Engineering Geology for Sustainable Development in Mountainous Areas, Free & Aydin (eds) 2004 Geological Society of Hong

Kong. ISBN 962 7320 07 2

Engineering Geological and Geohazard Assessment (EGGA) system for

sustainable infrastructure development: the Philippine experience
M.A. Aurelio
Urban Geology Section, Lands Geological Survey Division, Mines and Geosciences Bureau, North Avenue,
Diliman, Quezon City, Philippines, email: marioa@info.com.ph

EGGA Technical Working Group

Mines and Geosciences Bureau, North Avenue, Diliman, Quezon City, Philippines

ABSTRACT: The Philippine Department of Environment and Natural Resources (DENR) issued Administra-
tive Order No. 28, series of 2000 (DENR AO 2000-28) on March 2000 as an institutional planning tool to
safeguard development projects from the hazards caused by geological phenomena. DENR AO 2000-28,
which requires all land development projects to undertake an Engineering Geological and Geohazard Assess-
ment (EGGA) as an additional requirement for Environmental Compliance Certificate (ECC) applications, was
designed to strengthen the geological component of the Philippine EIA system. The Philippine Mines and Geo-
sciences Bureau, as the implementing agency, issued Memorandum Circular (MC) 2000-33 to describe in detail
the guidelines and checklist in the conduct of an EGGA and the preparation of the corresponding report
(EGGAR). Subsequent orders and memorandums were issued to clarify and modify certain provisions of
DENR 2000-28 in response to developments in government policies and to address concerns raised by the
general public. On 24 October 2000, a DENR MC was issued to clarify the coverage of EGGA and the qualifi-
cations of an EGGAR preparer. A year later, Presidential Executive Order (EO) No. 45 was issued on 24 Oc-
tober 2001, mandating all DENR agencies involved in the issuance of housing-related certifications, permits
and clearances, to observe prescribed periods and provide appropriate mechanisms to fast track the approval
and implementation of housing projects. To implement EO 45, DENR issued an MC dated 26 November 2001.
The MGB for its part issued MGB MC 2002-43 on 18 February 2002 to establish guidelines relevant to EGGA
concerns in the implementation of EO 45.

1 INTRODUCTION 2000-28 as its long-term response to the urgent need

By reason of its geographic, geologic and tectonic
setting (Fig. 1), the Philippines is prone to several
geologic and natural hazards that include earth-
quakes, volcanic eruptions and major mass move-
ments. Of the more recent geologic events that have
caused enormous destruction to lives and property
are the earthquake of Luzon on 16 July 1990 and the
eruption of Pinatubo Volcano on 13 June 1991. Both
incidents have killed thousands of human lives and
destroyed millions of dollars of property. Until that
date, the Philippine government was still in dire need
of an effective and legalized system to mitigate the
disastrous effects of such geologic processes.
In August 1999, suburban Cherry Hills Subdivi-
sion located on a hilly section of Antipolo City ex-
perienced yet another disaster in which torrential
rains for 3 consecutive days triggered a landslide that
cost the lives of over 50 people and rendered hun-
dreds more homeless. Despite exposing itself to criti-
cism for putting up a rather reactionary stance, the
Philippine government proceeded to issue DENR AO
of protecting lives and property from destruction
brought about by such geologic hazards.
1.1 The Philippine Environmental Impact Statement
(EIS) System and the Environmental
Compliance Certificate (ECC)
By virtue of Presidential Decree No. 1586, the Phil-
ippine Environmental Impact Statement (EIS) system
was established mainly to safeguard the environment
and natural resources of the country as it pursues in-
dustrial and economic growth and development. Its
Implementing Rules and Regulations (IRR), issued
by the Environmental Management Bureau (EMB)
took effect in 1997 to streamline and strengthen the
EIS system, making it a better planning, management
and regulatory tool.
The Philippine EIS system requires all projects and
undertakings categorized as Environmentally Critical
Projects (ECPs) as well as those located in Environ-
mentally Critical Areas (ECAs) to secure an Envi-

33
ronmental Compliance Certificate (ECC) before their
operation. ECPs include among others heavy indus-
tries and infrastructure projects. ECAs include
among others areas frequently visited and/or hard hit
by natural calamities such as earthquakes, volcanic
activity and landslides.
Figure 1. Tectonic map of the Philippines. The archipelago is
surrounded by active subduction zones giving rise to frequent
tectonic earthquakes, volcanic eruptions and mass movements.
1.2 The Rationale of an Engineering Geological
and Geohazard Assessment (EGGA)
Although already built-in in the EIS system, the rec-
ognition of geologic hazards in the Philippines have,
for some time remained undervalued by land devel-
opers and planners, project proponents and the gen-
eral public. More often, the importance of under-
standing these geological events is recognized only
after a dramatic and devastating incident has already
occurred, thus defeating the entire purpose of pro-
tecting lives and property. To therefore address this
inefficiency, DENR AO 2000-28 was issued with the
intention of adequately and comprehensively address-
ing and mitigating the possible effects and impacts of
geologic hazards. This order requires that as an addi-
tional requirement in the application for an ECC, all
proponents of subdivision development projects,
housing projects and other land development and in-
frastructure projects, private or public, shall under-
take an Engineering Geological and Geohazard As-
sessment (EGGA).
2 EGGAR PROCEDURES AND OTHER
ISSUANCES
2.1 Procedural Flowchart
The guidelines of DENR AO 2000-28, issued as
MGB Memorandum Circular No. 2000-33, stipulate
that the EGGA process requires a land development
project proponent to request the appropriate MGB
office for a site geological scoping survey (GSS).
This survey is aimed to determine the scope of geo-
logical study to be conducted in and around the site.
The project proponent then prepares an Engineering
Geological and Geohazard Assessment Report
(EGGAR) focusing on potential geologic hazards
that may have direct or indirect impact to the project,
and their appropriate mitigating measures. The
EGGAR undergoes a technical review by an MGB
panel (TRC) afterwhich a revision may be made be-
fore the report is evaluated and finally endorsed to
the Environment Management Bureau (EMB) for
consideration in the issuance of the ECC. For private
projects, the EGGA is conducted by a privately prac-
ticing geologist or qualified engineer while for gov-
ernment projects, the EGGA may be performed by a
government geologist or qualified engineer under a
Memorandum of Agreement (MOA). (Fig. 2 EGGA
Flowchart)
Private Gvernment
MOA
Proponent
GSS GSS
EGGA EGGA
Review
Review
EGGAR Endorsement
Revision
Final
Endorsement
Figure 2. EGGA Flowchart. See text for discussion.
2.2 Subsequent Issuances
Subsequent memorandums were issued to clarify and
modify certain provisions of DENR 2000-28 in re-
sponse to recent developments in government poli-
cies and public inquiry. On 24 October 2000, a
34
DENR Memorandum Circular was issued to clarify 3.1.1 Earthquake-related Hazards
the coverage of EGGA and the qualifications of an Special attention is given to earthquake-related haz-
EGGAR preparer. Exactly a year later, Executive ards in view of the very active tectonic setting of the
Order No. 45 was issued on 24 October 2001, man- Philippine archipelago.
dating all DENR agencies involved in the issuance of
housing-related certifications, permits and clearances, 3.1.1.1Ground Rupture
to observe prescribed periods and provide appropri- At the moment, a standard requirement for infra-
ate mechanisms to fast track the approval and im- structure projects is a certification from the Philip-
plementation of housing projects. To implement EO pine Institute of Volcanology and Seismology
45, DENR issued a Memorandum Circular on 26 (PHIVLOCS) defining the closest distance separating
November 2001, followed by the issuance of the im- a project site and the nearest mapped active fault.
plementing guidelines relevant to EGGA contained in This certification serves as the basis of determining a
MGB MC 2002-43. (Fig. 2) buffer zone for the possible occurrence of fissures
and ruptures that may be brought about by an earth-
quake.
2.3 Urban Geology Units A. Geologic Hazard B. Hydrologic Hazard
1. Fault related/Seismic hazards 1. Fluvial
DENR 2000-28 mandated the creation of urban ge- a. ground acceleration a. Flooding (Overflow)
b. ground rupture b. Flooding (Sheetflow, con-
ology units in all the regional offices of the MGB. To c. liquefaction centrated run-off)
date, these units are deeply engaged in the implemen- d. differential settlement c. Scouring of riverbed
tation of the EGGA system. In addition to this func- e. landslides d. Channel erosion and migra-
f. fault creep tion
tion however, these units are also mandated to con- g. lateral spread e. Rill erosion
duct other geological studies relevant to planning and h. tsunami f. Gully erosion
i. seiches g. Sedimentation
development of urban areas (e.g. assessment of water 2. Mass Movement 2. Coastal Hazards
resources, siting of landfill areas, etc.). a. Landslides a. Flooding
a.1. Fall b. Coastal erosion
a.2. Topple c. Coastal aggradation
a.3. Slump d. Storm surge
3 EGGAR COMPONENTS a.4. Slide e. Coastal subsidence/sea
a.5. Spread level rise
Hazards are categorized according to the nature of a.6. Flow f. Submarine landslide
the phenomenon that brings about them. Hazards a.7. Complex
b. Creep C. Others
caused by subsurface geological processes including c. Subsidence a. Air-borne
groundwater movements are classified as Geologic d. Settlement b. Cosmic
Hazards, while those initiated by surface water ac- 3. Volcanic Hazards
a. Lava flow
tion are classified as Hydrologic Hazards. Certain b. Debris flow
hazards which are not entirely caused by geological c. Pyroclastic flow
d. Debris avalanche
phenomena such as sand dune formation (wind- e. Lahar
borne) and flooding (rain-induced) are also given ap- f. Lateral blast and pyroclas-
tic surge
propriate attention. g. Bombs and ballistic pro-
jectiles
h. Ash fall
3.1 Geologic Hazards i. Tsunami
j. Flooding
Geologic hazards include all hazards entirely or k. Volcanic gases
l. Volcanic earthquakes
partly caused by processes that take place in the sub-
Table 1. General list of hazards considered in the EGGA
surface of the earth. They are further classified into
Earthquake- or Seismic-related, Mass Movements,
3.1.1.2Ground Shaking
and Volcanic Hazards. Hydrologic Hazards on the
The existing National Building Code of the Philip-
other hand are classified in Fluvial for those gener-
pines (NBCP, 2000) identifies 2 seismic zones in the
ated by processes on-land, and Coastal for those oc-
archipelago corresponding to seismic factors 0.2 and
curring at the sea interface. Table 1 enumerates the
0.4. Although building design parameters such as
subclassifications of each of these hazards. Not in-
building height are strictly regulated, it has been ob-
cluded in this list are hazards which may be gener-
served from recent incidents that other parameters
ated with the influence of non-geological processes
may be underestimated such as values for seismic
such as wind action (sand dunes), rainfall (flooding),
factors. So with the devastating effects of recent
lightning and other meteorological disturbances, as
earthquakes, some local government units, through
well as those that may be effected by interplanetary
their engineering offices, have taken the initiative of
interactions (e.g. meteor impacts) and other cosmic
further adopting a more conservative stance by limit-
phenomenon (e.g. ozone layer depletion). Such haz-
ing building height. In the mountainous city of Ba-
ards may also be taken into consideration in the
guio for example, building height has been limited to
assessment of a project site as necessary.

35
six storeys above ground since the Ms 7.8 earth-
quake of Luzon in 1990. This was in response to a
recommendation developed from the observation that
most of the collapsed buildings during the earthquake
were over six floors high. Efforts are being under-
taken to revise some provisions of the NBCP espe-
cially on the aspect of seismic effects.
The PHIVOLCS certification is also used as basis
for the estimation of deterministic, and if necessary,
probabilistic ground acceleration values. In the ab-
sence of an attenuation relation derived from actual
Philippine earthquakes, the equation developed by
Fukushima and Tanaka in 1990 is recommended for
deterministic calculations. This equation is preferred
over others, considering the similarity of the tectonic
structures present (and their earthquake behavior -
mostly subduction zone- and strike-slip fault-related)
in Japan and the Philippines. The relation is written
as:
log10 A = 0.41 M - log10 (R + 0.032 * 100.41 M) - 0.0034 R + 1.30
where A is the peak ground acceleration in cm/s2,
R is the shortest distance from the project site and to
the closest known active fault in km, and M is the
magnitude of an earthquake that may be generated by
that fault.
Efforts are currently being pursued for the estab-
lishment of an attenuation relation derived directly
from actual Philippine earthquakes.
For probabilistic ground acceleration estimates,
values derived in a study by Thenhaus, et al. (1994)
suffice for preliminary estimates. However, more
site-specific probabilistic determinations may be per-
formed for projects of major importance such as
large dams and bridges, elevated highways, major air
and seaports, and the like.
3.1.1.3 Liquefaction.
Damage to infrastructure in Dagupan, a city
founded on delta and beach deposits, during the Lu-
zon 1990 earthquake was essentially due to liquefac-
tion. The fact that the area is more than 100 km from
the epicenter suggests the necessity of liquefaction
potential assessment even in areas far away from po-
tential earthquake generators. Suggested methods to
adopt at the preliminary level are those by Seed et al.
(1983). Projects requiring more analysis are recom-
mended to employ relations taking into account cy-
clic and shear stresses, predicted ground acceleration
and the geotechnical properties of subsurface mate-
rial as determined from borehole tests. The preferred
procedure is to determine the Average Cyclic Shear
Stress Tav, given the parameters rd (reduction factor
on soil profile), s (total unit weight of soil) and
amax/g (maximum ground acceleration value relative
to the acceleration due to gravity), using the relation:
then equating it to the relation:
where Tcr is the Critical Shear Stress for Liquefac-
tion, determined by the parameters dc/2a50 (stress
ratio), (effective stress), Cr (reduction factor as a
function of relative density Dr. Liquefaction starts to
occur when an earthquake achieves a magnitude ca-
a max
Tav = 0.65 * rd * s * h *
g
pable of producing a value of amax/g that equals that
calculated by equating Tcr and Tav (Huismann, 2000).
D
Tcr = dc * '*Cr * r
2 a 50 50
3.1.1.4 Others
Other earthquake-related phenomenon that should
also be given importance in the hazard assessment of
a project site include lateral spread, fault creep,
creep, landslides, tsunamis and seiches.
3.1.2 Mass Movements
Mass movements are also a common cause of infra-
structure damage in the Philippines. The Cherry Hills
Subdivision Landslide in 1999 which took the lives of
over 50 persons and rendering hundreds of families
homeless in suburban Manila (Fig. 3), served as a
wake up call to housing developers on the necessity
of conducting geologic hazard assessment prior to
development. Although the Philippine geoscientific
community had long been crying out to authorities
the need for the conduct of geologic hazard assess-
ment prior to development, it was only after the
tragic event of Cherry Hills that government finally
made a firm resolve in issuing DENR DAO 2000-33.
Figure 3. Aftermath of the 1999 Cherry Hills Subdivision
Landslide in hilly sub-urban Metro Manila.
3.1.2.1 Slope Stability
One major reason why slope failure in the Philip-
pines is very common is the apparent neglect to
stabilize steep slopes that are either existing naturally
36
bilize steep slopes that are either existing naturally or
created by human activity. At the regional scale, the
suggested slope classification is based on a model
adopted by the US Department of Agriculture which
considers slopes greater than 18% to be prone to
landslides. The procedure may be performed by pro-
ducing a digital terrain model from digitized topog-
raphic maps of 1:50,000 to 1:250,000 scale. A slope
map is then constructed employing the formula:
Slope = 57.29578 * ATAN (SQRT(dtmdx * dtmdx + dtmdy * dtmdy) * 100 /(10)
where: 57.29578 is the conversion factor from de-
grees to radians, dtmdx and dtmdy are the raster
maps resulting from filtering the DTM in the x and y
directions respectively, 10 is pixel size in meters on
the ground. Areas within a designated buffer zone on
the break in slope (i.e. between less than and greater
than 18%) may be initially classified as slide-prone.
At a more detailed scale, determination of the Fac-
tor of Safety Fs is given emphasis, especially in areas
which have already been classified as slide-prone in
the initial regional analysis. Whenever available, sub-
surface data from drilling and shallow pitting are in-
corporated in the final analysis of the stability of the
material.
More complex analysis is recommended in hilly ar-
eas that are also determined to be prone to earth-
quake hazards.
3.1.2.2 Creep
Essentially because of the hilly nature of many
parts of the country, creep is very common in the
Philippines. A slope map coupled with lithologic and
bore-hole log information normally suffices for an
initial assessment of a certain slope for its potential
for creep. Otherwise, direct pieces of evidence such
as tilted trees and bench scarps provide more con-
vincing arguments.
3.1.2.3 Subsidence and settlement
In relatively flat areas, the common manifestations
of mass movements in the Philippines are in the form
of general subsidence and differential settlement.
These movements are usually observed in naturally
occurring recent deposits or in poorly compacted
back-filled areas such as in housing development
sites which commonly adopt a cut-and-fill practice to
increase the area of saleable lots. To determine effec-
tive measures to remedy problems caused by these
vertical movements, geotechnical drilling to at least
characterize the physical index parameters of subsur-
face materials is recommended. More detailed geo-
technical analysis is suggested for infrastructure re-
quiring foundation excavations deeper than 3.5
meters.
3.1.3 Volcanic Hazards
The experience during the eruption of Mt. Pinatubo
in 1991 is considered by some disaster management
experts to be a success story in disaster preparedness
and management. Despite being touted as one of the
most disastrous eruptions in the 20th century, the
number of casualties was relatively small, thanks to
the efficient volcanic prediction collaborative efforts
between local authorities, the Philippine Institute of
Volcanology and Seismology (PHIVOLCS) in par-
ticular, and foreign scientific institutions such as the
United States Geological Survey (USGS). The key to
this efficient disaster management was the timely
identification of critical areas that needed evacuation
based on earlier delineation of areas that would be af-
fected by the different volcanic deposits once the
volcano erupted. This same procedure is what the
EGGA requires in projects identified to be potentially
affected by volcanic activity. Areas are zoned
according to the degree of volcanic risk they may be
subjected to. Volcanic hazards given attention to in
this classification include possible routes of lava
flows, lahars, debris and pyroclastic flows, lateral
blast and pyroclastic surge materials, as well as the
potential extent to be affected by volcanic bombs,
ballistic projectiles, ash fall and gas emissions. Water
hazards related to volcanic eruptions such as tsuna-
mis and floods are also taken into consideration.
3.2 Hydrologic Hazards
Hazards caused by processes involving surface flow
of water are classified as hydrologic hazards. The as-
sessment of these types of hazards requires evaluat-
ing other natural phenomenon such as meteorological
disturbances. Considered parameters include typhoon
paths, monsoons and precipitation data.
3.2.1 Fluvial Hazards
Hazards induced by surface water processes oc-
curring along inland waterways, natural such as riv-
ers streams and gullies, or man-made such as flood-
ways, canals, and other pre-designed drainage
systems, are classified as fluvial. These hazards in-
clude among others flood overflow, sheet flow, riv-
erbed scouring, channel erosion and migration, rill
and gully erosion.
3.2.2 Coastal Hazards
Hazards induced by surface water processes oc-
curring at and near (about 200m off- and on-shore)
the coastline are considered as coastal. These include
coastal flooding, erosion, aggradation, storm surges
and near-coast sub-marine landslides. Sea level
changes (rise and fall) have recently been studied es-
pecially in areas where uplift and subsidence rates
appear to be too rapid to be explained alone by sea
level changes established from worldwide observa-
tions. In the Philippines, such rapid processes may be
37
explained in terms of sea level changes combined
with fast tectonic vertical movements such as those
occurring near subduction and collision zones.
3.3 Other Hazards
In the northwestern part of the Philippines, sand dune
formation is actively operating over several tens of
kilometers from the coast to as far as more than 10
km inland. Since most settlements in the country
converge along coastal areas, the impact of this and
other air-induced geologic processes to population
and infrastructure is also very significant.
The hazards due to falling extra-terrestrial objects
such as meteorites may also be assessed as required
by specialized projects. However, it is recognized
that that the probability of such hazards is generally
much smaller than those produced by earth proc-
esses, and that the degree of confidence in evaluating
them is very much influenced by a complex set of pa-
rameters.
4 CASE STUDY IN A MOUNTAINOUS AREA:
BAGUIO CITY
Briefly presented in this chapter is a case study in a
mountainous area in the Philippines. Baguio City, an
urban area located at an average altitude of about
1500m above sea level, is characterized by rugged
terrain. Fig. 4 shows a geohazard map of the region
focused on landslide susceptibility by Villanueva et
al. (in prep.) established from a GIS-based multi-
source analysis. Among the map parameters consid-
ered are topography, lithology, geologic structures
and vegetation. Added input information include ac-
tual locations of landslides and known karstic re-
gions. Computed values include slope gradient and
peak ground acceleration normalized according to
the type of subsurface. A significant observation of
the study is that landslides do not necessarily appear
to be related to steep slopes as majority of the land-
slides did not occur on steep slopes. On the other
hand, most of the landslides documented during the
July 1990 earthquake and in other incidents were ob-
served at a distance within 500 meters from a large
fault or along road excavations. These observations
point to the importance of taking into consideration
both natural and anthropogenic causes in the evalua-
tion of the susceptibility for landslides of a certain
area, mountainous or not.
Figure 4. Geohazard Map established from a GIS-based multi-
source analysis. Adopted from Villanueva et al. (in prep.)
5 CONCLUDING REMARKS
DENR AO 2000-28, issued in March 2000, and all
relevant issuances thereafter, solicited mixed reac-
tions from the scientific and industry sectors. The
geoscientific community, generally backed by the
academe and government research institutes, appear
to have gained an upper hand in finally being able to
influence, albeit partly, policy makers in environ-
mental risk protection management through the im-
plementation of EGGA as an additional requirement
in the application for an ECC in any developmental
project. As such, this policy provides an opportunity
to strengthen the previously undervalued geologic
hazard assessment component of the Philippine EIS
system. On the other hand, certain groups from the
construction and real estate business find this re-
quirement as redundant and a further lengthening of
the permitting process for development projects.
With this concern, the Philippine government, in dis-
cussion with different stakeholders, is pursuing ef-
forts to streamline the entire process through the
possible full integration of EGGA into the EIS sys-
tem for the purpose of further crafting a more effi-
cient and sustainable permitting system in urban de-
velopment.
6 REFERENCES
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Department of Environment and Natural Resour-
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DENR AO 2003-30. Implementing Rules and Regu-
lations (IRR) for the Philippine Environmental
Impact Statement (EIS) System . Administrative
Order No. 30, Series of 2003. Department of En-
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 vironment and Natural Resources, Philippines. 30
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Fukushima, Y. and Tanaka, T., 1990. A new attenua-
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39