Manual Local Flood Early Warning Systems - Planet Action

Manual
Local Flood Early Warning Systems
Experiences from the Philippines

Manual
Local Flood Early Warning Systems
Experiences from the Philippines

This document has been produced with the financial assistance of the European Commission. It does not reflect the official
opinion oft he European Commission.
Published by:
Deutsche Gesellschaft für
Technische Zusammenarbeit (GTZ) GmbH
German Technical Cooperation
Environment and Rural Development Program
Disaster Risk Management Component
3rd Floor PhilAm Life Building
Justice Romualdez Street
Tacloban City
Leyte, Philippines
T 0063 53 323 8623
F 0063 53 323 8624
Internet:
www.gtz.de
Responsible:
Dr. Walter Salzer
Author:
Olaf Neussner (drmon@web.de)
Photographs:
Olaf Neussner (unless indicated otherwise)
Layout and printing by:
VG Printing Services
Tacloban City, October 2009

Table
of Content
Introduction............................................................................................................................. 5
Acknowledgements.................................................................................................................. 6
1. What is a flood?................................................................................................................. 7
Floods and watersheds...................................................................................................... 8
2. Overview: Key elements of FEWS....................................................................................11
2.1. Risk knowledge....................................................................................................... 12
2.2. Monitoring and warning services...........................................................................13
2.3. Dissemination and communication........................................................................13
2.4. Response capability................................................................................................14
3. Where to establish a LFEWS?..........................................................................................15
3.1. Scope and limitations of FEWS...............................................................................16
3.2. What information is needed for the decision to establish an LFEWS?...................16
3.2.1. The nature of the flood hazard...................................................................17
3.2.1.1..Frequency......................................................................................17
3.2.1.2..Location of the flooded area.........................................................17
3.2.1.3..Depth of the floods.......................................................................17
3.2.1.4..Duration of the floods...................................................................17
3.2.2. Elements at risk..........................................................................................18
3.2.2.1..People...........................................................................................18
3.2.2.2..Material values..............................................................................18
3.2.3. Vulnerability...............................................................................................18
3.2.3.1..People...........................................................................................19
3.2.3.2..Material values..............................................................................19
3.3. Technical feasibility of a LFEWS..............................................................................20
3.4. Economic feasibility of a LFEWS (Cost Benefit Analysis).........................................22
3.4.1. Damage reports (frequency, severity)........................................................22
3.4.2. Damage projections....................................................................................22
3.4.3. Installation costs.........................................................................................23
3.4.4. Running and maintenance costs.................................................................23
4. Risk knowledge................................................................................................................ 25
4.1. Hazards................................................................................................................... 26
4.2. Elements at risk...................................................................................................... 27
4.3. Vulnerability .......................................................................................................... 28

4.4. Risk knowledge management.................................................................................29
4.4.1. Institutional mechanisms (who collects and analysis the data?)................29
4.4.2. Regular documentation of risk developments............................................29
4.4.3. Make documentation available to key actors.............................................30
5. Monitoring hazards and warning decision......................................................................31
5.1. Organizational and decision making processes......................................................32
5.2. Weather forecasting...............................................................................................33
5.3. Monitoring devices.................................................................................................34
5.3.1. Water level devices.....................................................................................34
5.3.2. Rainfall devices...........................................................................................36
5.4. Collecting data........................................................................................................ 38
5.4.1. Satellite-based rainfall estimations.............................................................38
5.4.2. Gauge-based rainfall estimations...............................................................39
5.4.3. Water level of rivers....................................................................................39
5.5. Forecasting and warning........................................................................................39
5.5.1. Identification of the flood-prone area........................................................40
5.5.1.1..The regular flood-prone area........................................................40
5.5.1.2..The area prone to extreme high floods.........................................43
5.5.2. Initial threshold estimations.......................................................................43
5.5.3. Adjustment of the thresholds.....................................................................43
5.5.4. Three different warning levels....................................................................45
6. Dissemination and communication.................................................................................47
6.1. Organizational structure.........................................................................................48
6.2. Installation of effective communication systems and equipment..........................49
6.3. Recognizing and understanding warning messages...............................................50
7. Response capability......................................................................................................... 51
7.1. Respect and follow warnings..................................................................................52
7.2. Establishment of disaster preparedness or response plans...................................52
7.3. Drills and dry runs..................................................................................................53
7.4. Evacuation centers.................................................................................................54
7.5. Assess and strengthen response capacity..............................................................55
7.6. Enhance public awareness and education..............................................................55
8. Cross-cutting issues......................................................................................................... 57
8.1. Effective institutional arrangements.......................................................................58
8.1.1. Secure LEWS as long-term priority/commitment.......................................58
8.1.2. Assess institutional capacities and provide Capacity Development...........58
8.1.3. Secure financial resources..........................................................................59
8.2. Conflict management.............................................................................................59
8.3. Multi-risk approach................................................................................................59
2

9. Key actors ....................................................................................................................... 61
9.1. Residents (communities)........................................................................................62
9.2. Local governments.................................................................................................62
9.3. National government institutions ..........................................................................62
9.4. Non-governmental organizations...........................................................................63
9.5. The private sector...................................................................................................63
9.6. The science and academic community...................................................................63
10. Literature ........................................................................................................................65
11. Abbreviations and acronyms...........................................................................................67
12. Annexes .......................................................................................................................... 69
Annex 1.: Hazard calculations..........................................................................................70
Annex 2.: Classification of vulnerability factors...............................................................71
Annex 3.: Cost Benefit Analysis.......................................................................................72
Annex 4.: Form recording rainfall/river level data...........................................................73
Annex 5.: Flood warning levels overview........................................................................74
Annex 6.: Checklists/reports for flood warning levels.....................................................75
Annex 6.1.: For households....................................................................................75
Annex 6.2.: For barangays......................................................................................77
Annex 6.2.1.: Flood warning level 1............................................................78
Annex 6.2.2.: Flood warning level 2............................................................79
Annex 6.2.3.: Flood warning level 3............................................................80
Annex 6.3.: For municipalities................................................................................81
Annex 6.3.1.: Flood warning level 1............................................................82
Annex 6.3.2.: Flood warning level 2............................................................83
Annex 6.3.3.: Flood warning level 3............................................................84
Annex 7: Evacuation drill checklist..................................................................................85
Annex 8: Table of content for an annual report of an operation center..........................86
Annex 9: Sample Memorandum of Agreement between LGUs.......................................87
Annex 10: Checklist Local Flood Early Warning System...................................................94
Annex 11: Information on EU DIPECHO...........................................................................95
3

Introduction
This manual is based on the experience of German Technical Cooperation
(GTZ) in a project supporting the establishment of Local Flood Early Warning
Systems. The European Commission 1 and the German Government 2
funded the project. The manual describes how to set up and run a Local
Flood Early Warning System for inland river floods. It does not include
special cases like flash floods, storm surges and tsunamis.
Major river basins with flood prone areas 3 have long been taken cared of by an institution
of the Department of Science and Technology (DOST) handling mainly weather and
flood forecasts, the Philippine Atmospheric Geophysical and Astronomical Service
Administration (PAGASA). These early warning systems are technically demanding,
highly automated and require heavy investments. The operations center, where
information is gathered and decisions are made, is located in the central office of PAGASA
in Manila. For smaller rivers and smaller flood-prone areas another approach has
been successfully tested for some years now. The technical set-up is less sophisticated
and thus much cheaper. The operations center is based in or near the flood-prone
area and staffed with local personnel. Rainfall and river level data are observed and
reported to the operations center. Automated gauges play a key role in the system and
are augmented by local observers (mostly volunteers). In the experience of the local
partners of GTZ (provincial government, municipalities) the system can forecast flood
events and warn people in the hazard zone reliably.
Sometimes Early Warning Systems are called Warning Systems only, because it is the
very nature of a warning to come earlier than the actual event. Therefore an early
warning is a little redundant, but as this term is established and widely accepted now
we also use it here.
Local Flood Early Warning Systems (LFEWS) have also been promoted by PAGASA 4
and other institutions 5 for a few years now. They are called Community-Based
or Community Managed 6 or simply Local FEWS to distinguish them from the big
centralized FEWS run by the PAGASA central office.
There is a growing interest in the establishment of local and low-cost FEWS. Up to now
no comprehensive guideline on how to establish and run such a system exists in the
Philippine context. Some publications are dealing with the topic 7 and many publications
from countries with a history of big floods like Bangladesh provide guidance 8 . It is
hoped that GTZ can contribute with this manual to the development of more local
flood early warning systems.
1
Disaster Preparedness European Commission Humanitarian Aid Department (DIPECHO)
2
Federal Ministry for Economic Cooperation and Development (BMZ)
3
River basins: Pampangna, Agno, Bicol, Cagayan River; sub basins: Angat, Binga-Ambuklao, Pantabangan, Magat, Metro Manila
4
Hernando, 2008
5
Accion Contra el Hambre, Corporate Network for Disaster Response, Christian Aid, OXFAM
6
The systems are (at least partly) working with volunteer monitors within a barangay, hence the word “community”.
7
PAGASA, without date. Damo, 2007. Nilo, 2006. Perez, 2007
8
Sharma, 2004
5

Acknowledgements
GTZ wants to thank Governor J. L. Petilla, Mr. Vince
Emnas, Provincial Administrator, for initiating the work
on the manual, Mr. Paul P. Mooney from the Operation
Center of the Binahaan LFEWS (all Province of Leyte),
Mr. Allen Molen (GTZ), Dr. Susan Espinueva, Supervising
Weather Specialist and Officer-in-Charge of Flood
Forecasting and Warning Section, Mr. Heraclio M. Borja,
Assistant Weather Services Chief, Hydrometeorological
Division, (PAGASA), Mr. Hilton Hernando (PAGASA), Mr.
Suresh Murugesu (ACF - Action Against Hunger), Mrs.
Harleen Daber (University of Delhi, India), Mayet Alcit
(CNDR - Corporate Network for Disaster Response) for
contributing to this manual, and Ms. Marion Holz for the
Cost Benefit Analysis.
6

1. What is a Flood?
A flood is an overflow of an excess of water that submerges land usually not covered by water.
Flooding may result from the volume of water within a body of water such as a river or lake,
exceeding the total capacity of its bounds, with the result that some of the water flows or sits
outside of the normal perimeters of the body 9 .
A simpler definition: A flood is when the water from a river spills out of the river bed.
This manual is limited to floods described above. It does not include flash floods, storm surges
or tsunamis.
9
Definitions modified from Wikipedia
7

Flash floods are defined as flooding of short duration with a relatively high peak discharge. It
is normally caused by heavy rainfall associated with a thunderstorm or a tropical storm. They
can also occur after the collapse of a dam or a breakdown of piled up debris in a river. Flash
floods are distinguished from regular floods by a timescale of less than six hours from rising to
going back to normal.
Storm surges are floods caused by rapidly rising seawater and inundation of low-lying coastal
areas. Storm surges are normally caused by a combination with very low air pressure, strong
wind towards the coast and high tide. The hurricane Katrina in 2005 had a surge height of
7.60m.
In case a storm surge hits at the same time with an inland flood occurs inland close to the coast
the combination of the effects will aggravate the inland flood.
A tsunami is, most often, a wave caused by an earthquake in the sea 10 . It hits the coast and can
cause serious destruction in flat near-shore areas.
1.1. Floods and Watersheds
Rain water falling from the sky will drain to the rivers and the rivers ultimately flow into the
sea 11 . The surface run-off is flows into the rivers and if their channel capacity is exceeded
the water spills over to flat areas. This is called a flood.
In order to understand where all the water causing the flood comes from we look at the
whole watershed or river basin 12 as a system. The rain coming from upstream can cause
flooding of the downstream area. In case the drainage of a flat area is poor then the rain
directly falling onto an area may cause floods too (ponding of rainwater).
Floods in a Watershed
Watershed
Floods may also overrun its river basin and spill over to a neighboring river system particularly
at the lower section of parallel watersheds. In such case, a flood in one river system might spill
10
Other causes are: landslides hitting the sea, underwater landslides, volcano eruptions, meteors hitting the sea
11
Of course water also evaporates, is absorbed by the soil and plants and feeds into ground water, but during periods of heavy rains (the usual cause
for floods in the Philippines), most rain remains surface water.
12
For details on the delineation of a river basin see 1.2.2.
8

What is a Flood?
over to a neighboring river basin. For the purpose of setting up a LFEWS, it is best to ask local
people about this phenomenon in order to understand the nature of flooding in that particular
area. In cases of spill over from neighboring river basins these have to be included also in the
LFEWS.
Overflow of a Watershed
Watershed A
Ocean
Watershed B
9

Location Map
This phenomenon was observed in Abuyog, Leyte, where the Bito river caused flooding of the
town center (poblacion) of Abuyog although the poblacion is not part of the Bito watershed.
10

2. Overview:
Key elements of FEWS
The United Nations’ International Strategy for Disaster Reduction (ISDR) is concerned with
the reduction of disasters 13 . ISDR issued a guideline on developing early warning systems 14 .
This chapter is largely based on the recommendations of ISDR. According to ISDR an early
13
ISDR aims at building disaster resilient communities by promoting increased awareness of the importance of disaster reduction as an integral
component of sustainable development, with the goal of reducing human, social, economic and environmental losses due to natural hazards and
related technological and environmental disasters.
14
ISDR, 2006
11

warning system consist of four elements: risk knowledge, monitoring and warning services,
dissemination and communication as well as response capability.
GTZ also considered the experience of other countries when the LFEWS was established in the
Eastern Visayas 15 .
2.1. Risk Knowledge
The risk is defined as: The combination of the probability of an event and its negative
consequences 16 .
Risks arise when hazards and vulnerabilities appear together at a particular location.
Assessments of risk require systematic collection and analysis of data and should consider
the dynamic nature of hazards and vulnerabilities that arise from processes such as
urbanization, rural land-use change, environmental degradation and climate change 17 .
Risk assessments and maps help to motivate people, prioritize early warning system needs
and guide preparations for disaster prevention and responses.
15
E.g. Basha, 2007
16
ISDR, 2009
17
GTZ, 2002, page 25
12

Overview: Key elements of FEWS
2.2. Monitoring and Warning Services
Warning services lie at the core of the system. There must be a sound scientific basis
for predicting and forecasting hazards and a reliable forecasting and warning system that
operates 24 hours a day. Continuous monitoring of hazard parameters and contributing
factors is essential to generate accurate warnings in a timely fashion. Warning services for
different hazards should be coordinated with stakeholders and relevant agencies to gain
the benefit of shared institutional, procedural and communication networks.
2.3. Dissemination and Communication
Warnings must reach those at risk. Clear messages containing simple, useful information
are critical to enable proper understanding of warnings and responses in order to safeguard
lives and livelihoods. Regional, national and community level communication systems
must be pre-identified and appropriate authoritative mandates established. The use of
multiple communication channels is necessary to ensure that as many people as possible
are warned, to avoid failure of any one channel, and to reinforce the warning message.
13

2.4. Response Capability
It is essential that communities understand their risks; respect and follow the warning and
know how to react. Education and preparedness programs play a key role in reducing risks.
It is also essential that disaster management plans are in place, resources allocated and
standard procedures well practiced and tested. The community should be well informed
on options for safe behavior, available escape routes, and how best to avoid damage and
loss to property.
14

3. Where to Establish
a LFEWS?
There are many areas, which potentially might be affected by floods. Primarily these are flat
areas or plains. Floods may be seasonal and/or frequent (once per year or more) or they
might be rare (e.g. once in a hundred years) and they might be harmless or very destructive.
Some floods are even regarded to be beneficial because the silt/sediments contain fertilizing
minerals and soil and deposit them to the fields.
15

A Local Flood Early Warning Systems provides a warning of an approaching flood to the
residents of a flood-prone area giving them enough time to take necessary preparations before
the arrival of the flood.
This chapter gives some orientation on what important aspects to consider for the decision on
when, where and how to establish a LFEWS.
3.1. Scope and Limitations of FEWS
Flood Early Warning Systems can help to reduce casualties and damages caused by inland
floods. If vulnerable people in a flood-prone area are warned ahead of time they can
leave the danger zone and go to a safer place to avoid drowning. They can also transfer
moveable items susceptible to loss or water damage to higher grounds. This could be an
elevated place within a building or a location outside the flood-prone area. A functioning
FEWS can reduce casualties and damages to moveable property substantially.
However, these benefits only work under certain circumstances:
- The time between the warning and the actual arrival of the flood must be sufficient to
make the necessary arrangements.
- Safe places must be within reach of people.
- Evacuation routes must be accessible.
- The FEWS must be fully operational and reliable. If it is failing to sound alarm when it is
needed or gives false alarms, it is useless.
- The local population has to be aware of the FEWS and the meaning of warnings and
must be willing to follow the advice given to them.
3.2. What Information is Needed for the Decision to Establish a LFEWS?
The establishment, operation and maintenance of a LFEWS is a considerable effort and
one should carefully examine whether the investment in and continuous support of the
systems are justified. The decision should be made on an informed basis and all available
information should be gathered. However, the research should be limited to gathering
secondary data.
The following information must be considered:
3.2.1. The nature of the Flood Hazard
In general it is sufficient to describe the hazard in qualitative terms before establishing an
LFEWS; however, the more quantitative data are available the better 18 . Keep in mind that
the characterization of the flood hazard alone does not determine the need for an LFEWS.
This still depends also on the elements at risk and their vulnerability.
Find out how frequently floods occur, where the flooded area exactly is, how deep the
water is and what current it has.
18
Examples for quantitative hazard calculations are in Chapter 4.
16

Where to Establish a LFEWS?
3.2.1.1. Frequency
Ask PAGASA, NIA, LGUs and PPDOs/MPDOs about records of previous records of flood
events.
Interview people in barangays, especially older people who may have experienced
floods over decades.
Calculate an average per year. If floods occur once per year or more often, a LFEWS
might be very helpful. If they happen less than one in 50 years it might not be useful
to have a LFEWS.
3.2.1.2. Location of Flooded Area
The best way of describing the location of flooded area is using a map. Floods of one
river and its tributaries occur within a watershed, also called river basin. In the first
step you should get a map of the watershed of the area of interest. In the second step
you should locate the flood-prone areas within a watershed/river basin.
Different offices might already have maps of the watershed (DENR, PPDO, MPDOs
etc.). If you do not find this map, create it yourself with a topographic map showing
the altitudes. The definition of a watershed is: The entire region draining into a river,
river system or body of water 19 . You have to delineate this area by going along ridges
separating one river basin from another river basin.
Try to find already existing maps of flood-prone areas. MGB and PAGASA or local LGUs
might have them.
In case no official flood map exists you have to rely on reports and try to estimate the
flooded area.
3.2.1.3. Depth of the Floods
The number of casualties and amount of damage caused by a flood depends (among
others) on the depth of the water.
It is unlikely but possible that you find maps showing different inundation levels or
the maximum recorded flood depth. Interview local people about their experience
and take note of the depth. In cases where floods are frequent, the flood levels can
be estimated from stains on buildings and infrastructure or from rubbish (e.g. plastic
bags) in tree branches.
Inhabited areas with more than 1m of flood are dangerous and a LFEWS might be
useful to warn the inhabitants.
3.2.1.4. Duration of the Flood
The number of casualties and amount of damage caused by a flood depends also
on the time the water stayed in the area. The danger of spreading of water-borne
diseases is higher if the water stays in an area for a week or more.
19
www.waterquest.ca/about/glossary.asp
17

Interview residents about their experience. Take note of the time and use it for the
preparation of evacuation centers. For longer stays in the centers they need more
provisions.
3.2.1.5. Current of the Flood
Strong currents can carry things away or floating debris may damage buildings and
infrastructure. Ask people about their experience of currents during floods. Some
offices might even have measured discharge and currents of the river (PAGASA, NIA).
Keep in mind that water current in rivers might be faster if there is more water in it.
If strong currents are common (7km/hour or more in the flooded area) the floods are
very dangerous and people should not endure floods in their houses because they
might collapse.
3.2.2. Elements at Risk
After the flood-prone area and the nature of the flood are identified you have to find out
what elements are exposed to the hazard in the flood-prone area. There are two different
“elements at risk”, people and all other material values.
3.2.2.1. People
Estimate (or count) how many people live and work in the flood-prone area. Ask LGUs
for statistics or make estimations based on housing density in the flood-prone area.
Statistics of barangay population might be helpful, however, in many barangays only
part of the houses experience flooding. In this case the population number has to be
adjusted.
3.2.2.2. Valuable Materials
It is important to estimate what valuable materials are located in a flood-prone area.
In a worst case scenario they might all be lost. Here, only values that can be moved
easily shall be included, because only this type of materials can be removed after a
warning from a LFEWS.
Try to estimate what moveable materials the households or businesses in the floodprone
area have. Work with assumptions about the typical belongings of a rural or
urban household.
3.2.3. Vulnerability.
Loss of life and damage to property by floods only happen if these people or valuable
materials are vulnerable to floods. The definition of vulnerability includes factors or
constraints of an economic, social, physical or geographic nature, which reduce the ability
of a community to prepare for and cope with the impact of hazards. This results in damage
or loss of an exposed element at risk.
18

Where to Establish a LFEWS?
3.2.3.1. People
If persons are exposed to floods a number of factors determine their vulnerability.
Shorter persons (e.g. children) are more vulnerable than taller persons. The physically
handicapped have more problems and persons who know how to swim are less
vulnerable to floods.
Considerable empirical evidence from all over the world shows that while disaster
losses lead to measurable decreases in income, consumption and human development
indicators, these effects are far more accentuated in lower income (“poor”) households
and communities. The evidence points to increases in the depth and breadth of poverty,
long-term difficulties in recovery and very negative human development impacts in
areas such as education and health, which also have long-term consequences 20 .
The vulnerability also depends on the availability of gadgets like boats or life vests and
ropes.
Furthermore, persons in houses that can withstand a flood and are high enough to
provide shelter in the upper parts of the building are less vulnerable to floods.
Under normal circumstances approximately half of the population (children under 15,
elderly, handicapped) are very vulnerable, while the other half is physically able to
cope with a flood of 1m (3feet). For higher floods the overwhelming majority is very
vulnerable because even able bodied adults have serious problems if the water is
getting so high that they cannot walk in it anymore.
3.2.3.2. Valuable Material
Most material values in flood-prone areas cannot be moved easily and thus are not
subjected to action under a LFEWS.
Many household items (especially electrical, paper), vehicles (motorbikes, cars), stored
harvest, and livestock can be damaged by water. Depending on the circumstances
this may result in total loss of the items, but an LFEWS can help the households to
secure their movable material and prevent damages provided the LFEWS is reliable
and warnings reach the communities and actions are taken on time.
If there is a significant flood hazard in an area (at least 1 flood per year, flood more
than 1 meter high in inhabited area, more than 10km2 area affected or strong currents
during floods), and if there are many elements at risk and these are vulnerable it makes
sense to consider the establishment of a LFEWS. There are no hard rules defining a
certain minimum number of persons or values at risk.
The affected area might also be very big and a river stretching over many provinces
or regions may be involved. In this case it might be worthwhile to explore whether
PAGASA should run the FEWS.
If the risk is considered significant and a LFEWS may be useful the next step is the
technical feasibility of a FEWS. The LFEWS can only have significant impact if it can
technically function.
20
page 8, ISDR, 2009b
19

3.3. Technical Feasibility of a LFEWS
A LFEWS may be needed in an area, but it might be technically difficult to establish it.
Therefore, the technical feasibility of the LFEWS should get some attention.
Basically a LFEWS detects a flooding condition upstream and warns inhabitants
downstream of the approaching flood. The longer the time between the warning and the
actual arrival of the flood the better the residents can prepare by bringing their belongings
and themselves to safe places.
Any FEWS needs a certain time for the detection of a flood condition upstream and the
arrival of the warning at the inhabitants of the flood-prone area. This time depends on the
frequency of data gathering, the communication of the data to an operation center, the
decision to issue a warning and the communication of the warning to the house¬holds
(possibly via a chain). A very fast system may need only 10 minutes for this, but under
normal circum¬stances many households may be informed only after 30 to 60 minutes,
some even later.
In order to estimate the time between the detection of a flood condition and the arrival
of a flood at a certain point it is best to use a sketch map of the river basin of the area
of interest. The map should contain the shape of the watershed, the main river and big
tributaries and the flood-prone area.
The best data for predicting a flood is measuring the water level of the river. The second
best way is predicting a flood from rainfall data.
For the sake of simplicity we take only one point for measuring the river level. This point
should be the drainage point of a relatively big sub watershed of the total watershed.
A point further downstream means a bigger sub watershed being covered. The bigger
the sub watershed, the higher the representation of the data and thus the forecasting
of a flood. On the other hand, this river level gauge should be as far as possible from the
downstream flood-prone area to gain a long warning time. The location of the gauge is a
compromise between the two requirements.
Position of River Level Gauge
20

Where to Establish a LFEWS?
In this sketch map the yellow spot is the location of the river level gauge. The dark blue
area represents the sub watershed that drains to the measuring point. The Minimum
Distance to the flood prone area has to be taken from the actual length of the curving
river and the same applies to the Maximum Distance. We assume that the river flows with
10km per hour. If the distance between the river level gauge and the nearest point of the
flood-prone area is 5km, the flood will arrive 30 minutes after it passed the gauge. The
farthest point of the flood-prone area may be 15km from the gauge. The flood will hit this
point 1hour and 30 minutes after it was detected at the gauge.
Taking into consideration that it often takes 30 minutes from the data collection to the
warning reaching the threatened population the LFEWS may not be very useful for those
people living upstream in the flood-prone area. But for the residents further down stream
the warning might still be on time to make some arrangements and evacuate.
Normally it takes some time to bring certain items to safety. This depends much on the
circumstances of the location (e.g. proximity of a safe place). As guideline some examples
are listed here 21 .
Items Protected with Warning

3.4. Economic Feasibility of a LFEWS (Cost Benefit Analysis)
The economic Cost Benefit Analysis (CBA) compares the price to be paid for a LFEWS to
the benefit gained from timely warnings 22 . The benefit is expressed as values saved from
damage or loss. If the cost of the LFEWS is lower than the expected savings it is worthwhile
to consider the establishment of the system. We use a very simple CBA here. There are
very sophisticated calculation methods available too 23 .
The CBA does not include the loss of human life. If lives were lost in the past and casualties
are expected in future floods the establishment of a LFEWS may be a very suitable way
of reducing deaths and you may not want to go into the details of a CBA and install the
LFEWS anyway. Ask about casualties in previous floods. Consult damage reports, if they
are available. If there is a pattern of flood-related casualties you may skip the CBA and
install the LFEWS if it is technicaly feasible.
3.4.1. Damage Reports (frequency, severity)
The best way of estimating average annual damage costs are the data from damage
reports. If you can get them from the municipality or provincial offices (OCD might
also have them) take the data from these reports. We are interested only in data
concerning moveable items.
In case no damage reports can be found or if they reflect only a part of the damages,
you should ask staff of LGU for their estimates of damages and losses.
Based on this information you can estimate an average annual loss of moveable
items.
3.4.2. Damage Projections
Basically, you can assume that the recorded damages and losses of the past will continue
in the future, but there may be factors that will increase the expected damages. If the
number of households in the flood-prone area increases over the years the expected
damages will also increase. It is also possible that the households will buy more
vulnerable items like TVs etc.. In some cases, depending on the availability, you may
use data available from the local assessor’s office and use this data in combination
with other information you gather. Global Warming seems to increase the number of
stronger typhoons in the Philippines and they may bring more rain resulting in more
floods. On the other hand it is also possible that more and more people build their
homes on stilts and reduce their vulnerability to floods.
If you can estimate a trend from damage data in the past take this for projections.
Otherwise you may consider a 5% increase in average damage costs per year.
22
GTZ, 2005
23
Verkade, 2008
22

Where to Establish a LFEWS?
No FEWS will be able to reduce losses and damages of moveable items to zero, but
it is expected that some reduction will take place. In the GTZ supported LFEWS it is
estimated that losses and damages of moveable items are reduced by 50%.
3.4.3. Installation Costs
The establishment of a LFEWS consists of a number of costs. Some of them may
be covered by external sources and some of them may have to be covered by local
revenue.
• Identification of locations for measuring equipment
• Purchase and installation of equipment (river level gauge (manual), river level
gauge (tele-metered, rain gauge (manual), rain gauge (tele-metered)
• Training on use of equipment, recording, communication, evacuation
• Training for all stakeholders on the LFEWS
• Establishment of an operation center (building costs [if applicable], office
equipment, specialized equipment [communication, weather station])
• Electronic office equipment (e.g. computers)
• Electronic communication equipment (mobile phones, two way radio)
• Office equipment (cabinets, shelves, desks, chairs)
• Building
• Air condition
• Vehicle (Motorcycle, car)
All equipment has an expected useful lifetime. There are tables which serve as an
orientation. They are available at www.coa.gov.ph/COA_Issuances/Attachments/2003/
C2003-007_AnnexA.pdf. Take the purchase price and divide it by the number of years
of expected useful lifetime and you get the annual depreciation. This shall be used in
the running and maintenance costs described in the next chapter.
3.4.4. Running and Maintenance Costs
The continuous operation of a LFEWS includes monthly costs:
• Depreciation of equipment
• Maintenance of equipment
• Salaries, honoraria, travel allowance
• refresher training courses
• Office maintenance (water, electricity, communication, cleaning, etc.)
• Fuel, lubrication, maintenance for vehicle
• Office supplies
23

Calculate the annual running costs of the FEWS (incl. depreciation) and compare it
to the expected annual savings by reduced damages and losses of moveable items.
If the costs are lower than the savings it is advisable to establish the FEWS from the
economical point of view.
An example of a CBA can be found in Annex 3. It shows that the relatively high costs
of establishing the LFEWS are slowly recovered with the reduced damages due to the
warnings of the system. After eight years the systems runs with less costs than it saves
in terms of reduced damages. It has to be noted that some assumptions for the CBA
have to be verified.
24

4. Risk Knowledge
This chapter basically deals with the same information that was described in Chapters 3.2.1.,
3.2.2., 3.2.3., but in those chapters gathering information was limited to already available
data and it was not handled in a quantitative manner. If a LFEWS is really established it is
advisable to close information gaps by research. Furthermore, risks are changing over time
and it is important that these changes are noticed, documented and integrated with adequate
adjustments into the LFEWS.
25

It is desirable to quantify risks. This is a substantial effort and to do it will require manpower
and resources. In case the stakeholders of the LFEWS decide not to focus on these calculations
the respective parts in Chapter 4 can be ignored.
The total risk is defined by the product of the hazard, the elements at risk and their vulnerability.
This means we have to look at these three determining factors one by one first and then at
their product.
Risk = Hazard * Elements at risk * Vulnerability
It is possible to calculate risks in a quantitative manner. This manual is not describing these
methods in detail but the principles and general examples are explained here 24 .
4.1. Hazards
The flood hazard has one main contributor, rain. Therefore the observation of rainfall is of
primary importance. In case you observe rainfall already with gauges in the river basin you
might like to add another technique, the estimation of rainfall with data freely available
in the internet (see Chapter 5.4.1). If the rainfall data of the LFEWS are not collected
completely or reliably the satellite data may help you considerably.
Under rare conditions an extraordinary amount of rain may fall on the watershed and
cause a flood that is much more severe than the usual/annual floods “One in a hundred
years flood”. If a LFEWS did not consider this yet it is advisable to ask expert advice on how
to estimate such floods.
The severity of floods is not only influenced by rains. Many factors may increase or decrease
the flood hazard. Collect the respective data and analyze them to reveal trends.
• Over the years the river may change its path and with this the flood-prone area will
most likely change. This might also be artificial as man is diverting rivers too.
• Siltation of the river may reduce the channel capacity and increase the chances of
flooding while dredging increases the capacity and reduce the danger of floods.
• Water from rivers is sometimes used for
irrigation. This might be small scale by a minor
channels or pumps, but NIA might also run a
big scheme and this might affect the flooding
behavior of the river.
• Drainage problems can aggravate flooding.
Elevated roads without sufficient (or clogged)
culverts or bridges with too narrow widths can
limit drainage and cause flooding.
24
For details of these methods it is recommended to ask the National and Economic Development Authority for advice.
26

Risk Knowledge
• In case dams are part of the river basin they have also influence on the floods. They
can absorb and store additional water if they are not full yet and they can accidentally
or intentionally release vast amounts of excess water.
• Changes in the vegetation in the watershed influence the water retention capacity of
the soil (e.g. deforestation or reforestation) and this results in more or less water in
the rivers. In case of deforestation more severe floods are to be expected.
It is possible to describe hazards in a quantitative manner. Usually the hazard is quantified in
terms of frequency and intensity for a certain location.
Flood Hazard in a Specific Location
Flood Intensity
Flood Frequency
(water height)
(events/year)
1m 1
2m 0.3
3m 0.1
More detailed methods on how to calculate hazards in a quantitative way are described in
Annex 1.
4.2. Elements at Risk
Get existing data on population in the flood-prone area. If maps showing households are
available the map with the flood prone areas should be superimposed and the households
counted. Otherwise it might be good to have local officials make an educated guess of how
many people in how many barangays are in harms way.
In many river basins the number of inhabitants or the area of vulnerable crops or other
land uses is not well known and it is time and resource consuming to get exact data.
GTZ used satellite images to identify land cover. Useful images are partly freely available
in the internet (Landsat, Google Earth). It is also possible to get images commercially,
but they are expensive in many cases. GTZ received images from the SPOT satellite via
Planet Action 25 and derived land cover maps from the satellite images. The Regional
Environmental Information System of the University of the Philippines, Tacloban campus,
did this work.
27

Land Use in Flood Prone Area of
Binahaan Watershed (SPOT5, ASTER)
(Total: 6,446ha)
This is a land cover map of the flood-prone area (MGB) of the Binahaan river basin. It is
easy to locate the main settlements and with the help of a GIS program one can calculate
the share of the different land use forms in the flood-prone area.
Any other source providing quantitative data about the number of inhabitants or items
susceptible to flood damage are important and should be considered. In Leyte one of the
best sources is the Community Based Management System (CBMS) updated by LGUs.
4.3. Vulnerability
The term vulnerability describes the susceptibility of an element at risk to sustain damage
under the impact of a natural phenomenon like a flood. Different people and different
assets are vulnerable to floods to different degrees.
Many moveable items in households are very vulnerable to floods (electronics, stored
harvest, food, paper). Wooden buildings (1-story) may collapse in 9km/hour flow velocity
of a flood with a depth of 1.7m 26 . This velocity can occur in fast flowing rivers, but the
velocity of the water in flooded residential areas is normally considerably lower than 9km/
25
Planet Action (2008)
26
Department of Homeland Security, p. 5-23
28

Risk Knowledge
hour. The high velocity may happen in or near riverbeds. In case erosion is taking away
riverbanks some buildings might be exposed to high water velocity and the full force of
the current.
The vulnerabilities of individual persons, communities, assets and the environment are
subject to a lot of research in recent years and there are also attempts to quantify social
vulnerability 27 A classification of vulnerabilities can be found in Annex 2.
Protection devices against floods like dykes may themselves be vulnerable to floods or
other environmental influences. Therefore it is important to check the status and condition
of such devices regularly.
4.4. Risk Knowledge Management
Of course it is important to know the risks caused by floods (and other hazards) in a
particular area. This is not a one-time exercise. Hazards may change (e.g. deforestation
in a watershed resulting in faster run-off, climate change resulting in stronger rain);
the elements at risk may change (e.g. more people live in a flood-prone area and they
purchase more assets) and vulnerabilities may change (e.g. more informal settlements at
river banks). Thus the aim of Risk Knowledge Management is to establish a continuous,
systematic, standardized process to collect, assess and share data, maps and trends on
hazards and vulnerabilities. This should include indigenous knowledge about hazards and
how to cope with them traditionally.
4.4.1. Institutional Mechanisms (who collects and analyses the data?)
The OC appears to be an obvious choice for the centralized function of collecting and
analyzing data. Nevertheless, also other arrangements are possible. For example, a
special provincial office dealing with disasters/disaster preparedness might be a good
central knowledge point.
It may be advisable to formalize the central information gathering and dissemination
role of the OC (if selected) already in the MoA establishing the LFEWS.
4.4.2. Regular Documentation of Risk Developments.
It is recommended that the OC (or another designated office) prepares an annual
report about developments with influence on risks from natural hazards in the
target area. This shall include all regularily collected weather and river data, changes
in natural hazards (e.g. deforestation), elements at risk (e.g. increase in buildings,
inhabitants) and vulnerabilities (e.g. share of houses on stilts increased). A suggested
table of content can be found in Annex 8.
27
Dwyer, 2004
29

4.4.3. Make Documentation Available to Key Actors.
Presentation of results should be appropriate for the intended audience. Simple maps
and descriptions are useful for all audiences, but especially for those lacking a technical
background. Equations, engineering studies, probability maps are more appropriate
for technical audiences. Results may be presented at stakeholder workshops, scientific
and engineering conferences; in newspaper articles, pamphlets, and documents; and,
on Web sites and radio and television programs.
Results should be easy to understand and easily accessible to all.
30

5. Monitoring Hazards and
Warning Decision
An essential part of the LFEWS is the continuous observation of the flood hazard. In principle,
the observation must be 24 hours per day, 7 days per week and all year round, however, if the
weather forecast predicts no rain within the next days it may be sufficient for the Operation
Center to be on standby until a chance of rain is expected. For example in Binahaan the OC is
attended to by two persons. They take shifts and during the shifts they leave the OC for breaks
of 2 hours unless a critical situation is expected.
31

5.1. Organizational and Decision-making Processes
A LFEWS involves many institutions and people. The decision on when to warn whom with
what advice should be done by one designated office only and all concerned stakeholders
should know this office and that it is authorized to take these decisions and issue warnings.
This office is called Operations Center (OC) 28 and it is the central place where information
is gathered, decisions are made and warnings issued. In the establishment phase of a
LFEWS it is important to decide where the OC shall be located and what government office
administers it. In the experience of GTZ it will only run successfully if all involved LGUs are
agree and are happy with the administrative set-up of the OC.
In case a river basin, and especially the flood-prone area, is located in one municipality
only, this municipality is the obvious choice to set up the OC. St. Bernard in Southern Leyte
is an example for this.
Very often the watershed and also the flood-prone area stretch across a number of
municipalities. In this case it might be a good idea to have the provincial government host
the OC. The Binahaan river LFEWS in Leyte and the Catarman LFEWS in Northern Samar
work like this. However, it is also possible to run the LFEWS by one municipality/city for
a flood-prone area involving a number of municipalities like it is done in Ormoc City in
Leyte.
In some cases many municipalities are part of a river basin but they have relatively small
parts of the watershed. It is a good practice to invite them to the LFEWS but if they are not
very interested in participating it is not a big problem.
28
in some places they are called Disaster Operation Center or Flood Operation Center
32

Monitoring Hazards and Warning Decision
Municipalities in Pagsangaan watershed
The Pagsangaan river basin covers parts of nine municipalities, but some have only marginal
area in the watershed (e.g. Jaro, Carigara) and probably do not have to be included in the
LFEWS. All LGUs with substantial areas in the watershed should participate in the LFEWS
(e.g. Ormoc, Kananga, Matag-ob, Villaba).
5.2. Weather Forecasting
Heavy, continous rains leading to floods are normally an effect of typhoons, tropical storms
and tropical depressions. These weather events develop far south east of the Philippines
over the Pacific Ocean and move towards the archipelago with relatively slow speed.
Satellites can detect such weather disturbances days before they hit Philippine land area.
The prediction of their path and strength is the task of PAGASA (www.pagasa.dost.gov.ph)
as far as the Philippines is concerned.
Other weather agencies make forecasts concerning the anticipated track of the approaching
storm. It is a good practice to check also the following agencies:
- Joint Typhoon Warning Center (https://metocph.nmci.navy.mil/jtwc.php)
- Japan Metrological Agency (www.jma.go.jp/en/typh/)
It is always a good idea to monitor all forecasts. They might differ considerably and you
never know which one is closest to the actual path.
33

The closer a particular watershed is to an approaching weather disturbance the more rain
can be expected. Near the center high wind speeds bring the additional danger of direct
storm damage to plants and buildings.
In case the forecasted path of the weather disturbance is within 500km of the watershed it
is wise to check the LFEWS and make sure that the river level and rain gauges are properly
working and the local observers are available and ready to do their meter readings. The
same applies to the communication chain. Make sure that it is in good order and ready to
be used.
5.3. Monitoring Devices
In order to know the amount of rainfall and the level of water in a river instruments for the
measurement of these two natural phenomena are needed. The devices should be reliable.
This means they should be sturdy and not require a lot of maintenance and reading and
getting data should be easy. For both, river level and rainfall, there are different devices to
choose from with advantages and disadvantage and, of course, different price tags. The
most expensive is not necessarily the best for a certain task.
For many reasons a monitoring device may not deliver the expected data. This might
be technical or human error. Therefore it is highly advisable to have at least one backup
device for each important device in the LFEWS. The backup device should be completely
independent from the first device.
5.3.1. Water Level Devices
The most reliable way of predicting a flood is observing the river level upstream from
the flood-prone area. A minimum setup is to have two river level gauges: one upstream
to be able to warn before the flood comes and one in the river where the flood occurs.
With the second gauge you can measure how long the water travels from the upper
to the lower gauge and how the heights correlate. Both helps you to adjust the LFEWS
in terms of the expected arrival time and the expected height of the flood. If you have
more than two gauges you can gain more precision and reliability in the forecasting.
Most gauges are scaled on bridges or piers in a river.
In case there is no bridge or strong pillar or some
other type of strong wall near a spot that is suitable
for observations, you have to construct a strong
foundation in the riverbed for the installation of the
gauge. Especially during flooding events when the
current gets stronger and the river may carry debris
like floating logs, the river level gauge should be
able to withstand such impact.
The scales are painted on the bridge/pier with
water resistant color during very low river level.
Intervals of 5cm are practical. They have to be
big enough to be read from the edge of the river
even if the river level is high and the visibility is
low. In the night the observer uses a flashlight
and still has to be able to see the markings clearly.
34

Monitoring Hazards and Warning Decision
A second type of instrument measures the water pressure with an electronic sensor.
The sensor is sensitive and has to be protected from being washed away and from the
impact of floating debris. The display of the data is connected to the sensor via a cable.
The display may be located in a nearby building. It is possible to connect the sensor to
a radio transmitter and send the signal to a faraway place like the Operation Center of
the LFEWS. GTZ used a converted mobile phone for transmitting data via SMS initially,
but this proved to be unreliable and the project switched to UHF/VHF radio.
Automatic gauge (protected with old tires) and
transmitter in St. Bernhard, Southern Leyte
Gauge in Tingib, Pastrana,
Leyte (Binahaan)
Photo by Reggie Mercado
Photo by Reggie Mercado
The advantage of the painted water level scale at bridges is certainly the low cost and
the simplicity. If the color fades, it is repainted with very little effort and cost. However,
reading these devices at short intervals during bad weather and from the edge of a
rising river at short intervals, particularly during the night, is a serious challenge for
many observers. In the experience of GTZ the records of manual river level gauges
are not consistent and have considerable gaps. The automatic gauges delivered much
more complete and faster data, but the complexity of gauges is also prone to more
technical failures. Even having these failures the reliability was much higher than that
of the manual gauges.
35

5.3.2. Rainfall Devices
Similar to river level devices there are also very simple and more sophisticated
instruments for measuring rainfall. Both types have advantages and disadvantages.
The gauges mostly used by the partners of GTZ are simple digital devices. They cost
around 7,500 Pesos (2009). They function on the principle of tipping buckets. Rain
collected by the funnel falls into one of the small buckets. These buckets are carefully
calibrated by the manufacturer. They hold an exact amount of rain, usually the
equivalent of 0.25mm of rainfall. The buckets are balanced on a fulcrum so when one
bucket fills with rain, the lever tips. The second bucket moves under the funnel while
rain collected in the first bucket empties out the drain hole. Each time the lever tips, a
small magnet on the lever moves past a magnet switch sending a signal to the display.
By counting the number of signals from the reed switch, the display can count how
many times the buckets have been filled to calculate the total rainfall.
It is important to note that the digital reading on the display does not equal millimeters.
The read number has to be converted to mm (for example a display reading of 18 is
equivalent to 4.5mm rain). The manual of the gauge probably gives a conversion factor
or a calibration should be carried out with a container of exact known volume.
Tipping Bucket Rain Gauge
36

Monitoring Hazards and Warning Decision
In contrast to many manual gauges the tipping bucket device does not need emptying.
It can run continuously. Another advantage is that the can be many meters away
from the gauge, e.g. in a house. This makes reading much more comfortable than
with a manual cylinder device. A disadvantage is the battery which is needed. In the
experience of GTZ one battery can last many years. The electronics parts are simple
and not prone to frequent failures.
Digital gauge on a roof checked by Paul Mooney (OC Palo, Leyte)
Photovoltaic Power Supply for the
Gauge and Radio Transmitter
Photo by Reggie Mercado
In the same way river level gauges
can be connected to an automatically
working radio transmitter this is
possible for digital rain gauges.
GTZ supported a number of these
devices in LFEWS in Leyte and Samar.
GTZ used a converted mobile phone
for transmitting data via SMS initially,
but this proved to be unreliable
and the project switched to UHF/
VHF radio. Oxfam had a similar
experience and recommends VHF for
data transmission 29 .
29
Oxfam, without date
37

5.4. Collecting Data
All observers have to read and record the data from a measuring device. As a routine the
following sequence should be observed:
1. Read data
2. Record data
3. Transmit data to OC
A template for a record is displayed in Annex 4. It might be helpful to keep a logbook for
recording purposes instead of single sheets of paper.
In dry times it is sufficient to collect data twice a day (7am and 5pm), but in case of rains
the OC can decide to record data more often (hourly) and if it rains very hard, the intervals
can go down to 15 minutes or even less. If local volunteers are involved in reading data
they have to be informed about the changes in intervals.
Antenna for data transmission
Photo by Reggie Mercado
Satellite-based Rainfall Data Displayed in Google Earth
In this example the border of the Binahaan river basin in Leyte is shown
on top of the TRMM data on 26 Feb. 2008, 15:00UTC for the past day (24
hours). It shows that in the east the rain was 125-175mm and in the west
more it was towards 75mm.
5.4.1. Satellite-based Rainfall
Estimations
Some satellites have sensors that can
detect rain on earth. The data of some
of them are easily accessible through
the internet 30 . The data of the Tropical
Rainfall Monitoring Mission (TRMM)
provide a view of the rainfall on a
specific area for the past day, 3 days and
1 week. The data are updated every 3
hours.
It is convenient to view the data in
Google Earth 31 . If you want to see the
outline of a watershed in Google Earth
you have to have a GIS file 32 of your
watershed. You can convert your GIS file
to the Google Earth file format 33 with a
simple freeware program 34 and display
it on top of the TRMM data.
These data are not very precise but
they can be helpful in predicting floods
and estimating the amount of rain in an
area.
30
http://trmm.gsfc.nasa.gov/trmm_rain/Events/earth_one_day_floods
31
In case you do not have Google Earth installed
32
A shape file is very practical (it comes in a set of 3 files: *.shp, *.shx, *.dbf)
33
*.kml
34
shp2kml (download from: http://shape2earth.com/default.aspx)
38

Monitoring Hazards and Warning Decision
5.4.2. Gauge Based Rainfall Estimations
Naturally the rain comes before the rising of a river which eventually causes a flood.
Therefore the observation and analysis of rainfall data is helpful in flood prediction.
However, the same amount of rain will not necessarily result to the same river level
rise. For example, if the soil is very dry a lot of rain may be absorbed while if it is
already saturated with water, almost all of the rain will run off.
Since all of the rain in a river basin area can contribute to floods, it is important to have
a number of rain gauges in strategic points of the basin. A gauge may also fail and a
nearby gauge can serve as a backup to another gauge.
Most floods are caused by continuous rain lasting for many hours or days. Most of
these rains are caused by typhoons, tropical storms and tropical depressions. The
geographic distribution of the rain is often fairly equal over a smaller Philippine
watershed. Therefore, a few rain gauges may produce sufficient data to estimate the
amount of rain falling on a watershed.
In rare cases localized thunderstorms can cause small or flash flood events. To observe
them with some level of confidence more rain gauges are needed.
However precise the instruments are, the instrument only measure the amount of
rain on the spot where they are located. The total amount of rain in the watershed is
an estimation working on the assumption of fairly equal distribution.
5.4.3. Water Level of Rivers
Shortly after rain falls in big quantities on a river basin a rise in the river level can be
observed. If the rain quantity exceeds the drainage capacity of the river it will most
likely cause a flood 35 further downstream. Therefore the observation of the river level
is very important for flood forecasting.
A good FEWS is able to answer two questions: when will the flood arrive at a certain
point and how high will it rise? By measuring the water level at different points along
a river these questions can be answered.
5.5. Forecasting and Warning
The main feature of a LFEWS is the issuance of reliable early warning of an approaching
flood to those who need to know the warning. Reliability means the system is always
warning correctly of an expected flood. If it fails to sound a warning when the flood
is coming or it announces a warning when there is no need, the system is useless and
nobody will listen to it anymore.
In order to understand the behavior of water and floods in a river basin it is important
to record rainfall and river level data as well as data about the actual flooding events
carefully. The analysis of the data enables staff in the OC to fine-tune the system and
issue reliable warnings.
39

5.5.1. Identification of the Flood-prone Area
A LFEWS should only warn those people in the danger zone and not unnecessarily
others. Therefore this hazard zone, the flood-prone area, has to be identified.
Many areas are regularly affected by floods and records concerning these floods most
likely exist in one way or the other. But there are also floods which do not happen
regularly. Very high floods may only occur once in a hundred years and nobody might
remember the last one and no records may be found.
GTZ works mainly in the areas with frequent floods and the localization of these
frequent floods is essential. This is already a difficult task. The “once in a hundred
years flood” is an even bigger challenge.
5.5.1.1. The regular flood prone area
There are different sources to identify the flood-prone area. Two official
government institutions, MGB and PAGASA, publish maps of areas susceptible to
floods. In some areas the maps are only released by MGB, in others by both.
For some parts of Ormoc City maps by both institutions exist. The PAGASA map
contains three different flood-prone zones (high, moderate, low), while the MGB
map has only one category for flood-prone areas. Recently published maps by
MGB contain also three different flood susceptibility areas.
Preliminary Flood/Flash Flood Hazard Map by PAGASA Flood Susceptibility Map by MGB 36
36
Merger of parts of MGB: Flood Susceptibility Map of Ormoc Quadrangle, Leyte, Philippines and Flood Susceptibility Map of Palompon Quadrangle,
Leyte, Philippines, both 2006
40

Monitoring Hazards and Warning Decision
A closer look shows that PAGASA
and MGB identified mostly the
same areas as flood-prone but
in some spots they differ.
There are also other sources of
identifying flood-prone areas.
GTZ conducted field surveys
with local residents and ask
them to show the researchers
the usually flooded area. The
researchers took the points with
GPS and transferred them to GIS
and produced maps with this
local knowledge as a basis.
Mapping by Community Members with GPS
Photo by Mark Lama
This map from a barangay in the Binahaan river basin shows 3 categories of floodprone
area (< 3 feet [≈1m], 3-6 feet [1≈2m], > 6 feet [>≈ 2m]) and observed flow
directions.
Map produced by UP-REIS
Sometimes it may be possible to take aerial photos of actually flooded areas.
41

Photo from helicopter on 17.02.08 in Binahaan watershed
Photo by Thomas Fischer
Map by Thomas Fischer
The flooded area was plotted and entered into the GIS. In the map “Binahaan
Watershed, Flooded areas seen from helicopter on February 17th 2008” the actual
flooded area is marked in orange and the area identified by MGB as flood-prone in
light green. Although the obser¬ved flood was much smaller than the MGB area
some actual flooded area is not marked as flood-prone by MGB.
With this at least four different sources for the identification of flood-prone areas
it is no surprise that they differ to some extent from each other. To be on the safe
side it might be a good practice to include all flood-prone areas from all sources in
the target group for warnings and evacuation.
42

Monitoring Hazards and Warning Decision
5.5.1.2. The Area Prone to Extreme High Floods
As there is little or no experience with the “one in one hundred years flood” the
identification of the areas prone to extreme floods is mostly a theoretical exercise.
If sufficient data characterizing the river basin exist, computer models could be
used for this calculation. However, from the experience of GTZ only very few areas
were sufficiently surveyed to attempt to do this computer modelling. An educated
guess of a flood expert might be the best solution under these circumstances.
5.5.2. Initial Threshold Estimations (arrival time of flood, flood height)
When a LFEWS will start its operations, someone needs to estimate the arrival time of
the flood as the single most important information to be disseminated to the residents
in the danger zone. Upstream data are collected (see 7.4.), but at what river level or
what rainfall level the residents should receive the warning?
In some parts of the world very detailed geographical data exist concerning river
basins. The most important information is a detailed map of the area with a contour
interval of less than 1m. In the Philippines this rarely exists and it is normally too
expensive to do the required survey. In case these data are available it might be very
helpful to have a flood model developed with a computer simulation program 37 . This
is the field of specialists and one should seek assistance from them (e.g. PAGASA, UP
Diliman - National Hyrdraulic Research Center).
In the (likely) absence of a computer model for the flood an educated guess by a
specialist is required. This is based on experience but it might not be very accurate. In
the Binahaan watershed the threshold for a warning was initially pegged by PAGASA at
1.5m above normal for the Tingib river level gauge (Alert Level 1). In Binahaan it was
estimated by PAGASA that the flood would need 12 hours from Tingib to San Joaquim
(the furthest point of the flooded area).
The initial threshold levels reflect different warning levels (see Chapter 5.5.4.).
5.5.3. Adjustment of Thresholds
The river level or rainfall level thresholds used at the start of a new FEWS certainly
need adjustment. The initial value might be too high or too low.
In the Binahaan LFEWS the initial thresholds had to be adjusted. The upstream river
level was lowered from 1.5m above normal to 0.8m since experience have shown that
the downstream flooding occurs already at the latter level. The initial assumption for
the flood travel time was 12hours.
37
This was done for the city of Naga. Muhammad (2006)
43

Threshold Adjustments in Binahaan LFEWS
Initial value (PAGASA) Adjusted value
River level, Alert Level 1 >=1.50m above normal >=0.80m above normal
Rainfall, Alert Level 1 >=80mm/hour >= 20mm/3hours
River level, Alert Level 2 >=2.00m above normal >=1.00m above normal
River level, Alert Level 3 >=2.50m above normal >=1.30m above normal
Flood travel time from 12 hours 7-9 hours
Tingib to San Joaquin
An example of how to do the adjustment is described here. Since the LFEWS was
established in the Binahaan River in the middle of 2007, a number of flooding events
happened. One took place on 21 and 22 January 2008.
Rainfall and River Level in the Binahaan River on 21 and 22 January 2008
Graph by Thomas Fischer
Within two days the river water rose two times significantly. The rainfall peaks (RFUS1,
RFUS2) preceded the upstream river level peaks (WLUS1, WLUS2) by two and one
hour. The downstream river level gauge is located at the farthest end of the floodaffected
area. The time difference between the peaks in river level in the upstream
(WLUS1, WLUS2) and the downstream gauges (WLDS1, WLDS2) was 7 and 9 hours
respectively. Some of the flooded areas are about half way between the upstream and
the downstream gauges. The warning time for the upstream area is about 3-5 hours
(Dagami), for the downstream areas it is about 8-10 hours (Palo).
44

Monitoring Hazards and Warning Decision
Taking the rainfall as a trigger for the flood warning we get about one hour more
in warning time (4-6 hours) for Dagami and 9-11 hours for Palo. The initial value of
12hours was adjusted.
5.5.4. Three Different Warning Levels
In the Philippines mostly three different warning levels are used. The preconditions for
the different alert levels are not always exactly the same and also the recommended
action at each warning level is not always exactly the same. However, most features of
warning levels are very similar.
The first stage is a general alert level, the second means a flood is expected soon and
the third reflects immediate danger. The warning levels used in Binahaan are defined
like this:
Preconditions for Warning Levels
Warning
Level
Precondition
Level 1
Alert, Standby “Ready”
PAGASA, Typhoon
warning level 1, or 0.8m
river level at Tingib, or
20mm/3hours rainfall in
Tingib
Level 2
Preparation “Get set”
Water level in Tingib
1.0m
Level 3
Evacuation “Go”
Water level in Tingib
1.3m
With these established preconditions the LFEWS in Binahaan worked out very reliably.
This means, in the two years of operation, no flooding event was missed out and
actual floods were correctly predicted.
Depending on the number of administrative levels involved in a communication chain,
different “To do lists” should be compiled. For example, there are three levels of
offices involved in the Binahaan LFEWS: the provincial OC, the municipal DCC and
the barangay DCC. All three of them need to do different things in case of a warning.
45

Therefore the table with to dos comes in three different versions. As an example, the
one for the operation center looks like this:
A complete set for three different administrative levels is attached in Annex 5. For a
simple municipal LFEWS only two sets are needed (OC [MDCC] and BDCC).
46

Monitoring Hazards and Warning Decision
6. Dissemination and
Communication
After the Operation Center has decided to issue a warning, there is a need to have a fast and
efficient dissemination system in place. Apart from the warning of residents in the flood prone
areas, all stakeholders concerned with emergency management have to be informed. Therefore,
it is essential that a clear flow of information is agreed upon and that it will technically work
even in times of power cuts, blocked roads or other disruptions. The system should contain
alternatives to compensate for possible failures of one communication channel.
The purpose of a LFEWS is the issuance of timely information about an approaching flood to all
concerned. All stakeholders, including the threatened residents, need to get the information
quickly. This may be a challenge in case the flood prone area is relatively close to the river level
gauge being used to indicate an approaching flood.
47

It is useful to estimate the time the LFEWS needs from detecting a flood condition upstream
to the time all residents are informed about that. Once the system is running this time should
be determined.
6.1. Organizational Structure
The warning dissemination system has to secure an efficient communication of warnings
and other relevant information, including remote households with limited access to
information. The structural set up has to be clear to all stakeholders. They have to know
who is supposed to inform them and they have to know whom they have to inform in turn.
As messages are passed on, the structure is a communication chain. The easiest way of
defining a communication chain is through a flow chart. The process should be clear, e.g.
starting from the left and going to the right or starting from the top and going down. It is
practical to distinguish between stakeholders and messages in the flow chart.
Communication Chain Involving a Municipal Operation Center for one Municipality
Household
In danger
at home
ERT
(City/Brgy)
Rescue
Household
Evacuates
BDCC
Warning
Household
Evacuates
Local
monitors
Local
monitors
BDCC
BDCC
Household
Endure
Stay home
Mobilization of Services
First Aid
Tanods
ERT
Local
monitors
Rain + River level
gauges Info
FOC(CDCC)
(PAGASA)
Analysis and
warning
BDCC
Mobilization of Services
Local
monitors
CHO CEO CSWD PNP ERT CASO
Automatic
Monitor
OCD
Info to
NDCC
Activities
Responsible Institution
In this example from Ormoc City, Leyte, the communication chain consists of three
steps (messages from monitors to FOC, from FOC to barangays, from barangays to
households).
This communication chain consists of four steps. It has to be noted that some offices in the
chain have to disseminate the warning to many others (e.g. a MDCC to many barangays
and municipal staff [health, etc.]). As this will usually be carried out one after the other,
the time the message takes from the origin until it reaches the last household may be
much longer than it takes to reach the first household.
48

Dissemination and Communication
Communication Chain Involving a Provincial Operation Center and Four Municipalities
Household
In danger
at home
ERT
(B/MDCC)
Rescue
Household
Evacuates
BDCC
Warning
Household
Evacuates
BDCC
Household
Endure
Stay home
Local
monitors
Pastrana
MDCC
Warning
BDCC
Mobilization of Services
BHO
Tanods
ERT
BNS
BSPO
Local
monitors
Dagami
MDCC
BDCC
Local
monitors
Rain + River level
gauges Info
FOC(PDCC)
(PAGASA)
Analysis and
warning
Tanauan
MDCC
Mobilization of Services
MHO MOE MSWD PNP MAO MGSO
Local
monitors
Palo
MDCC
Automatic
Monitor
OCD
Info to
NDCC
Media
Activities
Responsible Institution
DepEd
Info to
schools
GTZ developed checklists for municipalities and barangays. With these lists the DCCs can
easily ensure that they did not forget to inform anybody. This list also provides space to
take notes and with the checklist also serves as a report (Annex 6).
6.2. Installation of Effective Communication Systems and Equip¬ment
Modern communication technology enables us to pass messages quickly; however,
technology is also vulnerable and may not work when needed. Failure might be due
to simple reasons like someone’s mobile phone runs out of battery or he/she has no
prepaid load to make a call or send an SMS. But in an emergency situations this may
be aggravated by disruptions caused by weather conditions (e.g. power failures, break
down of telephone or mobile phone systems, blocked roads from fallen trees). Therefore
it is important to have more than one communication channel. Furthermore, equipment
requiring electrical power (or charging) should be supplied with additional batteries, UPS
and/or standby generators.
In Binahaan, different systems are used. Usually the first choice is mobile phones, followed
by landline phones and radio communication. The radio system consists of a base station
in the OC and 5 handheld radios (OC, Tingib, MPDO Pastrana, brgy chairman Tingib, brgy
volunteer, brgy Yapad, Palo mun.). Up to now it was always possible to disseminate all
warnings even though all communication channels did not work properly.
One particular concern is the “last mile”. This is the dissemination of a warning to
households. The households are normally too many to inform them individually. Therefore
acoustical signals like bells are used. However, most bells are made from old gas cylinders
and they hang at ground level, and this does not provide a very loud sound signal for
all households. Other methods have to supplement the bells. Barangay officials can walk
through the barrio and announce the warning with handheld loudspeakers. For some sitios
a messenger from the barangay may have to take a motorbike to inform the residents in
flood prone areas.
49

6.3. Recognizing and Understanding Warning Messages
In emergency situations there is no time for lengthy conversations. The message has to be
short and easily understood. This means the sender and the receiver of the message use
agreed standard messages. The main agreed standards are the three warning levels (see
5.5.4). This requires that the sender of the message and the receiver need to have the
same understanding of what the three warning levels mean.
The warning levels have certain preconditions and distinct expected actions. In order to
avoid confusion, the content of the messages should to be clear to all concerned. GTZ
distributed the posters (A3 size) with the content of the three warning levels to the OC,
MDCCs, BDCCs (the latter in the local language). Thus the main stakeholders are well
informed what the warning levels mean. In addition to this, other concerned stakeholders
(OCD, PNP, etc.) were also informed about the warning levels.
With regards to the information for the residents in the households it is important that
they are aware of the basic meaning of the three levels. In most cases simple bell signals
are used to communicate the warning levels.
Acoustic Signals to Warn Residents
Warning
Level
Precondition
Level 1
Alert, Standby “Ready”
One sound of the bell,
long pause (repeated)
Level 2
Preparation “Get set”
Two consecutive
sounds of the bell,
long pause (repeated)
Level 3
Evacuation “Go”
Continuous sounds
of the bell
Apart from the main message (warning levels) there might be a lot of other information
that needs to be exchanged. In the LFEWS supported by GTZ there is no further code or
standard introduced, but general rules on good communication shall be followed. Basic
information should be ready and transmitted:
• who provides the information?
• where (did something happen or is a need for action)?
• who (persons involved, number of persons)?
• what happened (facts, figures, data)?
• when did it happen?
• what specific action is needed?
o by whom?
o when? (immediately, within one hour, etc.)
o how?
The receiver of the message should write the information down to make sure that he/she
does not forget anything.
It is a good practice to ask the receiver to repeat the message or ask probing questions
to verify that it was properly understood (e.g. what route will you take to reach the
barangay?).
50

7. Response Capability
A LFEWS makes sense only if all involved stakeholders know, are able and willing to do what is
required in case of an approaching flood. The physical capacity to respond adequately should
be established and how to react to certain emergency situations should be planned and people
should be advised or trained to handle the emergency situation.
51

7.1. Respect and Follow Warnings
In case of a flood warning, a number of services (emergency, search and rescue, health,
transportation, social, etc.) have to go on standby. These services should be prepared
for the upcoming flood. The OC needs the communication equipment to receive and
disseminate information. The search and rescue teams need lights, ropes, rubber boats,
life wests, etc.. The health services need medicines, bandages, etc., transportation (DPWH)
needs jeepneys, trucks, buses, while the social services need relief goods to be distributed
to evacuees.
Of course it is important that all involved individuals respect and follow warnings. For the
professional services this might be no problem, but from the experience of GTZ not all
households follow recommendations or advice (orders?) to evacuate when they are told to
do so. There are several reasons why people decide to endure a flood at home. Evacuation
centers may not be near or not inviting (e.g. lack of sanitary facilities), no transport is
available to transfer to far away evacuation centers, the hardship of having water flowing
in the house is regarded to be acceptable for a short time, and the fear of looters makes
people stay and protect their belongings. Nevertheless, it is dangerous to stay at home.
The flood might grow higher than previously experienced or it may have stronger currents
than expected making it life threatening.
Municipal and barangay officials should try to persuade inhabitants of flood prone areas
to adhere to the warnings even if evacuation is viewed as very inconvenient.
7.2. Establishment of Disaster Preparedness or Response Plans
All barangays and municipalities are required to produce Disaster Preparedness Plans
(DPP). They are sometimes also called response or contigency plans. These plans are aimed
at characterizing hazards and vulnerabilities as well as capacities and develop strategies
and concrete steps on how to reduce the risks from hazards. This includes emergency
response but it is not limited to it. Prevention and mitigation should be part of the plan
to.
The municipality of Tanauan in Leyte produced a manual on how to prepare a Barangay
DPPs 38 . As a basic outline it recommends the following structure:
Chapter 1: General profile of the barangay
Chapter 2: Profile of vulnerable sectors
Chapter 3: Description of flooding hazard
Chapter 4: Identification of programs and projects
38
Tanauan, without date
52

Response Capability
Tanauan’s main natural hazard is flooding and it is appropriate to concentrate on this, but
other hazards should also be included. The integration of and the support of the LFEWS
should be part of the identified programs and projects. It is necessary to conduct the
planning process in a participatory manner to make sure it really reflects the will of the
residents and they support it.
Basically the same procedure applies to the municipal level.
7.3. Drills and Dry Runs
Especially after a new LFEWS is established it is a good practice to familiarize all stakeholders
with the system and test how it performs. In case of an emergency these exercise will pay
off.
The term “drill” is normally used for mock exercises involving large numbers of residents
while “dry run” is more used to describe tests of the communication chain.
Drills and dry runs shall be executed in “near real” situations. The participants should
not be already on standby for the drill and wait for the go signal. They should pursue
their normal occupation. However, they should be told in advance that “sometime” on a
specific date a mock exercise will happen.
It is essential to observe and document the event. This will provide useful information
on short-comings or simply how long a certain step takes. A useful guide on how to
carry out an evacuation drill was compiled by CNDR 39 . A sample of a monitoring sheet is
displayed in Annex 7.
39
CNDR, 2008
53

7.4. Evacuation Centers
Some residents of flood-prone areas evacuate to the houses of relatives and friends outside
the danger zone, but most people cannot rely on this and need to settle in evacuation
centers when told to leave their homes.
Evacuation centers should fulfill a number of requirements.
• First of all, they should be safe places. Outside of the flood-prone is usually safe
(however, the centers should not be subject to other hazards like landslides). An
alternative is elevated or higher buildings which provide safety in their upper floors.
• Evacuation centers should be within reach of the evacuees. The best option is walking
distance from home as many people do not have transport facilities. If no suitable
building is near further places can be considered (transportation probably has to be
provided by DSWD).
• Evacuation centers do not have to be constructed; public buildings normally serve as
temporary centers. Private owners might not always be willing to allow access to their
property. The church is a private institution but it usually allows their premises to be
used as evacuation centers.
In some cases elevated bridges are used as evacuation centers. If the flood is expected
to last only for a few hours this may be a viable option, but for longer stays this is not
recommended.
54

Response Capability
• The building should be big enough to accommodate the expected number of evacuees.
As a rule 3.5m2/person is recommended 40 .
• The evacuation center should have water supply, sanitary and cooking facilities
sufficient for the expected evacuees. In case public water supply fails, stored water
in containers should be available. A minimum is 7.5liters/person/day. As a rule 1
toilet/20person is recommended 41 .
7.5. Assess and Strengthen Response Capacity
Many residents of flood prone areas are probably not very aware of the threats they are
facing and how to prepare appropriately for the event of rising waters. This might cover
their individual behavior in their household but also what to do together. The official local
institutions concerned with disaster (DCCs) response might also not be well prepared to
handle emergency situations.
To find out to what extend the inhabitants of danger zones and the response institutions
are prepared to cope with approaching floods an assessment can be conducted. This could
be in the form of a focused group discussion with residents and other stakeholders but
also more extensive surveys are possible. In the end it is important to arrive at a certain
confidence to know what the response capacity of the threatened residents and the
responsible organizations is and in what area they need strengthening.
Increasing the strength to respond to the danger might include material projects (e.g. for
the improvement of an evacuation center) but to a large extend it is awareness raising,
education and training.
7.6. Enhance Public Awareness and Education
One of the reasons for absence or lack of adequate reaction to the danger of approaching
floods is the lack of awareness among the general public of the underlying risk and the
knowledge that something can be done to reduce it.
While adults have a big role in effecting behavioral change, in the long term perspective
starting in school is the most promising strategy to facilitate this process. Children of school
age are one of the most vulnerable parts of the population when disasters occur and form
a large group of persons who drown when they are left unattended by adults.
Cognizant that the majority of these children are in school away from their parents and
directly under the care of teachers during many hours per day, it is advisable to integrate
schools in efforts to raise the awareness of children. The Department of Education makes
efforts to promote DRM in schools. These efforts can be supported with awareness
activities and training for teachers.
40
Modified from UNHCR et al., 2002
41
UNHCR et al., 2002; Sphere Project, 2004
55

It has been observed many times that local opinion leaders, politicians and the general
public are lacking awareness of natural dangers or regard it as second priority or have
fatalistic attitudes and are not motivated to act. Changing this is the aim of awareness
raising activities.
The production and distribution of printed material and videos is one of the strategies
employed by GTZ. This included (re-)printing of brochures on hazards (e.g. from PAGASA,
PNRC, DOH/DA, PIA, Siliman University), a map on geo-hazards, a handbook on safe
building practices and a number of educational videos.
GTZ also conducted numerous workshops, training events and other meetings and
informed the participants about natural hazards, risks and options to prevent or mitigate
the effects of severe natural events.
For broader information dissemination and awareness, mass media, such as local, regional
and national radio and TV stations can be targeted and trainings can be provided to the
broadcasters on the warning levels and standards so the information provided are coherent
at all level.
56

8. Cross-cutting Issues
Apart from the technical implementation of the LFEWS there are a number of aspects
surrounding the system that are important.
57

8.1. Effective Institutional Arrangements
In all LFEWS a number of institutions are involved. They have to agree on goals, general
and operational guidelines, roles of different stakeholders, and last not least, who pays for
what. This requires clear and effective institutional arrangements.
There should be one or, if necessary, many meetings between the involved stakeholders.
In the end all involved institutions should agree formally on the arrangements. It is
recommended to conclude this by signing a Memorandum of Agreement. Often the MoA
was concluded between the province and municipalities 42 . PAGASA recommends including
OCD and PAGASA into the MoAs 43 . A sample of a MoA can be found in Annex 9. PAGASA
published a template 44 .
In the end the LGUs commitment to sustain the system will matter most.
8.1.1. Secure LFEWS as a Local Long-term Priority/Commitment
Apart from convincing incumbent political office holders to support the establishment
of an LFEWS it is important securing Disaster Risk Management in general and the
LFEWS in particular as political priority areas.
Strategically it is a good idea to integrate DRM and specifically the LFEWS into the
development planning process of municipalities and provinces. On the provincial
level the Provincial Physical Framework Plan is a document covering a period of 30
years and thus it is advisable to integrate DRM/LFEWS when it is updated. The City/
Municipal Development Plan is a medium-term plan where DRM/LFEWS were not
integrated very often in the past. Encoding them here will put DRM/LFEWS on the
political agenda well beyond the current term of office of elected officials.
The C/MDP is (or should be) the basis for investment plans and the Programs/Projects/
Activities leading to concrete actions.
8.1.2. Assess Institutional Capacities and Provide Capacity Development
Many persons and institutions involved in LFEWS might not be very well prepared to
handle the new task. Apart from providing hardware, funds and technical advice it
might be necessary to support these institutions in a more comprehensive sense.
In a first step the qualifications of staff or volunteers taking part in the system should
be assessed. Basically this means the tasks of individuals and institutions has to be
compared to their capability to do achieve the expected results. There are different
methods of achieving this (group discussions, using questioners). In the end there
should be an agreement what type of interventions are needed by whom or what
institution.
42
For Abuyog watersheds
43
PAGASA, without date
44
PAGASA, without date
58

Cross-cutting Issues
8.1.3. Secure Financial Resources
It might be possible to get outside financial support for setting up a LFEWS but it is very
unlikely that such sources are willing to cover running costs. The regularly occurring
costs for maintaining the system (incl. depreciation) should be calculated (see chapter
3.4.4) and political decision makers need to be convinced of the importance to cover
the costs.
The costs shall be part of the Annual Investment Plan and staff positions responsible
for the LFEWS should be permanent positions and not temporarily hired personnel.
8.2. Conflict Management
There are potentials for tensions inherent in a LFEWS. These tensions might develop into
conflicts and pose a problem to the smooth functioning of the system.
As there are costs involved there is the question who is shouldering what share of the
costs. Municipalities further upstream may not experience flooding but they are essential
for monitoring rain and water levels. Therefore upstream municipalities might not be
highly motivated to contribute to the system.
While the system is working some monitors may not deliver meter readings reliably and
those who experience floods may complain about the poor service of the monitors.
There is also the chance that the potentially many municipalities are headed by mayors
from different political alliances or that they compete for the lead in the LFEWS.
Although smaller conflicts do not jeopardize the functioning of the LFEWS in principle they
might reduce the effectivity of the system. Therefore the conflicts should be addressed
and solved to accomplish the full potential of the LFEWS.
There are many different methods of reducing conflicts. In many cases it might not be
advisable to openly call the situation a conflict but ask the stakeholders to improve the
performance of the system. Very often a third party not involved in the LFEWS might be a
good mediator and can talk to the parties one by one or jointly and search for a solution.
8.3. Multi-risk Approach
It is unlikely that the flood risk is the only risk from natural or technological hazards in an
area. Most likely there is a multitude of hazards including the respective elements at risk/
vulnerabilities.
Therefore a survey of known hazards should be done. Likely candidates for other natural
hazards are:
- Storms (typhoons)
- Storm surges
- Flash floods
- Earthquakes
- Volcanoes
- Landslides
- Tsunamis
Potentially there are many more natural and technological hazards, but these are the most
common ones and they are those causing most damages in the Philippines.
59

The LFEWS should not expose people or material values to other hazards, e.g. flood
evacuation centers should not be located in a tsunami hazard area. In case some people
in flood-prone areas are also exposed to other hazards (e.g. flash floods) these people
should be evacuated first.
If possible the LFEWS can include early warning of other hazards (e.g. rain induced
landslides).
A good overview of the river basin with data and on the map makes it easier to understand
what elements might be at risk and how vulnerable they may be to certain hazards. In case
these baseline data are available they should be at hand and included into the design of
the LFEWS (e.g. to identify densely populated areas).
From the experience of GTZ a land cover map derived from satellite data proved to be
suitable to get an overview of the watershed as well as of the flood-prone areas.
Land Use Map of Binahaan Watershed
60

9. Key Actors
Many people and institutions are involved in a LFEWS. First of all, of course, those people living
in harm’s way who may suffer from the flood. Apart from them there are many institutions
professionally involved in coping with flooding events.
61

9.1. Residents (Communities)
The residents of flood-prone areas are often referred to as “communities”. These
communities may consist of different social, religious of ethnical groups who have in
common of being threatened by floods. They may have different attitudes towards the
natural hazard and have different coping mechanisms and some of them may be more
vulnerable to floods than others.
They are not just victims but may take actively part in mitigating the effects of a flood or
in the LFEWS.
The residents of hazard areas are often not very well informed about the danger they
are facing. Proper preparation and reaction to a hazard is improved if the danger is well
known and understood. Therefore considerable effort should be invested in disseminating
scientific information about looming natural dangers. Detailed multi hazard maps can
visualize these hazards very well.
It is also important to understand how local inhabitants perceive the threatening hazard,
how they coped with previous disastrous events and what ideas or plans they have on
how to improve the situation.
9.2. Local Governments
Unless a disaster is very large the prime institution concerned with the management of
the disaster is the Local Government Unit (LGU). Cities and municipalities are key players in
many LFEWS. Whether the OC is administered by a city/municipality or by a province, they
are the ones overseeing the collection of rainfall and river level data, the dissemination of
warnings and evacuation activities.
Not all cities/municipalities regard the participation in a LFEWS as a high priority even if
some parts of their residents suffer from flooding events. In many cases the municipalities
further upstream do not experience much flooding and therefore are less enthusiastic
about the LFEWS, but their cooperation in data gathering is essential to run the LFEWS
efficiently.
It is advisable to try to convince all LGUs to participate in the LFEWS. It is difficult to pursue
the watershed-based approach in the management of the LFEWS without all LGUs with
substantial area in the river basin cooperating.
9.3. National Government Institutions
Two national governmental institutions are important for setting up and maintaining a
LFEWS. In the preparatory phase Philippine Atmospheric, Geophysical and Astronomical
Service Administrations (PAGASA) shall be involved and while the system is running there
should be close cooperation with the OCD, regional office.
PAGASA
Flood Forecasting Branch
Weather and Flood Forecasting Center
Agham Rd., Diliman, Quezon City
www.pagasa.dost.gov.ph
ffws_ffb@yahoo.com
Fax: 02-9294865/9279308
PAGASA is mandated to support FEWS in terms of technical
advice, guidance and monitoring. It is a good practice to make
use of this. Usually the central office of PAGASA and not nearby
field offices will handle requests for support. It is possible that
the local implementer of the LFEWS has to shoulder the travel
costs of PAGASA.
62

Key Actors
The OC of a LFEWS should supply PAGASA regularly with collected rainfall and river level
data and ask PAGASA for advice on adjusting and improving the system.
The National Disaster Coordinating Council (NDCC) implements operations via the Office
of Civil Defense (OCD). The OCD has decades of experience in handling disaster situations.
In case an emergency situation cannot be handled by barangay or municipal response
personnel any more the OCD is most likely in a position to provide assistance. It is important
to inform OCD not only when a disaster has happened but already earlier when the floods
are predicted and rising.
9.4. Non-Governmental Organizations
NGOs are private non-profit organizations with the goal of helping others or a cause which
are regarded to be for the public good. They mainly receive their income from donations,
development assistance or endowment funds. There are many national and international
NGOs working in the Philippines.
Traditionally many NGOs are active in emergency situations when many people are
affected by natural disasters. They provide various types of assistance to the victims and
help with the distribution of relief aid, establishing shelters and care for rehabilitation and
reconstruction in post-disaster situations.
Some NGOs pursue a more development oriented approach and are actively involved in
prevention and mitigation. In some cases the establishment of FEWSs was supported by
NGOs in the Philippines. Usually NGOs apply a wide range of participatory methods in
these projects and in many cases they act as advocates for DRM for their target group.
A small number of NGOs provide training to governmental and non-governmental
institutions with regards to DRM (e.g. PNRC, IIRR, CARE, OXFAM, ACH).
9.5. The Private Sector
The private profit making sector is normally not very active in disaster risk reduction
beyond the core interests of the company. Nevertheless, this might be the entry point to
access support of the business community in a flood prone area. Owners of companies
with flood-sensitive goods on their premises might be very interested in getting timely
warnings. Therefore it may be reasonable to ask them for support of the system. A
donation in cash or in kind could be publicly acknowledged and increase the reputation
of the business.
In disaster situations some businesses donated relief goods or allow their vehicles to be
used for evacuations or transport of relief goods.
9.6. The Science and Academic Community
There are several scientific and academic institutions doing research on floods and
develop methods on how to reduce their destructive impact. Very often scientists are
interested in doing research and generating ideas for solutions. Therefore it is certainly
worthwhile to explore this option in order to improve the LFEWS. One of the domains
of the science community is the development of flood prediction models. Such models
are developed with the aid of computer programs and they make predictions about the
expected frequency, geographic coverage, duration and current of floods. This is especially
63

interesting for extreme high floods (“once in a hundred years”). GTZ has good experiences
in cooperating with the science community in other areas:
• The Humbold University in Berlin did a comprehensive study on two watersheds
including surveys of the perception hazards, vulnerabilities, risk 45
• The University of the Philippines, Regional Environmental Information System,
Tacloban for the production of participatory flood mapping and satellite based land
cover mapping
• The Joint Research Center of the Commission of the European Union in Italy for
the production of land cover and risk maps based on Very High Resolution satellite
images
Some of these institutions are located in the Philippines and many in other countries. In
the Philippines we suggest to get in touch with these institutions:
• Manila Observatory (www.observatory.ph)
• University of the Philippines, National Hydraulics Research Center (www.engg.upd.
edu.ph/nhrc/index.jsp)
• Water Resources Center of the University of San Carlos (http://wrc.usc.edu.ph/)
Abroad these institutions might be interested in cooperation:
• Technical University Delft (www.water.tudelft.nl)
• Institute for Water Education of the United Nations Education and Scientific
Organization (UNESCO-IHE, www.ihe.nl)
• World Institute for Disaster Risk Management (www.drmonline.net)
45
Engel, et al., 2007
64

10. Literature
Basha, E., Rus, D., 2007: Design of early warnng flood detection systems for developing countries,
http://groups.csail.mit.edu/drl/wiki/images/e/e0/BashaICTD07SAT.pdf, downloaded on
10.11.2008
Carsell, K., Pingel, N., Ford, D.: Quantifying the benefit of flood warning system, in: Natural
Hazards Review, August 2004, p.131-140
Corporate Network for Disaster Response (CNDR): Gabay sa Pagsasagawa ng Isang Community
Drill, 23 pages, 2008
Damo, G. C.: Community based flood warning and flood mapping in Camiguin Island,
Philippines, February 2007, http://www.icharm.pwri.go.jp/html/training/ fhm/ 2007_pdf/
damo_philippines.pdf, downloaded 24.10.2008
Department of Homeland Security, Federal Emergency Management Agency, Mitigation
Division: HAZUS MR3, Technical Manual, Washington D.C.
Dwyer, A., Zoppou, C., Nielsen, O., Day, S. & Roberts, S.: Quantifying Social Vulnerability: A
methodology for identifying those at risk to natural hazards, Geoscience Australia Record
2004/14
Engel, E., Piepenbrink, N., Scheele, J., Dorer, C., Ferguson, J., Leujak, W., 2007: Being prepared,
disaster risk management in the eastern Visayas, Philippines, 1st edition, (Berlin: Centre for
Advanced Training in Rural Development)
German Technical Cooperation (GTZ): Cost - Benefit Analysis of Natural Disaster Risk
Management in Developing Countries, 2005
German Technical Cooperation (GTZ): Disaster Risk Management, Working Concept, http://
www.gtz.de/de/dokumente/en-working-concept.pdf, April 2002
German Technical Cooperation (GTZ): Risk Analysis – a Basis for Disaster Risk Management,
Eschborn, 76 pages, June 2004
Guarin, van Westen, Monotya: Community-Based Flood Risk Assessment Using GIS for the
Town of San Sebastian, Guatemala, 2004?
Hernando, H.T. (PAGASA): General Guidelines For Setting-Up A Community-Based Flood
Forecasting And Warning System (Cbffws), 36 pages, December 2008
ISDR, International Strategy for Disaster Reduction: Third International Conference on Early
Warning, Developing early warning systems, Bonn, 2006
ISDR, International Strategy for Disaster Reduction: UNISDR Terminology on Disaster Risk
Reduction, 13 pages, 2009a
65

ISDR, International Strategy for Disaster Reduction: 2009 Global Assessment Report on Disaster
Risk Reduction, 2007 pages, 2009b
Muhammad, Z., Digital Surface Model (DSM) Construction and Flood Hazard Simulation for
Development Plans in Naga City, Philippines, in: GIS Development Malaysia, Vol.1, Issue 3, p.
15-20, 2006
Nilo, P., Espinueva, S., Subbiah, A.R., Bildan, L., Rafisura, K.: Taking up flooding through a
community-based early warning system, July 2006, http://www.adpc.net/v2007/eLIB/Libraryfiles/CRM/CFA-OFDA-2007-119/CBFEWS_adpc-eLIB=119.pdf,
downloaded 24.10.2008
Oxfam (Philippines): Rain gauges, 24 pages, without date
PAGASA: A primer on floods, “Baha”, revised version, 2006
PAGASA: Draft Manual for Disaster Operation Centers on Community Based Flood Early
Warning Systems, without date
Perez, R., Espinueva, S., and Hernando, H.: Community based flood early warning systems, April
2007, http://www.sea-user.org/download_pubdoc.php?doc= 3439, downloaded 24.10.2008
Planet Action, 2008. http://www.planet-action.org/web/6-projects.php?projectID=975,
downloaded on 11.11.08
Sharma, S.K., Jaishi, D.P., Dangal, R.C., Pandit, R., Subedi, R., 2004, Manual for communitybased
flood management in Nepal, Asia Pacific Journal of Environmental Development,
11(1&2), 227-304
Sphere Project: Humanitarian Charter and Minimum Standards in Disaster Response, Geneva,
344 pages, 2004
Tanauan, Municipal Implementing Team, DRM Focal Team: Participatory disaster risk
assessment, 39 pages, without date
Thierry, P., Stieltjes, L., Kouokam, E., Ngue´ya, P., Salley, P.: Multi-hazard risk mapping and
assessment on an active volcano: the GRINP project at Mount Cameroon, in: Nat. Hazards
(2008) 45:429–456
UNHCR (United Nations High Commissioner for Refugees), NDCC (National Disaster Coordinating
Council): Contingency planning for emergencies, 1st edition, Dec. 2002
Verkade, J.: The value of flood warning systems, Delft, 211 pages, 2008
66

11. Abbreviations and
Acronyms
BDCC
Brgy
CASO
CBA
CDP
CEO
CHO
CSWDO
DA
DCC
DENR
DIPECHO
DOH
DPP
DPWH
DRM
DSWD
ECHO
ERT
EU
FEWS
FOC
GIS
GPS
GSO
GTZ
IIRR
ISDR
LFEWS
LGU
MAO
MDCC
MDP
MGB
MGSO
MHO
MoA
MOE
MPDO
Barangay Disaster Coordinating Council
Barangay
City Agricultural Services Office
Cost Benefit Analysis
City Development Plan
City Engineering Office
City Health Office
City Social Welfare and Development Office
Department of Agriculture
Disaster Coordinating Council
Department of Environment and Natural Resources
Disaster Preparedness Humanitarian Aid department
Department of Health
Disaster Preparedness Plan
Department of Public Works and Highways
Disaster Risk Management
Department of Social Welfare and Development
Humanitarian Aid department
Emergency Response Team
European Union
Flood Early Warning System
Flood Operations Center
Geographical Information System
Geographic Positioning System
General Services Office
German Technical Cooperation
International Institute for Rural Reconstruction
International Strategy for Disaster Reduction
Local Flood Early Warning System
Local Government Unit
Municipal Agricultural Office
Municipal Disaster Coordinating Council
Municipal Development Plan
Mines and Geosciences Bureau
Municipal General Services Office
Municipal Health Office
Memorandum of Agreement
Municipal Office of the Engineer
Municipal Planning and Development Office
67

MSWDO
NGO
NIA
OC
OCD
PAGASA
PDCC
PNP
PNRC
PPDO
SMS
TRMM
UPS
UTC
WL
Municipal Social Welfare and Development Office
Non-Governmental Organization
National Irrigation Agency
Operations Center
Office of Civil Defence
Philippine Atmospheric Geophysical and Astronomical
Service Administration
Provincial Disaster Coordinating Council
Philippine National Police
Philippine National Red Cross
Provincial Planning and Development Office
Short Messaging System
Tropical Rainfall Monitoring Mission
Uninterrupted Power Supply
Universal Time Coordinated
Water Level
68

12. Annexes
Annex 1: Hazard calculations
Hazards are determined by two factors, their intensity and their probability of occurrence 46 .
The intensity of a flood hazard is described mostly by the water level, velocity and duration.
From the perspective of disaster risk management it is mainly interesting how threatening or
potentially damaging the force of the flood is. This is expressed in intensity classes describing
different degrees of damage.
Intensity Classification of Natural Hazards (Flood 47 )
Intensity
classification
Damage level
(exposed
reference
element: overall
development)
Numerical
Intensity
Value (IF)
Flood
characteristics
(according to
Paul Mooney)
Types of flood damage
(examples)
Content of
buildings
Wooden
buildings
0 Very low
1 Low
2 Moderate
3 High
4 Very high
≤5% damage
5–10% damage
10–50% damage
50–80% damage
>80% damage
5
10
50
80
100
0.3m, 4hours,
very little
current
1m, 2-4days,
slow current
2m, 5days,
medium
current
3m, 7 days,
strong current
Not
experienced
People had to
move objects
to a higher
elevation, mop
and clean
Minor losses
-particularly
kitchen
cupboards,
clothes, shoes,
and mattresses
(rotten due
to soaking),
residents had to
mop and clean.
Almost total loss
of the content,
especially
furniture,
equipment,
kitchen
cupboard, etc.;
People had to
remove dirt
and mud from
inside.
Total loss of
content.
Total loss of
content.
No damage,
wall paint
deteriorated
No structural
damage, wall
plaster may
need repair
and painting.
Wooden frames
need to be
treated.
Considerable
structural
damage to
wooden doors
and frames,
plaster and
painted walls.
Partial
destruction of
foundation, wall
and doors.
Total destruction
of the dwelling.
46
The examples of classifications are mostly derived from Thierry, et al., 2007
47
Guarin et. al., 2004
69

The next step is the classification of the frequency of the flood. In this example six different
frequency classes are used:
Hazard Frequency Classes 48
Frequency Qualification Return period for the Quantification Frequency Index
class of the event type of activity or of the used for the threat
frequency phenomenon (order phenomenon matrices(Q F
=100 x Q f
)
of magnitude) (years) frequency (Q f
)
A Almost certain 1 ≥10 -1 10
B Likely 10

Annexes
Recommendations for Hazard Threats
Hazard Threat Type of threat Recommendation
Index (HTm)
100 Very high hazard permanent human settlement should be avoided
Vital installations like power plants, hospitals, emergency services, administrative command
centers should be located in the least hazard prone areas.
Example Calculation from Binahaan Watershed
• In most places the floods cause less than 5% damage to the content of affected
buildings (=> Numerical Intensity Value (I F
) = 5).
• A flood of this intensity occurs in average 1.5 times per year (=> Hazard Frequency
Class A => Frequency Index (Q F
) used for the threat matrices = 10).
• The flood threat has an index value of 50 (HT m
= I F
* Q F
)
• This is a Moderate Hazard according to the table Recommendations for Hazard
Threats and permanent human settlements are possible but specific precautions are
recommended (e.g. dikes to protect the area, building houses on stilts).
Annex 2: Classification of Vulnerability Factors 49
Physical factors
Technical construction, quality
a) Settlements
b) Quality of buildings
Basic infrastructure
population growth and density
Environmental factors
Usable soil Usable water
Vegetation biodiversity
forests,
Stability
of the
ecosystems
Social facotrs
Risk perception, Education,
Health status, Old and young
people, Gender
aspects,
Minorities,
Human rights,
property
relationship Civil participation
social organisations, Politics,
corruption, Power structures,
access to information
Economic factors
Socio-economic status, Poverty
and nutrition, Farming / cultivation
System / technology,
Access to resources
And services (water,
Energy, health, transport)
Reserves and financing
opportunities,Research and
development
49
German Technical Cooperation (GTZ), 2004
71

Annex 3: Cost Benefit Analysis of LFEWS
72

Annexes
Annex 4: Form for Recording Rainfall or River Level Data
Monthly Water/River Level Data Sheet
Day
1
2
3
4
5
6
7
8
9
10
11
12
13
14
15
16
17
18
19
20
21
22
23
24
25
26
27
28
29
30
31
Station:
Year:
LAT.
LONG
Month:
01:00 02:00 03:00 04:00 05:00 06:00 07:00 08:00 09:00 10:00 11:00 12:00 13:00 14:00 15:00 16:00 17:00 18:00 19:00 20:00 21:00 22:00 23:00 00:00
Remarks:
73

Annex 5: Flood Warning Levels for Operational Center (Binahaan River LFEWS)
Flood Warning Levels for Municipalities (Binahaan River LFEWS)
74

Annexes
Flood Warning Levels for Barangays (Binahaan River LFEWS)
Annex 6: Checklists and Reports for Barangays and Municipalities for Warning Levels
Annex 6.1: For Households 50
Before flooding occurs
• Be aware how often your location is likely to be flooded and to what extent.
• Know the flood warning system in your community and be sure your family knows it.
• Keep informed of daily weather condition.
• Designate an evacuation area for the family and livestock and assign family members
specific instructions and responsibilities according to an evacuation plan.
• keep a stock of food which requires little cooking and refridgeration as electric power
might be interrupted.
• Keep a transistorized radio and flashlight with spare batteries, emergency cooking
equipment, candles, matches and first aid kit handy in case of emergency.
• Securely anchor weak dwellings and items.
50
Adopted from PAGASA, 2006
75

When warned of Flood
• Be ALERT to the possibility of flood, if it has been raining for several days. Flood
happens as the ground becomes saturated.
• Listen to your radio emergency instructions.
• If advised to evacuate, DO SO. Don’t panic, move to a safe area before access is cut off
by flood waters.
• Store drinking water in containers, water service may be interrupted.
• Move household belongings to upper levels.
• Get livestock to higher ground.
• Turn off electricity at the main switch in the building before evacuating and also lock
your house.
During the Flood
• Avoid areas subject to sudden flooding
• Do not attempt to cross rivers or flowing streams where water is above the knee.
• Beware of water-covered roads and bridges.
• Avoid unnecessary exposure to the elements.
• Do not go swimming or boating in swollen rivers.
• Eat only well-cooked food, protect leftovers against contamination.
• Drink clean or preferably boiled water ONLY.
After the Flood
• Re-enter the dwellings with caution using flashlights, lanterns or torches.
Flammables may be inside.
• Be alert for fire hazards like broken electrical wires.
• Do not eat food and drink water until they have been checked for flood water
contamination.
• Report broken utility lines (electric, water, gas, and telephone) to appropriate
agencies/authorities.
• Do not turn the main switch or use the appliances and other equipment until they
have been checked by a competent electrician.
• Consult health authorities for immunization requirements.
• Do not go “sight-seeing” in disaster areas. Your presence might hamper rescue and
other emergency operations.
76

Annexes
Annex 6.2.: For Barangays
Flood Checklist/Report
Barangay:
Municipality:
Officer in charge/Punong Barangay:
Date:
Members of Barangay Disaster Coordinating Council
77

Annex 6.2.1.: Checklist/Report Flood Level 1 for Barangays
Checklist/Report
Barangay:
Item Date Time Done Remarks
Received message with Warning Level 1
from MDCC or DYMP:
Informed BDCC members about Warning Level 1
Informed residents of ____________ about WL 1
Informed residents of ____________ about WL 1
Informed residents of ____________ about WL 1
Informed residents of ____________ about WL 1
Informed residents of ____________ about WL 1
Informed residents of ____________ about WL 1
Informed residents of ____________ about WL 1
Regular reports to MDCC
Check lists of households in flood-prone area
Check map of barangay with flood-prone area
and evacuation routes/centers
Prepare evacuation centers
- Drinking water for 5 days
- Cooking facilities
- Food for 5 days
- mats
- First Aid Kit
- Lamps
- Flash lights with battery/candles
Responsible person:
Check Search and Rescue
• Handheld radio
• Life vest
• Ropes
• Boat
• Lamps
Search and Rescue Team assembles
and gets ready
Team members:
Listen to DYMP radio
78

Annexes
Annex 6.2.2.: Checklist/Report Flood Level 2 for Barangays
Checklist/Report
Barangay:
Item Date Time Done Remarks
Received message with Warning Level 2
from MDCC or DYMP:
Informed BDCC members about Warning Level 2
Informed residents of ____________ about WL 2
Informed residents of ____________ about WL 2
Informed residents of ____________ about WL 2
Informed residents of ____________ about WL 2
Informed residents of ____________ about WL 2
Informed residents of ____________ about WL 2
Informed residents of ____________ about WL 2
Regular reports to MDCC
Open evacuation centers and check facilities
Responsible person:
Search and Rescue Team ready with equipment
Responsible person:
Listen to DYMP radio
79

Annex 6.2.3.: Checklist/Report Flood Level 3 for Barangays.
Checklist/Report
Barangay:
Item Date Time Done Remarks
Received message with Warning Level 3
from MDCC or DYMP:
Informed BDCC members about Warning Level 3
Informed residents of _______________ about
WL 3 and ordered evacuation
Informed residents of _______________ about
WL 3 and ordered evacuation
Informed residents of _______________ about
WL 3 and ordered evacuation
Informed residents of _______________ about
WL 3 and ordered evacuation
Informed residents of _______________ about
WL 3 and ordered evacuation
Informed residents of _______________ about
WL 3 and ordered evacuation
Informed residents of _______________ about
WL 3 and ordered evacuation
Regular reports to Operation Center of MDCC
Check that evacuation facilities are open
and receives evacuees
Responsible person:
Search and Rescue Team ready and
on standby with equipment
Responsible person:
Listen to DYMP radio
80

Annexes
Annex 6.3.: For Municipalities
Flood Checklist/Report
Municipality:
Officer in charge:
Date:
Members of Municipal Disaster Coordinating Council (or attach list)
81

Annex 6.3.1.: Checklist/Report Flood Level 1 for Municipalities
Checklist/Report
Municipality:
Item Date Time Done Remarks
Received message with Warning Level 1
from Flood Operation Center:
Informed BDCC of _______________ about WL 1
Informed BDCC of _______________ about WL 1
Informed BDCC of _______________ about WL 1
Informed BDCC of _______________ about WL 1
Informed BDCC of _______________ about WL 1
Informed BDCC of _______________ about WL 1
Informed BDCC of _______________ about WL 1
Informed BDCC of _______________ about WL 1
Informed BDCC of _______________ about WL 1
Informed BDCC of _______________ about WL 1
Informed BDCC of _______________ about WL 1
Informed BDCC of _______________ about WL 1
Informed BDCC of _______________ about WL 1
Informed MDCC members about Warning Level 1
Regular reports to Flood Operation Center in Palo
Prepare evacuation facilities
- Drinking water for 5 days
- Cooking facilities
- Food for 5 days
- mats
- First Aid Kit
- Lamps
- Flash lights/candles
Check Search and Rescue equipment
• Handheld radio
• Life vest
• Ropes
• Boat
• Lamps
Responsible person:
Search and Rescue Team assembles
and gets ready
Team members:
82

Annexes
Annex 6.3.2: Checklist/Report Flood Level 3 for Municipalities
Checklist/Report
Municipality:
Item Date Time Done Remarks
Received message with Warning Level 2
from Flood Operation Center:
Informed BDCC of _______________ about WL 2
Informed BDCC of _______________ about WL 2
Informed BDCC of _______________ about WL 2
Informed BDCC of _______________ about WL 2
Informed BDCC of _______________ about WL 2
Informed BDCC of _______________ about WL 2
Informed BDCC of _______________ about WL 2
Informed BDCC of _______________ about WL 2
Informed BDCC of _______________ about WL 2
Informed BDCC of _______________ about WL 2
Informed BDCC of _______________ about WL 2
Informed BDCC of _______________ about WL 2
Informed MDCC members about Warning Level 2
Regular reports to Flood Operation Center in Palo
Open evacuation facilities
Responsible person:
Search and Rescue Team ready with equipment
Responsible person:
Advice DepEd to close schools
Advice PNP? To close roads
83

Annex 6.3.3: Checklist/Report Flood Level 3 for Municipalities
Checklist/Report
Municipality:
Item Date Time Done Remarks
Received message with Warning Level 3
from Flood Operation Center:
Informed BDCC of _______________ about WL 3
Informed BDCC of _______________ about WL 3
Informed BDCC of _______________ about WL 3
Informed BDCC of _______________ about WL 3
Informed BDCC of _______________ about WL 3
Informed BDCC of _______________ about WL 3
Informed BDCC of _______________ about WL 3
Informed BDCC of _______________ about WL 3
Informed BDCC of _______________ about WL 3
Informed BDCC of _______________ about WL 3
Informed BDCC of _______________ about WL 3
Informed BDCC of _______________ about WL 3
Informed BDCC of _______________ about WL 3
Informed MDCC members about Warning Level 3
Regular reports to Flood Operation Center in Palo
Check that evacuation facilities are open
Responsible person:
Search and Rescue Team ready and
on standby with equipment
Responsible person:
84

Annexes
Annex 7: Evacuation Drill Checklist
Evacuation Drill Checklist
Location of monitor (sketch map, address):
Target evacuation location/center:
Name of monitor:
Date of drill:
Method of sounding alarm:
Exact time of sounding alarm:
Exact time all residents vacated location:
Exact time last resident reached safe place:
Title/position:
not observed:
not observed:
not observed:
Signs, maps
Are sufficient and clear signs visible: yes no not observed:
Are maps with evacuation routes available: yes no not observed:
Evacuation Personnel
Evacuation director present: yes no not observed:
Assistant evacuation director present: yes no not observed:
Evacuation assistant present: yes no not observed:
Evac. personnel checked vacated buildings: yes no not observed:
Evac. pers. facilitated head count at evac centr: yes no not observed:
Over all response of the evacuation team: satisfactory unsatisfactory
Residents
Was situation realistic (e.g. residents pursued their
normal business)
yes no not observed:
Residents initial response on sounding of alarm: satisfactory unsatisfactory
Residents aware of escape routes: yes no not observed:
Did evacuation proceed in smooth and orderly manner: yes no not observed:
Did visitors participate in drill: yes no not observed:
Did residents take emergency bags/kits with them: yes no not observed:
Over all response of residents: satisfactory unsatisfactory
Other comments
Drill Monitor Signature:
85

Annex 8: Table of Content for an Annual Report of an Operation Center
ANNUAL REPORT
For a Local Flood Early Warning System
1. Summary
2. Vulnerability
a. Location and number of vulnerable persons/HH/commercial/industrial establishments/
livestock in the hazard prone area.
b. Trends (more or less than before?, measures to reduce vulnerability?)
3. Natural events and disasters
a. List events, characterize them
b. Casualties, damages caused
c. Trends (more or less than before?)
4. LFEWS
a. Administrative structure
b. Technical structure
i. Number, type and location of gauges
ii. Communication equipment
iii. OC
c. Drills, dry runs
d. Adjustments of the LFEWS
e. Warnings
i. Events without warning
ii. Events with warning
iii. Warning without events
f. Trends, comments
5. Other activities
a. Visitors received
b. Visits conducted
c. Training attended/conducted
d. Publication, documentation
6. Overall usefulness and sustainability
7. Recommendations
8. Appendices
a. Tables with rainfall/water level data
b. Maps
c. Damage reports
d. List and maps of evacuation centers with capacity
e. others
86

Annexes
Annex 9: Sample Memorandum of Agreement between LGUs
MEMORANDUM OF AGREEMENT
KNOW ALL MEN BY THESE PRESENTS:
This Memorandum of Agreement (MOA) made and entered into this ___________
day of ________________by and among:
The Province of Leyte, a duly organized Local Government Unit existing under by
virtue of the laws of the Republic of the Philippines, through the Provincial Governor’s Office
with office address at the Provincial Capitol Building, Tacloban City represented in this act by
the Governor HON. CARLOS JERICHO L. PETILLA;
The Municipality of Abuyog, a duly organized Local Government Unit existing under
and by virtue of the laws of the Republic of the Philippines, through the Office of the Mayor
and represented in this act by the Municipal Mayor HON. OCTAVIO J. TRAYA, JR.;
The Municipality of Javier, a duly organized Local Government Unit existing under and
by virtue of the laws of the Republic of the Philippines, through the Office of the Mayor and
represented in this act by the Municipal Mayor HON. LENI T. CUA;
The Municipality of Mahaplag, a duly organized Local Government Unit existing under
and by virtue of the laws of the Republic of the Philippines, through the Office of the Mayor
and represented in this act by the Municipal Mayor HON. RONALDO T. LLEVE;
The Department of Agriculture Region VIII – Regional Integrated Agricultural
Research Center (DA-RIARC) of Abuyog, with postal address at Bgy. Balinsasayaw, Abuyog,
Leyte, represented in this act by the DA Regional Director LEO CAÑEDA;
The Department of Environment and Natural Resources (DENR) Region VIII, with
postal address at Sto. Niño Extension, Tacloban City, represented in this act by the DENR
Regional Technical Director for Forest Management Service RTD FELIPE CALUB;
The Office of Civil Defense-Region VIII, with postal address at Camp Ruperto Kangleon,
Pawing, Palo, Leyte, represented in this act by the Regional Director, ANGEL D. GAVIOLA;
87

WITNESSETH:
TERMS AND CONDITIONS
Section I: Title and Nature
WHEREAS, this agreement is entitled “Community-Based Flood Management Program
(CBFMP) through the Timely Exchange of Information” to all concerned stakeholders;
WHEREAS, this involves a joint undertaking among the parties to mutually agree on
coordinating their efforts to share and exchange information to help manage and mitigate
disasters within the Province of Leyte;
NOW THEREFORE, for and in consideration of the above premises, the parties hereby
bind themselves to the following terms and conditions:
Section II: Roles and Responsibilities
1.0 The Municipality of Abuyog shall, under this agreement, perform the following specific
obligations:
1.1 Assist the authorized technical teams in the survey, determination and installation
of the following equipment within Abuyog in the Province of Leyte:
At the DRMO Operations Center, Abuyog Municipal Hall:
1.1.1 One complete kit Davies Automatic Weather Station
1.1.2 In barangays:
1.1.3 Digital rainfall gauge at the New Taligue Elementary School, Bgy. New
Taligue, at coordinates _______________:
1.1.4 Flood marker at the Higasaan River in Bgy. Salvacion.
1.2 Ensure the maintenance, safekeeping and sustainability of the installed equipment,
which shall be the prime responsibility of the DRMO/MPDO at the municipal
level and the BDCC at the barangay level in coordination with the MDCC. It shall
guarantee continued funding for the maintenance of the installed equipment and
for the volunteers involved. The municipality shall be responsible for repair and/or
replacements in case of loss or damage to the installed equipment, to maintain the
timely exchange of flood data and other information among the parties.
1.3 Organize the trainings for the volunteer provincial / municipal / barangay personnel
for staff gage reading, flood marker and rainfall observation; assign and designate
the observers, through the municipal / barangay entity concerned, that will man
flood marker and rain gage observations, and staff gage readings.
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1.3.1 Ensure that the trained and designated observers shall report observations
and readings and other related information to the designated office /
center at the prescribed time as soon as possible during inclement weather
conditions or when required to do so.
1.4 Assist in the conduct of post-flood surveys and investigation after every flood event
and other related researches and projects in coordination with the Province of
Leyte.
2.0 The Municipality of Javier shall, under this agreement, perform the following specific
obligations:
2.1 Assist the authorized technical teams in the survey, determination and installation
of the following equipment within Javier in the Province of Leyte:
2.1.1 At the Disaster Operations Center, Javier Municipal Hall:
2.1.2 In barangays:
2.1.3 Telemetered water level gage at Bgy. Manlilisid (N10˚45.275’,
E124˚56.021’,40m):
2.1.4 Telemetered rain gage at Bgy. Caraye (N10° 43.228¢, E 124°55.545’, 88m)
2.2 Ensure the maintenance, safekeeping and sustainability of the installed equipment,
which shall be the prime responsibility of the MPDO at the municipal level and
the BDCC at the barangay level in coordination with the MDCC. It shall guarantee
continued funding for the maintenance of the installed equipment and for the
volunteers involved. The municipality shall be responsible for repair and/or
replacements in case of loss or damage to the installed equipment, to maintain the
timely exchange of flood data and other information among the parties.
2.3 Organize the trainings for the volunteer provincial / municipal / barangay personnel
for staff gage reading, flood marker and rainfall observation; assign and designate
the observers, through the municipal / barangay entity concerned, that will man
flood marker and rain gage observations, and staff gage readings.
2.3.1 Ensure that the trained and designated observers shall report observations
and readings and other related information to the designated office
/ center at the prescribed time as soon as possible during inclement
weather conditions or when required to do so.
2.4 Assist in the conduct of post-flood surveys and investigation after every flood event
and other related researches and projects in coordination with the Province of
Leyte.
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3.0 The Municipality of Mahaplag shall, under this agreement, perform the following specific
obligations:
3.1 Assist the authorized technical teams in the survey, determination and installation
of the following equipment within Mahaplag in the Province of Leyte:
3.1.1 At the Disaster Operations Center, Mahaplag Municipal Hall:
3.1.2
In barangays:
3.1.3 Telemetered rain gage at Bgy. Pinamonoan (N10° 30.857¢, E 124°58.299’,
135m)
3.1.4 Flood Marker at Tagbinunga Bridge
3.1.5 Flood Marker at Layug Bridge
3.2 Ensure the maintenance, safekeeping and sustainability of the installed equipment,
which shall be the prime responsibility of the MPDO at the municipal level and
the BDCC at the barangay level in coordination with the MDCC. It shall guarantee
continued funding for the maintenance of the installed equipment and for the
volunteers involved. The municipality shall be responsible for repair and/or
replacements in case of loss or damage to the installed equipment, to maintain the
timely exchange of flood data and other information among the parties.
3.3 Organize the trainings for the volunteer provincial / municipal / barangay personnel
for staff gage reading, flood marker and rainfall observation; assign and designate
the observers, through the municipal / barangay entity concerned, that will man
flood marker and rain gage observations, and staff gage readings.
3.3.1 Ensure that the trained and designated observers shall report observations and
readings and other related information to the designated office / center at the
prescribed time as soon as possible during inclement weather conditions or when
required to do so.
3.4 Assist in the conduct of post-flood surveys and investigation after every flood event
and other related researches and projects in coordination with the Province of
Leyte.
4.0 The Province of Leyte shall under this agreement perform the following specific
obligations:
4.1 Provide security to the authorized technical team personnel in the conduct of their
undertakings, as described herein, within the Province of Leyte;
4.2 Support every undertaking of the authorized technical personnel through proper
coordination with any related government and non-government agency within the
Province of Leyte;
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4.3 Ensure that a provincial resolution is passed for this joint cooperation in order to be
a permanent and a continuing undertaking between the parties concerned;
4.4 Provide the rain gages and materials for staff gages and flood markers needed in
the establishment of the network system. The number of rain gauges and staff
gages shall be determined by a previous survey of the authorized technical team,
whereas, the number of flood markers shall be determined through the guidance
and assistance of the municipality covered;
4.5 Disseminate River Flood Bulletins and other related information prepared and
issued by the appropriate entities covered by this agreement or within the Province
of Leyte;
4.6 Undertake post-flood surveys, investigation and documentation for flood events,
and other related researches and projects in coordination with the parties covered
by this agreement;
4.7 Coordinate with the municipality involved in providing for the necessary funds for
the communication system required in the Community Based Flood Management
Program, other required materials (maps, photocopying services, papers, etc.)
through the municipality involved, for the establishment of the CBFMP within the
said municipality’s jurisdiction.
5.0 The DA-RIARC (Abuyog Station) shall, under this agreement, perform the following
specific obligations under this agreement:
5.1 Provide data on rainfall monitored by gages maintained by the DA in Bgy.
Balinsasayaw, to complement the data being monitored by equipment installed
under this agreement;
5.2 Assist in the conduct of post-flood surveys, investigation and documentation for
flood events, especially for flood damage assessments for the agricultural sector,
and other related researches and projects in coordination with the Province of
Leyte.
6.0 The DENR Region VIII shall, under this agreement, perform the following specific
obligations under this agreement:
6.1 Make available to the parties any present and future data, including maps, referring
to watershed and ecosystem management within the Cadac-an watershed and/or
other watersheds comprising the municipalities of Abuyog, Javier and Mahaplag,
such as watershed characterization studies and vulnerability assessments of
watershed resources, including quantity and quality of stream flows, rates of
sedimentation, level of biodiversity and other factors with relevance to the
disaster management plans of the local government units (LGUs) covered by this
agreement.
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7.0 The OCD Region 8 shall under this agreement perform the following specific obligations:
7.1 To assist in the information dissemination of the project to all concerned
stakeholders;
7.2 To assist in the dissemination of all weather and flood warning information to the
concerned municipalities and barangays;
7.3 To assist in the monitoring and evaluation of the impacts on the project by providing
data on damages, i.e. damages to infrastructures, agriculture, etc. in a timely
manner;
7.4 To ensure the attendance of focal person or assigned staff to activities relative to
the implementation of the Community-Based Early Warning System (CBEWS).
Section III: General Provisions
Under this agreement, the parties shall perform the following:
That the parties shall continuously coordinate related projects / plans to successfully implement
the program;
That each party shall regularly report on the implementation of the related projects / plans
for this program;
That each party shall continuously exchange necessary information to improve flood disaster
preparedness and other related activities;
That a meeting / dialogue be conducted between the parties, organizations and agencies
concerned, and representatives of the end users to assess the implementation of
activities on a regular basis or whenever necessary.
That the parties shall exert all their efforts to replicate the program to other identified areas of
concern within the province.
Section IV: EFFECTIVITY
This Agreement shall take effect immediately on the date of its signing and approval
by the parties concerned and shall remain in force unless sooner terminated as stipulated
herein.
Section IV: TERMINATION OF AGREEMENT
That the parties concerned reserve the right to terminate this agreement when
technical reasons or public policy so demands in which case the party desiring to cause such
termination shall notify the other parties in writing at least three (3) months before actual
termination of the agreement.
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Annexes
IN WITNESS WHEREOF, the parties have hereunto set their hands on the date and place first
above written.
Municipality of Abuyog
OFFICE OF THE MAYOR
OCTAVIO J. TRAYA, JR.
Municipal Mayor
Res. Cert. _____________
Issued at _____________
Issued on _____________
Municipality of Javier
OFFICE OF THE MAYOR
LENI T. CUA
Municipal Mayor
Res. Cert. _____________
Issued at _____________
Issued on _____________
Municipality of Mahaplag
OFFICE OF THE MAYOR
RONALDO T. LLEVE
Municipal Mayor
Res. Cert. _____________
Issued at _____________
Issued on _____________
Department of Agriculture
Regional Office VIII
LEO CAÑEDA
Regional Director
Res. Cert. _____________
Issued at _____________
Issued on _____________
Department of the Environment and
Natural Resources Regional Office VIII
Forest Management Service
FELIPE CALUB
Regional Technical Director
Res. Cert. _____________
Issued at _____________
Issued on _____________
Office of the Civil Defense
Regional Office VIII
ANGEL GAVIOLA
Regional Director
Res. Cert. _____________
Issued at _____________
Issued on _____________
OFFICE OF THE GOVERNOR
Province of Leyte
CARLOS JERICHO L. PETILLA
Governor
Res. Cert. _____________
Issued at _____________
Issued on _____________
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Annex 10: Checklist Local Flood Early Warning System
Risk Knowledge Monitoring
and Warning
Dissemination and
Communication
Hazard
Rainfall
Radio
Get or produce
flood hazard maps
Get data about
location, frequency,
depth, duration,
current of floods
Establish rainfall
monitoring stations
(gauges and personnel)
Train personnel in
maintenance, gauge
reading, record keeping
and data transmission
Establish radio
communication facilities
(voice and data if needed)
Train personnel in
maintenance and data
transmission protocols
Elements
at Risk
River Level
Telephone
Get population data for
hazard prone area
Get land use map/data for
hazard prone area
Calculate hectares,
number of buildings
Establish river level
monitoring stations
(gauges and personnel)
Train personnel in
maintenance, gauge
reading, record keeping
and data transmission
Establish mobile and
land-line telephone
network (list numbers)
Train personnel data
transmission protocols
Vulnerability
Warning
Decision
household
warning
Get data on poverty
incidence
Get data on vulnerable
groups (children, elderly,
handicapped)
Get data on vulnerability
of buildings (material,
strength, etc..)
Identify critical areas
Establish an Operation
Center (room, equipment,
staff)
Define three warning
levels
Train staff in flood risk
management, data
interpretation, warning
decision, communication
Disseminate information
about the LFEWS
(warning levels)
Establish warning
signal dissemination for
households (e.g.. bells)
Train personnel in
maintenance, and
warning dissemination
Response
Capability
Evacuation
centre
Establish or identify suitable
evacuation centers
Disseminate evacuation
routes and location of
centers
Train staff in maintenance
Search &
Rescue
Establish S&R services
(staff, S&R and
communication equipment)
Train personnel in S&R
techniques
relief
goods
Establish stocks of relief
goods
Train personnel in transport,
distribution and record
keeping of goods
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Annex 11: Information on EU DIPECHO
Disaster preparedness/risk reduction
The European Union is one of the world’s largest provider of financing for humanitarian aid
operations. Since 1992, the Commission has provided billions of Euros for humanitarian
projects in more than 140 countries, funding relief to millions of victims of disasters outside
the European Union.
Within the Commission, operations are masterminded by the Humanitarian Aid department
(ECHO). Operations include assessment of humanitarian needs in disaster areas, appropriate
allocation of funds for goods and services such as food, shelter, medical provisions, water
supplies or sanitation and evaluation of the impact of the aid provided. Disaster preparedness
projects in regions prone to natural catastrophes are also among the life-saving activities
financed through ECHO’s specialised programme DIPECHO. By preparing the communities at
risk to respond by themselves, DIPECHO aims at reducing the impact of natural disasters on
the most vulnerable populations through simple and inexpensive yet effective preparatory
measures developed and implemented at community level. Examples include the development
of simple local early-warning systems, awareness-raising and training sessions, or small-scale
mitigation works. The Commission is also committed to integrating disaster risk reduction
components into its humanitarian relief operations.
Assistance is channelled impartially to the populations concerned, regardless of their race,
ethnic group, religion, gender, age, nationality or political affiliation, through our operational
partners. The Commission works with about 200 partners, including European nongovernmental
organisations, the Red Cross movement and United Nations agenci
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