Building Safer Cities

Handbook for CLUP Updating

in Typhoon Yolanda-Affected Areas
Towards Build Back Better

The Land Use Planning Process

The Building Safer Cities: Handbook for CLUP Updating in Typhoon
Yolanda Affected Areas is a document which captured the experiences and
lessons learned by Tacloban City and the Municipality of Palo, Leyte towards
building back better through the formulation of Risk-Sensitive
Comprehensive Land Use Plans (CLUP) and other plans in response to the
impending threats of future disasters. A product of close collaboration
between the said LGUs and the Japan International Cooperation Agency
(JICA), it highlights the major approaches, procedures and tools applied by
the LGUs to complement the CLUP planning process as prescribed in the
Comprehensive Land Use Plan (CLUP) Guidebooks 2013-2014 promulgated
by the Housing and Land Use Regulatory Board (HLURB).
The CLUP Guidebook 2013-2014 is an update of the CLUP Guidebook 20062007 on the formulation/ updating of CLUPs and Zoning Ordinances (ZOs) for
local governments at the city/municipal level, consistent with two (2)
landmark national laws namely, the Climate Change Act of 2009 and the
Disaster Risk Reduction and Management Act of 2010, which require the
mainstreaming of climate change adaptation and disaster risk reduction in
all national and local development plans. It is complemented by the
Supplemental Guidelines on Mainstreaming Climate and Disaster Risks in the
Comprehensive Land Use Plan.
1

CLUP Guidebook Series 2013-2014

Procedural Steps in the preparation of CLUP and ZO

www.hlurb.gov.ph

Table of Contents
1.

Background . 3

2.

Objectives . 4

3.

Approaches ....... 5

4.

The Case of Tacloban City ..12

5.

The Case of Palo Municipality .30

6.

Summary .48

Typhoon Yolanda

Background

On November 8, 2013, Typhoon Yolanda (International Name: Haiyan)

made its most powerful landfall ever recorded in Philippine history. It
devastated a total of 36 provinces in the country with its enormous wind
and storm surge. The eastern coasts of Northern Leyte and the southern
coasts of Samar Island were the greatly affected areas with 16M people
affected; more than 6000 casualties, with 80 - 90% damages on areas
along the storm's path.
The Philippine Government declared a state of emergency for the Typhoon
Yolanda affected areas, various projects and activities for the recovery and
reconstruction were implemented to achieve Build-Back-Better (BBB).

To build safer cities, the affected LGUs and JICA worked together for the
recovery and reconstruction. JICA provided the storm surge, flood and tsunami
hazard maps that were based on scientific analysis as a tool to enhance the
modification process of the Comprehensive Land Use Plan (CLUP) and Disaster
Risk Reduction Management Plan (DRRMP). These are the plans that were
deeply discussed for around 2 years with the LGUs.
This handbook was submitted to DILG and HLURB as a reference material in
the update of CLUPs focusing on the aspect of building safer cities. Through
this handbook, the output and process of the activities in Palo Municipality
and Tacloban City are shared.

Samar

Objectives:

To introduce the Building Safer City (BSC) Approach;

To share the experience based CLUP revision of the LGUs affected by Typhoon Yolanda;
To achieve Build Back Better (BBB).

Target users of this handbook

Tacloban

Palo

Typhoon
Yolanda

Leyte

Objectives

Main target users: LGUs

- Planning officers and DRRM officers
- Officers in-charge of CLUP revision
- Mayors
Sub-target users: Other stakeholders
- Barangay captains
- Private planning consultants/ practitioners
- INGOs supporting the LGUs in their CLUP
- National government agencies
(HLURB, DILG, etc.)

Tacloban city

What is BSC- Approach?

BSC- Approach

BSC Approach is a collaborative activity between the LGUs, JICA, and other
stakeholders to achieve BBB by utilizing the experience of Japan in the
recovery and reconstruction from the Great East Japan Earthquake and
Tsunami, last 2011.
Growth

Typhoon
Yolanda

BSC-Approach
5

Nov.2013 2014

2015

2016

Step 1
Organize

Step 4
Analyze the
Situation

Step 2
Identify
Stakeholders

Step 3
Set the Vision

CLUP 12 Step

Step 5
Set the Goals
and Objectives

Step 6
Establish Devt
Thrust and
Spatial
Strategies

Step 7
Prepare the
Land Use Plan

Step 8
Draft the
Zoning
Ordinance

Step 9
Conduct Public
Hearing

Step 10
Review, Adopt
and Approve
the CLUP and
ZO

Step 11
Implement the
CLUP and ZO

Step 12
Monitor and
Evaluate the
CLUP and ZO

The BSC Approach targets mainly the CLUP guide steps 4 to 8, the approach is
not a simple one- way process. The BSC approach encourages repeated
discussions from step 4 to 8 depending on the vision, strategies, and the
precondition with the disaster risk and the reduction measures on the land.
In case of Tacloban City, after discussing developments of infrastructure,
residential area and evacuation center, the City went back to hazard analysis
and compared the impact of with/ without structure measures in order to
achieve a practical land use plan.

Step 4
Analyze the
Situation

Step 5
Set the Goals
and Objectives

Step 6
Establish Devt
Thrust and
Spatial
Strategies

Step 7
Prepare the
Land Use Plan

Step 8
Draft the
Zoning
Ordinance

BSC-Approach : target certain aspects within each CLUP step

Building
Safer City
(BSC)
Hazard
Analysis

Sub-approaches:
- Map-based approach
- Participatory approach
- Area management

Spatial
Strategy

Land Use
Plan

Disaster Risk Reduction

Management Options

Map-based approach
Various kinds of maps were utilized as tools to understand the situation in open up
discussions for planning as a map-based approach.

Storm surge

Map-based
Approach

Flood

Tsunami

Hazard maps

Hazard
overlay maps
with slope

Spatial strategy and

development thrust maps

with land use

North Tacloban
development

North
Deveropment

Downtown
The growth of direction of
urban area is Southward
Because there are many
urban area example
Palo,Tanauan,and Ormoc

To Ormoc

Existing
downtown

Palo

Hazardous
area

Tanauan
Tolosa

Extending urban area

Area is limited.

Land use maps

Participatory approach
In the case of Tacloban City, the city officials
and also all the barangay leaders were involved in
the planning process (CLUP Steps 4 to 7).
During the barangay workshop, the participants
were divided into groups , depending on the
characteristics of each barangay, and discussed
the plans by area.

Area discussion

Target Area

To group the barangays

with similar situation and
characteristics, to achieve a
harmonized plan.

Participatory
Approach

Discussions on disaster prevention measures, land

use and other various information were made
considering an area-level perspective and shared
to other areas to get feedback for improvements.
In Palo Municipality, the locals of the municipality
were also invited in the meetings to actively
discuss and plan the future of the municipality.

As a result, the ownership of the plan by the LGU

and stakeholders was built and the integrity of
the plan was ensured. With this approach, it is
expected that public hearing will smoothly
proceed.
8

What is area management?

Area
Management
Approach

Area Management is one of the proactive participatory approaches to enhance the value of
the area, which is similar to the Special Management District defined in the HLURB
Guidebooks. After focusing on a specific area, an Area Management Committee is organized,
which is usually composed of the different stakeholders that are within and beyond the
political boundaries of the LGU or barangay, such as, National government agencies (NGA),
barangay council, residents, business community, land-owners, residential people and etc.
The committee members, continuously discuss on the rehabilitation, development, and
management of the area. Its an effective way to harmonize with each activity that have
direct impact to the land use of the area and solve issues that needs to be constantly
addressed. Also, area management is a potential approach for the management and
operation stage of the plans, to promote and realize the CLUP.

CLUP

Area Management

Stage 2 Maintenance
Stage 1
and Management Stage
Planning &
Development
Stage 3
Stage
Operation Stage

Other committee

Plan

Operation and Maintenance

CLUP leads to CDP

In the area management committee, land
use and development plans are strategically
discussed. Not only the physical plan but also
operation and maintenance plans for
development will be considered.
Each plan should be well discussed and
formulated with the approval of the
committee. Through area management,
the CLUP as the mother of all plans will lead
to the smooth implementation of the CDP.

Implementation of
land use plan
Future Area Management
Activity
CLUPs

2
1

Execution of
CDP

SPATIAL STRATEGIES/CONCEPTUAL
PLAN FORMULATION/LAND USE PLAN

Area Management Stage 1

Existing
CLUPs

10

CLUP as a seamless plan

As a Seamless
Plan

By applying the mentioned approaches, the CLUP is expected to be a seamless plan,

together with DRRMP and CDP. As a result, each of the plans can be harmonized in order
to realize the intention of the LGUs.

DRRMP

CDP

Disaster risk
reduction
management
plan

Comprehensive
development
plan

CLUP
Comprehensive
land use plan
11

Mother of all plans

Should be harmonized
to realize the plan

The Case
of Tacloban City

12

Samar

Province
Level of LGU

Leyte
Highly Urbanized City (HUC)
(Provincial Capital of Leyte Province)

Background of
Tacloban City

Leyte

Area
Barangay
Annual Budget
Population

202 km2
138 Barangays
PHP 886.5 Million (estimate for 2013)
221,174 (NOS 2010)

Tacloban City
The CLUP 2013-2022 of the City, was submitted last 2013, and its already in the Regional
Land Use committee approving stage and to be submitted to the Housing and Land Use
Regulatory Board (HLURB), but then typhoon Yolanda hit. The city had to revisit the
CLUP because the existing situation had been changed considerably. The experience and
the influence of hazards needs to be considered in the CLUP. In line with this, a new
supplemental guideline was issued by HLURB, and one of the requirements in the
preparation of the CLUP is to mainstream Disaster Risk Reduction (DRR) and Climate
Change Adaptation (CCA).
In 2014, UN-Habitat supported the City in preparing Tacloban city Recovery and
Rehabilitation Plan (TRRP) and the Climate Change and Vulnerability Assessment (CCVA),
its one of the component in CDRA process, but it was not finalized because theres a
need to validate with the stakeholders. Therefore, as a first step in revisiting the CLUP
the City have to first finalize the Climate and Disaster Risk Assessment (CDRA).
13

1
2
3
4

Hazard analysis
Hazard map preparation and validation with the map

Development thrust and Spatial strategy

The Contents
of Activities

Analysis of current development and Identification of developable land

Discussion on DRRM strategy in CLUP

Review and discussion of DRRM options

Land use planning

Conceptual land use map and detailing land use plan
14

The process of preparing hazard maps

Hazard Map
Preparation

1
15

Hazard analysis is essential in exploring and

determining the countermeasures against the
expected natural disasters.
Hazard maps was prepared by JICA for the 18 LGUs
affected by Typhoon Yolanda along the coast of
Leyte Gulf.
In general, there are two objectives in making
Hazard Maps: (1) to disseminate risks posed by
natural disasters to citizens and (2) to enable the
government officers to utilize the map for planning
of land use, evacuation, structural measures, and
other related activities.

Figure: Example of hazard map

Storm
surge

Flood

Tsunami

1
2

Basic map preparation

Survey of
storm surge marks

Mathematical Analysis

Map creation

Figure Steps in preparing hazard map

Mapping Specifications

Basic map preparation

- Topographic map

Hazard Map
Preparation

Light Detection and raging (LiDAR) survey

Collection of topographical data/ information

(Marine area and Terrain area)

Survey of
storm surge marks
Plot inundation
level from MSL
level

The areas of Tacloban, Palo and Tanauan

suffered from several meters of storm
surge that covered several hundred meters
in land.
Residential zone

Seaside road

Seashore

Gathered
storm surge marks
over 200 points
from Guiuan, East Samar
to Abuyog, Leyte.

Consolidation of data such as magnitude of typhoon,

meteorological data, etc.
Acquisition of disaster information (flood level, depth, area,
etc.) and Survey for storm surge marks during typhoon Yolanda

1
16

17

Mathematical Analysis
- Establish simulation
model
- Analyze worst scale

Map creation

Establishment of simulation model

Empirical Typhoon Model
- Setting of simulation scenarios (Track,
scale and central pressure of typhoon)
- Calculation of wind speed and pressure
Calculation of Storm Surge and Inundation
- Calculation of the deviation from normal
sea level using a calculation result of the
wind and the atmospheric pressure
- Calculation of the inundation in the land
area using a calculation result of a
chronological change of the deviation
Storm surge

Analysis for scale of external force

Comparative analysis between the past
disasters and characteristics of the
typhoon (e.g. scale, track, etc.)
Clarification of conditions of the past
storm surge events
Setting of the details of assumed typhoon
(e.g. scale, track, etc.)
- Simulation of storm surge heights with
the cases of shift of the typhoon course to
northern or southern sides
(Final Report I, JICA Study Team)

In this hazard map, the

following information
is indicated.
Inundation area
Inundation depth

Hazard map

One of Simulation results of storm surge heights

with the cases of shifted typhoon course

Validate the data using hazard map

After climate disaster risk assessment
(CDRA), the results should be reflected in
the planning.
In the case of Tacloban City, their existing
land use was validated/ screened using
the storm surge hazard map in particular,
since it was identified as the highest-risk.
The people could understand the
characteristics of the disaster with the
map and inputs of their experiences.
Therefore, the measures were planned
effectively in the next steps.

Steps of CLUP revision

Step 4
Analyzing the situation

Analysis Using
Hazard Map

Vulnerability map
CDRA
Risk map

Validate with
Hazard Map

Next Steps
- Spatial strategy
- Disaster risk reduction management
- Land use
Figure Process of validating with hazard map

1
18

Validate existing land use plan using hazard map

Storm Surge Map

Analysis Using
Hazard Map
Land Use Map

1
19

Hazard maps show the characteristics of hazard, how it will

affect the community and location of highly vulnerable
areas.
In the land evaluation, the existing land use map was
overlaid with the storm surge hazard map and land
performance of each area were assessed if existing land use
will be retained or changed.

Land Use with

storm surge overlay

National/ Main Road

Analysis of the current development

Road networks were first reviewed before analysis of the
current development. National or main roads were
identified including the bypass roads and trunk roads in
the downtown area and their connections.
Then, the current situation of the city was considered in
terms of current development.
North
Tacloban
North
Tacloban
development
development

Existing
Existing

downtown
downtown

Hazardous
Hazardous
area
area

Extending urban area

Extending urban area

Areaisislimited.
limited.
Area

Bypass Road

Trunk Road
in the Downtown

Review of current development in case of Tacloban

1. The growth direction of Urban area is Southward.
2. Taclobans growth will encounter a limitation due to
its south boundary, Palo, wherein its residential area
is dominant.
3. In terms of the Balanced Development and
Disaster Prevention for Tacloban, the development
in the Northern Area has been prioritized.
4. The sustainable development of the existing
downtown is required.
5. Reallocation of the urban function in Coastal Zone
should be considered. Some function of the zone
should be transferred to the inland area.

Analysis of the
Current
Development

2
20

Designate high risk area

Identification
of Developable
Land

1. Use hazard maps as a tool or reference in

identifying areas that will be affected by
the disaster. Based on the figure on the
right, the following areas should be
protected:
A. Downtown
B. San Jose area
C. Along Burayan river
D. Airport area
2. Designate the identified high risk areas as
No-Dwelling Zone.

2
21

Current Situation: 40m from shore line is

considered as No- Dwelling Zone.
This easement area is defined by the Water Code,
Civil Code and Revised Forestry Code of the
Philippines (Joint Memorandum Circular no. 2014-01) and
No Dwelling Zone (NDZ) based on LGU Tacloban
City ordinance

3. It was suggested that hazard maps should

be used as reference in categorizing the
NDZ or buffer zone and an example of
Japan was proposed. (See figure on right)

Map of Inundation depth more than 2m

(50 yrs return period of storm surge)

A
Orange line

The orange line

shows, the 40m
boundary from
the shore line and
as we can see, this
line still does not
cover the
inundation area.

Considering distance from shore

NBZ

40m
Inland

NBZ
Inundation level

Based on the inundation in the area

2m 1m

NDZ based on Japanese example

NDZ are defined in areas that experience Table. Inundation Depth and Implications (Tsunami)*
2m inundation based on the storm surge
Inundation
Implications
Depth (m)
map. If this is applied, using the 50 years
3-story building is completely
return period storm surge in Tacloban City, 10 m and over
submerged
it means the downtown, coastal
5 m to 10 m
2-story building is submerged
residential areas and airports will be
(Right table and figure
2 m to 5 m
Most wooden houses are completely
inundated by >2m.
show Japanese example.)
damaged

Downtown
Airport

1 m to 2 m

If no protection, most people die

0.3 m to 1 m

People cannot move.

Evacuation becomes impossible.

Inundation depth and damage of buildings **

Inundation depth

Table. Shows the

>2m inundation map
(50 years return
period of Storm
Surge)

Identification
of Developable
Land

Completely destroyed (Wash out)

Completely destroyed
Completely destroyed (Inundated >1st floor)
Serious partially destroyed
Partially destroyed (Inundate above floor level)
Damaged (Inundate under floor level)
No damage

More than 2m of inundation

brought serious damage.

Brgy. San Jose

Ratio of number of buildings

*Ministry of Land, Infrastructure, and Transport, Japan. 2012.

Manual for Setting Tsunami Inundation Assumption, Ver. 2.
**Result of damage survey in case of Great East Japan
Earthquake, MLIT

22

How to manage hazard risk

1.

Review of
DRRM Options
Available in
Tacloban

3
23

2.

3.
4.

Risk avoidance or elimination

Relocation/ easement/ protection

Risk mitigation
Mitigation: Structural & non-structural measures
Preparedness: Evacuation /early warning system/ education
Back-up systems/ alternative point facilities
Separation (de-concentration)

Risk sharing or risk transfer insurance

Risk retention or acceptance do-nothing

*Source: CLUP Guideline Supplemental Guidelines on Mainstreaming Climate Change and

Disaster Risks in the Comprehensive Land Use Plan P. 197, HLURB

Risk avoidance option

Relocation (On-going project)
Relocation to North Tacloban (as of October, 2015)
Number of planned permanent shelters: 14,500
800 were already constructed, but only 430 were occupied.
Number of planned temporary shelters: 2,200
778 were already constructed, but only 434 were occupied.
Issues and challenges
Insufficient development of infrastructure such as water supply system
Slow/ delayed construction of the target number of shelter units.

Risk Mitigation Options

Structural measures
Study of three options

Non-structural measures

Option 1
Option 2
Option 3
Tidal Embankment Embankment and Reclamation of
by DPWH (Section 3) water gate
Cancabato bay
Water gate
Embankment

Embankment

Reclamation

Embankment

Three options were reviewed in terms of cost,

technical issue, environmental aspect and others.

Evacuation
Formulation of evacuation plan
Preparation of timeline action plan
Conduct of evacuation drills
Establishment of CBDRRM systems
Early warning system
Development of warning system
Preparation of equipment
Education

Concept to manage hazard risk

Based on Scientific analysis
Best mix of structure measure and non-structure
Frequency and Strength of Typhoons Table

Frequency
Often

Normal typhoon
External force: Weak
Frequency: Often

Weak

Frequency

e.g. Ruby
External force: Big
Frequency: Several
times

e.g. Yolanda
External force: Very big
Frequency: Rare

Strong

-Protection by
structure measures will
enhance the protection
-Non-structure
measures should be
continuously
developed efficiently.

Current Situation

Often

Yolanda level
typhoon
Rare
Weak
Frequency

External Force

Rare

-The structure measures

can protect the city from
weak typhoon only
-Most part of the
response against typhoon
depended on nonstructure measures

Often

Strong

External Force

Future Situation
Effect of Structure
Measures
Protected by
Structure Measures
Response by nonStructure Measures

50 years
return
period

Yolanda level
typhoon

Rare

External Force
Weak

Strong

24

Structure measure: Storm Surge protection planned by DPWH

Discuss
DRRM Options

To protect peoples lives, developable land were identified first, then which measures are
effective for each area in the City was discussed. It is ensured that the embankment
planned by DPWH can protect the area in case of 50 yrs return period of storm surge
although some areas will still be affected by the Yolanda level of disaster.
Figure. Land use map overlaid by > 2m inundation storm surge map

With embankment

Existing situation
(Without embankment)

50 yrs return period

Yolanda level

50 yrs return
period

3
25

Large area is affected

by storm surge.
Measures for
protection should be
taken.

The areas are

protected.
Existing land use
that was planned
before the typhoon
can be retained.

Large area will be

affected.
Combined and other
measures should be
considered.

Non-Structural measure: Introduction of vertical development

Vertical development was
introduced, assuming the
worse scenario.
The high risk areas are
identified as limited
residential zone, it means the
building types or function of
building are regulated at the
zone.

The case of Japan

Bed room

Maximum
tsunami height

Bed room

Piloti

Bed room

Bed room

Embankment

(advanced option)

Tide Embankment

mean sea level

Limited
Limited residential
residential zone

Great East Japan Earthquake

Residential zone
zone
Residential
Inundation depth of Yolanda
Yolanda level
level storm
storm surge
surge
will be reduced by tidal embankment
embankment

50
50years
years return
return period
period level
level will be
protected
protected by
by tidal
tidal embankment
embankment

Yolanda level
level
Inundation depth
depth Yolanda

2m
Piloti
Wooden Piloti
Wooden
house
house

TidalEmbankment
Embankment
Tidal

Discuss
DRRM Options

Embankment

With structure
structure measure
measure

3
26

Creating a conceptual Land Use Map

As a result of the discussions on hazard analysis and
DRRM strategy, the following items were reviewed
and shown in the conceptual map.

Conceptual
Land Use Map
as a Result
of Discussion

4
27

*North Tacloban is planned as an urban/ residential

expansion area and the city formulated North Tacloban
development plan.

Figure. Conceptual land use map

1. High-risk area -is converted to buffer zone

(no embankment).

2. Development
Zones are regulated/allocated to prevent a
mixture of buildings and land use with
different purposes. Also, to ensure theres a
suitable environment for the specified type of
land use and according to the future vision
and land-use pattern.
Commercial areas develop along the roads
The Tacloban North development Plan*
The specified commercial areas have big land
allocation compared to the existing scale of
commercial areas.

High risk area of

storm surge.

Bottle neck

3. More discussion needed

The measures to protect existing downtown area
Retain or relocation of residents in the coast
Commercial area
The safety of transportation network to North
should be discussed
Tacloban
based on future capacity.
Retaining or conversion?

Retained as
residential area.

Process of detailing land use plan

Conceptual map
as of Feb 2016

Land use map

as of Mar, 2016

Land use map

as of Apr, 2016

Detailing
Land Use Plan

High risk area of

storm surge.

Bottle neck

Retained as
residential area.

Commercial area
should be discussed
based on future capacity.
Retaining or conversion?

Discussion :

New Central Business District (CBD)

Suggested
new CBD

The identifying the New CBD, because it is

safe from storm surge. However, the
distance from existing CBD (downtown) and the city
hall should be considered.
There should be a development of transportation
system or road to support the new CBD.

Embankment
It is decided that the land use planning considered
the coastal protection (tide embankment) and safety
of the area between North Tacloban and the
downtown should be considered.

Discussion

Buffer zone
The Buffer zones was discussed
based on the planned storm surge
protection.
Water ponds for flood control
The reservoir should also Water Retarding
Area
be discussed depends on
the future development
plan because most of
the area for the new
CBD are water retarding
area.

Still
processing

4
28

Tips: Effectiveness of using maps in discussions

1. Planner can discuss a holistic
view of the area, not only
around their house but also the
whole municipality.

Detailing the
Land Use Plan

4
29

2. Planner can discuss the land use,

based on an actual location and
scientific fact using the hazard map.
Wider perspective
in planning
At the barangay consultation
workshop, the 10 year plans were
made by ecosystem or area based
on the hazard map and considering
the land use of neighboring
barangays.

The Case
of Palo Municipality

30

Samar

Province
Level of LGU

Leyte
3rd Class Municipality
(Substantially functioning as an administrative center of Region 8)

Background of
Palo
Municipality

Leyte

Area
Barangay
Annual Budget
Population

80.2 km2
33 Barangays (8 Urban, 25 Rural)
PHP 126.9 Million (estimate for 2013)
67,966 (2014 Municipal Information)

Palo Municipality
The municipality, was supported by the Association of Southeast Asian Nation (ASEAN)
Adopt-A-Municipality for Resilient Recovery Planning Project, in updating their CLUP.
However, after some processes of CLUP revision, DPWH then proposed the idea for
the construction of tidal embankment as a coastal protection against storm surge.
After several times of meetings, the municipality, understood the importance of
protecting the affected areas during typhoon Yolanda, so further revisions and
enhancement was made.
The coastal area of Palo is considered as a tourism destination, the government
planned to rehabilitate and develop this area by involving the different stakeholders.
In line with this, JICA study team proposed the Area Management approach in
planning, which involves different stakeholders and enhances the implementation
process of the CLUP.

31

1
2
3
4

Land use planning considering the hazard map

Use of hazard map and discussions on the future land use

Structure measure plan by DPWH

The Contents
of Activities

Storm surge and coastal protection measure: Tidal embankment and road
heightening

Area management
Establishment of Area Management Committee/ Goal setting/
Discussion on alignment of the embankment/ Creation of Dream Plan

Integration of the outputs to CLUP

Conceptual land use map and detailing of the land use plan
32

Use of hazard map

Hazard analysis process

Land Use
Planning
Considering
the Hazard
Map

Building Damage
Yolanda

Inundation depth
Yolanda

Inundation depth
50 yrs return
2011 Flood
period
Areas with Flood Risk-2011 March Flood

Areas with Storm Surge Inundation Risk

(Total Area 65.34 km2)

No Hazard
77.7%

Hazardous
> 2.0m
Area
1.0m - 2.0m 10.2%
22.3%
6.6%

0.3m - 1.0m
4.3%

Damage evaluation

Existing
land use map

1.0m 2.0m
10.4%

Flood
prone
22.1%

No Flood
Risk
77.9%

0.3m - 1.0m
7.7%

0.01m - 0.3m
1.1%

Risk evaluation
(Storm surge)

Compare with
land use plan
Storm surge
Hazard map

(Total Area 65.34 km2)

< 0.3m
1.5%

2.0m - 3.0m
2.3%
3.0m 4.0m
0.1%
4.0m > 5.0m 5.0m
0.0% 0.1%

Risk evaluation
(Flood)

Risk evaluation
(Road)

Overlay map
(Slope)

Storm
surge

Road length by
inundation depth

Road Length by Inundation Depth

(Storm Surge)

Length (km)

2.50

2.00

2.31

2.15

1.71

1.50
0.86

1.00
0.50

River

0.52
0.43

0.44

0.18

Road Length by Inundation Depth

(Flood
0.04
0.02 0.0050
0.00Year-Return Period)

Length (km)

0.00
< 0.3m

0.3m 1.0m

1.0m 2.0m

Arterial Road

2.50
2.0m 3.0m
2.00

3.0m 4.0m

4.0m 5.0m

Secondary Road

1.50

1.00
0.50

0.34

0.25
0.00

0.00

0.09 0.00

0.00 0.00

0.00

33

< 0.3m

0.3m - 1.0m 1.0m - 2.0m 2.0m - 3.0m

Inundation Depth (m)

Arterial Road

Secondary Road

Discussion on future land use

Result of workshop on September 29, 2014

Land Use
Planning
Considering
Hazard Map

The two urban areas for development

which are the housing projects.

Two big urban

development
Road network

Evacuation
shelters
The newly constructed Evacuation
centers were confirmed as safe and
outside of the hazard areas.

The seaside of the structure measures

was identified as protected area and
the road network for emergency
transport were tackled.

Structure
measure

1
34

Tidal embankment and road heightening

[Outline of the project as of 2015)
Implementation Agency: DPWH
Schedule: 2016-2019
Total Length = 27.3 km
This embankment will protect shoreline of
Tacloban to Tanauan from storm surge
Protection Area = 33.7 square km2
Number of Houses/
Buildings to be protected = 33,185
Target hazard: 50 yrs return period of storm
surge.

Structure
Measure
Plan by DPWH

2
35

Yolanda
(>100 yr)

Not so different

Figure. Impact of tidal embankment

50 yr. return
period

10 yr. return
period

Selection of the approach, area management

After Typhoon Yolanda, the LGU discussed on protection measures for the vulnerable
areas against storm surge using the hazard map. The LGU also discussed the change of
land use in identified hazardous area. And In line with the discussions, DPWH has
proposed the construction of tidal embankment and road heightening plan.
Area management approach was chosen because it involves various stakeholders in
sharing their future plans and ideas. Likewise, it can also contribute to the utilization of
the structures not only for protection but also for future development. Moreover, this
approach can also support the LGU in the formulation of their CLUP including CDP.
Initial target area
Around Macarthur Landing Memorial Park since it is:
along the shore line (alignment of tidal embankment), and
historical landmarks, tourism, environment,
landscape as well as residents are within the site

Start of
Area
Management

Initial Target Area

Residential
zone
Sports
Center

Tidal
embankment
Bike lane

MacArthur
Memorial Shrine

Residential
zone

3
36

Initial discussion on area management

Establishment
of Area
Management
Committee

In the initial area management meeting, the following agenda were discussed:
What is area management? (Purpose and methodology)
The importance to change the land use based on the result of the conducted workshop
Outline of structure measures by DPWH
After starting the activity, below were discussed as next step:
Involvement of stakeholders
Goals to achieve in the planning activities
Technical details of the structure measures
Finally, Palo Area Management Committee
was organized.

Palo Area Management Committee

Palo Mayor

Action Group

3
37

Instruction

Palo Municipality
Fiesta/Event
Section
Cultural Workers
and Historians

(MacArthur Park)
Area Management Committee
Cooperation

Leyte PPDO

Palo MPDO

Barangay

Palo GPI

The Chamber of
Commerce

for structure
measure

Merchants

DPWH

JICA Study
Team

for tourism with

PAMB
DENR

DOT

Oriental Hotel
Cooperation
Corporate Sponsor
(INGO)

Three goals of area management in Palo

It is important to share future goals with participants of the committee in order to move
to the same direction. The goals should be based on the vision of the municipality.

Three goals and initial image

Safe and
comfortable

Tourism and
Sightseeing
Historical landmark with
Green tourism
DOT and DENR collaboration
Preservation of MacArthur park

Secure, Relaxing and

Recreational area
Tidal embankment and
Cycling road will
contribute to this aspect.

Community
Activities
Community Building &
Mobilization Activities
Involving the people in the committee
Open space for events

Goal
Setting

3
38

Discussion about alignment

In laying out the basic plan for the structure measures,
the committee focused on the alignment of
tidal embankment and road heightening.
The main concerns were:
Sea view,
MacArthur Memorial Park,
Mangrove area, and
Residential area

Discussion
about Alignment
Q1. Can the people still enjoy the view of sea?
of Structure
The cycling road was proposed, so people can enjoy the sea view. In
addition, a viewing deck structure was planned in the area.
Measure
KEY: 3D perspectives were prepared and shared so stakeholders can visualize
the future landscape.

3
39

Q2. Will MacArthur Memorial Park be protected by embankment or will

the landscape be obstructed by embankment?
the height will not affect the landscape, instead it will enhance the area.
KEY: 3D perspectives were shared so stakeholders can view the image of the
future landscape.
Q3. Will the Mangrove area be destroyed?
No, the alignments were discussed and adjusted so that the embankment
can harmonize with the mangrove. Furthermore, the idea of mangrove
boardwalk was conceptualized for tourism.
Q4. Will the people need to relocate due to the embankment?
The residential areas will be protected. Barangay leaders and residents
affected were consulted and are members of the committee.

All plans/ projects integrated

The MacArthur Memorial Park is at the area protected
by the proposed embankment. In this area, various
agencies have their own proposed projects for the
future development. To harmonize all the projects,
various projects from several agencies were shared to
the committee.

Discussion as of August
Residential
zone

Korean Park

Sports
Fruits
Center
Nursery Basketball/
Volleyball
court
Picnic zone
Baseball
court
Football
court

Tidal
embankment
Bike lane

Expansion of target area

Residential
zone
Sports
Center

Initial
Target Area

Vendors
association
MacArthur
Memorial Shrine
Initial
target area

View deck building

Wild Life Sanctuary

Fish Port Dock

Hotel

MacArthur Area
Tidal
embankment

Expansion

Bike lane

Light
House

MacArthur
Memorial Shrine

Residential
zone

Beach Area
Mangrove Area

Expanded
Target Area

One of the shared projects was the lighthouse. It was

planned outside of the target area so expansion of
the target area was considered.
In the committee, several scales of maps were
prepared and discussed with the stakeholders. Thus,
concrete details of the projects compliments with the
entire area.

Residential
zone

Beach

Discussion on
expanded area
Light house

Mangrove plantation

Discussion
about
Integrating All
of Plans from
Stakeholders

3
40

Korean
Park
Basketball/
Volleyball court

Discussion
about Alignment
of the Structure
Measure

Residential
Area

Tidal
embankment

Sports Center

Boat dock/
Fish landing
Picnic zone
Baseball court
Coconut vendors
Nursery
Football
Vendors association
Jungle court
Cycling road/
park
parking
MacArthur landing
memorial park
View deck building
Wild Life Sanctuary
Hotel
Residential
Beach
Area
Fish pond
Watersports area
Fish cages

Light house

3
41

Boat dock

Beach

Mangrove
highway
Boat dock/
Fish landing center

River rechanneling

Future land use

The output from the area management will be
integrated as one of the input on land use
planning. Hence , the committee considered ways
to address the current and future issues in land
use that may arise in the target areas.

At this stage, stakeholders such as river engineer,

environmentalists and concerned Barangay
Chairmen were invited to discuss on the following
topics:
Accessibility to the other side of the tide
embankment
Boat docks
Ramp and stairs
Protection from flood
River and channel revetments
Impact on the Environment and tourism
Mangrove highway (board walk)
Water sports area

Discussion on the future developments around the target area

MacArthur Landing
Memorial Park
Serves as stops
for educational,
tourist and recreational tour
Place where people can relax

Mangrove highway
Light house
Tourist site with parks
for children
Warning system to alert
residents
for storm
River revetment
surge

Viewing deck
Center for
Commerce and
visual art
Place where
families, friends and colleague can
meet

Sports Park
Open space where
tourist and residents can
enjoy
Center for sports in
the province

Details of
other projects
were also discussed.

Discussion
about Future
Development

3
42

Creation of
Dream Plan

3
43

Our dream plan is

Development of mapping the future plan

Residential
zone

CASE C
Sports
Center

RESIDENTIAL
ZONE

PARK

Expansion of target
area and adding
more projects

ESPALANADE
Tidal
embankment

MACATHER LANDIG
MEMORIAL

Bike lane

MacArthur
Memorial Shrine

HOTEL
RESIDENTIAL
ZONE
ESPALANADE

Initial discussion

Residential
zone

Korean Park

Sports
Center

Fruits
Nursery Basketball/
Volleyball
court
Picnic zone
Baseball
court
Football
court

Residential
zone

Plans and Proposed

project discussion

Tidal
embankment
Bike lane
Vendors
association
MacArthur
Memorial Shrine
View deck building
Wild Life Sanctuary
Hotel

Residential
zone

Change of
perspective

Beach

Light house

Mangrove plantation
Korean
Park
Basketball/
Volleyball court
Baseball court

Nursery

Residential
Area

Sports Center

Boat dock/
Fish landing
Coconut vendors
Vendors association
Cycling road/
parking
MacArthur landing
memorial park
View deck building
Wild Life Sanctuary
Hotel

Picnic zone
Football

Jungle court
park

Residential
Area

Beach

Fish pond
Watersports area
Fish cages

Light house
Boat dock

Tidal
embankment

Beach

Detailed
discussion on
its relation

Mangrove
highway
Boat dock/
Fish landing center

44

Detailing the dream plan for realization

Realization of
the Plan

3
45

Executive order and system for consensus building

An executive order was made and issued to establish the area management
committee. Duties and responsibilities of each designated member were clearly
stated in said executive order.
Also, a secretariat was designated to organize and make all necessary arrangements
for meetings as well as for the preparation for the minutes of meetings and
resolutions.
Regular weekly meeting were held to discuss relevant issues. Resolutions were also
made to contributes to the realization of the plan.
Use of photos and images
Sample photos, drawings and detailed engineering design were shared by the
stakeholders and utilized in the formulation of the plan. Ideas and suggestion from the
committee members were taken into consideration and necessary revisions were
made in the early stage of preparation. A video was made to promote the plans.
MAINSITE

Formulation of project profile

Profile of each project were made which
contains the basic information for the
project such as its function , schedule of
implementation, details of design,
implementing body and the
management of the organizational
structure.

Main
FUNCTIO
N

Sub 1

Sub 2
Main
ROLE OF
MUNICIPALITY
IN CHARGE OF
DESIGN
IMPLEMENTATION
BODY

LIGHT AND SOUND SHOW

Images

HISTORICAL NATIONAL PARK

Serves as stops for educational,
tourist and recreational tour
Place where people can relax
Center for Commerce
Management, Maintenance and
security
DPWH 1ST LED
DPWH 1ST LED

Province of Leyte, Municipality of

MANAGEMENT BODY Palo/PAMB
MAINTENANCE
SYSTEM
ESTIMATED COST
ESTIMATED
CONSTRUCTION
TERM/
IMPLEMENTATION

Municipality of Palo and Province

of Leyte
60M
Concept

240 CD

The unveiling of the project on tide embankment

and Dream Plan of Palo
During the 71st Leyte Gulf Landing Anniversary on October 20, 2015, unveiling ceremony
of the billboard was held at the MacArthur Memorial Park to show the outputs of the
area management committee. Likewise, the event was utilized to disseminate the Dream
Plan and tidal embankment project to the participants and media.
It is effective to promote public awareness and transparency at the early stage of plan
preparation. Thus, a project billboard was installed in a public place so it can be seen by
the people to be aware of the LGUs development plans.

Dissemination
of the Output of
the Committee

3
46

Integration of Area Management output to CLUP

Integration
of the Output of
the committee
to the CLUP

4
47

The following outputs were integrated into the CLUP of Palo:

Embankment by DPWH
Utilization of hazard maps provided by JICA
Dream plan and projects of stakeholders
CLUP of Palo
The part of Infrastructure, facilities and
Utilities, Sectoral and special areas plans,
Land use plan, and Zoning ordinance

Draft land
use map

Tips: Area management in Japan

Area management, is a bottom-up
approach applied in Japan by
some local governments.
The plan formulated through the
activity was integrated into the
top-down planning and local
government plans, particularly,
the recovery and reconstruction
plan from the Great East Japan
Earthquake to build back better.
The same method was adopted in
Palo Municipality, as one of the
typhoon Yolanda affected LGUs in
the Philippines.

Lessons learned from the Great East Japan Earthquake

2011.3.11
Comprehensive Local
Government plan

5 years

Recovery and reconstruction

plan

NOW 2016
Comprehensive Local
Government plan

top-down approach
It has come to the
time of the review of
the plan

Bottom-up approach

Area Management Plan

Summary

48

Summary of

Summary
(Case of Tacloban)

49

1. Tacloban City followed the 12 steps

of HLURB Guideline in the revision of
the previous CLUP.

2. The city planning officials

conducted validation of the hazard
areas, based on the storm surge
hazard map, and confirmed the
basic direction of the spatial
structure regarding the urban land
use.

the activities and output

3. Discussions and workshops on the basic future land use
policy with other city officials and barangay people from
an entire city areas viewpoint were conducted

4. After evaluation of the workshops results via

conceptual land use map, details of the plan, such as
new CBD and buffer zone were consolidated.
5. The citys CLUP revision was finalized and
undergone Public presentation and hearing, and
later on to be submitted to HLURB.

50

Summary of the

Summary
(Case of Palo)

1. Palo Municipality quickly

established the area management
committee under the Mayors
leadership to provide periodical
opportunity in which relevant
stakeholders sit together
officially.
2. They discussed the restoration
of MacArthur Park as a historical
legacy including mangrove
ecosystem, flood and rainwater
drainage improvement, as well as
sustainability of livelihood such as
fishermens access to the coastal
area.

51

activities and output

3. The committee drafted the Dream
Plan composed of existing local plans
based on committee discussions. These
plans will be reflected into the updated
CLUP of Palo.
4. These plans include the new heightened
road and cycling road associated with the
DPWH tide embankment, also places of
recreational and relaxation for people
such as sport facilities, view deck, and
MacArthur Memorial Park which is a
front line of the storm surge, but will
soon be protected by the embankment.

52