Terminal Evaluation: Building Community Resilience and Strengthening Local Government Capacities for Recovery and Disaster Risk Management or RESILIENCE Project

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Evaluation Plan:
2012-2018, Philippines
Evaluation Type:
Final Project
Planned End Date:
06/2013
Completion Date:
06/2013
Status:
Completed
Management Response:
Yes
Evaluation Budget(US $):
15,000

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Title Terminal Evaluation: Building Community Resilience and Strengthening Local Government Capacities for Recovery and Disaster Risk Management or RESILIENCE Project
Atlas Project Number: 00077199
Evaluation Plan: 2012-2018, Philippines
Evaluation Type: Final Project
Status: Completed
Completion Date: 06/2013
Planned End Date: 06/2013
Management Response: Yes
Focus Area:
  • 1. Crisis Prevention & Recovery
Corporate Outcome and Output (UNDP Strategic Plan 2018-2021)
  • 1. National and local institutions have the capacities to reduce the impact of disasters, especially climate change related disasters, on vulnerable communities
Evaluation Budget(US $): 15,000
Source of Funding: Project funds
Joint Programme: No
Joint Evaluation: No
Evaluation Team members:
Name Title Nationality
Sharon Taylor Dr.
Romuel Flores
Nilo Manangan
GEF Evaluation: No
Key Stakeholders:
Countries: PHILIPPINES
Lessons
1.

Enabling factors and their maximization

The LGUs and communities were exposed to the devastating effect of a
natural disaster so not much effort was required to convince the LCE of the
need for the project. The context was paramount in people's minds and so
there was an openness for implementation. All departments of the LGU are
now involved in DRRM.


Willingness to participate and share by all stakeholders.


Enabling policy environment: R.A. 10121.


There were established and existing working relationships present between
OCD and other CSCAND agencies (taking off from the READY Project).


Strong leadership of the OCD and their role of coordination especially with
the CSCAND agencies to conduct trainings etc. The dedication of the OCD
personnel assigned to the project helped in achieving the intended results.
OCD personnel demonstrated high level of commitment in their involvement
with the project and OCD's long experience in implementing DRRM
programs and projects also facilitated the achievement of results.


Multi-stakeholder,river basin wide approach was adopted with a clear
attempt to coordinate across areas with common hazards among the 13
LGUs,national government agencies and an NGO.


The partnerships between LGUs that were formed during joint training
sessions were maximised with a MOA detailing roles and responsibilities,
together with accountability mechanisms of the partnership. The detailed
MOA aims to sustain the partnership and coordination among LGUs of the
RESILIENCE project. The DILG,together with the leagues has committed to
orientate LCEs regarding the roles and responsibilities of the partnership as
per the MOA.


Trainings for staff not only on data collection but also on how to maintain the
Early Warning Systems.


The capability building aspect went beyond just trainings to cover policies
and plans, the institutionalization of DRRMOs,utilization of the LDRRMF,
and increased awareness of the process of mainstreaming DRR concerns
into the CLUP. This was maximised by the process documentation to produce guidelines and manuals for future reference and use.


Gender-responsive aspect of the project - this was stated within the aims of
the project and not just as a cross cutting issue.


In the course of the implementation, UNDP allowed the project to incorporate
revisions in the schedule of implementation considering the challenges that
cropped up.


2.

Hidering Factors/Chanllengings and solutions

Challenges in Implementation:
When the project started there were no guidelines available for the integration of
DRR/CCA into the CLUPs so these had to be developed alongside the review of
existing documents. Similarly, the hazard maps, risk assessments etc, which are
vital inputs to CLUP enhancement and the formulation were also developed with
the project. This added a time factor that had not necessarily been considered in
the design but was incorporated during implementation with revisions of the
project schedules.
There was too much within the components for such a limited project time and
LGU activities were not considered in scheduling - the inception workshop
should have included the LGUs to correct this.
The flow of activities between components was good, but there was little time
between for debriefing or evaluation of activities. Reflection time for
enhancement was lacking and should have been incorporated into the timeframe
of activities.
The process of documentation, especially for the plans, took a long time. The
OCD-PMT provided assistance to the LGUs.
There was a gap in the process especially on hov/ to institute sustainability where
the creation of the MOA should had been introduced first at the onset of the
project and been an ongoing activity to developed as the network strengthened,
instead of having it near the end of project life. This created a challenge
regarding the lack of time after the finalization of the contents of the MOA for
deliberation and approval by the SBs - needed before the Mayors could sign,
plus the constraints encountered considering that it coincided with election
period.

Another challenge is the continuity of the project if the present LCEs will be
changed after the midterm elections-however the DILG,together with the
leagues, has committed to assist in this regard.


Challenges in Management:
The initial project activities had to establish 'Strong working relations with the
LGUs in order for the project not to be seen as an additional burden and for focal
persons to be identified/appointed. Focal persons with the agencies also had to
be established and the rotation of such added a challenge for effective
communication and scheduling of activities. It was suggested a pre-project phase
would have been useful.
The original timeframe-the project should have started soon after TS Ondoy in
2010, but did not start until 2011. The timeframe was then extended twice.The
project was originally to end in December 2011, then extended until December
2012,then March 2013.

Also at that time (soon after TS Ondoy) and the revamping of the structure of the
OCD,there was a challenge of ODA management of the OCD in terms of
absorbative capacity. The influx of money/resources after TS Ondoy threw off the
system on how to manage this. Donors also lacked harmonizing of initiatives.
The challenges experienced with the RESILIENCE Project can become
opportunities for future projects e.g. GMMA READY Project.


3.

Good, replicable and/or innovation practice

The gender-responsive aspect of the project was stated within the aims of the
project and not just as a cross cutting issue. A gender strategy paper was
developed at the onset of the project which aided the integration of gender into
DRRM and incorporation into all aspects of this project. Gender trainings also
highlighted that gender analysis should not just cover the differing needs and
roles of women and men as a whole, but also be completed for each vulnerable
group/sector e.g. the differing needs and roles of women and men within the
PWD sector etc.
The process of formulating gender responsive Local DRRM Plans was an
innovative practice as there were no guidelines for this due to the recent approval
of the R. A. 10121 and subsequent developiment of the NDRRM Framework and
Plan. Documentation of the workshops to formulate the plans did not only
concentrate on output documentation but also process documentation that was
the basis for the production of a manual to guide all LGUs in LDRRMP formulation in accordance with the NDRRMP.

Similarly the process documentation of the project was developed into guidelines
for the integration of DRRM into the CLUPs that will undergo further
enhancement by the HLURB during the GMMA READY project.
The Inventory and Rapid Assessment of Disaster Risk Reduction and
Management Capacities, Policies and Programmes of the LGUs of Pasig,
Marikina and Cainta,conducted at the beginning of this project, provided a gap
analysis that informed the capacity development strategies undertaken by the
RESILIENCE Project. Capacity assessments and gap analyses were not new to
the project partners but no activity had developed to meet the gaps and build
capacities,unlike this project.
The project training modules and the methodology of modules were developed
durirly the participatory workshops conducted by this project Once finalized
these can be utilized by other communities and LGUs for the replication of the
process of capability building for DRRM. The capability building aspect of the
project went beyond trainings and incorporated various forms including coaching
and mentoring, school fairs, production of posters and brochures etc.and
involved different sectors of the communities from LGUs,barangays, private
sector/businesses, school teachers and students, and media.
Installation of Flood Early Warning Systems (FEWS) with barangay level teams
trained on utilization and maintenance, adopted a river basin wide approach to
provide upstream-downstream monitoring and wamings for flood events.
Beforehand,flood early warning systems were 'in-situ' i.e. river level gauges
monitored by one area to provide information to residents within that area. With a
river basin wide coverage information can be relayed from upstream areas e.g.
as to the impact of heavy rainfall on the volume of water and flow within the river
systems,to downstream areas to provide more time for preparedness. Regularly
monitoring (not just during times of hazard events) can also provide critical data
on changes within the river systems over seasons.
The multi-stakeholder,river basin wide approach developed both horizontal and
vertical level partnerships that will be formalized by a MOA detailing clearly the
roles and responsibilities and accountability mechanisms. There was a clear
attempt to coordinate across areas with common hazards.


4.

Replication
The replication of project activities such as trainings, augmentation of early
warning systems etc.have already been initiated by some LGUs themselves,
using their own resources. This can be seen in the Local DRRM Plans and
ongoing activities and programs.
Replication of Local DRRM Planning process using the materials developed
under the RESILIENCE project was also done in other OCD Regions such as
Region IV-A, Region I, and CAR (as stated in the 2012 APR).
There is therefore,interest to replicate this project. UNDP is looking to consult
with other regional offices of UNDP regarding this, together with disseminating
results/knowledge products (brochures, posters, manuals) of the project to the
DILG, and the Leagues.
Any replication needs to incorporate the lessons learned from this pilot project.


Findings
1.

In the midst of the localization of new national legislation for DRRM and CCA,the
RESILIENCE Project as a pilot project, contributed to an enhanced level of
awareness for a paradigm shift to a more proactive approach to disasters,
encompassing all aspects of DRRM and a collaborative approach that goes
beyond jurisdictional boundaries.
In terms of policy enhancement,the project contributed to the need to integrate
DRRM into local development planning and budgeting processes -especially the
CLUPs. An exposure database survey, from the Exposure Database Module
(EDM) of REDAS,was initiated with the participation of LGUs,CSCAND
agencies,cooperating partners, and local volunteers. This helped LGUs develop
their intemal capacity and facilitated linkages, including the volunteer sector to
gather information on their localities' exposure to different types of hazards. This
data was utilized not only in the enhanced CLUP formulation but also for the
updating and enhancement of the contingency plans for flood and earthquake
risks of each LGU also undertaken during the project.
The project also assisted the LGUs in the formulation of LDRRMPs in
accordance with the NCRRMP. Workshops were conducted analysing the
present situation with efforts to include a gender sensitive approach to DRRM.
This could have been further developed with the conduct of a gender analysis at
the beginning of the project. When translated into LDRRMPs these were
expanded into the specific needs of women with regards to evacuation/camp
management providing_distinct _spaces for women and children. The draft LDRRMPs are complete and are awaiting approval and integration into the 2014
Annual Investment Plans. Similarly the the finalization of the CLUPs is still in
process.
The project also contributed to the drafting of the JMC for the utilization of the
LDRRMF and also assisted in the drafting of a JMC on LDRRMO creation and
institutionalization.
This component provided the critical foundation of an enabling localized policy
and planning environment for DRRM initiatives.


Recommendations
1 On the pre-project preparation phase: a. include the initial formulation with all partners of the project; and b. all data requirements, situational analyses and equipment required are identified and made available for the start of the implementation phase
2 On the implementation phase: a. all the policies developed and enhanced by the project are supported through to approval and integration into the annual investment plans; b. conflicting interests when it comes to land use need to be fully resolved during the process of formulation/enhancement of land use policies and zoning ordinance for them to be effective and enforceable; c. there is a need for the institutionalization of the local DRRMOs with plantilla positions.
3 On the Building Capacities for LGUs and Other Stakeholders component: a. A Training of Trainers at the local level of implementation which can lead the replication and roll-out of training to communities and to other government employees b. solicit feedback from participants during and after a training to further enhance training design; a topic/module on resource mobilization should be incorporated c. establishment of a knowledge management system as repository of information, data and modules d. harmonization of existing EWS, like KOICA, PAGASA, EFCOS, and NOAH together with the analysis of technical data and translating these into layman's terms and deliver to communities
4 On the Improved Coordination and Partnerships component: a. collaboration and coordination b. project updates, implementation progress, and changes could be communicated with cooperating partners via newsletters, project web page and the like
5 On sustainability: a. completion of the CLUP and the MOA and localization of maps and data to be user friendly especially for local planners; analysis and how to make use of the data and maps by technical people through a series of training under the LGU; b. IEC materials and advocacy and workshops should continue beyond the project lfie c. Sustain the Metro Manila-Rizal Network with DILG as secretariat
1. Recommendation: On the pre-project preparation phase: a. include the initial formulation with all partners of the project; and b. all data requirements, situational analyses and equipment required are identified and made available for the start of the implementation phase
Management Response: [Added: 2013/12/26] [Last Updated: 2013/12/26]

OCD agrees to the recommendation. In future projects, OCD will include pre-project preparation phase in the project timeframe and if future projects are similar in scope with the RESILIENCE Project, consider having implementation duration for at least 3 years.

Key Actions:

2. Recommendation: On the implementation phase: a. all the policies developed and enhanced by the project are supported through to approval and integration into the annual investment plans; b. conflicting interests when it comes to land use need to be fully resolved during the process of formulation/enhancement of land use policies and zoning ordinance for them to be effective and enforceable; c. there is a need for the institutionalization of the local DRRMOs with plantilla positions.
Management Response: [Added: 2013/12/26] [Last Updated: 2013/12/26]

OCD will take the first recommendation (a) into consideration. For future projects with similar activities on Policy Development and Enhancement, OCD will consider if it will be realistic to set targets such as approval and integration of DRRM into local plans. It will depend on several factors such as the political environment, capacity level, and degree of receptiveness of the target LGU, among others. For the second recommendation (b)OCD agrees and for future projects, it is expected that HLURB has already developed guidelines for LGUs to follow in

Key Actions:

3. Recommendation: On the Building Capacities for LGUs and Other Stakeholders component: a. A Training of Trainers at the local level of implementation which can lead the replication and roll-out of training to communities and to other government employees b. solicit feedback from participants during and after a training to further enhance training design; a topic/module on resource mobilization should be incorporated c. establishment of a knowledge management system as repository of information, data and modules d. harmonization of existing EWS, like KOICA, PAGASA, EFCOS, and NOAH together with the analysis of technical data and translating these into layman's terms and deliver to communities
Management Response: [Added: 2013/12/26] [Last Updated: 2013/12/26]

OCD agrees to the recommendations. a. For future projects, Training of Trainers will be included as a strategy to effectively cascade learning and increase capacity of LGUs through development of their internal expertise on DRRM. b. For future projects, improvements will be incorporated in the training design including the feedback mechanism, and the inclusion of a module on resource mobilization on DRRM for LGUs. c. 1 A knowledge management system is being established under the Information Technology (IT) Component of the Disaster Risk Reduction and Management Capacity Enhancement Project (DRRM-CEP) of the Japan International Cooperation Agency (JICA) with OCD d. While the RESILIENCE Project also supported harmonization and integration of existing EWS, future projects with similar scope will built on what has been accomplish in terms of EWS.

Key Actions:

4. Recommendation: On the Improved Coordination and Partnerships component: a. collaboration and coordination b. project updates, implementation progress, and changes could be communicated with cooperating partners via newsletters, project web page and the like
Management Response: [Added: 2013/12/26] [Last Updated: 2013/12/26]

OCD agrees to the recommendations. For future projects, other modes of communication and coordination can be harnessed such as social media.

Key Actions:

5. Recommendation: On sustainability: a. completion of the CLUP and the MOA and localization of maps and data to be user friendly especially for local planners; analysis and how to make use of the data and maps by technical people through a series of training under the LGU; b. IEC materials and advocacy and workshops should continue beyond the project lfie c. Sustain the Metro Manila-Rizal Network with DILG as secretariat
Management Response: [Added: 2013/12/26] [Last Updated: 2013/12/26]

OCD agrees to the recommendation. OCD has existing project(s) on mainstreaming DRRM into CLUP. LGU should be able to continue capacity building activities for scaling up and replication as it is indicated in their Local DRRM Plans. OCD will coordinate with DILG for the sustainability of the Metro Manila-Rizal Network

Key Actions:

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