaged Partly Damaged Electric Power Transmission and Distribution Line Total 4,862km PLDT Telephone Aerial Cable 9,445 km Underground Cable 3,906 km Public Purpose Buildings (Hospital 177, School 1412, Fire Fighting 124, Police 43, MMDCC Organizations and 17 LGU City and Municipal Halls 53) Mid-rise Buildings and High-rise 10-30 building 30-60 building stories 981 Source: Study Team -2-10- Final Report 2.2.2 Earthquake Damage Scenario During One Week from Occurrence of Earthquake Earthquake damage scenario for Model 08 is shown in Table 2.2.2. Basic Condition Scenario earthquake: Model 08 (West Valley Fault, Magnitude 7.2) Occurrence of earthquake: 7PM, wind speed 8m/sec. Damage amount and situation are presented Section 2.1 and 2.2. These are translated into a script for better understanding. Lynn Paladio-Melosantos of PHIVOLCS, based upon damage data, developed the script. Script contents were discussed with the Study Team before being finalized. -2-11- Table 2.2.2 Earthquake Damage Scenario Basic Condition 1-24 hours 1-3 days 3-7days 7days after -Scenario earthquake: Model 08 (West Valley Fault, Magnitude 7.2) -Occurrence of earthquake: 7PM, wind speed 8m/sec. Items 0-1 hour Buildings Residential houses Table 2.2.2 Hospital, school, fire fighting, police, government • 170,000 heavily damaged or collapsed (13% of total • Aftershock causes further building damage • Debris removal buildings) • 1,260,000 people lost their residential house (people living in collapsed • 340,000 moderately damaged (26% of total buildings) or heavily damaged residential buildings) • 10,000 Liquefaction affected building alongside of Manila Bay • Damage ratio of concrete-made buildings is 9%, wooden-made buildings is 16% • Damage ratio in squatter building is 27%. • These figures include damaged caused by aftershocks • 8 – 10% heavily damaged or collapsed • Residents begin to • Public buildings are occupied with refugees • Temporary evacuate to slightly repairs initiated • 20-25% moderately damaged • Staffs can not reach to the Buildings damaged public • Debris removal • Official function severely limited buildings • Official function severely limited Earthquake Impact Reduction Study for Metropolitan Manila in the Republic of the Philippines Earthquake Damage Scenario -2-12- Mid-rise and • 11% heavily damaged or collapsed, 27% moderately • Many people are • Collapse of moderately damaged buildings by series of aftershocks High-rise damaged for total of 1000 10-30 stories building trapped in elevators by • No power and water supply in not severely damaged buildings electric power failure • Habitation impossible in high-rise residences • 2% heavily damaged or collapsed, 12% moderately damaged for total of 100 30-60 stories building • Damage expands by aftershocks Casualties Dead Injured • 34,000 dead, 90% of dead from pressure of collapsed • 20,000 trapped in damaged building burnt to • Persons trapped in the • More dead bodies building death collapsed building are are dug out all dead. • This figure includes trapped persons who are not • Burnt to death in squatter area occurs rescued from collapsed buildings and die. • Some dead bodies are • Building Collapse by aftershocks make dug out further dead people • Number of dead is small in squatter area • Absolute limitation of burial • Death of heavily injured persons as to limitation of appropriate medical treatment • 110,000 people with non-life-threatening injuries • Non structural • Many crush • Limitation of clean water elements fall from syndromes occur • Patients increasing by contamination, • Trauma, fracture of a bone, visceral cleft caused by mid-rise and high-rise to the rescued collapsed building and falling furniture unsanitary living conditions, especially in buildings from collapsed infants • Non structural elements fall from mid-rise and building high-rise buildings • Wounds become infected Items 1-24 hours 1-3 days 3-7days 7days after 0-1 hour Fire Outbreak of Fire • • • • • • • Fire hydrants incapable • Fire engine unreachable to the fire areas because of congested or debris-blocked roads • Fire fighting system incapable • 100,000 (7%) residential building in 1,700 hector area burned out • Heavy smoke causes respiratory illnesses • Fire almost extinguished Total 500 fire outbreak by electricity short circuit • Explosion of LPG and petroleum and tanks • New fire outbreaks occur by short circuit of by spreading of fire around resuming of power supply 70 in Manila, 60 Quezon, 50 in Pasig Fire from Factories, Hospitals, Residential Kitchens • Magnification of fire spreading Petroleum leakage from storage tank LPG leakage from storage tank Spread of • Not occurred yet Fire Lifelines Water Supply • Failure of water supply caused by damage to water supply pipe at 4,000 points • Failure of water supply over the whole city • Damages to Angat reservoir and water purification plant causes stopping of water supply for long term Electricity • Electric transmission facilities, electric transformer • Power failure over • Partially • Damages to transformer Supply substation on the fault is damaged the whole city recovering in area substation is not of building recovered • Total 30km snapping of cables • Damaged area • Power failure continues • Many snapping of cables caused by building collapse expands by spread of damage is not severe fire over the whole city -2-13- Telephone • Total 100km snapping of cables • Telephone services • Partially recovering applying emergency backup generators • Many snapping of cables caused by building collapse suspended over the • Limitation of available fuel for the generator whole city • Cellular phone broken off as results of damages to base transceiver station • Suspended area • Limited time of telephone expands by spread of • Telephone and cellular phone service is congested and out of use fire • Closure of runway • Runway reopening • Only helicopter • Incapable Instrumental landing system by electricity problem available • Poor visibility by fire • Only daytime visual flight haze • General shipping impossible to come alongside the pier • Incapable loading and unloading Transportation Airports • Runway slightly damaged • Some loss of function in airport facilities Ports and Harbors • Wharfs in Northport, Southport and Container terminal are damaged and tilted by liquefaction • Damages to cargo-handling machine Roads and • Total of 9 bridges damaged Bridges • One in Pasig River, One in Marikina River, One in Manggahan Floodway Central Government • Fire occurs from • Almost all roads are occupied with vehicles vehicles left on roads • Almost all roads are disabled • Many people having difficulty in returning to their residence • Residential buildings around the Maracanang Palace, • Danger to fire • Public buildings are occupied with refugees the Upper House are severely damaged spreading to the • Staffs can not reach to the Buildings Maracanang Palace • Official function stopped • Liquefaction around The Lower House area • MMDA building severely damaged Final Report Earthquake Impact Reduction Study for Metropolitan Manila in the Republic of the Philippines 1) Day 1 Evening. August 26, 2003 is a typical Tuesday, the traffic, the crowd, the sunset at 6:14 as announced by PAGASA. Except that today you are not coming home from work, but from the WORKSHOP at Shangrila Hotel. You are almost home, looking forward to a simple tinolang manok that you know is stewing in your kitchen. You get off from the bus and navigate your village road. As you are walking the last few meters to your gate, you feel a sudden jolt. It sort of pushes you forward. At first you don’t know what it is. But the ground continues shaking, up and down, sideways, getting stronger every second. You fall to the ground, unable to keep standing. You hear a booming sound. You hear screams from people inside their homes. You hear breaking glasses. Telephone and power poles sway violently. Then the power goes off. In front of you, the village road is heaving, as if you are riding waves. The strong ground shaking goes on for 50 seconds. It is the longest 50 seconds of your life. The ground shaking has stopped but you remain on the ground, still feeling dizzy. You try to get up, your knees shake under you. People start pouring out of their homes. Panic and confusion are everywhere. Occasional cries and wails add to the confusion. Around you are toppled poles and fences, collapsed houses, cracked roads, broken water pipes. You go home as quickly as you can. You recognize your family amongst the crowd on the village street. They are all home, shaken but unhurt. You let out a sigh of relief and say a prayer of thanks. But your family refuses to enter your home. A barangay leader gives instructions to you and your neighbors to move to the basketball court to keep away from objects that may fall or topple. You move your family as instructed. You try to make a call to other relatives but your mobile phone has no signal. Still you dialed a number. It didn’t work. You finally walked back to check your home. But home is something you barely recognize. Everything seems to be piled up on the floor – appliances, shelves, books, lighting fixtures, family portraits, clothes, your prized Jollibee collectibles, even the tinola dinner. Among the pile of mess on the floor, you pick up the old battery-operated transistor radio that your mother-in-law refuses to part with. You turn it on. At first you only get static. You play with the dials and catch this piece of news: PHIVOLCS issued a bulletin that says a devastating earthquake, with magnitude 7.2 generated by the nearby West Valley Fault, hit Metropolitan Manila. The ground shaking was felt at PEIS VIII in Metropolitan Manila. Weak to strong aftershocks are expected. You rummage for blankets and go back to the basketball court. You try to think happy thoughts knowing this would be a very long night. You stay tuned in to the radio. News trickles in. -2-14- Final Report - There is a major power outage in Metropolitan Manila as well as in the neighboring provinces in Luzon. Telephone lines, including cellular networks, are down. Many residential houses are heavily damaged and collapsed Some school buildings collapsed. A few hospitals are heavily damaged, ICU patients need to be transferred, and other patients need to be evacuated. Fires broke out in several residential clusters, chemical plants, and few other factories and hospitals. Hundreds, if not thousands, are estimated trapped dead or injured from collapsed or burning houses, buildings and factories. Abandoned cars, some damaged by falling objects, littered the streets of Metropolitan Manila. Within the next few hours after the earthquake, the National Disaster Coordinating Council convened. Not all the member agencies have representatives immediately available. 2) Day 2-3 You are one of the more fortunate. No one is injured in your household. But your house is damaged and you are not sure if it will survive the next strong aftershock. Also, food and drinking water are becoming scarce. The barangay leaders and community members work together to provide for everyone. Overnight you felt several moderate to weak after shocks. There is still no electricity, telephone communication, and water. Haze from burning buildings darkens the horizon. Fires still spread unabated. News reports give more dismal picture of the extent of damage brought by the earthquake: The President declares a state of calamity. She mobilizes the Armed Forces of the Philippines for rescue, clearing of debris, and construction of temporary shelters. She suspends schools and offices. Philippine flags fly at half-mast. PHIVOLCS confirms movement of the West Valley Fault after it conducted an aerial survey over Metropolitan Manila. Volunteer rescue groups from Olongapo and Baguio City coordinate with the NDCC. Back-up power generators are available only in critical public and private offices. -2-15- Earthquake Impact Reduction Study for Metropolitan Manila in the Republic of the Philippines There are more reports of collapsed houses, now numbering in the thousands, mid- to high-rise buildings, and major bridges Many roads are impassable. The LRT and MRT railways remain standing but not operational. Reports of casualties continue to rise to several thousands. Several thousand families have lost their homes and begin to occupy open spaces. People rescued from collapsed buildings show crush syndromes and given medical attention on site in temporary medical shelters. They cannot be transferred immediately to hospitals because ambulances cannot get through the roads littered with debris and cars. The police contain random acts of looting. 3) Day 4-7 You continue to occupy the basketball court. There is still no power, communication and water supply. In the tent clusters that sprouted in parks and other open spaces, the lack of clean water supply makes the outbreak of infectious diseases a threat. In hospitals, injured patients are lined up even along corridors. Again, the lack of clean water is a major problem. Many people, especially children, suffer from shock, traumatized by the strong ground shaking, the sight of destruction, or being temporarily trapped. Bodies exhumed from rubbles are lined up along the streets. The air has the distinct smell of decay. International volunteer rescue teams coordinate with the NDCC. Rescue will continue in the next few days. Clearing of debris will continue for several weeks to months. Bodies will continue to be recovered among building debris. Relief goods are distributed in evacuation centers. Some evacuation centers receive more relief goods than others. Neighboring Asian countries pledge and extend technical, medical and other forms of support. The Government appeals to those with capabilities to join forces in responding to the disaster. Recovery and rehabilitation will take years and years. -2-16- Final Report 2.3 2.3.1 Regional Urban Vulnerability Approach Understanding the urban earthquake vulnerability correctly together with urban structure is important in order to come up with appropriate measures for reducing level of vulnerability. In relation to this, regional vulnerability evaluation aims to achieve the following: 1) 2) 3) An index for planning an earthquake prepared city A reference for selecting the regions for establishing projects on earthquake measures, and A tool of understanding the urban earthquake vulnerability for the community members, to raise awareness Among the earthquake scenario prepared for this study, Model 08, the West Valley Fault model, will cause the most damages Metropolitan Manila. Once the urban structure is being prepared for the impact of the Model 08 earthquake, it will also be prepared for less destructive earthquake scenarios. Therefore, Model 08 was applied for consideration. Three indices, building collapse, flammability, and evacuation difficulty, were used for determining the existing vulnerabilities for earthquakes in the region. Lastly, an evaluation on the comprehensive regional vulnerability is also added to understand the foremost vulnerable areas within Metropolitan Manila. Simplified flow of this analysis is shown in Figure 2.3.1. Building Collapse - Number of building seriously damaged - Number of building moderately damaged Flammability - Flammable Area - Areas affected by the explosions Evacuation Difficulty - Number of building seriously damaged - Total length of road by width Comprehensive Regional Vulnerability - Building collapse - Flammability - Evacuation difficulty - Regional Vulnerability Characteristics - Possible Regional Separation Figure 2.3.1 Flow of the Regional Vulnerability Evaluation -2-17- Earthquake Impact Reduction Study for Metropolitan Manila in the Republic of the Philippines 2.3.2 Comprehensive Regional Vulnerability and its Characteristics Comprehensive regional vulnerability evaluation was done to show the areas with high vulnerability for all three kinds of vulnerabilities evacuation difficulty. The comprehensive evaluation gives an idea which areas of Metropolitan Manila have the highest vulnerability during earthquake occurrences. This is important for administrative and planning purposes, and for the awareness of community members of their living environment. Areas with high vulnerability are priority areas for consideration in plans to reduce the earthquake impacts. The characteristics of the comprehensive regional vulnerability are also expressed by integrating the result of three vulnerabilities. The figure of regional vulnerability characteristics (Figure 2.3.2 and Figure 2.3.3) are the simplified expression of the region, for people to understand easily the characteristics of the vulnerabilities facing the area. The three indices were accumulated and re-classified by equal intervals to indicate the degree of vulnerability. For the creation of regional vulnerability characteristics, areas with high vulnerability, for (ranks 4 and 5), for all indices on building collapse, flammability, evacuation difficulty, and comprehensive regional vulnerability were taken into account. Comprehensive Regional Vulnerability Figure 2.3.2 shows the comprehensive regional vulnerability. Warmer colored area shows higher vulnerable rank. This figure indicates that there are 9 areas to pay most attention to among the Metropolitan Manila as for the comprehensive regional vulnerability. summarized in Table 2.3.1. Table 2.3.1 1) Navotas Bay Area 2) Manila North Port Area 3) South Eastern Manila City Area 4) Central Manila Bay Area 5) North Eastern Quezon City Area building collapse, flammability, and, Those areas are Area of High Vulnerability 6) Western Marikina City Area 7) Eastern Pasig City Area 8) Muntinlupa Laguna Bay Area 9) Mandaluyong - Makati City Border Area Regional Vulnerability Characteristics Figure 2.3.3 shows the regional vulnerability characteristics. Metropolitan Manila has vulnerability characteristics as described in Table 2.3.2. -2-18- Final Report Table 2.3.2 Type of Vulnerability Flammability and Evacuation Difficulty Building Collapse and Evacuation Difficulty Flammability Evacuation Difficulty High Vulnerable Area by Type Area 1) Navotas Bay Area 2) Manila North Port Area 1) North Eastern Quezon City Area 2) Western Marikina City Area 3) Eastern Pasig City Area 3) South Eastern Manila City Area 4) Central Manila Bay Area 4) Muntinlupa Laguna Bay Area 5) Mandaluyong Makati City Border Area 1) Valenzuela-Kalookan South-Quezon west intersection 1) Metropolitan Manila Fringes - Northern Fringe - Taguig Fringe - Las Pinas Fringe 2.3.3 Possible Regional Separation The proposed emergency road network was overlain onto the comprehensive regional vulnerability map to determine the possible separation of areas in Metropolitan Manila because of earthquake impact. Results are shown in Figure 2.3.4. Obviously, roads crossing or passing through the high vulnerable areas are with a high probability of becoming impassable. Overall, by analyzing passable and impassible roads, it can be deduced that Metropolitan Manila will possibly be separated into four regions by the earthquake impact. Reasons for regional separation are summarized below. MM West Western part of Metropolitan Manila will be isolated from other part of Metropolitan Manila by fire and building collapse MM North, and MM South Northern and Southern part of Metropolitan Manila will be separated by the building collapse and the geographical condition. The area between Mandaluyong and Makati has a high possibility of building collapse; Moreover, Pasig River is running east-west which is naturally disadvantageous in terms of separation. MM East All road networks running east-west, which are on the fault will be broken due to the movement. Other roads running north-south near in fault areas will be difficult to use, due to the high number of building collapse. -2-19- Earthquake Impact Reduction Study for Metropolitan Manila in the Republic of the Philippines Figure 2.3.2 Comprehensive Regional Vulnerability Source: JICA Study Team Figure 2.3.3 Regional Vulnerability Characteristics Source: JICA Study Team Regional Vulnerability Characteristics Comprehensive Regional Vulnerability Source: JICA Study Team -2-20- Figure 2.3.2 Source: JICA Study Team Figure 2.3.3 Final Report Figure 2.3.4 Source: JICA Study Team Possible Regional Separation by Earthquake Impact -2-21- Earthquake Impact Reduction Study for Metropolitan Manila in the Republic of the Philippines 2.4 1) Facts and Damage Estimation by LGUs Social Condition (Population & Land Use Condition) of LGU Population 1995 2000 Populatio n Growth 95-00 Total Land Area (GIS) Residential Commercial Informally Area Residential Occupied Area Area (Ha) Ratio (%) Area (Ha) Ratio (%) Industrial Area Open Area (Parks, Open Spaces) Area (Ha) 247 125 177 403 666 11 696 116 2 1,008 667 189 926 593 353 4 158 6,341 Ratio (%) 6.0 11.3 7.8 12.6 4.0 1.8 15.6 2.2 0.2 92.1 20.7 5.9 24.3 13.0 19.9 1.8 5.8 Subdivision Area Ratio (Ha) (%) 224 245 916 581 4,792 140 1,496 161 34 378 1,576 784 1,255 1,524 11 4 181 5.4 22.2 40.5 18.2 29.0 23.8 33.6 3.0 2.1 34.6 48.8 24.5 32.9 33.4 0.6 2.0 6.6 City/ Municipality Area Ratio Area Ratio (Ha) (%) (Ha) (%) 8.5 17.7 9.4 19.8 5.2 4.2 9.2 4.9 8.8 96.9 5.9 2.1 7.9 7.2 1.5 0.4 12.4 9.0 Manila 1,654,761 1,581,082 Mandaluyong 286,870 278,474 Marikina 357,231 391,170 Pasig 471,075 505,058 Quezon 1,989,419 2,173,831 San Juan 124,187 117,680 Valenzuela 437,165 485,433 Kalookan 1,023,159 1,177,604 Malabon 347,484 338,855 Navotas 229,039 230,403 Las Pinas 413,086 472,780 Makati 484,176 444,867 Muntinlupa 399,846 379,310 Paranaque 391,296 449,811 Pasay 408,610 354,908 Pateros 55,286 57,407 Taguig 381,350 467,375 Total 9,454,040 9,906,048 -0.91 4,128 -0.59 1,107 1.83 2,265 1.40 3,188 1.79 16,533 -1.07 588 2.12 4,452 2.85 5,312 -0.50 1,596 0.12 1,095 2.74 3,227 -1.68 3,196 -1.05 3,813 2.83 4,561 -2.78 1,778 0.76 195 4.15 2,752 0.94 59,786 1,526 37.0 89 468 42.3 18 1,466 64.7 0.5 1,477 46.3 13 7,864 47.6 1,211 426 72.4 6 3,547 79.7 54 746 14.0 44 278 17.4 38 1,572 143.5 28 2,040 63.2 1,633 51.1 6 1,917 50.3 12 2,796 61.3 12 569 32.0 10 153 78.5 1,163 42.3 18 29,642 49.6 1,559 2.2 574 0.04 353 1.6 150 0.05 196 0.0 63 0.02 214 0.4 317 0.06 631 7.3 1,027 0.05 852 1.0 63 0.05 24 1.2 216 0.04 409 0.8 45 0.00 260 2.4 4 0.00 140 2.5 86 0.04 1,061 0.0 252 0.05 190 0.2 579 0.13 66 0.3 377 0.10 303 0.3 315 0.07 327 0.6 154 0.04 26 0.0 6 0.01 1 0.6 13 0.00 342 2.6 4,241 0.04 5,396 10.6 14,301 23.9 Source: JICA Study Team Note: 1) Population 1995, 2000 Philippine Year Book; Population 2000 is based on the data provided by NSO, 2) Land area is calculated based on the GIS, 3) Subdivision map was provided by ALMEC 1996, 4) Land use area is calculated by the 2003 Landuse Map 2) Building Distribution of LGU Classification of Buildings CB 45,830 9,778 30,298 32,487 141,287 4,480 33,781 87,830 16,160 9,145 40,028 23,862 25,152 34,099 13,225 3,650 34,859 585,952 CW 66,741 13,195 13,473 19,194 88,738 3,930 15,148 44,065 14,884 10,037 13,194 15,169 13,749 17,253 14,895 2,540 14,548 380,751 W 32,428 5,102 6,552 14,648 35,797 2,145 8,357 18,295 13,268 9,244 13,149 6,529 8,983 14,037 6,931 1,641 9,797 206,904 S 23,529 4,868 3,100 5,814 36,995 1,238 5,492 18,290 7,382 6,698 7,549 4,821 7,638 6,842 4,917 895 6,224 152,292 Earlier than 1960 32,651 2,959 2,632 3,147 15,709 2,672 7,702 4,162 2,726 2,290 1,072 5,764 1,506 2,935 4,693 912 1,485 95,017 Construction Year 1961-1970 20,061 3,471 4,249 4,700 18,636 1,652 8,356 4,713 2,317 3,703 2,852 6,070 2,485 3,522 4,567 1,124 2,193 94,671 1971-1980 25,156 5,175 8,562 10,290 41,915 1,642 14,865 8,260 6,326 8,920 11,451 7,235 8,290 9,242 7,114 1,756 7,855 184,054 1981-1990 33,269 7,627 15,065 18,756 82,085 1,659 51,013 13,960 9,995 16,880 23,351 11,813 18,522 21,432 9,894 2,071 19,439 356,831 1991-2000 32,507 9,809 18,314 27,283 109,616 1,931 71,864 15,119 11,293 23,176 29,925 12,406 19,979 28,051 8,089 2,242 29,508 451,112 City / Total Building Municipality Numbers Manila Mandaluyong Marikina Pasig Quezon San Juan Valenzuela Kalookan Malabon Navotas Las Pinas Makati Muntinlupa Paranaque Pasay Pateros Taguig Total 168,528 32,942 53,422 72,143 302,818 11,793 62,778 168,480 51,694 35,124 73,919 50,381 55,522 72,230 39,968 8,726 65,428 1,325,896 Source: JICA Study Team Note: 1) CB: Concrete/Brick/Stone, 2) CW: Half concrete/brick/stone/and half wood, 3) W: Wood, 4)S: Galvanized iron, Makeshift/Salvaged -2-22- Final Report 3) Road Distribution by LGU Road length (km) 0-6m 44 1 1 12 2 36 3 8 14 2 2 2 1 59 0 1 31 219 6-12m 579 432 439 151 124 569 336 341 72 540 149 365 17 1,654 93 249 287 6,398 12m+ 26 29 73 7 18 142 11 47 6 52 44 32 2 190 9 10 15 715 Total 650 462 513 170 145 747 351 396 92 594 196 400 19 1,903 103 260 333 7,331 Narrow (0-6m) 6.8 0.1 0.2 6.8 1.4 4.8 0.9 2.0 15.3 0.4 1.1 0.6 5.1 3.1 0.0 0.4 9.2 3.0 Road ratio (%) Moderate (6-12m) 89.1 93.5 85.5 89.0 86.0 76.2 95.8 86.0 78.3 90.9 76.3 91.4 86.7 86.9 91.0 95.6 86.4 87.3 Wide (12m+) 4.1 6.4 14.3 4.2 12.6 19.0 3.3 12.0 6.4 8.7 22.6 8.0 8.2 10.0 9.0 4.0 4.4 9.7 City/ Municipality Manila Mandaluyong Marikina Pasig Quezon San Juan Valenzuela Kalookan Malabon Navotas Las Pinas Makati Muntinlupa Paranaque Pasay Pateros Taguig Total Source: JICA Study Team 4) Land Damage Area of LGU (Earthquake Scenario Model 08) Land Areas Damage Affected Areas Rate of Area by MMI (%) 8+ 9+ 83.8 100.0 53.8 44.9 65.5 100.0 18.8 13.3 57.1 97.6 66.0 98.4 85.9 100.0 100.0 100.0 97.7 10+ 0.0 0.0 46.2 55.1 1.2 0.0 0.0 0.0 0.0 0.0 0.0 1.6 14.1 0.0 0.0 0.0 2.3 Rate of Area by PGA (gal) 300 600 51.2 78.8 6.9 20.7 82.5 100.0 86.5 98.4 62.5 47.3 92.9 48.8 38.1 60.8 44.1 98.8 61.0 600 1000 48.8 20.5 43.1 53.9 13.2 13.5 1.6 37.5 52.7 7.1 50.3 54.3 39.2 55.9 1.2 37.6 1000 1600 0.7 50.0 25.4 4.3 0.9 7.6 0.0 1.5 Rate of Area by Liquefaction Potential (%) Low 37.9 18.6 46.8 33.7 4.1 0.0 15.7 14.2 45.4 72.2 1.5 18.5 26.8 0.6 16.6 0.0 1.8 Relatively Low 2.4 0.0 0.0 0.0 0.0 0.0 0.0 0.0 3.1 0.0 2.1 0.9 0.2 0.0 0.0 0.0 0.0 Relatively High 29.1 0.8 0.1 17.8 0.3 0.0 13.5 1.9 21.1 27.8 3.2 1.8 1.6 16.9 46.7 37.9 25.8 High 28.6 4.6 13.0 30.3 2.0 11.6 10.7 0.0 7.3 0.0 0.9 4.6 0.0 8.5 6.2 60.9 37.4 - City/ Municipality Published Area (sq. km.) 38.3 26.0 38.9 13.0 166.2 10.4 47.0 55.8 23.4 2.6 41.5 29.9 46.7 38.3 13.9 10.4 33.7 636.0 GIS Calculated Area (sq.km.) 41.3 11.1 22.6 31.9 165.3 5.9 44.5 53.1 16.0 10.9 32.3 32.0 38.1 45.6 17.8 2.0 27.5 597.8 16.2 0.0 0.0 0.0 33.3 0.0 81.2 86.7 42.9 2.5 34.0 0.0 0.0 0.0 0.0 0.0 0.0 - Manila Mandaluyong Marikina Pasig Quezon San Juan Valenzuela Kalookan Malabon Navotas Las Pinas Makati Muntinlupa Paranaque Pasay Pateros Taguig Total Source: JICA Study Team -2-23- Earthquake Impact Reduction Study for Metropolitan Manila in the Republic of the Philippines 5) Building Damage and Casualty (Earthquake Scenario Model 08) Population 1,581,082 278,474 391,170 505,058 2,173,831 117,680 485,433 1,177,604 338,855 230,403 472,780 471,379 379,310 449,811 354,908 57,407 467,375 9,932,560 Total Building Number 168,528 32,942 53,422 72,143 302,818 11,793 62,778 168,480 51,694 35,124 73,919 50,381 55,522 72,230 39,968 8,726 65,428 1,325,896 Building Damage Number (x 1,000) Heavily 24.6 4.3 15.0 22.8 25.8 1.2 2.1 6.5 4.3 5.1 5.9 8.9 13.3 9.0 6.8 1.6 11.2 168.3 Partly 50.1 9.6 18.8 25.6 69.6 3.1 7.3 23.4 11.7 10.9 16.7 16.4 19.0 20.9 12.8 2.9 21.0 339.8 Heavily 14.6% 12.9% 28.1% 31.5% 8.5% 9.8% 3.3% 3.9% 8.2% 14.6% 8.0% 17.7% 24.0% 12.4% 17.0% 18.8% 17.1% Ratio Partly 29.8% 29.2% 35.1% 35.5% 23.0% 26.4% 11.6% 13.9% 22.7% 31.0% 22.6% 32.5% 34.1% 28.9% 32.1% 33.0% 32.2% Number (x 1,000) Dead 6.0 1.0 2.6 3.4 5.5 0.4 0.5 1.5 0.8 0.8 1.2 2.3 2.0 1.7 1.6 0.3 2.1 33.5 Injured 19.8 3.4 8.7 11.8 18.7 1.1 1.4 4.9 2.8 3.2 4.0 7.5 7.5 5.6 5.3 0.9 7.0 113.6 Dead 0.4% 0.4% 0.7% 0.7% 0.3% 0.3% 0.1% 0.1% 0.2% 0.4% 0.3% 0.5% 0.5% 0.4% 0.4% 0.5% 0.4% Casualty Ratio Injured 1.3% 1.2% 2.2% 2.3% 0.9% 1.0% 0.3% 0.4% 0.8% 1.4% 0.8% 1.6% 2.0% 1.2% 1.5% 1.5% 1.5% - City/ Municipality Manila Mandaluyong Marikina Pasig Quezon San Juan Valenzuela Kalookan Malabon Navotas Las Pinas Makati Muntinlupa Paranaque Pasay Pateros Taguig Total Source: JICA Study Team 6) Fire Damage and Casualty (Earthquake Scenario Model 08) Maximum Possible Burnout Area (ha) Wind speed 3m/sec 8m/sec 216 33 4 35 115 21 8 56 54 48 18 53 35 39 50 3 12 798 450 70 9 74 259 43 22 120 114 97 38 116 78 82 103 7 28 1,710 Maximum Possible Burnout Building Number (x 1,000) Ratio Wind speed Wind speed 3m/sec 8m/sec 3m/sec 8m/sec 13.7 1.7 0.1 2.2 4.9 0.5 0.2 3.5 3.2 3.9 0.8 2.0 0.8 1.5 2.5 0.2 0.3 42.1 31.0 4.0 0.4 5.0 12.3 1.3 0.7 8.2 7.3 8.6 1.7 4.9 2.0 3.5 5.8 0.5 0.8 97.8 8.1% 5.1% 0.3% 3.1% 1.6% 4.6% 0.3% 2.1% 6.1% 11.2% 1.0% 4.0% 1.4% 2.1% 6.4% 1.8% 0.5% 18.4% 12.2% 0.8% 6.9% 4.1% 10.8% 1.1% 4.8% 14.1% 24.4% 2.3% 9.7% 3.6% 4.8% 14.4% 5.4% 1.3% Maximum Possible Fire Casualty Damage Number (x 1,000) Ratio Wind speed Wind speed 3m/sec 8m/sec 3m/sec 8m/sec 3.0 0.3 0.0 0.7 0.6 0.1 0.0 0.3 0.3 0.6 0.1 0.7 0.2 0.2 0.7 0.0 0.1 7.9 6.8 0.7 0.1 1.6 1.4 0.2 0.0 0.6 0.7 1.4 0.2 1.6 0.6 0.6 1.5 0.1 0.2 18.3 0.2% 0.1% 0.0% 0.1% 0.0% 0.1% 0.0% 0.0% 0.1% 0.3% 0.0% 0.1% 0.1% 0.1% 0.2% 0.1% 0.0% 0.4% 0.2% 0.0% 0.3% 0.1% 0.2% 0.0% 0.1% 0.2% 0.6% 0.0% 0.3% 0.2% 0.1% 0.4% 0.2% 0.0% - City/ Municipality Manila Mandaluyong Marikina Pasig Quezon San Juan Valenzuela Kalookan Malabon Navotas Las Pinas Makati Muntinlupa Paranaque Pasay Pateros Taguig Total Source: JICA Study Team -2-24- Chapter 3 Master Plan Final Report CHAPTER 3. 3.1 3.1.1 MASTER PLAN Vision and Goals The Vision -A Safer Metropolitan Manila from Earthquake ImpactSince 1900, more than 30 earthquakes have caused some damage to Metropolitan Manila. Many faults have been identified around and within Metropolitan Manila, but the Valley Fault System that runs north to south along the west and east edges of the Marikina Valley is thought to pose the greatest threat to Metropolitan Manila due to its close proximity. Of all the natural disasters that Metropolitan Manila has experienced throughout its history (such as tropical cyclones, droughts and floods, tsunamis, volcanic eruptions, and earthquakes), earthquakes pose the greatest threat to the life, property, and the economy. Since Metropolitan Manila is the leading city in the Philippines, and the center of governmental, financial, commercial, and social activities, the impact of a large earthquake in Metropolitan Manila will greatly affect the nation. The damage estimation of a potential rupture of the West Valley Fault, is that 40% of the total number of residential buildings within Metropolitan Manila will be heavily or partly damaged, and the earthquake will cause approximately 34,000 deaths and 1,144,000 injuries. Moreover, fire spreading as a secondary effect of the earthquake will cause an additional 18,000 deaths. The Metropolitan Manila area, together with neighboring provinces, is expected to grow continuously and reach 25 million inhabitants in the expanded urbanized area of 1,500 km2 by 2015. This growing urbanization is creating unacceptable levels of an earthquake disaster in terms of both human and property losses. Therefore, the Metropolitan Manila Earthquake Impact Reduction Study was undertaken to develop a plan and strategies for “A Safer Metropolitan Manila from Earthquake Impact”. 3.1.2 The Goals To achieve this vision, the Earthquake Impact Reduction Study for Metropolitan Manila presents six basic goals: 1) Develop National System Resistant to Earthquake Impact Metropolitan Manila is the only mega urban center in the Philippines that includes the national functional backbone consisting of economic, financial, and information activities. Metropolitan Manila generates about 35% of the total GDP of the Philippines. Also, it is the seat of the Philippine national government including administrative, legislative, and judiciary functions, and international activities. With the rupture of the West Valley Fault, national functions will be paralyzed, and in the worst case, the earthquake will lead to chaos and disruption of the national -3-1- Earthquake Impact Reduction Study for Metropolitan Manila in the Republic of the Philippines economy. Therefore, Metropolitan Manila needs to develop national systems resistant to earthquake impact through improvement and updating of existing systems. Especially targeted are the following: items for updating of regulations for earthquake disaster prevention, promotion of research and development for disaster prevention technology, capacity building for disaster response staff from national to community level, installation of modern equipment for disaster management agencies. Improvement and enhancement of these existing systems are to be implemented based on detailed plans. 2) Improve Metropolitan Manila’s Urban Structure Resistant to Earthquakes Recent earthquake damage in the urbanized areas in the world illustrate the extreme vulnerability of urban structures including buildings and infrastructure (such as roads, railways, port facilities), and lifelines (including electricity, telecommunication and water supply). Based on the damage estimation by West Valley Fault system rupture, it is estimated that 40% of the total residential buildings in Metropolitan Manila will be affected. Since building collapse causes the greatest number of deaths and injuries, the reinforcement and strengthening of buildings are a priority measure to reduce loss of life. Research and technology development on building structures and materials should also be promoted including improvement of building codes, development of design standard for low cost housing and cost-effective construction. Furthermore, building collapse is the major cause of fire breakouts, so building collapse in the highly fire-prone areas needs to be reduced. Existing urban structures in the severe damage estimation area should be improved through re-development of land use. Buildings should be constructed with higher resistive structures and fireproof materials. Location of open spaces and road widening should be involved for urban re-development. The results of the damage estimation of infrastructure and lifelines also show the possible impact to society. For example, malfunction of the port caused by the liquefaction or the collapse of bridges over the Marikina and Pasig rivers will greatly affect the transportation of people, goods and services to and from and within the Metropolitan area. The urban structure of Metropolitan Manila including transportation infrastructures and lifelines needs to be made resistant to earthquakes in order to reduce loss of life and associated impacts. 3) Enhance Effective Risk Management System A great number of casualties and injuries are anticipated in the scenario of the West Valley Fault System rupture, but the actual number of losses will vary depending on the level of preparedness and effectiveness of the risk management and emergency response systems. Therefore, to reduce overall losses, an effective risk management system is necessary. Necessary actions include preventing secondary effects and damages, strengthening disaster management practices and response capacity, and ensuring access to critical information. Robust legal and institutional arrangements, including systems for inter-institutional coordination and clearly defined and -3-2- Final Report practiced roles of national, regional, city and municipal, and barangay level governmental and non-governmental entities, are essential to effective management of earthquake risk. 4) Enhance Community Disaster Management Capacity In case of large disasters such as a major earthquake, most of the community members will not be reachable by public assistance immediately. Therefore, to protect community members from large earthquake impacts, it is important to maximize the preparedness and disaster response capacity of the community beforehand, through enhancement of social capital. Social capital in the Metropolitan Manila communities can be developed while recognizing community autonomy, local leadership, and community dynamics. enlightenment. 5) Formulate Reconstruction Systems To facilitate recovery and maximize the effectiveness of the reconstruction process of the damaged Metropolitan Manila, the preparation of recovery and reconstruction policies, strategies and procedures and their acceptance by the relevant agencies are indispensable. At present, the preparation of the risk management system is not fully developed for effective recovery and reconstruction. Nonexistence of a reconstruction structure and system will generate additional losses to the society and exacerbate inappropriate and vulnerable urban development. Both rehabilitation and reconstruction require careful planning and development to prevent further deterioration of urban structures and environmental degradation. 6) Promote Research and Technology Development on Earthquakes For the promotion of earthquake impact reduction measures, analysis of present conditions and future projections related to earthquakes will play an important role. Especially, scientific research on large earthquake fault rupture mechanisms, return periods, and distribution of the active faults are important. The existing research and technology development system in the Philippines can be enhanced on earthquake science, earthquake engineering, geosciences under comprehensive those coordination. Especially mechanism of earthquake occurrence, estimation of earthquake motion, estimation of earthquake damages, comprehensive disaster condition estimation including secondary disaster are to be studied in depth. This enhancement will be promoted through self-reliant and mutual-help risk management including disaster awareness through education and 3.2 3.2.1 The Plan Overall Structure of the Plan The Master Plan for Earthquake Impact Reduction sets forth basic policy and direction in pursuit of the vision of a safer Metropolitan Manila. The plan is a road map to achieve the vision. It contains 34 frameworks, each addressing specific goals and objectives. Each framework is not -3-3- Earthquake Impact Reduction Study for Metropolitan Manila in the Republic of the Philippines only a stand-alone avenue to pursue improved levels of risk reduction but also a cross street interconnected with the other frameworks. The goals, objectives, and frameworks address Metropolitan Manila’s most imminent earthquake disaster management issues. Existing earthquake disaster management systems in the Philippines is not enough to cope with expected earthquakes damages The frameworks are presented in Chapter 5 of the main report. Each framework describes the following: Understanding / Concern Basic policy / Basic concept of framework List of action plans The Basic policy / Basic concept of framework includes several strategies that are encapsulated in various action plans designed to lead to accomplishment of the framework’s goal and objectives. The high priority of these action plans, or “Priority Action Plans,” are then presented in Chapter 6 in a format that includes the aim and outline of the project and the implementing agency responsible for undertaking the action. 3.2.2 Plan Structure Following table shows the structure of the Disaster Management Plan for Metropolitan Manila. As described above, to attain the vision of “A Safer Metropolitan Manila from Earthquake Impact”, six goals have addressed. These goals have ten objectives, and then the objectives are broken down into thirty-four (34) frameworks in total. The frame works represent main policies and strategies to achieve goals and objectives. The framework contains 105 action plans. The action plans are prepared to put practice of the policies and strategies represented in the frameworks. In this section, overview of the 34 frameworks are described. For the detailed description, the Frameworks are described in Chapter 5, and the Action Plans in Chapter 6 in the main report. -3-4- Final Report Vision Goals To develop national system resistant to earthquake impact Objectives To increase social and community sustainability To increase resistance of Metropolitan Manila's vulnerable areas To increase resistance of Metro Manila's buildings To increase resistance of Metro Manila's buildings To prevent secondary effects and damages To strengthen disaster management system NSD-1 NSD-2 USI-1 USI-2 USI-3 USI-4 USI-5 USI-6 USI-7 Frameworks Protect stability of national government function Protect stability of socio-economic system Promote earthquake resistant urban development Promote flameproof urban development Promote spatial urban development Promote earthquake-resistant buildings Promote earthquake-resistant public facilities Promote earthquake-resistant infrastructure Promote earthquake-resistant lifeline Promote fire preparedness and mitigation including handling hazardous materials Take measures against tsunami Enhance legal basis for disaster management Strengthen institutional capacity for implementing Preparedness and mitigation measures Strengthen inter-institutional coordination Strengthen institutional disaster response capability Develop operation systems and procedures Enhance capability of fire suppression and hazardous material abatement Secure evacuation route and evacuation sites Secure water, food, and other necessaries Enhance emergency health and medical response system Establish emergency transportation system Establish search and rescue system Establish information and communication system Establish geographic information system Manage emergency public information Enhance self reliant and mutual help for efficient risk management capacity Inculcate a disaster mitigation culture in future generations Supply temporary refugee housings Prepare emergency assistance for everyday life Establish debris clearance and management system Restore public and social services Establish post-disaster reconstruction system of the damaged area Enhance institutional aspect To improve Metropolitan Manila's urban structure resistant to earthquake RMS-1 RMS-2 RMS-3 RMS-4 RMS-5 RMS-6 RMS-7 A Safer Metropolitan Manila from Earthquake Impact To enhance effective risk management system RMS-8 To improve disaster response capability RMS-9 RMS-10 RMS-11 RMS-12 RMS-13 RMS-14 To ensure access to critical information RMS-15 RMS-16 To increase community resilience To establish disaster management mechanism through enhancement of social capital CRI-1 CRI-2 RSF-1 RSF-2 To formulate reconstruction systems To improve community recovery capability RSF-3 RSF-4 RSF-5 RSF-6 To promote research and technology development for earthquake impact reduction measures To sustain research and effective transfer of technology R&D-1 Promote sustained research and development on earthquake Figure 3.2.1 Structure of the Disaster Management Plan for Metropolitan Manila -3-5- Earthquake Impact Reduction Study for Metropolitan Manila in the Republic of the Philippines 3.3 3.3.1 Frameworks for the Earthquake Impact Mitigation Development of National System Resistant to Earthquake Impact Goals To develop national system resistant to earthquake impact Objectives To increase social and community sustainability NSD-1 NSD-2 Frameworks Protect stability of national government function Protect stability of socio-economic system Framework NSD-1: Protect Stability of National Government Function Understandings / Concerns: The Malacanang Palace and Congress, the Upper House (Senate) and the Lower House (House of Representatives), are standing on rather vulnerable area due to ground condition and earthquake motion. Consequently, for the purpose of maintaining the central function of the nation during emergency situations, it is definitely important to conduct seismic examination and retrofitting of related public buildings, to ensure temporary sites to accommodate government functions, and to ensure the access to the emergency road network. 1) 2) 3) 4) Basic Policy /Basic Concept of Framework: Maintain the national function even in emergencies Ensure telecommunication function and access to transportation network Ensure the emergency service staff Ensure the safety of the Malacañang Palace Action Plans: Enhance security capability of National Government function with the Office of the President Promote urban reform around the important national facilities Framework NSD-2: Protect Stability of Socio-Economic System Understandings / Concerns: 47% of the houses in Metro Manila are estimated to be damaged or burnt, and about 3 million people will become refugee or homeless. The damage to infrastructure and lifelines will have a huge negative influence on the stability of socio-economic situation and on the function of the capital of the nation, which will spread all through the country. 1) Basic Policy /Basic Concept of Framework: Strengthen office buildings, etc Assess seismic resistance of buildings Establish back-up system of utilities -3-6- Final Report 2) 3) 4) - Enhance seismic-resistance of office equipment like computers Decentralize business functions Strengthen governments’ emergency services capability Action Plans: Enhance emergency measures of businesses Enhance safety of on-line financial services Create a safer business environment Enhance emergency finance system 3.3.2 Improvement of Metropolitan Manila’s Urban Structure Resistant to Earthquake Goals To improve Metropolitan Manila's urban structure resistant to earthquake Objectives To increase resistance of Metropolitan Manila's vulnerable areas To increase resistance of Metro Manila's buildings To increase resistance of Metro Manila's buildings USI-1 USI-2 USI-3 USI-4 USI-5 USI-6 USI-7 Frameworks Promote earthquake resistant urban development Promote flameproof urban development Promote spatial urban development Promote earthquake-resistant buildings Promote earthquake-resistant public facilities Promote earthquake-resistant infrastructure Promote earthquake-resistant lifeline Framework USI-1: Promote Earthquake Resistant Urban Development Understandings / Concerns: Metropolitan Manila’s damage will mostly be by building collapse. 39.4% of total buildings will somehow be affected. High vulnerable areas by building collapse are especially in Marikina City and Pasig City. Those cities may be isolated from other portion of Metropolitan Manila by the damage. 1) 2) 3) 4) Basic Policy /Basic Concept of Framework Residential buildings strengthening/ retrofitting Strengthen/ retrofit individual residence to reduce the number of buildings which might collapse Enlightenment of activity on strengthening/ retrofitting residential Buildings Study on the finance system for retrofitting of residential buildings Promotion on subdivision development procedures Enhancement of social housing policy for slums/ illegal settlement Promotion of land use incorporating seismic hazards information Incorporate Seismic hazards data in General Plans Limit Development near existing Faults -3-7- Earthquake Impact Reduction Study for Metropolitan Manila in the Republic of the Philippines - Action Plans: Resistance improvement on residential houses Subdivision development promotion procedures Social housing policy enhancement with earthquake resistance perspectives Revise Comprehensive Land Use Plan (CLUP) Framework USI-2: Promote Flameproof Urban Development Understandings / Concerns: The Old Manila city area has highest flammability possibility, and the Northwestern portion of Metropolitan Manila has utmost fire extinguish service shortage. The cause for fire outbreak is mainly the LPG and excessive power line for electricity, commonly seen in the illegal settlement areas. The cause for fire spread is mainly due to the vulnerable urban structure, i.e. small open spaces and parks, and the wooden building congested areas. 1) 2) 3) Basic Policy /Basic Concept of Framework: Preventing fire outbreak Reducing risk-components for fire outbreak in the residence Strengthening of possible fire outbreak establishments Replacing gasoline container with unbreakable (plastic-bottled) container Preventing fire spreading Promotion of vulnerability reduction measures for urban industrial zones Promotion of fire proof district Introduction of Urban Fire Proof Development Method Promotion of subdivision development procedures Action Plans: Tie down and stabilize propane cylinders against earthquake shaking Enforce disaster mitigation measures for possible fire breakout facilities Promote replacement to unbreakable (plastic-bottled) gasoline vending Promote of vulnerability reduction measures for urban industrial zones Introduce urban fire proof development method Framework USI-3: Promote Spatial Urban Development Understandings / Concerns: Metropolitan Manila fringe areas will be the area of high evacuation difficulty. Areas along the West Valley Fault System and northern half portion of the Manila coastal area have high shortage for evacuation area. 1) Basic Policy /Basic Concept of Framework: Preservation of open spaces and parks -3-8- Final Report 2) - Institutional enforcement of limiting further development of the existing open spaces and parks Urban re-development Promotion of Disaster Resistant Urban Development Action Plans: Enforce further development of the existing open spaces and parks Promote disaster resistant urban development Enforce and develop laws and regulations related to urban planning and building code Framework USI-4: Promote Earthquake-resistant Buildings Understandings / Concerns: Building damage estimation results using the worst case scenario indicates that 13% of the building will collapse or be heavily damaged, and 26% of the buildings will be partly damaged. The figures are higher than those of public buildings. Residential building damage is the major reason of human casualties. 1) 2) 3) 4) 5) Basic Policy /Basic Concept of Framework: Develop and expand seismic design regulations for masonry buildings Develop retrofitting techniques and expand retrofitting work Develop construction materials Improve building permission system Educate and train human resources on building construction Action Plans: Implement retrofitting work of buildings Educate and train administrative staffs on building engineering Educate and train building engineer, establish training facility for construction workers Improve structural design code by DPWH, ASEP and Researchers Develop and diffuse building construction related technologies and engineering Develop and diffuse construction materials in collaboration with industry firms Introduce tax exemption or subsidy for smooth introduction of retrofitting works Educate and train administrative staffs on building engineering Educate and train building engineer, establish training facility for construction workers Framework USI-5: Promote Earthquake-resistant Public Facilities Understandings / Concerns: Building seismic diagnosis results for 80 public buildings identified that 45% of the building have basic or suspicious structural problem but on the other hand 55% of the buildings are sound. -3-9- Earthquake Impact Reduction Study for Metropolitan Manila in the Republic of the Philippines Building damage estimation results using the worst case scenario indicates 8 to 10% of the building will collapse or be heavily damaged and 20-25% of the buildings will be partly damaged. 1) 2) 3) 4) 5) 6) Basic Policy /Basic Concept of Framework: Diagnose seismic performance of public buildings Retrofit problem buildings Improve public building function as a facility for emergency activity Upgrade seismic design regulations Consider detail ground condition in designing structures Educate and train human resources on building construction Action Plans: Strengthen public facilities Research and develop for strengthening public buildings Develop building engineering related human resources Framework USI-6: Promote Earthquake-resistant Infrastructure Understandings / Concerns: Infrastructure consists of road, bridge, railway, LRT, MRT, airport, and harbor. It carries the most important role in case of severe earthquake. Maintaining such facilities will help implement emergency activities smoothly. 1) 2) 3) Basic Policy /Basic Concept of Framework: Strengthening of bridge Retrofitting of Bridge Structure Secure safety of airport facility Strengthening of Facility Preparation of Back Up System Secure safety of harbor facility Strengthening of Facility Action Plans: Retrofit bridge structure Secure safety of airport facilities Secure safety of harbor facilities Framework USI-7: Promote Earthquake-resistant Lifeline Understandings / Concerns: In the damage estimation, for water network, damaged points reach 4,000 points in the worst case, and for electricity and telecommunication damaged length reaches 31km and 97 km respectively. Stop supplying of lifeline will expand scale of disaster. -3-10- Final Report 1) 2) 3) 4) 5) 6) - Basic Policy /Basic Concept of Framework: Organizational preparedness among lifeline companies Establishment of Lifeline Sub-Committee in MMDCC Detail risk assessment of each lifeline Implementation of Detail Risk Assessment of each Lifeline Strengthening of emergency operation ability Preparation of Emergency Operation Manual Strengthening of Emergency Operation Team Water distribution Strengthening of Water Distribution Facilities Electricity supply Strengthening of Electric Supply Facilities Regulation of illegal connection of electricity in squatter area Telecommunications Strengthening of Telecommunications Service Facilities Action Plans: Prepare organizational system among lifeline companies Assess detail risk of each lifeline Strengthen emergency operation ability Strengthen water distribution function Strengthen electricity supply function Strengthen telecommunications function -3-11- Earthquake Impact Reduction Study for Metropolitan Manila in the Republic of the Philippines 3.3.3 Enhancement of Effective Risk Management System Goals Objectives To prevent secondary effects and damages To strengthen disaster management system RMS-1 RMS-2 RMS-3 RMS-4 RMS-5 RMS-6 RMS-7 RMS-8 To enhance effective risk management system To improve disaster response capability RMS-9 RMS-10 RMS-11 RMS-12 RMS-13 RMS-14 To ensure access to critical information RMS-15 RMS-16 Frameworks Promote fire preparedness and mitigation including handling hazardous materials Take measures against tsunami Enhance legal basis for disaster management Strengthen institutional capacity for implementing Preparedness and mitigation measures Strengthen inter-institutional coordination Strengthen institutional disaster response capability Develop operation systems and procedures Enhance capability of fire suppression and hazardous material abatement Secure evacuation route and evacuation sites Secure water, food, and other necessaries Enhance emergency health and medical response system Establish emergency transportation system Establish search and rescue system Establish information and communication system Establish geographic information system Manage emergency public information Framework RMS-1: Promote Fire Preparedness and Mitigation including handling Hazardous Materials Understandings / Concerns: Metropolitan Manila will suffer from fire that would burn down some 1,700 hectares of land and kill 19,300 people in the event of the earthquake because there are so many wooden buildings and hazardous facilities. Such areas as squatters are physically vulnerable to fire, and there exist hazardous facilities and materials in places. 1) 2) 3) 4) Basic Policy /Basic Concept of Framework: Strengthen fire services capability Enhance personnel and fire equipment Strengthen and development of fire stations Improvement of auxiliary fire fighting operations Strengthen the capability of the barangays and private companies Strengthen communities’ capability Ensure safety of hazardous materials Enhance the safety measures of hazardous materials Promote the relocation of hazardous facilities Strengthen inter-organizational coordination and cooperation -3-12- Final Report - Action Plans: Enhance fire-proof of buildings Construct new fire stations where the stations are underprovided Strengthen fire service resources Improve water sources for fire fighting Reinforce auxiliary fire fighting operations such as the barangays, communities, and business establishment voluntary fire fighting corps Improve management system of hazardous materials, including relocation of hazardous facilities Promote inter-organization coordination and cooperation Framework RMS-2: Take Measures against Tsunami Understandings / Concerns: Preliminary estimated tsunami condition at Manila Bay seashore in case for Manila Trench earthquake are 1) maximum height is 4m, 2) average height is 2m, 3) arrival time is about one hour after the earthquake occurrence. Lowland area, of which elevation is less than 4m, prevails widely around old manila area and these area are severely affected. Tsunami also run up into Passig River and possibly affect Maracanang palace and Pandacan deposit area. 1) 2) 3) Basic Policy /Basic Concept of Framework: Support ongoing research on tsunami phenomena and damages Establish information dissemination system on tsunami phenomena Promote public awareness on tsunami effect Action Plans: Promote Research and development for Tsunami mechanism and damages Promote tsunami damages preventive measures Framework RMS-3: Enhance Legal Basis for Disaster Management Understandings / Concerns: The basic law establishing the framework for disaster management in Metro Manila was established in 1978 and has not been significantly updated to coincide with subsequent legislation affecting the authorities of local governments and the structure of governmental agencies. Moreover, it does not adequately reflect the current holistic approach to disaster management and its relation with urban planning and development. At the local level, a city/municipal ordinance is needed to strengthen the legal framework and institutionalize disaster mitigation programs. 1) Basic Policy /Basic Concept of Framework: Strengthen legal basis at national level by updating/replacing PD1566 Pending National Legislation Support of NDCC Proposed Legislation -3-13- Earthquake Impact Reduction Study for Metropolitan Manila in the Republic of the Philippines 2) 3) - Strengthen local government framework for disaster management Institutionalize Disaster Management Offices and Budgets Improve Financial Viability of Disaster Coordinating Councils Promote Adoption of Model City/Municipal Ordinance Promote policies that encourage implementation of disaster risk reduction measures Action Plans: Strengthen legal basis for disaster management at the national level by updating/replacing PD1566 Strengthen legal basis at the local level by adopting model city/municipal ordinance Institutionalize local government framework and financing for disaster management Promote policies that encourage implementation of disaster risk reduction measures RMS-4: Strengthen Institutional Capacity for Implementing Framework Preparedness and Mitigation Measures Understandings / Concerns: The institutional arrangements for disaster management and structures of the local disaster councils were initiated over twenty years ago and no substantive changes have been made since then, despite legal changes affecting local government authorities and responsibilities and changes in the Government’s organizational structure. Also, planning guidance and emergency plans need to be updated, and a training needs assessment needs to be undertaken in order to identify and develop training opportunities for DCC members. 1) 2) 3) 4) Basic Policy /Basic Concept of Framework: Strengthen local government disaster management through reorganization and revitalization of disaster coordinating councils Strengthen City/Municipal Disaster Coordinating Councils Strengthen Barangay Disaster Coordinating Councils Update Barangay emergency planning guidance and plans Promote the development of a disaster management center Encourage local mitigation planning through use of “Earthquake mitigation handbook” and “Earthquake mitigation and response checklists – local planning guide” Conduct training needs assessment and develop capacity building programs Action Plans: Promote the reorganization and revitalization of city/municipal and barangay Disaster Coordinating Councils. Promote the development of a Disaster Management Center to serve Metro Manila. -3-14- Final Report - Promote local government mitigation planning through implementation of the Earthquake Mitigation Handbook and the Earthquake Mitigation and Response Checklists -- Local Planning Guide. - Conduct training needs assessment and develop capacity building programs for local and barangay Disaster Coordinating Council members and institutions. Strengthen barangay level preparedness for disaster response and relief. Framework RMS-5: Strengthen Inter-Institutional Coordination Understandings / Concerns: Mechanisms for inter-institutional coordination currently exist in the form of Disaster Coordinating Councils, but the functionality of these councils is less than optimal. Most have no regular meetings or agenda for overseeing any pre-disaster preparedness and mitigation programs, which restricts their capacity for effective collaboration during response, relief, and recovery operations. There is need to revitalize the councils, update their plans, strengthen decision-making processes, and encourage lateral communications and mutual aid. 1) 2) 3) 4) 5) Basic Policy /Basic Concept of Framework: Strengthen metropolitan manila disaster coordinating council Update MMDCC Structure Organize and implement a MMDCC Work Plan Enhance lateral and vertical inter-agency and inter-governmental communication and coordination Strengthen Incident Command System (ICS) and response decision-making systems Update the National Calamities and Disaster Preparedness Plan and Metro Manila Level Plans Encourage inter-local cooperation through zonation of LGUs and Master Mutual Aid Agreement Action Plans: Strengthen the MMDCC by updating its structure and organizing and implementing a MMDCC Work Plan Update national and Metropolitan Manila level disaster preparedness plans Strengthen Incident Command System (ICS) and response decision-making systems Encourage inter-local cooperation through zonation of LGUs and Master Mutual Aid Agreement -3-15- Earthquake Impact Reduction Study for Metropolitan Manila in the Republic of the Philippines Framework RMS-6: Strengthen Institutional Disaster Response Capability Understandings / Concerns: The need for training and other resources to upgrade the capacities and capabilities of agencies, institutions, and Disaster Coordinating Councils at each level of government is broadly recognized in Metro Manila. There has been little up-to-date guidance or assistance available to institutions and LGUs to aid them with emergency planning, training, procedures, and identification and procurement of needed resources. 1) 2) 3) 4) Basic Policy /Basic Concept of Framework: Encourage local emergency response planning through use of “Earthquake mitigation and response checklists -- local planning guide” Encourage adoption and utilization of an “Emergency response pocket guide” by agencies and LGUs Encourage agencies and local governments to inventory response and relief resources and sources and identify needed disaster management tools and equipment Identify Needed Disaster Management Tools and Equipment Enhance capacity for training emergency response personnel in response and relief functions Action Plans: Encourage local emergency response planning through use of the Earthquake Mitigation and Response Checklists -- Local Planning Guide Encourage adoption and utilization of emergency response pocket guide by agencies and LGUs Encourage agencies and local governments to inventory response and relief resources and sources and identify needed disaster management tools and equipment Enhance capacity for training emergency response personnel in response and relief functions Framework RMS-7: Develop Operations System and Procedures Understandings / Concerns: A large disaster requires a high level of communication and coordination among responding jurisdictions and agencies to effectively save lives and protect property. Most city/municipality DCCs as well as barangay DCCs do not have Standard Operating Procedures to guide them in carrying out critical response and relief functions, nor do they have fully functional Disaster Operations Centers to coordinate inter-agency operations and serve as the focal point for information gathering, analysis, and dissemination. -3-16- Final Report 1) 2) 3) Basic Policy /Basic Concept of Framework: Develop and institutionalize Standard Operating Procedures (SOPs) for key response functions Develop MMDA Metro Base capabilities for Disaster Operations Center (DOC) operations Establish functional Disaster Operations Centers (DOCs) at city/municipal and barangay levels - Action Plans: Develop and institutionalize Standard Operating Procedures (SOPs) for key response functions. Develop MMDA Metro Base capabilities for Disaster Operations Center (DOC) operations Establish functional Disaster Operations Centers (DOCs) at city/municipal and barangay levels. Framework RMS-8: Enhance Capacity of Fire Suppression and Hazardous Material Abatement Understandings / Concerns: Metropolitan Manila is estimated to suffer from huge fire-breakout and spreading in the event of earthquake, because of its distribution of wooden buildings and hazardous facilities. About 1,700 hectares of land is estimated burnt down, leaving 19,300 people killed. On the other hand, fire service capacity is far short to handle the estimated secondary damage, so that it is required to improve the total capacity of fire suppression and abatement of hazardous materials scattered in Metro Manila. 1) 2) 3) 4) Basic Policy /Basic Concept of Framework: Revise response plan and manual of the relevant organizations Enhance information and communication system Establish system to request and accept support from outside Enhance emergency response operations to abate hazardous material Fire services and other public organizations Business establishments Action Plans: Revise the emergency plan and manuals of the relevant organizations Enhance of the information and communication system Establish the support request system and conclude mutual aid agreements Enhance the emergency response operations of the public organizations and the establishments of hazard materials -3-17- Earthquake Impact Reduction Study for Metropolitan Manila in the Republic of the Philippines Framework RMS-9: Secure Evacuation Route and Evacuation Sites Understandings / Concerns: Based on the damage estimation, at worst 3.15 million people will become refugees because thier loss of the houses due to building collapses and fires as secondary disaster. To accommodate such a large number of refugees, it is mandate to formulate a plan to secure temporary evacuation routes and sites are mandate. 1) 2) 3) Basic Policy /Basic Concept of Framework: Formulate the land use plan including evacuation sites Ensure evacuation route network Disseminate the plan to the pubic Action Plans: Formulate evacuation sites and plans for the LGUs Enhance resources for evacuation Framework RMS-10: Secure Water, Food and Other Necessities Understandings / Concerns: Earthquake disaster leaves many people out of the normal life. People would need daily necessities to maintain their basic life. For that purpose, emergency service delivery plan of water, food, clothes, drugs and so forth are necessary. LGUs must at ordinary time estimate the needs of such necessities for the emergency situation and stockpile them as much as possible. Many LGUs have no stockpiles at all in preparation for emergency. However, even some LGUs with stockpiles like Marikina city, which are kept in preparation for flood at present, are small amount and not enough in case of earthquakes. 1) 2) 3) 4) Basic Policy /Basic Concept of Framework: Ensure water supply system Stockpile food Supply clothes Stockpile drugs Action Plans: Secure the large scaled water source Formulate emergency supply system of water, food, and other necessities Formulate emergency aid agreement Framework RMS-11: Enhance Emergency Health and Medical Response System Understandings / Concerns: Metropolitan Manila is equipped with scant resources and fragmented systems of emergency medical responses to potential consequences after an earthquake. It is urgently necessary to -3-18- Final Report formulate networks for LGUs to help each other and to make multi-layered response structure practicable from communities to national and up to international level. 1) 2) Basic Policy /Basic Concept of Framework: Increase LGUs’ self-contained capability by strengthening mutually supporting networks Internal mutual cooperation among LGUs in Metropolitan Manila Wider area cooperation between LGUs in Metropolitan Manila and surrounding Provinces Organize the Standardized Treatment Procedures based on planned multi-layered structure Establishment of Standardized Treatment Procedures Action Plans: Enhance organizational response capacities Improve government hospital capacities Enforce logistics Expand training programs Framework RMS-12: Establish Emergency Transportation Network Understandings / Concerns: Metro Manila has no recognized emergency transportation network among the government agencies. It is indispensable to designate the primary and secondary network of emergency roads in order to do rescue and relief activities, and transport goods, human resources, etc. 1) 2) Basic Policy /Basic Concept of Framework: Establish Emergency Road Network within Metropolitan Manila Establishment of Emergency Road network Use of emergency road network Establish Metro Manila Accessible Network (Land, sea, air and river transportation) Establishment of Emergency Transportation Network Operation of Emergency Transportation Network Action Plans: Establish emergency road network Arrange machineries to DPWH for emergency road response Secure road between Batangas port to Metropolitan Manila south region Convert one portion of Manila port to earthquake resistant construction Construct Laguna de Bay northern shore uploading facility Secure road between Subic port/ Clark field to Metropolitan Manila North region Secure Ninoy Aquino airport functions -3-19- Earthquake Impact Reduction Study for Metropolitan Manila in the Republic of the Philippines Framework RMS-13: Establish Search and Rescue System Understandings / Concerns: Search and rescue after disaster is major determining factor to reduce the number of human casualties. Accordingly, it is very vital to enhance community capability of search and rescue in the early stage, lift up the organized search and rescue capability such as fire services, and develop the search and rescue system including maintenance of order and morale by regular trainings and drills. Moreover, because it is essential to accept aid from abroad in case of major disaster, so that training to work with international aids is also mandatory. However, national, regional and city/municipal governments neither have yet well-organized search and rescue structure. 1) 2) 3) Basic Policy /Basic Concept of Framework: Enhance the community capability of search and rescue Enhance the organized system of training and procurement of equipment Establish community-based search and rescue structure Action Plans: Develop capacity of search and rescue system. Enhance community search and rescue system Establish the system to accept international emergency aid Framework RMS-14: Establish Information and Communication System Understandings / Concerns: A large traffic of emergency communication at emergency situation causes overflow of information and communication. It is imperative to set up disaster information and communication system that can collect the necessary damage information and deliver emergency response command and other information. Particularly, establishment of the communication network to link the relevant ministries, city/municipalities, and barangays is required. Presently, OCD, who is the central organization of NDCC, is deploying the information communication system to link with its 16 regional centers, whose headquarters is located in Quezon City. However, because OCD has put priority on typhoon and flood disasters, and NCR (Metropolitan Manila) has less attention in the establishment of this disaster management information system. Among the member LGUs of NCR do not have a unified information system. 1) 2) Basic Policy /Basic Concept of Framework: Ensure quick collection and delivery of damage information Establish emergency information and communication network system among LGUs, fire services, police, MMDA, and national organizations -3-20- Final Report 3) 4) 5) - Establish Disaster management center and enhance the existing function Establish the aerial information collection system Establish information system on public relations and individual safety confirmation Action Plans: Develop disaster information and communication system connecting MMDA, LGUs and barangays Establish a disaster management center Framework RMS-15: Establish Geographic Information System (GIS) Understandings / Concerns: GIS database of the existing various information of Metro Manila is very useful to formulate the disaster management plan and countermeasures at ordinary times and response and command in case of emergency. The JICA’s MMEIRS developed the GIS database covering the whole Metro Manila. Based on the JICA database, each LGU must update the information necessary for the disaster management. It is necessary to establish disaster information network system for effective disaster information collection and disaster management measures by data sharing among the fire services and MMDA. 1) 2) 3) 4) Basic Policy /Basic Concept of Framework: Establish LGU-unit disaster information database Standardize database Share the database The developed database should be networked and shared not only with the LGUs and MMDA, but with the other relevant organizations such as fire services, police, OCD, and PHIVOLCS. 5) 6) Maintain and update the disaster information database Develop the data analysis system Action Plans: Develop geographic information database for disaster management Train LGU staffs on GIS database and information & communication system Framework RMS-16: Manage Emergency Public Information Understandings / Concerns: It is the responsibility of government to provide complete and accurate information to the public regarding disasters, and to do this, they must establish appropriate policies and protocols for cooperation with the media and create an atmosphere conducive to media participation in all phases of disaster management. Without these actions, life-saving information may not be communicated to potential disaster victims and rumors and false information may spread. -3-21- Earthquake Impact Reduction Study for Metropolitan Manila in the Republic of the Philippines 1) 2) - Basic Policy /Basic Concept of Framework: Promote adoption and implementation by local governments and agencies of the Guide for Managing Information concerning Disasters Establish partnerships with the media for awareness raising and emergency public information Public Information for Prevention and Mitigation Public Information for Response in case of Emergency Action Plans: Promote adoption and implementation by local governments and agencies of the Guide for Managing Information concerning Disasters Establish partnerships with the media for awareness raising and emergency public information 3.3.4 Increasing Community Resilience Goals To increase community resilience Objectives To establish disaster management mechanism through enhancement of social capital CRI-1 CRI-2 Frameworks Enhance self reliant and mutual help for efficient risk management capacity Inculcate a disaster mitigation culture in future generations Framework CRI-1: Enhance Self Reliant and Mutual Help for Efficient Risk Management Capability Understandings / Concerns: Metropolitan Manila is posed with great threat due to rupture proximity with the Valley fault system along the eastern part. Barangay is the unique system of “Community Governance” and each of them is supposed to have disaster preparedness plan in the Philippines. However, most barangay in Metropolitan Manila have not prepared any black and white for disaster management, let alone for a catastrophe like earthquake, in which, public help may not function well for the first 72 hours, and this is the time self reliant and mutual help actions take effects to save life and properties. 1) 2) 3) Basic Policy /Basic Concept of Framework: Knowledge development about earthquake hazards and vulnerabilities Enhancement of community’s perception of their vulnerability Participatory analysis of local capacities and vulnerabilities Increase community resistance to earthquake Socializing building safer measures into community practice Canalizing community governance Upgrading living standard through community participation -3-22- Final Report 4) - Community business Enhancing potential emergency management capacities Legitimate local community unit and strengthening social cohesion Developing knowledge and exercising drills Preparation of community equipments and family emergency kits Preparation and familiarization of emergency plan and simple manual Establishment of information management system Action Plans: Knowledge development about earthquake hazards and vulnerabilities Increase community resistance to earthquake Enhance the community governance and linkage with LGUs Enhance potential emergency management capacities (Fire/ search & rescue, and information management) Enhance the administrative system supporting community activities Framework CRI-2: Inculcate a Disaster Mitigation Culture in Future Generations Understandings / Concerns: The DECS (Dep. of Education, Culture and Sports, now Dep. of Education) ORDER No.14, s. 1997 states that Calamity Disaster and Fire Control Group shall be established in each school. Although conventional fire and evacuation drills are regularly conducted at most schools with the participation of teachers and pupils, teachers propose knowledge development and skill trainings in disaster management to activate the Group and to better educate the pupils. In the calamity, schools are expected to accommodate local community people. The integrated plan in coordination with the local community is essential. In more broader vision, school children are the most significant future generations to inculcate disaster culture that disaster impact reduction begins at individuals and sustainable development is only viable, if disaster impacts are to be reduced. 1) 2) Basic Policy /Basic Concept of Framework: Enhancement of school risk management capacity Organizing seminars and trainings of disaster management Reviewing and updating school disaster plan To inculcate disaster culture in future generations Including earthquake disaster management in school curriculum Dissemination of damage estimation results Drill Action Plans: Enhance school risk management capacity -3-23- Earthquake Impact Reduction Study for Metropolitan Manila in the Republic of the Philippines - Inculcate a disaster mitigation culture in future generations 3.3.5 Formulation of Reconstruction Systems Goals Objectives RSF-1 RSF-2 To formulate reconstruction systems To improve community recovery capability RSF-3 RSF-4 RSF-5 RSF-6 Frameworks Supply temporary refugee housings Prepare emergency assistance for everyday life Establish debris clearance and management system Restore public and social services Establish post-disaster reconstruction system of the damaged area Enhance institutional aspect Framework RSF-1: Supply Temporary Refugee Housing Understandings / Concerns: It is estimated that 40% of the existing houses will be damaged in the event of the scenario earthquake, and on the assumption of the number of the temporary houses needed is calculated as 223,700 houses. The number is huge for the Philippine government, thus it is mandatory to formulate a temporary housing plan including construction site. 1) 2) Basic Policy /Basic Concept of Framework: Supply temporary houses Supply the public services Action Plans: Formulate temporary refugee housing plan Framework RSF-2: Prepare Emergency Assistance for Daily Life Understandings / Concerns: The estimated number of the people affected by the scenario earthquake is estimated more than 3 million. The number is so huge that the government should take a fundamental measure to alleviate their suffer both financially and mentally in order to assist them to feel easier and return to the normal life quicker. 1) Basic Policy /Basic Concept of Framework Take measures for financial and mental relief for the people affected by the scenario earthquake Action Plans: Formulate basic policy for emergency assistance for daily life -3-24- Final Report Framework RSF-3: Establish Debris Clearance and Management System Understandings / Concerns: It is estimated that some 33,555,000 tons of debris will be generated from the 447,400 damaged buildings. Moreover, the total debris including both buildings and infrastructure is estimated to weigh some 50 million tons. It is compulsory to study the method of treatment and the dumping site of debris, for the smooth recovery and reconstruction of the urban area and infrastructure. 1) Basic Policy /Basic Concept of Framework: To formulate estimated debris clearance plan based on the estimated amount of the debris Action Plans: Formulate the debris clearance plan for the LGUs Framework RSF-4: Restore Public and Social Services Understandings / Concerns: The government agencies would act based on the pre-prepared plan for their tasks designated beforehand to maintain the stability of the society after the disaster as much as possible. However, even so, the society will be confused and it is difficult to maintain the law and order, especially to prevent looting and unnecessary damage. 1) Basic Policy /Basic Concept of Framework: To create plan to secure the peace and order for the affected areas by the government Action Plans: Formulate basic policy for post-disaster peace and order keeping activities Framework RSF-5: Establish Post-Disaster Reconstruction System of the Damaged Area Understandings / Concerns: The estimated damage is huge, but quick post-disaster recovery and reconstruction are mandatory to restore the normal life and activities. For the prompt recovery and reconstruction, pre-disaster arrangements to cope with post-disaster situation are imperative. 1) 2) Basic Policy /Basic Concept of Framework: Facilitate quick return to the normal: people’s living, housing, employment, and economic activities Make living environment much safer and better than before the disaster Draft pre-disaster guideline on the post-disaster reconstruction of the damaged area Enhance the planned reconstruction in the slum areas Establish the procedure for post-disaster reconstruction Establish housing financial scheme -3-25- Earthquake Impact Reduction Study for Metropolitan Manila in the Republic of the Philippines - Action Plans: Formulate basic reconstruction policies for living, housing, employment and economic activities Formulate guidelines on urban reconstruction and make a scheme of finances and credits Framework RSF-6: Enhance Institutional Aspect of Recovery Planning Understandings / Concerns: When a major disaster occurs, everyone -- government, businesses, communities and families--must pull together to recover. Regaining normalcy is much easier and quicker if the policies, partnerships, and organizational structures to guide and facilitate recovery are in place before the disaster. 1) 2) Basic Policy /Basic Concept of Framework: Establish pre-disaster policies and institutional arrangements for post-disaster reconstruction and mitigation Prepare recovery plans and procedures to ease post-disaster human and physical recovery and rehabilitation Action Plans: Establish pre-disaster policies and institutional arrangements for post-disaster reconstruction and mitigation Prepare pre-disaster recovery plans and procedures to ease post-disaster human and physical recovery and rehabilitation 3.3.6 Research and Technology Promotion for Earthquake Impact Reduction Measures Goals To promote research and technology development for earthquake impact reduction measures Objectives To sustain research and effective transfer of technology R&D-1 Frameworks Promote sustained research and development on earthquake FrameworkR&D-1: Promote Sustained Research and Development on Earthquake Understandings / Concerns: Once huge earthquake occurs in Metropolitan Manila area or at Manila Trench great damages are estimated. Earthquake science, earthquake engineering studies are developed in depth to achieve development of earthquake impact resistant national system, improvement to earthquake resistant urban structure, enhancement of effective risk management system. -3-26- Final Report 1) 2) 3) 4) - Basic Policy /Basic Concept of Framework: Evaluate activity of the Valley Fault System Integrate ground information as a unique and comprehensive database Expand basic inventory on buildings and population for detail damage estimation purpose Promote detail study on comprehensive earthquake disaster estimation Action Plans: Evaluate activity of the Valley Fault System by PHIVOLCS and research institutions Promote comprehensive census survey Promote detail study on comprehensive earthquake disaster estimation by NDCC 3.4 3.4.1 Action Plans List of Action Plans 105 action plans are prepared to put in practice the policies and strategies represented in the frameworks. The action plans by the framework are enumerated in Table 3.4.1. -3-27- Earthquake Impact Reduction Study for Metropolitan Manila in the Republic of the Philippines Table 3.4.1 Frameworks NSD-1: Protect stability of national government function NSD-2: Protect stability of socio-economic system Frameworks and List of Action Plans (1) Action Plans 1) Enhance security capability of national government function with the office of the President 2) Promote urban reform around the nationally important facilities 1) Enhancing Emergency Measures of businesses 2) Enhance safety of on-line financial services 3) Create a safer business environment 4) Enhance emergency finance system USI-1: Promote earthquake resistant urban development 1) Improve resistance of residential buildings 2) Promote subdivision development procedures 3) Enhance social housing policy for Illegal Settlement and Poverty Areas 4) Revise comprehensive land use plan 1) Tie down and stabilize propane cylinders against earthquake shaking 2) Enforce disaster mitigation measures for possible fire breakout facilities 3) Promote replacement to unbreakable (plastic-bottled) gasoline vending 4) Promote vulnerability reduction measures for urban industrial zones 5) Introduce urban fire proof development method USI-2: Promote flameproof urban development USI-3: USI-4: Promote spatial urban development Promote earthquake-resistant buildings 1) Enforce further development of existing open spaces and parks 2) Promote disaster resistant urban development 1) Research and develop on strengthening buildings 2) Promote construction and improvement for earthquake resistant building 3) Develop building engineering related human resources/ Improve building construction permission system 1) Strengthen public facilities 2) Research and develop for strengthening public buildings 3) Develop building engineering related human resources 1) Retrofit bridge structure 2) Secure safety of airport facility 3) Secure safety of harbor facility 1) Prepare organizational system among lifeline companies 2) Assess Detail Risk of Each Lifeline 3) Strengthen emergency operation ability 4) Strengthen water distribution function 5) Strengthen electricity supply function 6) Strengthen telecommunications function USI-5: Promote earthquake-resistant public facilities USI-6: Promote earthquake-resistant infrastructure USI-7: Promote earthquake-resistant lifeline RMS-1: Promote fire preparedness and mitigation including handling hazardous materials RMS-2: Take measures against tsunami RMS-3: Enhance legal basis for disaster management 1) Revise the emergency plan and manuals of the relevant organizations 2) Enhance information and communication system 3) Enhance the emergency response operations of the public organization, LGUs, and the establishments with hazardous materials 4) Establish the support request system and conclude mutual aid agreements 1) Promote Research and development for Tsunami mechanism and damages 2) Promote tsunami damages preventive measures 1) Strengthen legal basis for disaster management at the national level by updating/replacing PD1566 2) Strengthen legal basis at the local level by adopting model city/municipal ordinance 3) Institutionalize local government framework and financing for disaster management 4) Promote policies that encourage implementation of disaster risk reduction measures -3-28- Final Report Table 3.4.1. Frameworks RMS-4: Strengthen institutional capacity for implementing preparedness and mitigation measures Frameworks and List of Action Plans (2) Action Plans 1) Promote the reorganization and revitalization of city/municipal and barangay Disaster Coordinating Councils 2) Promote local government mitigation planning through implementation of the Earthquake Mitigation Handbook and the Earthquake Mitigation and Response Checklists -- Local Planning Guide 3) Conduct training needs assessment and develop capacity building programs for local and barangay Disaster Coordinating Council members and institutions 4) Strengthen barangay level preparedness for disaster response and relief RMS-5: Strengthen inter-institutional coordination 1) Strengthen the MMDCC by updating its structure and organizing and implementing a MMDCC Work Plan 2) Strengthen and update national and Metropolitan Manila level disaster preparedness plans 3) Strengthen Incident Command System (ICS) and response decision-making systems 4) Encourage inter-local cooperation through zonation of LGUs and Master Mutual Aid Agreement RMS-6: Strengthening of institutional disaster response capability 1) Encourage local emergency response planning through use of the Earthquake Mitigation and Response Checklists -- Local Planning Guide 2) Encourage adoption and utilization of emergency response pocket guide by agencies and LGUs 3) Encourage agencies and local governments to inventory response and relief resources and sources and identify needed disaster management tools and equipment 4) Enhance capacity for training emergency response personnel in response and relief functions RMS-7: Develop operation systems and procedures 1) Develop and institutionalize Standard Operating Procedures (SOPs) for key response functions. 2) Develop MMDA Metro Base capabilities for Disaster Operations Center (DOC) operations 3) Establish functional Disaster Operations Centers (DOCs) at city/municipal and barangay levels. RMS-8: Enhance capability of fire suppression and hazardous material abatement 1) Revise the emergency plan and manuals of the relevant organizations 2) Enhance information and communication system 3) Enhance the emergency response operations of the public organizations, LGUs, and the establishments with hazardous materials 4) Establish the support request system and conclude mutual aid agreements RMS-9: Secure evacuation route and evacuation sites RMS-10: Secure Water, Food, and Other Necessaries RMS-11: Enhance emergency health and medical response system RMS-12: Establish emergency transportation system 1) Formulate evacuation site and plan for the LGUs 2) Enhance resources for evacuation 1) Secure the large scaled water source 2) Formulate emergency supply system of water, food, and other necessities 3) 1) 2) 3) 4) 1) 2) 3) 4) 5) 6) 7) Formulate emergency aid agreement Enhance organizational response capacities Improve government hospital capacities Enforce logistics Expand training programs Establish emergency road network Arrange machineries to DPWH for emergency road response Secure road between Bagangas Port to Metropolitan Manila south region Convert one portion of Manila port to earthquake resistant construction Construct Laguna de bay northern shore unloading facility Secure road between Subic port/ Clark field to Metropolitan Manila North region Secure Ninoy Aquino airport functions RMS-13: Establish search and rescue system 1) Develop capacity on search and rescue for refugees 2) Enhance community search and rescue system 3) Establish the system to accept international emergency aid -3-29- Earthquake Impact Reduction Study for Metropolitan Manila in the Republic of the Philippines Table 3.4.1. Frameworks RMS-14: Establish information and communication system RMS-15: Establish geographic Frameworks and List of Action Plans (3) Action Plans 1) Develop disaster information collection and dissemination system in MMDA, LGUs and Barangays 2) Establish a disaster management center 1) Develop geographic database development for disaster management 2) Train LGU staffs on GIS database and information/ communication system 1) Promote adoption and implementation by local governments and agencies of the Guide for Managing Information concerning disasters 2) Establish partnerships with the media for awareness raising and emergency public information information system RMS-16: Manage emergency public information CRI-1: Enhance self-reliant and mutual help for efficient risk management capacity 1) Knowledge development about earthquake hazards and vulnerabilities 2) Increase community resistance to earthquake 3) Enhance the community governance and linkage with LGUs 4) Enhance potential emergency management capacities (Fire/search & rescue, and information management) 5) Enhance the administrative system supporting community activities CRI-2: Inculcate generations a disaster 1) Enhance school risk management capacity 2) Inculcate a disaster mitigation culture in future generations 1) Formulate temporary refugee housing plan 1) Formulate basic policy for emergency assistance for everyday life. 1) Formulate debris clearance plan for the LGUs 1) Formulation of basic policy for post-disaster peace and order keeping activities 1) Formulate basic reconstruction policies for living, housing, employment and economic activities. 2) Formulate guidelines to urban reconstruction and make a scheme of finances and credits. mitigation culture in future RSF-1: RSF-2: RSF-3: RSF-4: RSF-5: Supply temporary refugee housings Prepare emergency assistance for everyday life Establish debris clearance and management system Restore public and social services Establish post-disaster reconstruction system RSF-6: Enhance aspect planning of institutional recovery 1) Establish pre-disaster policies and institutional arrangements for post-disaster reconstruction and mitigation 2) Prepare pre-disaster recovery plans and procedures to ease post-disaster human and physical recovery and rehabilitation 1) Evaluate activity of the Valley Fault System 2) Expand of basic inventory on buildings and population for detail damage estimation purpose 3) Promote detail study on comprehensive earthquake disaster estimation R&D-1: Promote sustained research and development on earthquake -3-30- Final Report 3.4.2 1) High Priority Action Plans Prioritization Needs and Process Among the 105 identified priority action plans in the master plan, 40 of them are selected as high priority action plans. These selected high priority action plans are essential plans to be initiated as initial steps within 3-6 years, in accordance with the overall basic strategies to improve the existing situation. For selecting the high priority action plans, five areas were focused to prioritize the action plans. The areas of focus are identified as in the following table together with the aim and reason. Table 3.4.2 Areas of Focus for Prioritization Aim/Reason By consolidating the legal background for disaster management from national to barangay level, the disaster management system of Metropolitan Manila will be strengthened Prepare for responding to the survival needs of the people Area Area 1: Enhance legal framework and institutional capacity for disaster management Area 2: Build Basic Capacity for Relief and Recovery Area 3: Strengthen Community Preparedness for the Earthquake Area 4: Reduce Dangers of Residential Buildings Area 5: Enhance National System Resistant to Earthquake To survive by the community’s own capacity without relying on governmental institutions Reducing the amount of damages to residential buildings will minimize the estimated losses Enhancing national systems resistant to earthquake damage and disruption 2) Selected High Priority Action Plans The following table gives the brief description of selected 40 high priority action plans, including framework number, outline, and implementation agencies. -3-31- Earthquake Impact Reduction Study for Metropolitan Manila in the Republic of the Philippines Table 3.4.3 List of High Priority Action Plans Area 1•F Enhance legal framework and institutional capacity for disaster management Strategy 1: Enhance legal basis for disaster management No. RMS-3: Action Plan Strengthen legal basis for disaster management at the national level by updating/replacing PD1566 Strengthen legal basis at the local level by adopting model city/municipal ordinance Implementing Agency The President, acting on the request of stakeholders such as the NDCC and MMDCC MMDA, Metropolitan Manila Council, Mayors and Local Legislative Councils RMS-3: Strategy 2: Strengthen institutional capacity for mitigation, preparedness and response No. RMS-4: RMS-4: Action Plan Promote the reorganization and revitalization of city/municipal and barangay Disaster Coordinating Councils Promote local government mitigation planning through implementation of the Earthquake Mitigation Handbook and the Earthquake Mitigation and Response Checklists -- Local Planning Guide Conduct training needs assessment and develop capacity building programs for local and barangay DCCs Encourage local emergency response planning through use of the Earthquake Mitigation and Response Checklists---Local Planning Guide Encourage adoption and utilization of Emergency Response Pocket Guide and Guide for Managing Information by agencies and LGUs Implementing Agency MMDCC, Mayors, City and Municipal DCCs MMDCC to distribute the guides with endorsement and instructions; appropriate agencies to place guides on their websites. RMS-4: RMS-6: MMDCC, with assistance of DILG and OCD MMDCC to distribute the guide with endorsement and instructions; appropriate agencies to place on websites. MMDCC, C/MDCCs MMDCC, MMDA, and LGUs RMS-6 /RMS-16: Strategy 3: Strengthen inter-institutional coordination No. RMS-5: RMS-5: Action Plan Strengthen MMDCC by updating its structure and organizing and implementing a MMDCC Work Plan Encourage inter-local cooperation through zonation of LGUs and Mutual Aid Agreements Build Basic Capacity for Relief and Recovery Implementing Agency MMDCC, MMDA MMDCC, MMC, LGUs Concept 2•F Strategy 1: Enhance emergency health and medical response system No. RMS-11: Action Plan Enhance organizational response capacities Implementing Agency 1. Prime: LGU, Coordinator: MMDA and DOH 2. Prime: LGU, Coordinator: MMDA and DOH 3. Prime: DOH, some of LGUs and other governments’ hospitals RMS-11: RMS-11: Improve government hospital capacities Enhance logistics and medical supplies Prime: DOH and Provincial Governments Prime: LGU, DOH and other government’s agency with hospitals -3-32- Final Report Strategy 2: Establish emergency transportation system No. RMS-12: RMS-12: RMS-12: RMS-12: RMS-12: RMS-12: Action Plan Establish emergency road network Secure road between Batangas Port to Metropolitan Manila south region Convert one portion of Manila port to earthquake resistant construction Secure road between Subic port/ Clark field to Metropolitan Manila North region Construct Laguna de bay northern shore unloading facility Secure Ninoy Aquino airport function MMDA DPWH PPA DPWH MMDA/PPA DOTC Implementing Agency Strategy 3: Secure water No. RMS-10: RMS-10: Action Plan Secure the large scaled water source for drinking Formulate emergency supply system of water, (food, and other necessities) Implementing Agency MMDA, DSWD LGUs, MMDA, DSWD Concept 3•F Strengthen community preparedness for the earthquake Strategy 1: Enhance self reliant and mutual help for efficient risk management capacity No. CRI-1: CRI-1: CRI-1: CRI-1: Action Plan Knowledge development about earthquake hazards and vulnerabilities Enhance the community governance and linkage with LGUs Enhance potential emergency management capacities Enhance the administrative system supporting community activities Implementing Agency PHIVOLCS, MMDA, LGUs LGU, barangay (pilot) MMDA, LGU, barangay Barangay, LGU Strategy 2: Inculcate a disaster mitigation culture in future generations No. CRI-2: CRI-2: Action Plan Enhance school risk management capacity Inculcate a disaster mitigation culture in future generations Reduce dangers of residential buildings Implementing Agency Dep Ed, LGU, schools Dep Ed, LGU, schools Concept 4•F Strategy 1: Strengthen buildings against earthquake No. USI-1: USI-3: USI-3: USI-4: USI-4: Action Plan Promote subdivision development procedures Promote disaster resistant urban development/ re-development Enforce and develop laws and regulations related to urban planning and building code Research and development on strengthening buildings Promote construction and improvement for earthquake resistant buildings Implementing Agency HUDCC, MMDA, Private LGUs (Monitored by HLURB) HUDCC, DPWH DPWH, ASEP, PEIS and Researchers, Construction Industry Residents, Housing developer, LGUs -3-33- Earthquake Impact Reduction Study for Metropolitan Manila in the Republic of the Philippines Strategy 2: Avoid fire outbreaks from residential buildings No. USI-2: USI-2: Action Plan Tie down and stabilize propane cylinders against earthquake shaking Promote replacement to unbreakable (plastic-bottled) gasoline vending Implementing Agency LGU/ barangay BFP Strategy 3: Propel research and technology development on earthquake impact reduction No. R&D-1: Action Plan Evaluate activity of the valley fault system Enhance National System Resistant to Earthquake Implementing Agency PHIVOLCS Concept 5•F Strategy 1: Protect stability of national government function No. NSD-1: Action Plan Enhance continuity of national government function with the President’s office Implementing Agency LGUs, MMDA, Presidential Office NSD-1: Promote urban reform around the nationally important facilities MMDA, Presidential Office Strategy 2: Protect stability of socio-economic system No. NSD-2: NSD-2: NSD-2: Action Plan Enhance emergency measures by businesses Enhance safety of online financial services Enhance disaster finance system Implementing Agency MMDA, Presidential Office, Chamber of Commerce MMDA, Presidential Office, Chamber of Commerce Presidential Office, Chamber of Commerce, NEDA -3-34-