Ten Essentials For Making Cities Resilient: The Case of Quezon City in Metro Manila

6th ASIA Conference on Earthquake Engineering (6ACEE), May 22-24, 2016, Cebu City, Philippines
Bridging Theory & Practice in Earthquake Engineering for Enhancing Community Earthquake Resilience
Ten Essentials for Making Cities Resilient:

The Case of Quezon City in Metro Manila
Andres Winston C. Oreta, Lessandro Estelito Garciano

and Renan Ma. Tanhueco
CESDR Subcenter on DRR-CCA, De La Salle University, Manila
Email: andres.oreta@dlsu.edu.ph
ABSTRACT
The United Nations International Strategy on Disaster Reduction (UNISDR)

launched the global campaign on Making Cities Resilient-My City is Getting
Ready! in May 2010. The campaign developed the Local Government Self-
Assessment Tool (LGSAT) to guide the local government and stakeholders to
assess their city with respect to the Ten Essentials for Making Cities Resilient
checklist. The LGSAT was applied to make a preliminary assessment of Quezon
City. The assessment report will present the ratings on the level of progress on
the Ten Essentials for Making Cities Resilient and the initiatives of the the local
government on disaster risk reduction and management. The assessment also
addressed the Sendai Framework for Disaster Risk Reduction 2015-2030 by
aligning the scores to the four priority areas of the Sendai Framework.
Based on the assessment, the major natural hazards that threaten Quezon City
are floods, typhoons and earthquake due to the West Valley Fault System. The
local government has recognized the risk to these natural hazards and has
initiated programs to address these hazards and mitigate their effects through risk
reduction measures which include people awareness and preparedness, flood risk
reduction structures and measures, strict compliance to the structural design
codes, implementation of land use planning and urban renewal. However, Quezon
City still needs to improve on investment on critical infrastructures, assessment
of schools and hospitals and protection of the eco-system. DRR funds may be
available but are limited. The local government should provide additional funds for
disaster risk mitigation especially on the assessment and retrofit of structures due
to earthquakes and development of flood risk mitigation measures.
Keywords: Resilient City, Hyogo Framework, Sendai Framework, Disaster Risk

Reduction, Metro Manila
I. INTRODUCTION
The United Nations International Strategy on Disaster Reduction (UNISDR)
launched the global campaign on Making Cities Resilient-My City is Getting
Ready! in May 2010. The campaign aims to look at a global snapshot of
local-level resilience building activities and identify trends in the
perceptions and approaches of local governments toward disaster risk
reduction, using the Ten Essentials for Making Cities Resilient developed by
the Campaign as a framework. To promote this campaign, a local
government self-assessment tool (LGSAT) was developed to capture the
information on progress in disaster risk reduction at the local level,
generated through the multi stakeholder review process. The primary

purpose of the tool is to assist local governments in reviewing and
monitoring over time their progress and challenges in the implementation
of disaster risk reduction and recovery actions undertaken at the local level,
in accordance with the five Hyogo Framework for Action (HFA) priorities or
the 10 Essentials of the Making Cities Resilient Campaign.
In 2015, the Sendai Framework for Disaster Risk Reduction 2015-2030 was
adopted during the 3rd UN World Conference on Disaster Risk Reduction
held at Sendai, Japan. The Sendai Framework changed its goal to the
substantial reduction of disaster risk and losses in lives, livelihoods and
health and in the economic, physical, social, cultural and environmental
assets of persons, businesses, communities and countries. The new DRR
framework also revised its priority areas. The Ten Essentials can be aligned
to the four priority areas of the Sendai Framework. Hence, an independent
preliminary assessment using the LGSAT as a guide can also inform us if
the new priority areas are addressed. This paper presents the assessment
of a city in Metro Manila, namely Quezon City to gather baseline data for a
more rigorous and detailed study. The assessment report presents the
scores on the level of progress on the Ten Essentials for Making Cities
Resilient and the corresponding scores related to the Sendai Framework
Priority Areas. Highlights of the best practices of the city are also described.
II. THE MAKING CITIES RESILIENT ASSESSMENT

The LGSAT (UNISDR 2010) addresses the five priority areas of the HFA or
the 10 Essentials of the Making Cities Resilient campaign. The 10 Essentials
for Making Cities Resilient are stated below:
E1 Organization: Put in place organization and coordination to clarify

everyones roles and responsibilities
E2 Budget: Assign a budget and provide incentives for homeowners,
low income families and the private sector to invest in risk reduction
E3 Data: Update data on hazards and vulnerabilities, prepare and share
risk assessments
E4 Investment: Invest in and maintain critical infrastructure that
reduces risk
E5 Schools & Hospitals: Assess the safety of all schools and health
facilities and upgrade these as necessary.
E6 Enforcement Enforce risk-compliant building regulations and land
use planning, identify safe land for low income citizens
E7 DRR Training: Ensure that education programs and training on
disaster risk reduction are in place in schools and local communities
E8 Protection of Ecosystem: Protect ecosystems and natural buffers
to mitigate hazards, adapt to climate change
E9 Early Warning Systems: Install early warning systems and
emergency management capacities
E10 People in Reconstruction: Ensure that the needs and

participation of the affected population are at the center of
reconstruction
The five HFA priorities for action are summarized below:

HFA1: Ensure that disaster risk reduction is a national and a local
priority with a strong institutional basis for implementation
HFA2: Identify, assess and monitor disaster risks and enhance early
warning
HFA3: Use knowledge, innovation and education to build a culture of
safety and resilience at all levels
HFA4: Reduce the underlying risk factors
HFA5: Strengthen disaster preparedness for effective response at all
levels
The Sendai Framework for DRR (UNISDR 2015) has four priority areas to
achieve its goal. Table 1 shows the alignment of the Sendai Framework
Priority Areas with the HFA and the 10 Essentials.
Table 1. Alignment of Priority Areas and Ten Essentials
Sendai Framework Hyogo Ten

Priority Areas Framework Essentials
SFA1: Understanding disaster risk HFA2, HFA3 E3
SFA2: Strengthening disaster risk HFA1 E1, E6
governance to manage disaster risk.
SFA3: Investing in disaster risk reduction HFA4 E2, E4, E5, E8
for resilience
SFA4: Enhancing disaster preparedness HFA2, HFA5 E7, E9, E10
for effective response, and to Build Back
Better in recovery, rehabilitation and
reconstruction
The LGSAT consists of 41 key questions (KQ) that are grouped according
to the five HFA priority areas or Ten Essentials of the Making Cities Resilient
campaign. Each question is phrased in a way that allows local governments
and participating stakeholders to reflect on the level of progress that has
been made to date using a scoring scale (Table 2). To give a reasonable
assessment using the scoring scale the assessor needs to do research,
interviews and site visits.
Table 2. Scoring Scale on Level of Progress

Level of DESCRIPTION OF LEVEL OF PROGRESS FOR OVERALL
Progress RANKING FOR EACH QUESTION
5 Comprehensive achievement has been attained, with the
commitment and capacities to sustain efforts at all levels.
4 Substantial achievement has been attained, but with some
recognized deficiencies in commitment, financial resources or
operational capacities.
3 There is some institutional commitment and capacities to achieving
DRR, but progress is not comprehensive or substantial.
2 Achievements have been made but are incomplete, and while
improvements are planned, the commitment and capacities are
limited.
1 Achievements are minor and there are few signs of planning or
forward action to improve the situation.
If the assessor aims to address the citys resilience based on the 10

essentials, then he responds to the key questions (KQ) related the ten
essentials. There will be a score for each KQ and an average score can be
given for each Essential. As an example, there are four key questions in the
LGSAT for essential E1:
KQ1: How well are local organizations
(including local government) equipped with
capacities (knowledge, experience, official
mandate) for disaster risk reduction and
climate change adaptation?
KQ2: To what extent do partnerships exist
between communities, private sector and
local authorities to reduce risk?
KQ3: How much does the local government
support vulnerable local communities
(particularly women, elderly, infirmed,
children) to actively participate in risk
reduction decision making, policy making,
planning and implementation processes?
KQ4: To what extent does the local
government participate in national DRR
planning?
On the other hand, if the assessor aims to

address each of the five HFA priority areas,
then he should respond to the key questions
related to each HFA. To assess the Sendai
Framework Priority Areas, Table 1 can be used
as a guide. For example, the score for SFA1 is Figure 1. Metro Manila
equal to E3, while the scores for the other and its Cities and
three priority areas (SFA2, SFA3 and SFA4) Municipality
can be obtained by taking the average of the scores of the appropriate

essentials.
III. PROFILE OF QUEZON CITY IN METRO MANILA
Metro Manila (Figure 1), the National Capital Region (NCR) of the
Philippines is composed of 17 cities which includes, Quezon City, the
country's most populous city and one municipality. Quezon City is the
largest city in Metro Manila with a population of 2.9 million in 2010. Many
rivers and creeks crisscross Quezon
City making it highly vulnerable to
flash floods during heavy rains and
typhoons due to clogged drainage
systems. The West Valley Fault
System (WVFS) passes through
several areas of Quezon City. The city
is highly vulnerable to earthquake
hazards because of the WVFS.
However, it has lesser risk to
liquefaction because the predominant
soil type in Quezon City is hard and
compact adobe.
After QC has experienced a major

disaster which was the Payatas
landslide on July 10, 2000, that
officially killed around 218 people
incident, the disasters that affected QC
recently are due to floods and
Figure 2. Flood Hazard Map
typhoons. The most recent
major disasters that hit
Metro Manila were Typhoon
Milenyo (Xangsane) and
Typhoon Ondoy
(Ketsana). Typhoon
"Milenyo" struck Metro
Manila on September 28,
2006. It was the strongest
typhoon with respect to
wind speed to hit Metro
Manila directly in 11 years.
Classes in all levels were
suspended. Many huge
billboards which have been
Figure 3. Earthquake Hazard
erected along main
Map by PHIVOLCS
highways including EDSA were toppled by the strong winds causing a

number of deaths and injuries to passersby and damaging vehicles. Many
trees were uprooted and electric posts were toppled blocking the roads.
Operations of the LRT and MRT in Metro Manila were also suspended.
Tropical Storm Ondoy (Figure 2) produced record rainfall and floods in
September 2009. At the height of the storm, a state of calamity was
declared in Metro Manila. The rising water level rendered roadways around
Metro Manila impassible. At least 609,548 people were displaced by flood
waters and had to stay in makeshift evacuation centers in schools and
churches. 240 people, mostly from the National Capital Region, were killed.
319,881 families or 1,872,036 people were affected by the storm.
The Philippine Institute of Volcanology and Seismology (PHIVOLCS) has

reported the possible Big One 7.2 magnitude earthquake (Figure 3) that
may occur due to the of the West Valley Fault (Figure 3) traversing Quezon
City that may strike any time soon based on historical data. In a study by
PHIVOLCS, the effect of a 7.2 M earthquake on infrastructures will be:
Residential buildings - 339, 800 (25.6%) partly damaged; 168,300
(12.7%) heavily damaged; Mid-rise buildings (10-30 stories) - 27% partly
damaged, 11% heavily damaged; High-rise buildings (30-60 stories) - 2%
heavily damaged, 12% partly damaged; Public-purpose buildings - 8-10%
heavily damaged, 20-25% partly damaged.
IV. PRELIMINARY ASSESSMENT OF QUEZON CITY
The LGSAT using the 41 key questions of the Ten Essentials of the Making
Cities Resilient checklist was applied by the assessors on Quezon City (QC).
Shown in Figure 4 is the summary of the scores of QC on the 10 essentials
based on the assessment using interviews, published reports, website
information and site visits.
Figure 4. Preliminary Scores of QC on Ten Essentials

Figure 4 shows that Quezon City has an average score of 3.5 with ratings
of 4 in E1 (Organization), E3 (Data), E7 (Training), E8 (Protection of Eco-
systems) and E9 (Early Warning Systems. QC has ratings of 3 for E2
(Budget), E4 (Investment), E5 (Schools & Hospitals), E6 (Enforcement) and
E10 (People in Reconstruction). The highlights of the ten essentials of the
city are now described to provide an appreciation of the scores given and
to identify the strength and weaknesses of QC with respect to disaster
resilience.
E1 Organization (Score =4): Republic Act No. 10121 or the Philippine Disaster
Risk Reduction and Management Act of 2010 mandates each city to create a City
Disaster Risk Reduction and Management Council (CDRRMC). This order provides
the functions of the Council including the roles and responsibilities of each member
with the Mayor as the head. QC has its own CDRRMC and the city being divided
into smaller units called barangays has also the Barangay DRRMC which has staff
for emergency response. Quezon City recently completed the construction of QC
Disaster Risk Reduction and Management Office (Figure 5).
Figure 5. QC DRRM Building
The QC local government also collaborated with

Earthquakes and Megacities (EMI) to undertake
the Building a Disaster Resilient QC Project
wherein legal and institutional aspects of DRRM Figure 6. Building a
was undertaken (Figure 6). The assessment Disaster Resilient QC
entails a comprehensive examination of the Project
processes, planning actions, policies, legal
framework and institutional arrangements for carrying out DRRM functions.
E2 Budget (Score = 3): The Local Disaster Risk Reduction and Management
Fund (LDDRMF) allows the local government to use 5% of its revenue. Seventy
percent (70%) of the LDDRMF goes to disaster preparedness programs such as
acquisition of emergency and rescue equipment and the remaining 30% is
allocated to quick response during a disaster. Depending on the citys revenue,
the fund is about P650M (Quezon City). Although the funds are available, these
are not enough to support programs on risk reduction. Micro-insurance to
barangays, whose residents are most vulnerable to calamities and services for the
marginalized, especially victims of calamities/disasters are fully disseminated and
funding is limited.
E3 Data( Score = 4): Quezon City conducted the Walk the Fault project to
verify the actual course of the West Valley Fault line and provide warning to the
affected areas (Figure 7). Signs are posted on structures where the fault passes.
PHIVOLCS has published the Valley Fault System atlas for Metro Manila (Figure
8).Furthermore, one of the outputs of the "Building a Disaster Resilient Quezon
City Project" is the Hazards, Vulnerability and Risk Assessment (HVRA) which
provides an city atlas on Earthquake risk will include fault location, severity of
ground shaking, areas with potential liquefaction, areas with potential for fire
following, distribution of damage to buildings, critical facilities, high loss facilities
and potential damage to transportation systems and lifelines. The Citys
Comprehensive Land Use Plan for 2010-2030 has recently been updated
considering hazard and vulnerability studies of EMI.
Figure 7. Walk the Fault

Figure 8. VFS Atlas (PHIVOLCS)
E4 Investment (Score = 3). Quezon City through its Task Force Waterway
conducts programs on river protection and conservation and waterways
improvement and cleanup. From 2010 to 2013, the QC Administration completed
1,117 infrastructure projects in all Districts of Quezon city, with funds allotted
totaling Php 5,415,920,835. Of these, 451 are road drainage and sidewalk
improvement projects worth Php 2.549 billion and 93 are flood control projects
(Figure 9) valued at Php 479.244 million. (QC Website Recent News). The City
Government continues to census those located in danger zones, collaborating with
the national agencies on housing. Among the citys thrust on DRR is relocating
structures along river easements and fault lines. Informal settler families living in
danger areas in Quezon City are now resettled safely in areas like the SOUTHVILLE
8, San Isidro, Rodriguez, Rizal (Figure 10). Still Quezon City has large area
occupied by informal settlers that must be addressed.
Figure 9. Retaining Walls along creeks at QC

http://quezoncity.gov.ph/index.php/recent-news/1431-qc-invest-infra-reducw-flooding
Figure 10. South Ville 8 Resettlement Site for QC Informal Settlers

https://tuklasinnatin.wordpress.com/2011/08/20/nearly-2000-qc-poor-families-in-safe-new-homes/
E5 Schools & Hospitals (Score = 3): Quezon City initiated the Safe Building
Program in order to ensure that there is a systematic and regular inspection of
buildings such as public schools and shopping malls to ensure compliance to safety
standards. However, there is a need to conduct a more detailed seismic
assessment and retrofitting of schools and hospitals considering the seismic risk
due to VFS. The QC General Hospital was upgraded with an investment of PhP
559M. QC also conducted and trained high school students through it
Organization of Junior Rescuers for Public High Schools in 2011 and 2012.
Figure 11. VFS passes through schools in QC

(Philstar 2015)
E6 Enforcement (Score = 3): The Building Officials Office of the city, before
giving permits, checks the compliance to the
National Building Code, National Structural
Code of the Philippines and Environmental
Impact Assessment. Quezon City, in particular,
in its Comprehensive Land Use Plan (CLUP)
addressed DRR by avoiding residential
development in hazard-prone areas and
implements land use policies and zoning
regulations. A five-meter buffer zone along the
earthquake fault line will also be implemented.
The City has also identified and alerted the 594
lot owners of properties living in or near this
fault line. No new structures are allowed in this
earthquake buffer area, which shall gradually
be transformed into green linear parks. Markers
along the fault line have also been established.
E7 Training (Score 4) : The Department of

Education incorporated DRR in the senior high
school curriculum. The City DRRMC requires Figure 12. Earthquake
teacher and staff to undergo training in disaster Drill at Metro Manila
and emergency preparedness. Regular fire drills http://www.gmanetwork.com
are conducted in schools and government
offices. Recently, earthquake drills (Figure 12) have also been conducted. An
assessment of the effectivity of these drills in instilling awareness and
preparedness to the students, teachers and staff needs to be conducted.
E8 Protection of Ecosystems (Score =4): The Citys land use plan includes
considerations for disaster-risk reduction for general population and for Protection
Land Use. Quezon City implemented the Plastic Bag Reduction Ordinance to
encourage the use of reusable bags to reduce the waste plastics which are the
major cause of clogged canals. Quezon City also implements the Green Purchasing
and Green Building Programs. To encourage community involvement in flood
mitigation programs, the City also conducts annually, a Riverways Management
Program which resulted in an 18% decrease in flood-prone areas in the city. The
city also implemented the Hiwa-hiwalay na Basura sa Barangay program in 2011
(Figure 12) where the schedule of collection and types of wastes is implemented.
However, there is a lack of information on this program for householders.
Figure 12. Garbage trucks for Non-biodegradable wastes

https://fcecocamp.wordpress.com/2011/12/15/witness-to-waste/
E9 Early Warning Systems (Score = 4): The city monitors typhoon warnings
from the national agency, PAGASA and relays the warning to various barangays.
QC has 7 Automated Water level Monitoring Stations (AWLMS) that transmits data
on the water level of QC waterways every ten minutes in centimeters.
Conventional flood markers (Figure 13) were also put up to the most flood prone
areas. It has invested on an Emergency Operations Center Figure 14) to monitor
the city for crime, traffic and disasters. The Quezon Citys Walk the Fault is one
program that informs those residing near the faults to relocate or retrofit their
structures.
Figure 13. Water Level at La Mesa Dam in Quezon City

Figure 14. QC Emergency Operation Center

(Phil. Daily Inquirer)
E10 People Participation in Reconstruction (Score = 3): Quezon City

provides assistance to victims of psycho-social impacts of disasters though the
Social Services Department. Quezon City also provides support and assistance in
the recovery operations especially during typhoon and flood disasters. QC has not
experienced a major disaster expect the Payatas incident and flooding due to
recent typhoons. Hence, no major reconstruction has been done in the city which
requires peoples participation.
Using Table 1, the scores for the Sendai Framework Priority Areas can be
quantitatively determined as shown in Figure 7.
Quezon City
4.5
4
3.5 4
3.67
3 3.5
3.25
SCORE
2.5
2
1.5
1
0.5
0
SFA1 SFA2 SFA3 SFA4
SENDAI FRAMEWORK PRIORITY AREAS
Figure 7. Scores for the Sendai Framework Priority Areas
QC rated 4 (Substantial achievement has been attained) for SFA1 on

Understanding Risks which corresponds to updated data on hazards on
vulnerability. QC rated lowest (There is commitment but progress is not

comprehensive or substantial) on SFA3 (Investment on DRR) which is
understandable with the limited budget of the government.
V. CONCLUSION
Based on the assessment, the major natural hazards that threaten Quezon City
are floods, typhoons and earthquake due to the West Valley Fault System. The
local government has recognized the risk to these natural hazards and has
initiated programs to address these hazards and mitigate their effects through risk
reduction measures which include people awareness and preparedness, flood risk
reduction structures and measures, strict compliance to the structural design
codes, implementation of land use planning and urban renewal. However, Quezon
City still needs to improve on investment on critical infrastructures, assessment
of schools and hospitals and protection of the eco-system. DRR funds may be
available but are limited. The local government should provide additional funds for
disaster risk mitigation especially on the assessment and retrofit of structures due
to earthquakes and development of flood risk mitigation measures.
Acknowledgement
The report of the graduate students who conducted the assessment of QC
(Nolan Concha, Angel Alvarez, Marlon Bryan Palisoc and Paul Anthony
Pangilinan) are acknowledged.
References:
Shaw, Rajib (2010). Metro Manila City Profile, MetroPlanado and
International Environment and Disaster Management Laboratory,
Graduate School of Environmental Studies, Kyoto University. Retrieved
from http://www.preventionweb.net/files/16576_16576metromanilacityprofile1.pdf
UNISDR (2010). Making Resilient Cities: My City is Getting Ready,

http://www.unisdr.org/campaign/resilientcities/
UNISDR (2015). Sendai Framework for Disaster Risk Reduction 2015-

2030, http://www.unisdr.org/we/inform/publications/43291
QC Website Recent News. http://quezoncity.gov.ph/index.php/recent-

news/1431-qc-invest-infra-reducw-flooding
Philstar (2015).
http://www.philstar.com/headlines/2015/06/16/1466557/deped-names-
14-more-schools-valley-fault-system
Rentoy, F. (2013). Local progress report on the implementation of the 10

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6th ASIA Conference on Earthquake Engineering (6ACEE), May 22-24, 2016, Cebu City, Philippines

Ten Essentials for Making Cities Resilient:

Andres Winston C. Oreta, Lessandro Estelito Garciano

The United Nations International Strategy on Disaster Reduction (UNISDR)

Keywords: Resilient City, Hyogo Framework, Sendai Framework, Disaster Risk

generated through the multi stakeholder review process. The primary

II. THE MAKING CITIES RESILIENT ASSESSMENT

E1 Organization: Put in place organization and coordination to clarify

E10 People in Reconstruction: Ensure that the needs and

The five HFA priorities for action are summarized below:

Table 1. Alignment of Priority Areas and Ten Essentials

Sendai Framework Hyogo Ten

Table 2. Scoring Scale on Level of Progress

If the assessor aims to address the citys resilience based on the 10

On the other hand, if the assessor aims to

can be obtained by taking the average of the scores of the appropriate

III. PROFILE OF QUEZON CITY IN METRO MANILA

After QC has experienced a major

highways including EDSA were toppled by the strong winds causing a

The Philippine Institute of Volcanology and Seismology (PHIVOLCS) has

IV. PRELIMINARY ASSESSMENT OF QUEZON CITY

Figure 4. Preliminary Scores of QC on Ten Essentials

Figure 5. QC DRRM Building

The QC local government also collaborated with

Figure 7. Walk the Fault

Figure 8. VFS Atlas (PHIVOLCS)

Figure 9. Retaining Walls along creeks at QC

Figure 10. South Ville 8 Resettlement Site for QC Informal Settlers

Figure 11. VFS passes through schools in QC

E7 Training (Score 4) : The Department of

Figure 12. Garbage trucks for Non-biodegradable wastes

Figure 13. Water Level at La Mesa Dam in Quezon City

Figure 14. QC Emergency Operation Center

E10 People Participation in Reconstruction (Score = 3): Quezon City

Figure 7. Scores for the Sendai Framework Priority Areas

QC rated 4 (Substantial achievement has been attained) for SFA1 on

vulnerability. QC rated lowest (There is commitment but progress is not

UNISDR (2010). Making Resilient Cities: My City is Getting Ready,

UNISDR (2015). Sendai Framework for Disaster Risk Reduction 2015-

QC Website Recent News. http://quezoncity.gov.ph/index.php/recent-

Rentoy, F. (2013). Local progress report on the implementation of the 10

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