EMERGENCY SHELTER:

A Disaster Response Transitory Housing Assistance

for Metro Manila

A Thesis Proposal Submitted to the

College of Architecture
University of Santo Tomas

In Partial Fulfilment
Of the Requirements
For the Degree of
Bachelor of Science in Architecture

CEE JAE DWIGHT O. INGAL

5AR-4
SEPTEMBER 2019
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 2

Table of Contents
Chapter I: Introduction ................................................................................................... 9
1.1 Background of the Study ...................................................................................... 9
1.2 Statement of the Problem ................................................................................... 10
1.3 Project Goals and Objectives ............................................................................. 11
1.3.1 Project Objective 1 ...................................................................................... 11
1.3.2 Project Objective 2 ...................................................................................... 12
1.3.3 Project Objective 3 ...................................................................................... 12
1.4 Significance of the Study ................................................................................... 12
1.5 Project Scope and Limitations............................................................................ 13
1.5.1 Scope ........................................................................................................... 13
1.5.2 Limitations ................................................................................................... 14
1.6 Operational Definition of Terms ........................................................................ 14
1.6.1 Terms ........................................................................................................... 14
1.6.2 Acronyms..................................................................................................... 15
Chapter II: Review of Related Literature..................................................................... 16
2.1 Disasters ............................................................................................................. 16
2.1.1 Concepts of Disaster Resiliency .................................................................. 16
2.1.2 Classification of Natural Disasters .............................................................. 17
2.2 Overview of the Philippines in context of Hazards and Disasters ..................... 20
2.2.1 Environment ................................................................................................ 20
2.2.2 Vulnerable Groups ....................................................................................... 22
2.3 Risk Profile of the Philippines ........................................................................... 23
2.3.1 Natural Hazards in the Philippines .............................................................. 23
2.3.2 Human-Induced Hazards in the Philippines ................................................ 25
2.3.3 Risk Profile of Metro Manila....................................................................... 26
2.4 National Disaster Risk Reduction and Management Plan 2011-2028 ............... 30
2.4.1 Thematic Area 1: Disaster Prevention and Mitigation ................................ 31
2.4.2 Thematic Area 2: Disaster Preparedness ..................................................... 31
2.4.3 Thematic Area 3: Disaster Response ........................................................... 31
2.4.4 Thematic Area 4: Disaster Rehabilitation and Recovery ............................ 31
2.5 The Psychology of Disaster Victims .................................................................. 32
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 3

2.5.1 Transactional Stress Coping Model ............................................................. 32

2.5.2 Roles of Leisure in the Post-Disaster Life ................................................... 33
2.5.3 Three-Level Stepped-Care Framework ....................................................... 34
2.6 Housing Design .................................................................................................. 35
2.6.1 Self-Help Construction ................................................................................ 35
2.7 Offsite Architecture ............................................................................................ 37
2.7.1 Three basic Industrialized Building Systems .............................................. 37
2.8 Transportable Structures .................................................................................... 37
2.8.1 Small-Scale Transportable Buildings .......................................................... 37
Chapter III: Research Methodology............................................................................. 39
3.1 Research Method ................................................................................................ 39
3.1.1 Qualitative Research .................................................................................... 39
3.2 Research Design ................................................................................................. 39
3.2.1 Historical Research ...................................................................................... 39
3.2.2 Descriptive Research ................................................................................... 39
3.3 Data Collection Techniques ............................................................................... 40
3.3.1 Library Research.......................................................................................... 40
3.3.2 E-Sources Research ..................................................................................... 40
3.3.3 Key-Informant Interview Questions ............................................................ 40
3.3.4 Case Studies ................................................................................................. 40
Chapter IV: Site Profile and Analysis .......................................................................... 41
4.1 Site Criteria ........................................................................................................ 42
4.1.1 Land Availability ......................................................................................... 42
4.1.2 Land Use and Zoning .................................................................................. 43
4.1.3 Climate......................................................................................................... 44
4.1.4 Vegetation .................................................................................................... 45
4.1.5 Soil Condition .............................................................................................. 45
4.1.6 Topography.................................................................................................. 46
4.1.7 Transportation .............................................................................................. 46
4.1.8 Utilities ........................................................................................................ 47
4.1.9 Safety and Security ...................................................................................... 48
4.1.10 Adjacent Structures.................................................................................... 48
4.1.11 Adjacent to the Disaster Affected Area ..................................................... 49
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 4

4.1.12 Available Public Services .......................................................................... 49

4.1.13 Opportunities of Livelihood ...................................................................... 50
4.2 Site Proposal....................................................................................................... 51
4.2.1 Site A ........................................................................................................... 51
4.2.2 Site B ........................................................................................................... 52
4.2.3 Site C ........................................................................................................... 54
4.3 Site Evaluation ................................................................................................... 55
4.4 Selected Site Description and Justification ........................................................ 56
Chapter 5: Project Profile and Analysis ....................................................................... 57
5.1 Market Study ...................................................................................................... 57
5.1.1 Industry overview ........................................................................................ 57
5.1.2 Target Market .............................................................................................. 58
5.2 Client Profile ...................................................................................................... 61
5.2.1 Brief History of DSWD DREAMB ............................................................. 61
5.2.2 General Overview ........................................................................................ 63
5.2.3 Client Vision ................................................................................................ 65
5.2.4 Disaster Response Clusters .......................................................................... 65
5.2.6 Organizational Chart.................................................................................... 66
5.3 User Profile ........................................................................................................ 66
5.4 Operational Guidelines ....................................................................................... 68
5.4.1 National Disaster Risk Reduction and Management Plan (NDRRMP) 2011-
2028 ...................................................................................................................... 68
5.4.2 Evacuation Center Management Organization Chart .................................. 74
5.5 Legal Framework ............................................................................................... 75
5.5.1 Republic Act No. 10121 .............................................................................. 75
5.5.2 NDCC Circular No.5 ,s-2007 ...................................................................... 77
5.2.3 RA 7924 ....................................................................................................... 79
5.2.4 National Disaster Risk Reduction and Management Plan 2011-2028 ........ 79
5.7 Project Analysis.................................................................................................. 80
Chapter VI: Technical Research Data Presentation ..................................................... 82
6.1 Technical Guidelines .......................................................................................... 82
6.1.1 Oplan Metro Yakal Plus: Metro Manila Earthquake Contingency Plan ..... 82
6.1.1 Guidelines on Evacuation Center Coordination and Management ............. 95
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 5

6.1.2 Guidelines in the Implementation of Temporary Shelter Assistance and

Prioritization of Victims of Disasters/ Internally Displaced Persons thereto ..... 121
6.2 Statistics ........................................................................................................... 127
6.3 Key-Informant Interview Results ..................................................................... 127
6.3.1 National Housing Authority - Housing Technology and Technical Research
Department - Housing Design Division ............................................................. 127
6.5 Case Studies ..................................................................................................... 130
6.6 Visitation & Photo Documentation .................................................................. 145
6.7 Data Analysis ................................................................................................... 145
Chapter 7: Spatial Programming and Analysis ...................................................... 146
7.1 List of Spatial Requirements ............................................................................ 146
7.1.1 Single-Family Unit .................................................................................... 146
7.1.2 Couple’s Room .......................................................................................... 146
7.1.3 Breast Feeding Area .................................................................................. 146
7.1.4 Communal Toilet and Bath........................................................................ 147
7.1.5 Laundry and Drying Area .......................................................................... 147
7.1.6 Community Kitchen .................................................................................. 147
7.1.7 Community Water Points .......................................................................... 148
7.1.8 Community Dining Hall ............................................................................ 148
7.1.9 Retail Area ................................................................................................. 148
7.1.10 Community Clinic ................................................................................... 148
7.1.11 Multi-Purpose Hall .................................................................................. 148
7.1.12 Child-friendly Park/ Play Area ................................................................ 149
7.1.13 Community Garden ................................................................................. 149
7.1.14 Livestock Area ......................................................................................... 149
7.1.15 Temporary Learning Spaces (TLS) ......................................................... 150
7.1.16 Livelihood Workshop Area ..................................................................... 150
7.1.17 Food and Non-food Items Storage........................................................... 150
7.1.18 Camp Management Office....................................................................... 151
7.1.19 Information Board ................................................................................... 151
7.1.20 Waste Management Area......................................................................... 151
7.1.21 Mechanical/Equipment Area ................................................................... 151
7.1.22 Camp Parking Area ................................................................................. 151
7.2 Room Data Sheet .............................................................................................. 152
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 6

7.3 Summary of Area Requirements ...................................................................... 171

7.4 Adjacency Matrix ............................................................................................. 174
7.5 Bubble Diagram ............................................................................................... 175
Chapter 8: Conceptual Development ......................................................................... 176
8.1 Design Objectives ............................................................................................ 176
8.1.1 Design Objective 1 .................................................................................... 176
8.1.2 Design Objective 2 .................................................................................... 176
8.1.3 Design Objective 3 .................................................................................... 176
8.2 Design Philosophy............................................................................................ 176
8.3 Design Concepts ............................................................................................... 177
8.4 Design Considerations...................................................................................... 178
8.4.1 Economic Sustainability ............................................................................ 178
8.4.2 Educational Opportunities ......................................................................... 178
8.4.3 Sustainable Construction Methods ............................................................ 178
8.4.4 Project Phase Cohesion ............................................................................. 179
8.4.5 Psychology of Spaces ................................................................................ 179
8.4.6 Communal Environment............................................................................ 179
8.5 Design Strategies. ............................................................................................. 179
8.5.1 Livelihood Opportunities ........................................................................... 179
8.5.2 Educational Facilities ................................................................................ 179
8.5.3 Dematerialization....................................................................................... 180
8.5.4 Building for Disassembly .......................................................................... 180
8.5.7 Leisure and Social Spaces ......................................................................... 180
8.5.8 Communal Facilities .................................................................................. 180
Bibliography .............................................................................................................. 181

List of Tables
Table 1. Classification of Natural Disasters ................................................................ 17
Table 2. High Flood Risk of Metro Manila ................................................................. 26
Table 3. Very High Flood Risk Profile of Metro Manila ............................................ 28
Table 4. Urban Vulnerability of Metro Manila to Earthquakes ................................... 29
Table 5. Possible Regional Separation of Metro Manila ............................................. 30
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 7

Table 6. Formal vs. Informal (self-help) Housing Provisions ..................................... 36

Table 7. Site Evaluation ............................................................................................... 55
Table 8. DSWD-DREAMB Major Disaster Responses .............................................. 62
Table 9. User Profile .................................................................................................... 66
Table 10. Evacuation Center Management Council Chart .......................................... 75
Table 11. Lead Agencies of Corresponding Clusters .................................................. 77
Table 12. Predicted Impacts of the Intensity VIII earthquake ..................................... 82
Table 13. Four Quadrant Regional Separation of Metro Manila ................................. 83
Table 14. Assisting Region and AFP Units per Quadrant ........................................... 84
Table 15. Entry Points of each Quadrant ..................................................................... 85
Table 16. Responsible Agency in each Sector of Disaster Response .......................... 87
Table 17. Sub-Emergency Operation Centers in each Quadrant. ................................ 88
Table 18. . Evacuation Camps and Emergency Field Hospitals .................................. 89
Table 19. Security Logistics and Personnel ................................................................. 89
Table 20. Expected Number of Evacuees in each Quadrant. ....................................... 90
Table 21. Tasks and Responsibilities of Agencies in Evacuation Camps ................... 91
Table 22. DSWD-NCR Disaster Team assignment ..................................................... 92
Table 23. DSWD-NCR Disaster Team Composition .................................................. 92
Table 24 Facility Requirements on each EC type ...................................................... 107
Table 25. Basic Survival Water Needs ...................................................................... 108
Table 26. Minimum Water Demand per day (Prolonged Period) .............................. 109
Table 27. Room Data Sheets ...................................................................................... 152
Table 28. Summary of Area Requirements................................................................ 171

List of Figures
Figure 1. Site A ............................................................................................................ 51
Figure 2. Site A Vicinity Map...................................................................................... 52
Figure 3. Site B ........................................................................................................... 52
Figure 4. Site B Vicinity Map ...................................................................................... 53
Figure 5. Site C ............................................................................................................ 54
Figure 6. Site C Vicinity Map ...................................................................................... 54
Figure 7. Selected Site ................................................................................................. 56
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 8

Figure 8. Annual Conflict Displacement Figures ........................................................ 60

Figure 9. Annual Disaster Displacement Figures ........................................................ 60
Figure 10. Risk of Future Displacement ...................................................................... 61
Figure 11. DSWD Organizational Chart ...................................................................... 66
Figure 12 NHA Chief assures accomplishment of 500 transitional shelters by
December ................................................................................................................... 131
Figure 13. Workers unload “sandwich panels” at the transitional shelter site in
Baranay Sagonsongan ................................................................................................ 132
Figure 14. Duterte to turn over 500 to 600 transitional shelters for Marawi “bakwits”
by mid-December....................................................................................................... 133
Figure 15. Workers at the transitional shelter site in Barangay Sagonsongan in
Marawi City had yet to complete the flooring for four houses. ................................. 134
Figure 16. Finished Bunkhouses ................................................................................ 135
Figure 17. "Yolanda" Bunkhouses Overpriced Shelters Substandard ....................... 136
Figure 18. Two Years after Yolanda, Hundreds of Families still Live in
Bunkhouses ................................................................................................................ 137
Figure 19 Just a Minute Perspective .......................................................................... 138
Figure 20 Just a Minute Materials ............................................................................. 139
Figure 21. Just a Minute Floor Plan ........................................................................... 140
Figure 22. Just a Minute Demonstration .................................................................... 140
Figure 23. Onagawa temporary container housing + community center dining hall 141
Figure 24 Onagawa temporary container housing + community center Interior ....... 142
Figure 25. Onagawa temporary container housing + community center Church ...... 143
Figure 26. Onagawa temporary container housing + community center Night
Photo .......................................................................................................................... 144
Figure 27. Onagawa temporary container housing + community center Construction
Method ....................................................................................................................... 144
Figure 28 Onagawa temporary container housing + community center
Construction ............................................................................................................... 145
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 9

Chapter I: Introduction

1.1 Background of the Study

The Philippines, due to its geographic location, is exposed to many kinds of

natural hazards that are mainly hydro-meteorological and geophysical. These

hazards cost 0.5% of the country’s annual GDP (NDRRMC, 2018). Aside from

these natural hazards, the country is also vulnerable to human-induced hazards like

armed conflicts that are most prominent in the south of the country.

Although the country experiences these disasters every year, the country still

lacks resilience and preparedness. According to the Philippine Disaster

Management Reference Handbook, with 1 being the lowest and 10 being the

highest, The Philippines has a 2018 Hazard and Exposure risk of 7.8/10; a

Vulnerability score of 4.2/10; and a Lack of Coping Capacity score of 4.2/10.

(Center for Excellence in Disaster Management and Humanitarian Assistance,

2018).

With enough experience, the country is now in the middle of the 17-year plan,

from the year 2011 to the year 2028, formulated by the National Disaster Risk

Reduction and Management Council (NDRRMC), to increase Filipinos’ resilience

to disasters. Part of this plan, under Disaster Response, is the Emergency Shelter

Assistance headed by the Department of Social Welfare and Development (DSWD)

and the National Housing Authority (NHA). These Emergency Shelters are
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 10

temporarily provided to the Internally Displaced Persons during and after disasters

while permanent housing units are being constructed and damaged residential

houses are being repaired by the NHA.

Although there has been significant improvement of the Emergency Shelters

through the years, there is still a huge room for improvement. This study aims to

further research on more sustainable and efficient ways to provide shelter assistance

to Internally Displaced Persons through the improvement of Temporary Shelter

architecture.

1.2 Statement of the Problem

Since the Philippines is exposed to human-induced hazards, and natural hazards

due to its geographical location, the country will and always be facing challenges

combating and preparing for disasters. Although efforts are being made to reduce

vulnerability of the Filipinos to these hazards, continuous innovation and further

studies are needed to improve our preparedness.

This study will address the problem of the lack of efficient and sustainable

Emergency Shelters provided for the Internally Displaced Persons (IDPs) during

and after natural and human-induced disaster. Although there are a number of

studies made regarding this matter in other countries, it should be recognized that

each country experiences disasters differently and has a different set of cultures of

users.
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 11

The existing Emergency Shelters provided by the Philippine Government,

although improving through the years, still lacks solutions that will better help

Filipinos rehabilitate and recover from disasters psychologically, economically, and

socially.

Through qualitative research, this study will seek to find better solutions and

innovations to further improve and develop a prototype Emergency Shelter for

Metro Manila.

1.3 Project Goals and Objectives

The goal of this project is to establish an efficient and sustainable prototype

design for Emergency Shelters for Internally Displaced Persons during and after

Disasters. Develop a concept that will consider the Philippine context and its

exposure to hazards.

1.3.1 Project Objective 1

To come up with a well-conceptualized, sustainable and efficient

Emergency Shelter. Establish a self-sustaining environment and support post-

disaster growth towards the reduction of the vulnerability of Filipinos.

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 12

1.3.2 Project Objective 2

To support disaster mitigation and increase preparedness by developing

Disaster Response and Rehabilitation Operations and Procedures that prioritizes

the decrease of negative environmental impacts.

1.3.3 Project Objective 3

To create a community that prioritize Psychological Disaster Recovery

and Post-traumatic Growth for the Internally Displaced Persons caused by a

disaster. Encourage collective growth and inspire a community to be better.

1.4 Significance of the Study

The findings of this study is to contribute to the society, especially the urban

poor who are the most vulnerable to disasters, by improving Disaster Response and

Disaster Rehabilitation and Recovery Programs through Architecture.

Development of a prototype design solution of the Emergency Shelter Assistance

for Metro Manila will increase disaster preparedness of the citizens and help the

National Government be more efficient in dealing with Internally Displaced

Persons during and after disasters. Solutions will be specific to the Filipino culture,

and Philippine conditions, therefore be more effective in helping the IDPs recover

from the disasters.

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 13

1.5 Project Scope and Limitations

1.5.1 Scope

- The Study focuses on the provision of a well-developed

prototype Emergency Shelter for Internally Displaced Persons

during Disasters in Metro Manila.

- The site for the project is upon the decision of the LGU after

proper assessment and analysis of the current disaster.

- Although site selection is the responsibility of the LGU, this

study will provide a criterion for choosing sites and limitations

of the design for appropriate deployment of the prototype design.

- The demonstration of the Project will use Scenario A, seen in

chapter 4, as the main premise of a probable disaster and

predicted damage and needs assessment

- The project is inclusive of the natural and human-induced

hazards, provided with some alterations or variations, should

different cases of disasters arise.

- Although the project is focused on the Emergency shelters, it is

to be included that solutions be provided for different aspects

like education, health, and societal needs.

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 14

1.5.2 Limitations

- Although the project is to provide a prototype that is designed in

service of different cases, some interventions are to be made to

come up with the best design solution, provided the appropriate

assessment of a disaster event is available and used as a basis.

- The project will be using a specific prototype site. Application

of the project to other sites will require similarities between the

new site and the prototype site. Should there be no available

similar site, variations on the project will be required.

- The project is limited to cater a maximum density of users.

Should there be an increase in demand, the design should be

applicable to additional sites.

1.6 Operational Definition of Terms

1.6.1 Terms

Hydro-meteorological - relating to atmospheric water, especially

precipitation, as it affects agriculture, water supply, flood control, power

generation, etc.

Geophysical - relating to the physics of the earth and its atmosphere,

including oceanography, seismology, volcanology, and geomagnetism.

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 15

Seismic - pertaining to, of the nature of, or caused by an earthquake or

vibration of the earth, whether due to natural or artificial causes.

Human-induced - any event caused by man.

Tanoshimi - a Japanese word that translates to enjoyment, pleasure,

diversion, amusement, hobby, anticipation, or looking forward to.

1.6.2 Acronyms

NDRRMC - National Disaster Risk Reduction and Management

Council

NDRRMP - National Disaster Risk Reduction and Management Plan

DRRM - Disaster Risk Reduction and Management

CCA - Climate Change Adaptation

DSWD - Department of Social Welfare and Development

NHA - National Housing Authority

IDPs- Internally Displaced Persons

GDP - Gross Domestic Products

JICA - Japan International Cooperation Agency

MMDA - Metropolitan Manila Development Authority

PHILVOLCS - Philippine Institute of Volcanology and Seismology

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 16

Chapter II: Review of Related Literature

2.1 Disasters

2.1.1 Concepts of Disaster Resiliency

2.1.1.1 Vulnerability

Earlier interpretation of Vulnerability is as a social construct that

ultimately leads people to be fragile in facing Hazards. Later definitions

focus on using quantitative and qualitative data on actual conditions of

the community and territorial scales to draw vulnerability maps. It’s the

condition of the society that allows a Hazard to become a Disaster.

Vulnerability to Natural Hazards is also reflecting People’s

Marginalization. Marginalized geographically, socially, economically,

and politically. People’s vulnerability is determined by structures that

are disaster-independent factors. Lack of protection doesn’t always

mean it’s non-existent, this is also defined only by the lack of access.

Vulnerability is ultimately defined by the people’s livelihood.

(Gaillard, 2015)

2.1.1.2 Capacity

Capacity is not the exact opposite of vulnerability. Some

communities that display a large array of capacities are sometimes still

highly vulnerable. It is discussed that the capacity of people is defined

by the sub-culture of the community towards disaster. Behavior and

approaches in solving problems in disaster events are often based on

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 17

existing skills, behavior, and technologies found in the community itself.

How people use available resources in order to achieve beneficial ends

during disasters is a coping strategy.

(Gaillard, 2015)

2.1.1.3 Resilience

Resilience may rely on the same factors as vulnerability like

social, demographics, political and cultural, but both varies in different

scales. It is defined as the way and the ability of people to overcome

disaster. It is said that the UN International Strategy for Disaster

Reduction adapted the definition of resilience as the ability of a

community to resist or adapt to changes in order to be functioning. But

this definition contradicts the theme ‘building back better’, as this

definition includes resistance to change.

(Gaillard, 2015)

2.1.2 Classification of Natural Disasters

For operational purposes, Disasters should be classified in categories.

According to the Centre for Research on the Epidemiology of Disasters (CRED)

(2009), the following are to be used in classifying Natural disasters:

Table 1. Classification of Natural Disasters

Disaster Disaster Disaster Main Disaster Sub- Disaster Sub-

Group Subgroup Type Type sub-type
Ground Movement
Earthquake
Natural Tsunami
Geophysical
Disaster Mass Movement Rock fall
(dry) Landslide
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 18

Ash Fall
Lahar
Volcanic Activity
Pyroclastic flow
Lava flow
Extratropical storm
Tropical storm
land hurricane
Hail
Lightning/Thunder
storm
Rain
Storm
Tornado
Convective
Sand/Dust storm
Meteorological Winter
storm/blizzard
Storm/Surge
Wind
Severe Storm
Cold Wave
Extreme Heat Wave
Temperature Severe Winter
Conditions
Fog
Coastal flood
Riverine flood
Flood
Flash flood
Ice Jam flood
Hydrological Avalanche (snow,
Landslide debris, mudflow, rock
flow)
Rogue wave
Wave action
Seiche
Drought
Glacial Lake
Outburst
Climatological Forest Fire
Wildfire Land fire (Brush,
bush, pasture)
Impact Airburst
Extraterrestrial Energetic Particles
Space weather
Geomagnetic storm
Shockwave
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 19

Note: Data of Classification of Natural Disasters in Centre for Research on the Epidemiology of
Disasters (CRED) . (2009). Classification | EM-DAT. Retrieved September 4, 2019, from
https://www.emdat.be/classification

2.1.2.1 Guides in Classifying Disasters

Event Occurrence

Disasters occur in a certain time and space. These events

may occur within a sudden or it may occur in a prolonged time

frame. These can be measured by the two speed of its onset.

Rapid Onset - events that occur rapidly also require

rapid response. This pushes the disaster response to use

a demand-driven supply chain to mitigate the disaster

impacts.

Slow Onset - events that occur slower gives the system

more time to plan and to deploy. In events like these, a

cost-effective supply chain can be used.

These events also occur in certain concentrated places or maybe

in a dispersed geographic scope.

System Disruption

Through measuring physical casualties and property

damages, these events disrupt the system which can be seen in

the performance transient response.

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 20

Overwhelmed Capabilities

Every system has extents to its capabilities. Disaster

Events can impact in a way that overwhelm the system. External

intervention is required to return to an acceptable performance

level. This also suggests that a system consumes certain extent

of capability or robustness when the system is overwhelmed.

(Mackay, Munoz, & Pepper,2019)

2.2 Overview of the Philippines in context of Hazards and Disasters

2.2.1 Environment

2.2.1.1 Geography

The Philippines has approximately 300,000 square kilometers of

territory, 2944 square kilometers of this is covered with water. The

country comprises of 7,107 islands, but only 2,000 is occupied and 95%

of the population resides only in 11 islands.

The country is part of the Pacific Ring of Fire, which means there

are many active volcanoes and earthquakes are highly frequent. The

highest point in the country is an active volcano that has an elevation of

2954 meters.

There are more than 500 types of birds, over 800 kinds of

orchids, and 8,500 species of flowering plants that are found in the

country’s lush rainforests. There are also multiple river systems in the

country.
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 21

(Center for Excellence, 2018)

2.2.1.2 Climate

Due to the country’s geographical location, the Philippines has a

tropical rainforest climate. This means high temperatures and high

humidity all throughout the year. The average temperature in the country

is 26 degrees Celsius. Strong Typhoons occur in June till November.

Although rainfall is experienced every month, heavy rain is expected

from June to October due to the monsoon originating from the

southwest. While from December to May, hardly any rainfall occurs due

to trade winds from the northeast. Northern islands experience more

typhoons than those in the south.

(Center for Excellence, 2018)

2.2.1.3 Climate Change

The country is extremely vulnerable to the effects of Climate

Change. It is expected that there will be an increase in the occurrence of

stronger typhoons, sea-level rise, and elevated storm surges in the

coastal region. The increase of intensity of storm surges is expected to

affect more than 40 percent of the coastal population.

Food Security is also threatened by Climate Change. The

agriculture sector is predicted to be affected by the changes. Catch

capacity of the fishermen is also expected to go down to 50% because

of the damage to the coral reefs that are caused by the warming waters
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 22

and acidification. This is a huge threat because 40% of the dietary animal

protein consumption in Southeast Asia is from fish.

(Center for Excellence, 2018)

2.2.2 Vulnerable Groups

Women

Over a Million women have been displaced by natural disasters

and conflicts since the year 2013. This group is especially vulnerable

during disasters and in need for specific services. Pregnant and lactating

mothers require reproductive healthcare and additional resources. This

affected population also require post-partum healthcare and specific

nutrition and hygiene needs.

The Poor

Most of the poor in the Philippines live in rural regions and

primarily work in agriculture and fishing. The poor are susceptible and

disproportionately impacted by these events. Economic shocks that are

caused by Natural Disasters can cause financial instability on the poor.

The increasing frequency and intensity of natural disasters is one factor

that increases poverty incidence in the country.

Many poor families, which include young and old dependents,

have six or more members. These families lack access to education and

health services as well as resources like electricity and water.

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 23

Children

According to a report by the Philippine Institute of Development

Studies, approximately 10 million children in the country is deprived in

aspects specifically health, education, and living standards that include

shelter, safe water, and toilet facilities. This group is one of the most

vulnerable people in the country, especially with the combination of

poverty and disasters. Approximately, 250,000 children are thought to

be at work on the streets in the Philippines, 30,000 of these are in Metro

Manila.

This population is extremely vulnerable. Street children are

compelled to persevere through an absence of nourishment, outrageous

climate conditions, diseases, mistreatment, and defilement. Street

children, both male and female, an increased vulnerability to abuse,

sexual harassment and exploitation.

(Center for Excellence, 2018)

2.3 Risk Profile of the Philippines

2.3.1 Natural Hazards in the Philippines

The Philippines is exposed to many natural Hazards that include

hydro-meteorological and geophysical hazards. This is because the

country is located in the Pacific Ring of Fire and Typhoon Belt. These

causes damages that is recorded to have been 0.5% of the annual GDP

that equals to P20 Billion per year during 1990-2006. This increased in

2009 up to 2.7% because of tropical storms Ondoy and Pepeng.

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 24

According to a report by the United Nations University and the Institute

of Environment and Human Security, the Philippines is the third most

disaster risk country worldwide. (NDRRMC, 2018)

2.3.1.1 Hydrometeorological Hazards

The Philippines is located along the Pacific Typhoon

Belt. It is said the country experiences 21 typhoons at most in a

year. In the year 2015, the Philippines is ranked 3rd in a list that

is most exposed to Typhoon Hazards. This greatly affects the

Filipinos and the country’s Economy. Many citizens are

displaced, a lot of properties are damaged, and livelihood is lost

due to these hazards.

The most prevalent Hydro-meteorological Hazards in the

country include floods, landslides, and storm surges. There are

13,155 dead, 51 million families affected and P158.242 billion

economic losses just between the year 1997 and 2007 where 84

tropical storms entered the Philippine Area of Responsibility

(PAR). (NDRRMC, 2018)

Deforestation is also prominent in mountainous areas

which increases the risk of a landslide. Just in the year 2018,

between the months of September and October, three landslides

occurred, caused by typhoon Mangkhut and Rosita. One

occurred in Itogon, Benguet which have 58 people reported dead

(Rappler, 2018). Another, just five days after, occurred in Naga,

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 25

Cebu. This disaster killed 29 people. The third one occurred in

the Cordillera region, which killed 24 People (Sunstar, 2018).

2.3.1.2 Geophysical Hazards

The Pacific Ring of Fire is a highly seismic area where

two major tectonic plates, the Philippine Sea and Eurasian meet.

This is where the Philippines is located which causes the country

to be highly prone to earthquakes, tsunamis and volcanic

activity. There are 300 volcanoes which are located in the

country, 22 of them are active. The country experiences an

average of 5 earthquakes a day. This greatly affects the built-up

communities. Within just 10 years, 5 devastating earthquakes

have been recorded to have killed 15 and injured 119 persons. It

is estimated that P0.207 Billion worth of damages to the

economy is due to these earthquakes. (NDRRMC, 2018)

2.3.2 Human-Induced Hazards in the Philippines

Although natural disasters are more prevalent and more

widespread in the country, the Philippines is also exposed to Human-

induced hazards. This is due to political and socio-economic differences

in the country. This is felt most in the south. The conflict between the

government forces and the Moro Islamic Liberation Front displaced

hundreds of thousands of Filipinos during the first half of the year 2009.

(NDRRMC, 2018)
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 26

Buendia (2005) concluded in his article that centralism of the

state and the limitations on self-governance of minorities, especially the

Muslims of the south, sparks the state-More conflict. He added that the

state’s nation building led to the deprivation of the of ethnic

communities to decide for themselves. He then contented that conflict

will not be resolved until an appropriate institutional framework for

political governance which can accommodate Mindanao’s social and

ethnic diversity is established.

In the recent Marawi Siege, 95% of the city’s population were

displaced. These were over 354,000 people that were forced to relocate

to evacuation centers and sometimes their relatives. (Center for

Excellence, 2018)

2.3.3 Risk Profile of Metro Manila

2.3.3.1 Flood Risk Profile of Metro Manila

According to a new study that evaluates flood prone

areas within Metro Manila (Pornasdoro, Silva, Munarriz, Estepa,

& Capaque,2014), the most vulnerable areas are located along

creeks, riverbanks, and coastal areas. The study shows expected

High and Very High Worst Scenario Risk by the year 2020 and

2030 as seen in table 2 and table 3.

Table 2. High Flood Risk of Metro Manila

City/Municipa High Risk

lity 2020 2030
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 27

620 barangays in Tondo, Sta Cruz, 556 barangays in Tondo, Sta Cruz,
Malate, Sampaloc, Paco, Quiapo, Malate, Sampaloc, Paco, Quiapo,
City of Manila Binondo, Pandacan, Intramuros, Binondo, Pandacan, Intramuros,
Ermita, Port Area near Pasig River Ermita, Port Area near Pasig River
and Tributaries and Tributaries
24 barangays in North Caloocan; 27 barangays in North Caloocan;
Coloocan City
20 barangays in South Caloocan 36 barangays in South Caloocan
Namayan, Hulo, Plainview, Namayan, Hulo, Plainview,
Mandaluyong Mabini – J Rizal, Daang Bakal, Mabini – J Rizal, Daang Bakal,
City Bagong Silang, Addition Hills, Bagong Silang, Addition Hills,
Pleasant Hills Pleasant Hills, Maluway
Makati City Pembo, Rizal
Dampalit, Catmon, Muzon, Dampalit, Catmon, Muzon,
Malabon City Concepcion, San Agustin, Nugan, Concepcion, San Agustin, Nugan,
Ilongos, Potrero Ilongos, Potrero
Jesus Dela Pena, Kalumpang, San Jesus Dela Pena, Kalumpang, San
Marikina City Roque, Sto Nino, Tanong, Roque, Sto Nino, Tanong,
Industrial Valley Industrial Valley
Muntinlupa Putatan Putatan
City
Tangos, Daang-hari, San Jose, Tangos, Daang-hari, San Jose,
North Bay Blvd (North and North Bay Blvd (North and
Navotas City
South), Navotas East and West South), Navotas East and West,
Bangculasi
Parañaque City BF Homes BF Homes, San Antonio
Pasay City 21 barangays along coastal area 23 barangays along coastal area
Rosario, Sta Lucia, Maybunga, Rosario, Sta Lucia, Maybunga,
Pasig City
Kalawaan, Manggahan Kalawaan, Manggahan
Pateros Sta Ana Sta Ana
Municipality
San Bartolome, Nagkakaisang San Bartolome, Nagkakaisang
Nayon, Sta Lucia, Bagong Pagasa, Nayon, Sta Lucia, Bagong Pagasa,
Tatalon, Dona Imelda, Matandang Tatalon, Dona Imelda, Matandang
Quezon City Balara, Culiat, Apolonio Samson, Balara, Culiat, Apolonio Samson,
Ramon Magsaysay, Alicia Ramon Magsaysay, Alicia, Baling
asa, Paltok

Salapan, Progreso , San Perfecto Salapan, Progreso , San Perfecto,

San Juan City
Pasadena
Western Bicutan, Lower, Bicutan, Western Bicutan, Lower, Bicutan,
Wawa, Sta Ana, Bagumbayan, Wawa, Sta Ana, Bagumbayan,
Taguig City
Bagong Tanyag Bagong Tanyag, Ibayo

Marulas, Malinta, General T de Marulas, Malinta, General T de

Leon, Caruhatan, MapulangLupa, Leon, Caruhatan, MapulangLupa,
Valenzuela City
Dalandanan, Isla, Pariancillo Villa Dalandanan, Isla, Pariancillo Villa
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 28

Note: Data of High Flood Risk of Metro Manila in Pornasdoro, K., Silva, L., Munarriz, M.,
Estepa, B., & Capaque, C. (2014). Flood Risk of Metro Manila Barangays: A GIS Based Risk
Assessment Using Multi-Criteria Techniques. Journal in Urban and Regional Planning,
(2014).

Table 3. Very High Flood Risk Profile of Metro Manila

City/Municipal Very High Risk

ity 2020 2030
209 barangays in Tondo, Sta 243 barangays in Tondo, Sta Cruz,
Cruz, Sampaloc, Paco, Quiapo, Sampaloc, Paco, Quiapo, Binondo,
City of Manila Binondo, Pandacan, Intramuros, Pandacan, Intramuros, Ermita, Port
Ermita, Port Area near the Pasig Area near the Pasig River and
River and Tributaries Tributaries

Barangays 8, 12, 14, 35, 36, 168, Barangays 8, 12, 14, 35, 36, 168,
Coloocan City
171, 173, 174, 175, 176, 177,178, 171, 173, 174, 175, 176, 177,178,
180, 181,182,183, 185, 186, 187 180, 181,182,183, 185, 186, 187
Malabon City Tonsuya
Concepcion 1, Nangka, Parang, Concepcion 1, Nangka, Parang,
Marikina City
Malanday Malanday
Navotas City Tanza
Pasay City 10 barangays along coastal area 11 barangays along coastal area
Pasig City Pinagbuhatan Pinagbuhatan
Commonwealth, Payatas, Holy Commonwealth, Payatas, Holy
Quezon City
Spirit, Batasan Spirit, Batasan
San Juan City Rivera Rivera
Taguig City Hagonoy, Signal Village Hagonoy, Signal Village
Wawang Pulo, Tagalag, Coloong, Wawang Pulo, Tagalag, Coloong,
Valenzuela City
Balangkas, Bisig, Malanday Balangkas, Bisig, Malanday
Note: Data of High Flood Risk of Metro Manila in Pornasdoro, K., Silva, L., Munarriz, M.,
Estepa, B., & Capaque, C. (2014). Flood Risk of Metro Manila Barangays: A GIS Based Risk
Assessment Using Multi-Criteria Techniques. Journal in Urban and Regional Planning,
(2014).

2.3.3.2 Geophysical Risk Profile of Metro Manila

A study by the Japan International Cooperation Agency

(JICA), Metropolitan Manila Development Authority (MMDA),

& Philippine Institute of Volcanology and Seismology

(PHILVOLCS), (2004) was done to create scenario earthquakes

in Metro Manila. In that study three models namely Model 08

(West Valley Faults, M 7.2), Model 13 (Manila Trench, M 7.9),

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 29

and Model 18 (1863 Manila Bay, M6.5) were used in order to

provide projected detailed damage analysis.

Among the three models, Model 08 is the worst case.

170,000 residential houses will collapse, 340,000 residential

houses will be partly damaged, 34,000 persons will die, and

114,000 persons will be injured.

A secondary disaster is predicted to occur. This is the

breakout of fire which will burn approximately 1,710 hectares

and kill another 18,000 persons.

Based on the results, urban vulnerability is analyzed.

Found in table 4 are the areas in Metro Manila and their

vulnerabilities.

Table 4. Urban Vulnerability of Metro Manila to Earthquakes

Type of
Vulnerability Area
Flammability and 3) South Eastern Manila City
Evacuation 1) Navotas Bay Area Area
Difficulty 2) Manila North Port Area 4) Central Manila Bay Area
1) North Eastern Quezon
City Area 4) Muntinlupa Laguna Bay
Building Collapse 2) Western Marikina City Area
and Evacuation Area 5) Mandaluyong Makati City
Difficulty 3) Eastern Pasig City Area Border Area
Flammability 1) Valenzuela-Kalookan South-Quezon west intersection
1) Metropolitan
Evacuation Manila Fringes - Taguig Fringe
Difficulty - Northern Fringe - Las Pinas Fringe
Note: Data of Urban Vulnerability of Metro Manila to Earthquakes in Japan
International Cooperation Agency (JICA), Metropolitan Manila Development
Authority (MMDA), & Philippine Institute of Volcanology and Seismology
(PHILVOLCS). (2004). Earthquake Impact Reduction Study for Metropolitan
Manila, Republic of the Philippines.
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 30

In these scenarios, there is also the possibility of the separation

of Metro Manila into Regions. Found in table 5, are the areas and the

reasons for separation.

Table 5. Possible Regional Separation of Metro Manila

Western part of Metropolitan Manila will be
isolated from other part of Metropolitan Manila by
Metropolitan Manila West fire and building collapse
Northern and Southern part of Metropolitan
Manila will be separated by the building collapse
and the geographical condition. The intersecting
area between Mandaluyong and Makati has a high
possibility of building collapse; moreover, Pasig
Metropolitan North, and River is running through east-west which is
Metropolitan South naturally disadvantageous in terms of separation
All road networks running east-west, which are on
the fault will be broken due to the movement.
Other roads running North-South in fault areas
will be difficult to use, due to the high number of
Metropolitan East building collapse.
Note: Data of Urban Vulnerability of Metro Manila to Earthquakes in Japan
International Cooperation Agency (JICA), Metropolitan Manila Development
Authority (MMDA), & Philippine Institute of Volcanology and Seismology
(PHILVOLCS). (2004). Earthquake Impact Reduction Study for Metropolitan
Manila, Republic of the Philippines.

2.4 National Disaster Risk Reduction and Management Plan 2011-2028

The NDRRMP is a comprehensive plan authored by the National Disaster Risk

Reduction and Management to better prepare the country in case of disasters. This

serves as a guide for other Government Agencies towards “Safer, adaptive, and disaster

resilient Filipino communities toward Sustainable development.” The plan comprises

of four thematic areas. These include, Disaster Prevention and Mitigation, Disaster

Preparedness, Disaster Response, and Disaster Rehabilitation and Recovery.

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 31

2.4.1 Thematic Area 1: Disaster Prevention and Mitigation

The Department of Science and Technology is responsible for this

thematic area that includes the integration of the DRRM and CCA to the

national, sectoral, regional and local development policies, plans and budgets.

Also increasing infrastructure systems resiliency, community-based

assessment, mapping, monitoring, and analysis, and also establishment of early-

warning systems.

2.4.2 Thematic Area 2: Disaster Preparedness

This area includes increasing awareness, skills, and capabilities of the

Filipinos in response to disaster hazards and its impacts. Also, this includes the

development and implementation of local and national response policies, plans

and systems. Overall responsible agency is the Department of Interior and Local

Government.

2.4.3 Thematic Area 3: Disaster Response

Headed by the Department of Social Welfare and Development, this

area requires the disaster response operations, assessment of needs and

damages, search and rescue, timely evacuation, temporary shelter

establishment, basic social services, psychosocial needs, and early recovery

implementation.

2.4.4 Thematic Area 4: Disaster Rehabilitation and Recovery

The National Economic and Development Authority is the overall

responsible agency for this thematic area. Damages, losses and needs are to be

assessed. Economic activities must be restored. The NHA shall rebuild or repair
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 32

houses to be more disaster resilient. Infrastructure must also be constructed or

reconstructed stronger against disaster and climate change.

(NDRRMC, 2018)

2.5 The Psychology of Disaster Victims

2.5.1 Transactional Stress Coping Model

There are two identified models of stress coping strategies. These are

Emotion-focused and Problem-focused Coping.

2.5.1.1 Emotion-focused Coping Strategy

Emotion-focused coping strategy is where the individual is not

dealing directly at the stressors but with its negative impact on the

person. A study found that homeless women in a shelter had a chance to

distract their minds, get away, and seek social support through leisure

activities.

2.5.1.2 Problem-focused Coping Strategy

Problem-focused coping, is when the individual approaches the

stressors directly. This approach directs at the individual’s environment,

changing environmental pressures, increasing coping resources, and the

person's self and how the individual generates and weighs alternative

solutions. Some examples of this are humor and laughter infused in

everyday life.

(Kono, & Shinew, 2015).

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2.5.2 Roles of Leisure in the Post-Disaster Life

According to a study by Kono and Shinew (2015), three purposes of

Leisure emerged in the Post-disaster life of the Victims of the Great East Japan

Earthquake (GEJE). These activities gave an opportunity for the victims to

Explore New Purpose in Life, became a source of Normalcy and Continuity,

and Context to Express Personal Transformation.

2.5.2.1 Opportunity to Explore New Purpose in Life

Victims of the GEJE had said on record that they were looking

forward to their Leisure which they called tanoshimi. Some of the

volunteers interviewed by the authors said that going to the day service

gave them something to look forward to. Another survivor said that

going to weekly handicraft events changed her attitude towards life after

the disaster. One survivor who was a competitive marathon runner said

that there were two goals of his life, that is to run in a marathon and

restoring his destroyed home. For another survivor that was part of a

garden restoration project said that gardening brought back her long-

term perspective in life.

2.5.2.2 Source of Normalcy and Continuity

According to the authors, the disaster has disrupted a sense of

normalcy and continuity for the survivors. They said that participating

in leisure activities that they used to do before the disaster gave them a

sense of normalcy and continuity. One interviewed survivor said that

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 34

resuming his leisure activities improved ‘rhythms’ in his life as a

survivors, therefore providing a sense of normalcy.

More benefits of the resumption of Leisure activities made the

survivor feel that they were regaining their sense of self.

2.5.2.3 Context to Express Personal Transformation

This is mainly focused on the Altruistic Activities. Participating

in these kinds of activities and voluntary work gave the survivors a sense

of expressing their gratitude for the ones that helped them in their Post-

disaster Life. One survivor who blames himself for the death of his wife

and sister-in-law, said that they would’ve survived if he warned them

earlier. He then started a project of producing local instant noodles as an

expression of his gratitude for volunteers, and a way for moving forward

and stop blaming himself.

(Kono and Shinew, 2015)

2.5.3 Three-Level Stepped-Care Framework

This was developed in Australia, by the locals, as a guide for

approaching varied mental health needs of those affected by disasters. This is

used as a guide for local experts in training for lay personnel and practitioners.

Level 1: Early Response

This is used immediately after the Disaster. This includes

providing advice, support, and information to individuals and even for

the community. Given the possibility of mental health issues, this level

only provides support and advice, but not a medical diagnosis and
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 35

treatment for mental health. This level is on par with Psychological First

Aid (PSA).

Level 2: Strength-based Skills

If mild to moderate distress persist, improvement in coping and

recovery can be achieved through strength-based skills of individuals.

This action can be done by community members with basic training and

often sufficient for persons with acute to mild reactions.

Level 3: Intensive Mental Health Treatment

This includes evidence-based psychological and

pharmacological interventions provided by mental health specialists.

This is given to those who display persistent and severe distress in the

following weeks and months after the disaster.

(Wade et al., 2014)

2.6 Housing Design

2.6.1 Self-Help Construction

According to Bredenoord and Lindert (2014), self-help development in

its purest form is an owner-occupier that will construct everything by himself,

without paid contractors, but possibly with the help of family members or

friends. Self-managed is different in such ways that the owner-occupier

manages all building activities. In most cases, he does not partake in the

construction activities, but hire workers for specialized craftsmanship.

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 36

One of the prime responsibilities of the state is to assist and improve

conditions for the citizens to perform self-help development according to the

rights-based do-it-yourself approach. In such ways, citizens can fully develop

and improve housing conditions by themselves in a safe and dignified way.

In table 6, the authors demonstrated a comparison between Formal

housing provisions and Informal (self-help) Provisions.

Table 6. Formal vs. Informal (self-help) Housing Provisions

Formal Housing Provision Informal (self-help)

Provision

Deployment Planning Occupation

Cycle Servicing Building
Building Servicing
Occupation Planning

Commissioning State Housing Institution Owner-Occupier

of Construction Local Government Housing Cooperative
Private Real Estate Developer Community Group
Building Company
Housing Cooperatives

Funding Banks (loans, mortgages) Family (savings or loans)

Government Funding (loans and Microfinance Institutions
tax incentives) (loans)
Government Subsidies NGOs (donations and loans)
Employer Organizations (loans) Charity Organizations,
International Organizations churches, etc. (donations)
(donations or loans) Loans by Private Parties
Savings and Credit associations

Payment Rents Short-term installment for Plot-

Payment in installments Purchase
(mortgages) Savings for
expansion/improvements of
self-build house
Microfinance

Construction Construction Companies (often Family, friends

non-local) Construction Workers (from
household’s network)
Informal building contractors
(local)
Note. Data of Formal vs. Informal (self-help) Housing Provisions in Bredenoord, J., van Lindert, P., &
Smets, P. (2014). Affordable Housing in the Urban Global South: Seeking sustainable solutions. 2 Park
Square, Milton Park, Abingdon, Oxon OX14 4RN: Routledge.
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 37

2.7 Offsite Architecture

According to Richard (2017) all of the construction materials today are now

fully industrialized, but not the building itself. A fully industrialized building system is

product-oriented. Although the product is not the building in its entirety,

industrialization focuses on the development of a building system.

2.7.1 Three basic Industrialized Building Systems

There are essentially three types of Industrialized Building Systems. The

first one is the site-intensive kit-of-parts which concentrate on the

manufacturing of different parts by different manufacturers and then delivered

to the site for assembly. The second one is the factory-made 3D module which

completes modules in the factory of divided volumetric modules of a building,

and then easily connected and finished on the site. The third one is a hybrid of

the two. In this system, it manufactures complex parts in the factory and

constructs heavy and large-scale parts on the site. (Richard, 2017)

2.8 Transportable Structures

Transportable structures are defined as structures that are transported in parts

and assembled on site. This structure can usually be transported in compacted forms

and are more flexible in size and layout.

2.8.1 Small-Scale Transportable Buildings

Small-scale transportable buildings are dedicated to solving specific

needs efficiently and satisfactorily. Some of the characteristics of this kind of

transportable buildings are tools for users to customize buildings, adaptability

of parts in other structures, provide education through hands on assembly and

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 38

dismantling, commercial benefits due to its unusual design, design innovation

through its usage on design experiments, flexible in function, lightness, low-

budget therefore low risks, opportunity for local construction materials, short

construction and dismantling time, simplicity, small building site, and of course

small working team.

(Xi, 2018)
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 39

Chapter III: Research Methodology

3.1 Research Method

3.1.1 Qualitative Research

Qualitative research method is being used for this research and

focuses on people’s interpretation of events. This method is to study

things and interpret them according to what people give them meaning.

The researcher also plays an integral part in interpreting the data. This

method is to explore every participant’s interpretation of their

circumstances. Encouraging first-hand encounter with phenomenon and

data.

3.2 Research Design

3.2.1 Historical Research

The researcher shall use historical research to account for past

occurrences and changes in approach. This will also help the researcher

map out the existing trend of phenomenon that is related to the study.

3.2.2 Descriptive Research

This method is used in order to gather data on the existing

conditions and present phenomena related to the study. This method

research design involves surveys, personal interviews, observations,

case studies, developmental studies, follow-up studies, documentary

analysis, trend analysis, and correlational studies.

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 40

3.3 Data Collection Techniques

3.3.1 Library Research

Library research is used to access published books, magazines,

journals, articles and other print publications that are available on the

library which are considered as legible sources of data related to the

topic.

3.3.2 E-Sources Research

Information and Data gathering electronically is used to gather

latest information available. This platform also has available accounts

on current events and public opinion, as well as on-the-record statements

persons involved with the topic.

3.3.3 Key-Informant Interview Questions

The researcher shall conduct personal interviews with key-

informants related to the study. This allows acquisition of additional

information. Especially personal accounts of phenomena relating to the

topic.

3.3.4 Case Studies

The researcher shall conduct case studies about existing

conditions and situations of the topic, in order to gather sufficient data

and make way for analysis on the data gathered.

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 41

Chapter IV: Site Profile and Analysis

The site selection and analysis for the Emergency Shelter Assistance for

Internally Displaced Persons of Disasters is to layout criteria for choosing appropriate

and feasible sites, choose the best site according to said criteria, and provide a basis for

future deployment of the design to Disaster affected areas. Application of the design

shall be applicable to multiple sites that are considered appropriate according to the site

criteria.

However, for this study and demonstration purposes, selection of sites and users

is upon assumption of future disasters that are based on evaluations of the vulnerability

of areas within Metro Manila. The site selection will solely be based on projected

conditions of Metro Manila and design accordingly to those conditions.

In this study, Post-disaster conditions will be based on a study by the Japan

International Cooperation Agency (JICA), Metropolitan Manila Development

Authority (MMDA), & Philippine Institute of Volcanology and Seismology

(PHILVOLCS), (2004). The study has projected the aftermath of ‘The Big One’

according to vulnerability studies. For the purposes of this study, the projected

conditions of Model 08 of their study shall be referred to as Scenario A.

Scenario A

This scenario is the projected impact of a West Valley Faults, Magnitude 7.2

that will occur on Metro Manila. It is predicted that 170,000 residential houses will
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 42

collapse, 340,000 residential houses will be partly damaged, 34,000 persons will die,

and 114,000 persons will be injured.

A secondary disaster is predicted to occur. This is the breakout of fire which

will burn approximately 1,710 hectares and kill another 18,000 persons.

It is assumed that the system disruption will likely be overwhelming. And Metro

Manila will need several years to rehabilitate and return to an acceptable performance

level. Evacuation and relocation to a safer region will be required.

Disaster Response will provide Temporary Shelter Assistance to IDPs but in

several clustered locations because of the overwhelming demand.

4.1 Site Criteria

4.1.1 Land Availability

The site required should be available at the time of disaster. In cases of

lack of available land within Metro Manila, the nearest region to the original

homes of the Internally Displaced Persons shall be selected. In the event of the

destruction of infrastructure and residential structures, site clearing shall be

applicable as long as it can be added to the scheduling of completion of the

project.

Land Size is upon the assessment of the number of Internally Displaced

Persons that will need immediate Shelter Assistance. A formula shall be

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 43

provided for the computation of the required land area based on the number of

users.

5 - Land Area exceeds a 100% more than the required area based on the
number of users. The land is empty and immediately available for
construction.

4 - Land Area exceeds an 80% more than the required area based on the
number of users. The land is empty and immediately available for
construction or is able to be cleared out within a month after the disaster.

3 - Land Area exceeds a 20% more than the required area based on the
number of users. The land is able to be cleared out and ready for
construction within 3 months after the disaster.

2 - Land Are is able to meet the required minimum area based on the
number of users. The land is able to be cleared out and ready for
construction within 5 months after the disaster.

1 - Land Are is able to meet the required minimum area based on the
number of users. The land is able to be cleared out and ready for
construction within 10 months after the disaster.

4.1.2 Land Use and Zoning

The site is preferably a government-owned property. If not, the Land use

is preferably Agricultural, Institutional, and Low-density Residential. Any land

use and zoning shall be applicable given that the site will not be used until the

scheduled disassembling and site clearing of the project.

5 - Land Use and Zoning is Residential and the property is owned by the
government. The site has no projected use within the time frame of the
project.

4 - Land Use and Zoning is Agricultural, Institutional, or Low-density

Residential. The site has no projected use within the time frame of the
project.

3 - Land Use and Zoning is not Agricultural, Institutional, or Low-

density Residential. The site has a projected use within the time frame
of the project and has a 5-month overlap until the dismantling of the
project.
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 44

2 - Land Use and Zoning is not Agricultural, Institutional, or Low-

density Residential. The site has a projected use within the time frame
of the project and has a year overlap until the dismantling of the project.

1 - Land Use and Zoning is not Agricultural, Institutional, or Low-

density Residential. The site has projected use within the time frame of
the project and has a 2-year overlap until the dismantling of the project.

4.1.3 Climate

Climate shall be adequate and has the least exposure to natural hazards.

Preferably, the site shall have a climate for comfortable living. The site shall not

be located in areas of high precipitation rate and areas exposed to extreme

temperature and pollution.

5 - The site has no exposure to natural hazards. The climate is adequately

comfortable for residential use. The site has low precipitation rate, and
is not exposed to extreme temperature and pollution.

4 - The site has no exposure to natural hazards. The climate is somehow

adequately comfortable for residential use. The site has moderate
precipitation rate, and has little exposure to extreme temperature and
pollution.

3 - The site has no exposure to natural hazards. The climate is not

adequately comfortable for residential use. The site has moderate
precipitation rate, and has moderate exposure to extreme temperature
and pollution.

2 - The site has little exposure to natural hazards. The climate is not
adequately comfortable for residential use. The site has moderate
precipitation rate, and has moderate exposure to extreme temperature
and pollution.

1 - The site has little exposure to natural hazards. The climate is not
adequately comfortable for residential use. The site has moderate to high
precipitation rate, and has moderate exposure to extreme temperature
and pollution.
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 45

4.1.4 Vegetation

Land shall have vegetation and the potential for the development of

gardening and agriculture activities. Preferably adjacent to existing natural

sources of food.

5 - The site has existing vegetation that are not obstructions to

construction. The site has the potential for development of gardening
and agriculture activities.

4 - The site has existing vegetation that are somehow obstructions to

construction. The site has the potential for development of gardening
and agriculture activities.

3 - The site has no existing vegetation. But has the potential for
development of gardening and agriculture activities.

2 - The site has no existing vegetation. But has some potential for
development of gardening and agriculture activities.

1 - The site has no existing vegetation. The site has no potential for
development of gardening and agriculture activities.

4.1.5 Soil Condition

Soil type shall be adequate for a mid-rise building without the extra costs

of engineering interventions. Sites that have the possibility for erosion and

liquefaction shall not be used.

5 - The site is adequate for a mid-rise building without the extra costs of
engineering interventions. Has no possibility of erosion and
liquefaction.

4 - The site is adequate for a low-rise building without the extra costs of
engineering interventions. Has no possibility of erosion and
liquefaction.
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 46

3 - The site is adequate for a mid-rise building with the extra costs of
engineering interventions. Has no possibility of erosion and
liquefaction.

2 - The site is adequate for a low-rise building with the extra costs of
engineering interventions. Has no possibility of erosion and
liquefaction.

1 - The site is adequate for a low-rise building with the extra costs of
engineering interventions. Has little to no possibility of erosion and
liquefaction.

4.1.6 Topography

Site shall have a maximum of 8% slope only. Must be located on higher

areas that are not vulnerable to flooding.

5 - The site, in its entirety, is below the required minimum slope and is
not exposed to flooding.

4 - The site, in its entirety, is at the required minimum slope and is not
exposed to flooding.

3 -The site, in its entirety, is slightly above the required minimum slope
and is not exposed to flooding.

2 - The site, in its entirety, is slightly above the required minimum slope
and is adjacent to areas exposed to flooding.

1 - The site, in its entirety, is above the required minimum slope and is
exposed to low level flooding.

4.1.7 Transportation

The site should have access to transportation for construction. The site,

in the completeness of the project, shall be accessible by multiple public

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 47

transportation and can be considered as an easy commute to and from livelihood

opportunities, educational, institutional, and commercial services.

5 - The site has road access for construction. The site is accessible by
multiple public transportation and can be considered as an easy
commute to and from livelihood opportunities, educational,
institutional, and commercial services.

4 - The site has road access for construction. The site is accessible by
multiple public transportation and can be considered as moderate
commute to and from livelihood opportunities, educational,
institutional, and commercial services.

3 -The site has road access for construction. The site is accessible by
multiple public transportation but can be considered as a difficult
commute to and from livelihood opportunities, educational,
institutional, and commercial services.

2 - The site has road access for construction. But needs additional
interventions to be accessible by multiple public transportation to
livelihood opportunities, educational, institutional, and commercial
services.

1 - The site has no road access for construction. And needs additional
interventions to be accessible by multiple public transportation to
livelihood opportunities, educational, institutional, and commercial
services.

4.1.8 Utilities

The site shall be readily serviceable by Electricity, Water, and Sanitary

facilities.

5 - The site readily serviceable by Electricity, Water, and Sanitary

facilities.

4 - The site not readily serviceable by Electricity, Water, and Sanitary

facilities. Installation will take up to 2 weeks after completion of
construction.

3 -The site not readily serviceable by Electricity, Water, and Sanitary

facilities. Installation will take up to 1 month after completion of
construction.
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 48

2 - The site not readily serviceable by Electricity, Water, and Sanitary

facilities. Installation will take up to 3 months after completion of
construction.

1 - The site not readily serviceable by Electricity, Water, and Sanitary

facilities. Installation will take up to 5 months after completion of
construction.

4.1.9 Safety and Security

In the events of a Human-Induced and Geophysical Disasters, the

NDRRMC shall provide the safest minimum distance from the origin of the

Disaster

5 - The site is above 50% more than the minimum distance and has no
exposure to hazards.

4 - The site is above 30% more than the minimum distance and has no
exposure to hazards.

3 - The site is above 10% more than the minimum distance and has no
exposure to hazards.

2 - The site is at the minimum distance and has no exposure to hazards.

1 -The site is slightly below the minimum distance and has little to no
exposure to hazards.

4.1.10 Adjacent Structures

The site shall not be located adjacent to potentially hazardous structures.

5 - The site is not located adjacent to potentially hazardous structures.

4 - The site is not located adjacent but in close proximity to potentially

hazardous structures.

3 - The site is located in close proximity to potentially hazardous

structures.

2 - The site is located adjacent to potentially hazardous structures.

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 49

1 - The site is located adjacent to hazardous structures.

4.1.11 Adjacent to the Disaster Affected Area

The site shall be located at the nearest possible safe distance from the

disaster affected area in order to relocate Internally Displaced Persons near their

original homes. This will also increase livelihood opportunities for those who

will choose to work with the rehabilitation and recovery programs of the disaster

affected area.

The site to be selected for the demonstration of this prototype design

shall be located adjacent to the projected Scenario A.

5 - The site is adjacent to the Disaster Affected Area but has no exposure
to hazards.

4 - The site is at an accessible distance to the Disaster Affected Area

but has no exposure to hazards.

3 - The site is somehow at an accessible distance to the Disaster Affected

Area but has no exposure to hazards.

2 - The site is not accessible to the Disaster Affected Area but within
Metro Manila. The site has no exposure to hazards.

1 -- The site is not accessible to the Disaster Affected Area and not
within Metro Manila. The site has no exposure to hazards.

4.1.12 Available Public Services

The selected location shall have available access to Institutional,

Educational and Government Services. Preferably on walking distance from

the site. It should also be considered that existing services will not be

overwhelmed by the number or users.

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 50

5 - The site adjacent to Institutional, Educational, and Commercial

establishments. The existing Public Establishments will not be
overwhelmed by the number of users.

4 - The site is at walking distance to Institutional, Educational, and

Commercial establishments. The existing Public Establishments will not
be overwhelmed by the number of users.

3 - The site is at commutable distance to Institutional, Educational, and

Commercial establishments. The existing Public Establishments will
slightly be overwhelmed by the number of users.

2 - The site is at commutable distance to Institutional, Educational, and

Commercial establishments. The existing Public Establishments will be
overwhelmed by the number of users.

1 - The site is not at commutable distance to Institutional, Educational,

and Commercial establishments.

4.1.13 Opportunities of Livelihood

The selected location shall have available access to Livelihood

opportunities. Or at least have access to efficient public transportation to

available livelihood.

5 - The site has livelihood opportunities within walking distance

4 - The site has livelihood opportunities within short commutable

distance

3 - The site has livelihood opportunities within the region.

2 - The site has no livelihood opportunities within the region but has
efficient public transportation to regions with livelihood opportunities.

1 - The site has no livelihood opportunities within the region and has
no efficient public transportation to regions with livelihood
opportunities
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 51

4.2 Site Proposal

4.2.1 Site A

Figure 1. Site A

Source: https://www.google.com/maps

Location: Bocaue, Bulacan

Lot Area: Approximately 100,000 SQM

This site is accessible by the North Luzon Expressway. It is adjacent to

the Bocaue Municipal Hall. As seen in figure 1, the site has existing road

networks and fencing. Almost 50% of the site is used for agriculture. It should

be considered that the borders of the site are located adjacent to a creek. Across

the expressway is the Philippine Arena.

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 52

Figure 2. Site A Vicinity Map

Source: https://www.google.com/maps

The site is accessible by the Igulot Road which leads to MacArthur

Highway at about 1.2 kilometers or a ten-minute walk. MacArthur Highway has

many commercial establishments and public transportation that leads to a

number of Institutional and Educational establishments. These includes MT.

Carmel College, Jesus Is Lord Colleges Foundation, Inc, St. Paul College of

Bocaue, Dr. Yanga's Grade School Campus, St. Paul Hospital Bulacan, Inc.,

Bocaue Specialist Medical Center, and many others.

4.2.2 Site B

Figure 3. Site B

Source: https://www.google.com/maps
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 53

Location: San Juan, Apalit, Pampanga

Lot Area: Approximately 280,000 SQM

This site is accessible by the North Luzon Expressway. Although there

is limited access roads to this site, it is adjacent to a complex being developed

as a convention center by Ang Dating Daan. The complex is directly accessible

by MacArthur Highway. It should be considered that a number of irrigation

systems and fish ponds are at the perimeter of the site. Road Access is limited

to unpaved single lane streets.

Figure 4. Site B Vicinity Map

Source: https://www.google.com/maps

Just around 800 meters or a nine-minute walk from the site is the

Pampanga Premier Medical Center. Along MacArthur Highway are a number

of Commercial Establishments. Apalit Public Market is within the vicinity of

the site. Public Transportation is also available along MacArthur Highway. The

civic center of Apalit which includes the Apalit Municipal Hall, Apalit Post

Office, Apalit Fire Station, and Apalit Technical High School, is also at

commutable distance.
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 54

4.2.3 Site C

Figure 5. Site C

Source: https://www.google.com/maps

Location: Del Carmen, San Fernando, Pampanga

Masamat, Mexico Pampanga
Lot Area: Approximately 312,000 SQM

The site is an unoccupied subdivision. It has existing road networks.

This site is accessible by the North Luzon Expressway. Although it is two hours

away from Metro Manila, the site itself is located in the City of San Fernando.

At 1.5 km from the site is the Jose Abad Santos Avenue, which is the main route

of public transportation. The site is designed for Residential Use and located

near the City Center.

Figure 6. Site C Vicinity Map

Source: https://www.google.com/maps
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 55

The site is adjacent to SM City Pampanga and Robinsons’ Starmill. The

Civic Center of Pampanga is a 30-minute commute from the site. Although the

cost of living is more expensive than in rural areas, it should be recognized that

the City is Urbanized and has lots of livelihood opportunities. Public Transport

is also well established in the area.

4.3 Site Evaluation

Table 7. Site Evaluation

Site Criteria Equivalent Site A Site B Site C
Site Condition 50% Score Equivalent Score Equivalent Score Equivalent
Land Availability 20% 5 1 4 0.8 4 0.8
Land Use and Zoning 15% 4 0.6 4 0.6 5 0.75
Climate 10% 4 0.4 4 0.4 5 0.5
Vegetation 5% 5 0.25 5 0.25 4 0.2
Soil Condition 5% 4 0.2 4 0.2 5 0.25
Topography 10% 5 0.5 5 0.5 5 0.5
Transportation 15% 5 0.75 5 0.75 5 0.75
Utilities 10% 3 0.3 3 0.3 5 0.5
Safety and Security 5% 5 0.25 4 0.2 4 0.2
Adjacent Structures 5% 5 0.25 4 0.2 4 0.2
Average 4.5 Average 4.2 Average 4.65

Site Criteria Site A Site B Site C

Location 50% Score Equivalent Score Equivalent Score Equivalent
Adjacent to the
Disaster Affected 30%
Area 5 1.5 4 1.2 3 0.9
Available Public
35%
Services 4 1.4 5 1.75 4 1.4
Opportunities of
Livelihood 35% 3 1.05 3 1.05 5 1.75
Average 3.95 Average 4 Average 4.05

Overall
Score Site A 4.225 Site B 4.1 Site C 4.35
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 56

4.4 Selected Site Description and Justification

Figure 7. Selected Site

Source: https://www.google.com/maps
Location: Del Carmen, San Fernando, Pampanga
Masamat, Mexico Pampanga
Lot Area: Approximately 312,000 SQM

The land area is sufficient to cater maximum density of users. The site has an

established Road Network for Residential use. Although the priority is to relocate IDPs

closer to Metro Manila, and the chosen site is 2 hours away from Metro Manila, in this

Scenario, it should be considered that Metro Manila will have a very low Performance

and will need intensive Rehabilitation in order to return to its optimum performance. It

should also be considered that the Rehabilitation program could take several years. And

any present opportunities in Metro Manila would likely be unavailable when Scenario

A occurs. It is safe to assume that a relocation to a different region is preferred.

Livelihood Programs are available within the vicinity. The underutilized land is

assumed to benefit from the users of the project. Public Transportation is sufficient for

the users. In cases of the users’ desire to participate in the Rehabilitation Program in

Metro Manila, the site is accessible by public transportation through the North Luzon

Expressway.
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 57

Chapter 5: Project Profile and Analysis

5.1 Market Study

5.1.1 Industry overview

The Philippines has a long history of natural and human-induced

disasters. With the efforts of the National Government, together with leading

agencies like the National Disaster Risk Reduction and Management Council

(NDRRMC), the country is now following the NDRRM Plan in order to

increase Disaster Resilience of Filipinos. Included in the plan is the provision

of the Transitory Shelter as part of the Thematic Phase 3: Disaster Response

headed by the DSWD. These shelters have been deployed in many locations in

the country in the past disasters of the country.

Typhoon Yolanda in November 2013 displaced over 4 million persons.

381 evacuation centers were opened and hosted 101,527 people. 3,993,753

displaced persons lived outside evacuation centers. (ACAPS, 2014). According

to a report (Meniano, 2014), Mr. Tabacon, Assistant Regional Director of the

DPWH, said that they initially targeted to build 500 units of bunkhouses, but

there was a lack of available land, so he said they will build half of that. These

bunkhouses each cost Php 833,000 and have 12 to 24 rooms each. When

completed, these bunkhouses can house 3,000 to 5,000 families.

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 58

Mr. Tabacon went on and said that they welcome those who want to

build bunkhouses at a cheaper cost. But he has mentioned that no one came at

the time.

Since the Marawi Siege back in 2017, the NHA has committed to

construct 6,700 temporary shelters while an additional 2,400 permanent shelters

were to be completed by San Miguel Corporation with technical assistance from

the NHA. The first batch of families was relocated to the first 500 shelters

completed in December 2017. As of the annual report 2018 of the NHA, there

are a total of 5 housing sites intended for Marawi IDPs. Construction of these

shelters is to be continued until 2021. (National Housing Authority, 2019)

In the more recent Typhoon Mangkut (locally known as Onpong) in

2018, more than 236,000 persons were displaced. There are at least 1,780

evacuations centers being used by 162,300 people who are seeking shelter. And

more than 73,600 people are staying with host families. The typhoon has been

reported to have damaged almost 44,600 houses including more than 3,600

houses that are totally destroyed. People have been reported to have returned to

their damaged houses, but there is still a number of families staying with host

families. (Philippines Humanitarian Country Team, 2018).

5.1.2 Target Market

The target market is the Internally Displaced Persons of Disasters that

have no alternative settlement options. These are the families that have partially

or totally damaged houses, and initially reside on Evacuation Centers. These

families seek alternative shelters that will host prolonged stay.

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 59

Most of these IDPs are members of poor to low-income families. These

disaster-affected persons need assistance from the government and other

donors. These families will be dependent on relief resources from the

government and other donors in order to sustain themselves.

The families that will receive shelter assistance should be in accordance

with the guidelines released by the DSWD, which is the Administrative Order

No. 09 Series of 2014 titled “GUIDELINES IN THE IMPLEMENTATION OF

TEMPORARY SHELTER ASSISTANCE AND PRIORITIZATION OF

VICTIMS OF DISASTER/ INTERNALLY DISPLACED PERSONS

THERETO”

5.1.2.1 Market Size

Market Size will solely depend on the Rapid Damage

Assessment and Needs Analysis (RDANA) and the number of

IDPs of the current disaster. However, the need for preparedness

for the volume of the users is needed. In order to do so, a report

(Internal Displacement Monitoring Center, 2019) on the number

of IDPs is presented.
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 60

Figure 8. Annual Conflict Displacement Figures

Note: Data of Annual conflict displacement figures on the Internal Displacement Monitoring
Center. (2019). Country Profile on the Philippine. Retrieved from http://www.internal-
displacement.org/countries/philippines

Figure 9. Annual Disaster Displacement Figures

Note: Data of Annual conflict displacement figures on the Internal Displacement Monitoring
Center. (2019). Country Profile on the Philippine. Retrieved from http://www.internal-
displacement.org/countries/philippines

Based on the analysis of the data, IDMC presents data on displacement

risks based on the probability of future hazard scenarios. Presented in figure

10, is the average expected number of displacements per year.

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 61

Figure 10. Risk of Future Displacement

Note: Data of Annual conflict displacement figures on the Internal Displacement Monitoring
Center. (2019). Country Profile on the Philippine. Retrieved from http://www.internal-
displacement.org/countries/philippines

5.2 Client Profile

5.2.1 Brief History of DSWD DREAMB

Department of Social Welfare and Development Disaster Response

Assistance and Management Bureau (DSWD-DREAMB) is an agency that

evolved from Protective Services Bureau, which was then the Protective

Management Bureau. It was headed by the Division chief and consisted of 20

personnel and of four units.

The Memorandum Circular (MC) No.1 series of 2012 placed the Risk

Reduction and Management Bureau of the Protective Services Bureau. Also in

that year, Disaster Risk Reduction and Response Operations Office (DRRROO)

was internally created through the DSWD MC No. 25 series of 2012. In the year

2014, the DROMIC was placed under the Assistant Secretary due to the increase

in the demand for Disaster-Related Information.

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 62

In the year 2015, DSWD Administrative order No. 2 created the Disaster

Response Assistance and Management Bureau (DREAMB). DRRROO and

DROMIC were merged and became part of the new Bureau. Warehouse

Management and Donation Facilitation Division was transferred under the

General Administration and Support Services Group (GASSG) to the National

Operations Office (NROO).

The DSWD AO No. 3 series of 2015: Disaster Response Operations

Guidelines established its protocols and levels of disaster response operations.

This established roles of each Office, Bureau, Service, and Unit (OBSU) for

every alert level.

Listed below in Table 8 are the past disasters and the Agency’s

responses:

Table 8. DSWD-DREAMB Major Disaster Responses

Humanitarian Affected
Disaster Status
Assistance Families

There are 6,205 families who

benefited from MSAP and
now living in disaster-resilient
permanent houses in safe
zones in the provinces of
Typhoon
₱59,709,643.57 118,113 Misamis Oriental, Lanao del
Sendong (2011)
Norte, and Bukidnon. The
remaining 2,874 shelter units
are targeted to be completed
and turned over by the end of
2016.
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 63

A total of 48,680 families with

Typhoon Pablo ₱1,677,971,411.0 totally damaged houses in safe
711,682
(2012) 0 areas were provided with
ESA.
There are 2,720 families
Zamboanga
₱534,304,687.29 23,794 currently living in recovery
Siege (2013)
shelters in 12 relocation sites.
There were 25,924 families
provided with ESA. Each
family-beneficiary received a
shelter kit worth ₱10,000.00.

Bohol
There are 2,697 families who
Earthquake ₱65,692,711.00 671,099
are beneficiaries of MSAP
(2013)
and now living in houses built
to withstand various natural
disasters. The remaining
5,535 shelter units will be
completed and turned over
within 2016.
The Department provided
ESA to 462,788 families with
totally damaged houses in safe
areas and to 640,110 families
Super Typhoon ₱4,418,834,561.7 with partially damaged
1,472,251
Yolanda (2013) 0 houses. While, 910 families
were provided with CSAP. A
total of 66,785 individuals
benefited from the CFW
program.
Data in DSWD-DRMB Major Disaster Responses in DREAMB Administrator. (2016, June 25).
DSWD-DRMB History. Retrieved September 14, 2019, from
https://dreamb.dswd.gov.ph/?p=100

5.2.2 General Overview

The activation of the Disaster Response Pillar during disaster response

operations is the responsibility of the department. The department is to monitor

and provide an immediate response to the population affected by the disaster.

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 64

There are mainly three functions the department has to perform. One is to

provide augmentation support to the disaster-affected local government units

(LGUs) whenever their funds are exhausted. Another is to assume the functions

of the LGUs in disaster relief operations depending on the magnitude of the

impacts or devastations. The other is to lead the clusters under the department,

namely: FNFI, CCCM, and IDP Protection. As the in-charge department, it is

to lead in prepositioning and provision of FNFIs in the affected LGUs, ensure

the availability of safe, secure, and accessible evacuation centers, and protection

of IDPs within the evacuation camps.

To ensure the coherence of the response operations by mobilizing

partner agencies, organizations and non-government organizations (NGOs), it

is needed to institutionalize the cluster approach down to the Field Office (FO)

level.

Aiming to register all disaster-affected families in order to provide

access to resources, Disaster Assistance Family Access Cards (DAFACs) is

produced and distributed by the LGUs. This will identify and help the system

avoid duplication and therefore ensure everyone is provided assistance.

The Department enhanced the composition of FFPs. Standby funds for

each FO have also increased from ₱1,000,000.00 to ₱3,000,000.00. Stockpile

has also increased from 5,000 to 3,000 at each FO and from 10,000 to 100,000

at the NROC. In case FOs are in need of support during disaster response

operations, Department-Wide Quick Response Teams (QTRs) are also

established.
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 65

5.2.3 Client Vision

“Committed to become the world’s standard in the promotion of

a safe and resilient Filipino Society, we envision a DSWD that provides

timely, inclusive, apolitical, accountable, efficient, and effective services

in the management of disaster response”

5.2.4 Disaster Response Clusters

The four units of the agency are Preparedness, Response, Rehabilitation,

and Disaster Response Monitoring and Information Center (DROMIC). The

main function of the division focuses on Food and Non-Food Items (FNFI),

Camp Coordination and Camp Management (CCCM), and Internally Displaced

Person (IDP) Protection. Part of its program’s deliverables is the provision of

Family food packs (FFPs), Non-food items, Cash-/Food-for-Work, Emergency

Shelter Assistance (ESA), and Core/Modified Shelter Assistance Program

(C/MSAP).
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 66

5.2.6 Organizational Chart

Figure 11. DSWD Organizational Chart

5.3 User Profile

Table 9. User Profile

User
Classification User Group Users Description Population

This is an extremely vulnerable group

to specific health issues and domestic
violence. Pregnant and lactating
mothers require special needs
including Reproductive Healthcare
and Special Facilities. This group
require the establishment of Women-
Friendly Spaces (WFS) including a
Women breastfeeding area Varies

These group composes mostly of

Men heads of their families Varies

This group is extremely vulnerable.

Some children may be street children,
orphaned or young parents. This
group require the establishment of
Children Child-Friendly Spaces (CFS) Varies
Disaster-Affected
Persons This group requires specific camp
(Internally conditions and special facilities.
Displaced These users are mostly dependent on
Primary User Persons) Elderly family heads. Varies
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 67

This group requires accessible

facilities in accordance with the BP
PWDs 344 Accessibility Law Varies

This are IDPs that are assigned as

leaders of groups of fellow IDPs, by
the ECMTs for efficient
communication and organization of
Group the camp. These leaders are the focal
Leaders points of the ECMTs of the IDPs. Varies

Evacuation
Center Camp Managers are deployed by the 1 in every
Manager DSWD-DREAMB site

Assistant 1 in every
Manager 200 families

Administrati
ve/Records 1 in every
Officer 200 families

Registration
/Survey and
Master
listing

Accommod
ation

Relief
Distribution
(Food and
Non-Food)

(Food and
Non-Food)

Medical/
Health and
Nutrition

Community
Kitchen/
Mass
Feeding/
Food
Evacuation Preparation
Center
Secondary Management Sports and
Users Teams (ECMTs) Recreation
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 68

Transportati
on

Evacuation
Center
Management
Committee

Information
Management
Tertiary Users Agencies

Humanitarian
Aid Agencies

5.4 Operational Guidelines

5.4.1 National Disaster Risk Reduction and Management Plan (NDRRMP)

2011-2028

Thematic Area 3: Disaster Response

Overall Responsible Agency: DSWD

These are actions done during the Disaster that includes needs

assessment, search and rescue, relief operations, and early recovery activities.

Other than activities done during the disaster, this thematic area includes Early

Recovery which encompasses the restoration of basic services, livelihoods,

governance, security and rule of law, environment and social dimensions,

including reintegration and social and emotional rehabilitation of displaced

populations.
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 69

Goal: Provide life preservation and meet basic subsistence needs of affected

population based on acceptable standards during or immediately after a disaster

Objectives:

1. Decrease the number of preventable deaths and injuries

2. Provide basic subsistence needs of affected population

3. Immediately restore basic social services

Outcome 12 Well-established disaster response operations

Outcome 13 Adequate and prompt assessment of needs and damages at all

levels

Indicators:

● Rapid needs assessment conducted in all affected areas

● Damage assessment and needs analysis conducted covering all areas

affected

● Integrated assessment from national to local levels

Lead Agencies DRRMCs, OCD and DSWD

Implementing Partners AFP, AFPRESCOM, ATO, BFP,

CSOs, DA,

DepEd, DPWH, LGUs, PCG,

PNP, PRC

Outputs Activities Operational Timeline

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 70

Beyond 3
1-7 days 1-3 months
months

1.1. Activation of assessment

Within 12
teams at all levels, as hours
hours
needed
1. Timely and appropriate and
consolidated needs assessment 1.2. Using the latest DANA
reports assessment tool, consolidate,
Within 24
analyze and hours disseminate
to 48 hours
data by the local and national
DRRM Councils

Outcome 14 Integrated and coordinated Search, Rescue and Retrieval (SSR)

capacity

Outcome 15 Evacuated safely and on time affected communities

Indicators:

● Number of persons transported and/or evacuated by voluntary,

pre-emptive and mandatory actions

Lead Agencies LGUs

Implementing Partners AFP, CSOs, PNP

Operational Timeline
Outputs Activities
1-3 Beyond 3
1-7 days
months months

1. Safe and timely evacuation 1.1 Coordination with Within # of

of affected communities appropriate agencies hours

Outcome 16 Temporary shelter needs are adequately addressed

Indicators:
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 71

● Number of temporary shelters vis-a-vis number of people

needing them

● Restored education services when evacuation centers are schools

● Number of evacuation centers with areas for nursing mothers

● Separate area provided for the poultry, livestock and pets

● Number of evacuation centers with livelihood training programs

for the people

Lead Agencies DSWD

Implementing Partners AFP, CSOs, DepEd, LGUs, NGOs, PCG,

PNP

Operational Timeline
Outputs Activities
Beyond 3
1-7 days 1-3 months
months

1.1. Identification of
standard-based relief
shelters and sites
1. All evacuees are sheltered
1.2. Provision of tents and
in adequately equipped
other temporary shelter X X
facilities for all (including
facilities
lactating mothers)
1.3. Implement a set of
minimum standard for
temporary shelters

2.1. Establishment of child-

2. Child-friendly spaces or friendly spaces/temporary
temporary learning area in the learning area in the X X
evacuation center for evacuation center for
continuity of education continuity of education

3.1. Provide spaces for

3. Safety for the sources of people’s livestock, poultry X X
livelihood of the people and pets in the ECs
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 72

4.1. Conduct livelihood-

4. Increased and diversified oriented activities for X X
people’s livelihood skills internally displaced

Outcome 17 Basic health services provide to affected population whether inside

or outside ECs

Indicators:

● Number of patients seen, treated and served

● Number of identified high risk children enrolled in the nutrition

in-emergencies program

● Water and sanitation services based on standards

Lead Agencies DOH

Implementing Partners DSWD and Health Sector

Partners

Operational Timeline
Outputs Activities
1-3 Beyond 3
1-7 days
months months

1. All patients seen/treated, 1.1. Medical consultation &

X X
and epidemics prevented nutritional assessment

2.1. Assessment of water

quality and conduct of quick
X X
2. Water-borne diseases damage repairs and road
prevented clearing operations;

3.1. Determination if there is

3. Database of hospitals and enough clinics and hospitals X X
other health care providers to address the casualties

Outcome 18 Psychological well-being promoted, and mental health problems

and risks reduced

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 73

Indicators:

● Number of affected population which were provided w/

MHPSSS (mental health and psychosocial services)

● # of people who are undergoing trauma debriefing (critical

incident stress debriefing)

● % of the population undergoing psychological stress debriefing

Lead Agencies DOH

Implementing Partners CSOs, DILG, DND, DSWD, NBI,

PRC

Operational Timeline
Outputs Activities
1-3 Beyond 3
1-7 days
months months

1. Disaster-affected 1.1. Coordination among with With Different

population are in good different heads of MPHSS phases; adopt the
mental and psychological DOH guidelines
state 1.2. Psychosocial programs and/or protocols
and referral

1.3. Conduct of traumatic

and/or psychological stress
debriefings

Outcome 19 Coordinated, Integrated System for Early Recovery implemented

on the national and local levels

Indicators:

● Number of persons w/ continuing assistance (financial,

livelihood)
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 74

● % of vulnerable population provided with adequate and

appropriate risk protection measures

Lead Agencies DSWD

Implementing Partners CSOs, DA, DPWH, NFA, PRC

Operational Timeline
Outputs Activities
Beyond 3
1-7 days 1-3 months
months

1.1. Conduct of post-DANA

1.2. Develop and implement a

system for early recovery, to
include specific activities
addressing the needs identified
1. Mechanisms for
coordinated and integrated 1.3. Develop partnership
early recovery established mechanisms with utility X
and essential services providers and key stakeholders
restored
1.4. Design and implement
temporary livelihood and/or
income generating activities
(i.e., case for food or work;
micro and small enterprise
recovery)

5.4.2 Evacuation Center Management Organization Chart

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 75

Table 10. Evacuation Center Management Council Chart

5.5 Legal Framework

5.5.1 Republic Act No. 10121

“An Act Strengthening the Philippine Disaster Risk

Reduction and Management System, Providing for the

National Disaster Risk Reduction and Management

Framework and Institutionalizing the National Disaster Risk

Reduction and Management Plan, Appropriating funds

therefor and for other purposes”

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 76

According to the Republic Act No. 10121., under Rule 3

Section 2, the Secretary of the DSWD is placed as the Vice

Chairperson for Disaster Response and the secretary of NEDA

as Vice Chairperson for Disaster Rehabilitation and Recovery.

Found in Rule 4, Section 2, also mandates the same agencies as

Vice Chairpersons on the regional level and the Office of Civil

Defense as the Chairperson. On Rule 4, Section 6, places the

Chairperson of the MMDA as chairperson of the Metro Manila

Disaster Risk Reduction and Management Council

(MMDRRMC).

Under Rule 3 Section 5, each agency as part of the

NDRRMP, shall have assigned functions relevant to them, and

shall formulate its own DRRM Implementation Plan and their

manual of operations.

According to Rule 11 Section 1, The Lead agencies

during the disaster is the Barangay Development Council (BCD)

if the barangay is affected, the city of municipality DRRMC is

two or more barangays are affected, the Provincial DRRMC if

two or more city/municipality are affected, the regional

DRRMC, if two or more provinces are affected, and the

NDRRMC, if two or more regions are affected.

As per Rule 18 Section 1, at least 5% of the local fund

shall be dedicated to Disaster Risk Management activities and be

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 77

called as the Local Disaster Risk Reduction and Management

Fund (LDRRMF). The 30% of the LDRRMF shall be the Quick

Response Fund (QRF) according to Section 2.

5.5.2 NDCC Circular No.5 ,s-2007

“Institutionalization of the Cluster Approach in the

Philippines Disaster Management System, Designation of

Cluster Leads and their Terms of Reference at the National,

Regional and Provincial Level”

Under Chapter III Roles and Responsibilities, the

following are the mandated Department/Agency and their IASC

Country Team counterpart designated to specific clusters at the

National Level.

Table 11. Lead Agencies of Corresponding Clusters

Cluster Government Lead IASC Country

Team
Counterpart

Nutrition Department of Health United Nation

(DOH) Children’s Fund
(UNICEF)

Water, Sanitation and Department of Health United Nation

Hygiene (DOH) Children’s Fund
(UNICEF)

Health Department of Health World Health

(DOH) Organization
(WHO)

Emergency Shelter Department of Social International

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 78

Welfare and Development Federation of the

(DSWD) Red Cross (IFRC)
/ UN Habitat

Camp Coordination & Office of Civil Defense- International

Management Provincial Disaster Organization for
Coordinating Council Migration (IOM)
(OCD-PDCC)

Protection Department of Social United Nation

Welfare and Development Children’s Fund
(DSWD) (UNICEF)

Early Recovery Office of Civil Defense United Nations

(OCD) Development
Programme
(WFP)

Logistics Office of Civil Defense World Food

(OCD) Programme
(WFP)

Food Department of Social World Food

Welfare and Development Programme
(DSWD) (WFP)

Agriculture Department of Agriculture Food and

(DA) Agriculture
Organization
(FAO)

Livelihood Department of Social International

Welfare and Development Labor
(DSWD) Organization
(ILO)

At the Regional Level, the lead agencies that are the

cluster focal points should be ready to carry out the roles and

responsibilities of the National Level Agencies. Technical and

operational support for the disaster-affected provinces should

come from the regional level offices. Regional Contingency

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 79

Plans shall also be developed. Assistance from the Regional

Level offices shall also be given to the Provincial Level in the

development of Provincial Contingency Plans.

5.2.3 RA 7924

“An Act Creating The Metropolitan Manila

Development Authority, Defining Its Powers And Function,

Providing Funds Therefore And Other Purposes”

Under Section 3(G), the MMDA shall cover Public

Safety. This requires the agency to formulate and implement

programs, policies, and procedures for public safety. These

programs include preventive and responsive measures during

calamities and coordination with national agencies with regards

to mobilization of resources, implementation of rehabilitation,

and relief operations.

5.2.4 National Disaster Risk Reduction and Management Plan 2011-2028

This is the legal basis for policies, plans, and programs

to deal with disasters. THis plan covers four thematic areas.

These are (1) Disaster Prevention and Mitigation, (2) Disaster

Preparedness, (3) Disaster Response, and (4) Disaster

Rehabilitation and Recovery.

This plan is consistent with the vision “safer, adaptive

and disaster-resilient Filipino communities toward sustainable

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 80

development.” of the National Disaster Risk Reduction and

Management Framework.

Under Thematic Area 3: Disaster Response, with the lead

agency Department of Social Welfare and Development

(DSWD), temporary shelter needs shall be adequately addressed,

social services and psychological needs shall be addressed by the

Department of Health (DOH), and early recovery shall be

coordinated by the DSWD.

Under Thematic Area 4: Disaster Rehabilitation and

Recovery, with the lead agency National Economic and

Development Authority (NEDA), Houses shall be rebuilt or

repaired to be more resilient to hazards, and safer sites are to be

established for housing by the National Housing Authority

(NHA).

5.7 Project Analysis

The project is servicing the need for Humanitarian assistance for

Internally Displaced Persons caused by Disasters in the Philippines. As seen in

the Market Study, there is an expected number of 717,590 persons displaced in

the country because of Disasters. There is a need for an efficient Transitory

Shelter Design to provide assistance to the Disaster-Affected Population. The

National Government and the Department of Social Welfare and Development

has a history of this kind of project. But as seen in the progress reports,
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 81

specifically in the temporary shelter projects in Marawi, there is a lack of a faster

and more efficient way to provide assistance to these people. It has been almost

three years, and the projects are still incomplete as of September 2019.

This project will follow guidelines and laws governing Disaster Risk

Reduction and Management in the country. This includes the Republic Act No.

10121, also known as “An Act Strengthening the Philippine Disaster Risk

Reduction and Management System, Providing for the National Disaster Risk

Reduction and Management Framework and Institutionalizing the National

Disaster Risk Reduction and Management Plan, Appropriating funds therefor

and for other purposes” and several Disaster Response Policies developed by

the National, Regional, and Local government agencies as mandated by this

Republic Act.

Although the project is for any kind of disaster in Metro Manila, the

application demonstration will mainly focus on the Scenario of ‘The Big One’.

Operational Guidelines of the Disaster Response will be based on the Metro

Manila Earthquake Contingency Plan: Oplan Yakal Plus by the Metro Manila

Disaster Risk Reduction and Management Council (MMDRRMC). Further

Deployment of the project to respond on different scenarios will be based on

the Disaster Response Policies and Guideline upon the publication of the

National and Regional Government and other government agencies to properly

respond to the current disaster.

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 82

Chapter VI: Technical Research Data Presentation

6.1 Technical Guidelines

6.1.1 Oplan Metro Yakal Plus: Metro Manila Earthquake

Contingency Plan

The scenario is based on the Greater Metro Manila Area Risk Analysis

Project (GMMA RAP) and the Metro Manila Earthquake Impact Reduction

Study (MMEIRS). This scenario used the Magnitude 7.2 Movement of the West

Valley Fault and illustrates the worst case scenario for Metro Manila. Found in

the table 12 is the predicted impact of this scenario.

Table 12. Predicted Impacts of the Intensity VIII earthquake

Slight Moderate Extensive Complete Complete Heavily

CITY Damage Damage Damage Damage Collapse Damaged
(sqm) (sqm) (sqm) (sqm) (sqm) Houses

Caloocan 3,479,806 5,232,422 4,087,406 5,072,855 625,656 7,200

Manila 4,010,957 8,103,927 9,825,526 11,969,904 1,385,187 26,200

Las Piñas 1,898,996 3,036,596 2,420,619 2,990,543 405,359 6,400

Makati 2,239,323 4,291,520 4,261,247 6,223,243 638,784 9,200

Malabon 1,012,122 1,670,251 1,477,221 1,960,091 227,640 4,700

Mandaluyong 1,199,782 2,063,208 1,912,450 2,249,883 253,941 4,400

Marikina 1,214,505 2,396,756 2,707,179 4,003,510 548,329 15,300

Muntinlupa 1,736,660 3,020,253 2,877,665 3,845,083 476,436 13,500

Navotas 394,736 707,097 709,673 1,016,382 117,412 5,700

Parañaque 2,897,909 4,893,277 4,307,947 5,149,340 681,479 9,200

Pasay 1,096,852 2,129,076 2,479,783 3,062,884 368,315 7,000

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 83

Pasig 2,213,476 4,156,819 4,708,861 6,922,002 856,014 23,000

Pateros 83,141 167,761 222,650 472,378 58,103 1,700

Quezon 11,049,945 17,663,877 14,187,637 15,414,694 1,997,221 26,900

San Juan 699,746 1,156,132 951,902 920,029 114,219 1,200

Taguig 2,014,723 3,373,491 3,300,500 4,594,379 532,398 11,600

Valenzuela 3,321,678 4,786,840 3,073,094 2,633,301 356,300 2,400

78,500,50
SUM 40,564,357 68,849,303 63,511,360 1 9,642,793 175,600

Due to the earthquake, Metro Manila is assumed to be separated into

four quadrants because of the damages to the buildings and the roads connecting

them. Found in table 13 are the four quadrants.

Table 13. Four Quadrant Regional Separation of Metro Manila

Local Government
Quadrants Units

Caloocan City

Quezon City

North Valenzuela City

San Juan City

Mandaluyong City

Pasig City
East
Marikina City

Manila City

West Malabon City

Navotas City

South Las Piñas City

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 84

Makati City

Muntinlupa City

Parañaque City

Taguig City

Municipality of Pateros

Pasay City

During the Disaster Response, Listed on table 14 are assigned regions

and AFP brigades that will assist each quadrant when it comes to the

mobilization of manpower and equipment assistance.

Table 14. Assisting Region and AFP Units per Quadrant

Quadrants Assisting Region/ AFP Units

Regions I - (Ilocos Norte, Ilocos Sur, La

Union, Pangasinan) and

North Region VII – (Bohol, Cebu, Siquijor)

AFP North Luzon Command (NOLCOM)

Brigades

Regions II - (Batanes, Cagayan, Isabela,

Nueva Vizcaya, Quirino)

Region XI – (Compostela Valley, Davao

East Del Norte, Davao Del Sur, Davao
Occidental, Davao Oriental)

AFP South Luzon Command (SOLCOM)

Brigades

Regions CAR - (Abra, Apayao, Benguet,

Ifugao, Kalinga, Mountain
West
Region X – (Bukidnon, Camiguin, Lanao
Del Norte, Misamis Occidental, Misamis
Oriental)
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 85

AFP NOLCOM Brigades

Regions V - (Albay, Camarines Norte,

Camarines Sur, Catanduanes, Masbate,
Sorsogon)

South Region VI – (Aklan, Antique, Capiz,

Guimaras, Iloilo)

AFP SOLCOM Brigades

The North and South entry points will be used for equipment,

manpower, and relief assistance. Entry points is as shown on table 15.

Table 15. Entry Points of each Quadrant

MEANS OF TRANSPORTATION ENTRY POINTS

LAND TRANSPORTATION

• Department of Public Works and Highways

(DPWH) Region

2: Balintawak Cloverleaf towards A. Bonifacio

• DPWH-Cordillera Administrative Region (CAR):

Balintawak

Cloverleaf towards A. Bonifacio

NORTH • DPWH Region 1: Mindanao Avenue

Alternate entry points:

• Malinta

• Bocaue, Marilao, Meycauayan towards

Commonwealth

• Mc Arthur – Valenzuela

• Osmena

• Alabang-Muntinlupa
SOUTH
• Sucat

• Circumferential Road 5 (C-5) – Libingan ng mga

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 86

Bayani

• Villamor –Sales

• Epifanio Delos Santos Avenue (EDSA)

• Circumferential Road 6 (C-6)

SEA TRANSPORTATION

• Subic Bay Freeport (if not heavily damaged)

NORTH • Manila Port (if not heavily damaged)

• San Fernando, La Union Port

• Batangas Port
SOUTH
• Sangley Point

AIR TRANSPORTATION

Clark International Airport

• Subic Bay International Airport (if runway is

not damaged)
NORTH
• San Fernando, La Union Airport

• Cagayan Province Airport

• Laoag International Airport

• Cebu International Airport

• Sangley Point

• Lipa Airbase, Batangas

SOUTH
• Davao International Airport

• Cagayan De Oro International Airport

(Laguindingan)

Each response sector has an agency corresponding. Listed in table 16 is

the agreed responsible agency to every response sector

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 87

Table 16. Responsible Agency in each Sector of Disaster Response

SECTOR SECTOR RESPONSIBILITY

Establish a system of command and

control for metro manila immediately
Command and Control MMDA after an intense ground shaking event.

Ensure availability of all emergency

back-up communication systems and
equipment; and, provide timely,
effective, accurate and efficient
information, advisories, alerts and
warnings to the LGUs, National
Communications and Government Agencies and other
Warning OCD-NCR Stakeholders and the General Public.

Ensure safety and security of lives and

properties of affected population;
response efforts; vital installations
and structures; and, resource
Safety and Security PNP-NCRPO mobilizations.

Provide immediate rescue to

Search and Rescue MMDA earthquake victims.

Ensure safety of the affected families

thru delivery of essential relief, camp
Relief and Camp management and human
Management DSWD-NCR rehabilitation services.

Conduct clearing operations of debris

Engineering, and obstructions; immediately restore
vital access roads, bridges and vital
Reconstruction and
lifelines; reconstruct/ rehabilitate
Rehabilitation DPWH-NCR damaged structures and facilities.

Department of
Coordinate support and augmenting
Transportation and
transportation needs to response
Transportation Communications (DOTC) sectors.

Medical, Nutrition,
Decrease the morbidity and mortality
WASH, and MHPSS DOH-NCRO related to earthquake.

Evacuation and Department of the

Ensure establishment evacuation
Management of the Interior and Local camps to displaced
families/individuals; and, manage
Dead and Missing Government (DILG) –
dead bodies in coordination with
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 88

NCR responsible attached agencies.

Bureau of Fire
Suppress all destructive fires to
Protection
minimize the loss of lives and
Fire (BFP) - NCR properties.

In support of the LGUs, reporting and coordination with the main

EOC/MMDRRMC and/or NDRRMC is to be done in each quadrant in the

established Sub-Emergency Operation Center is listed on the Table 17.

Table 17. Sub-Emergency Operation Centers in each Quadrant.

EMERGENCY OPERATION CENTERS

MAIN EOC:

MMDA Office, Orense St., corner EDSA, Guadalupe,

1st Option: Makati City

AFP JTF NCR Compound, near gate 6, Camp

2nd Option: Aguinaldo

3rd Option: PNP NCRPO HQ, Camp Bagong Diwa, Bicutan, Taguig

4th Option: Floating at Manila Bay

North Sub-EOC:

Veterans Memorial Medical Center, North Ave.,

Quezon City

East Sub-EOC:

Light Rail Transit (LRT) 2 Santolan Station Depot,

Santolan, Pasig City

West Sub-EOC:

1st Option: Intramuros Golf Course, Manila City

2nd Option: Luneta Grandstand

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 89

3rd Option: Floating at Manila Bay

South EOC:

Villamor Air Base Golf Course, Pasay City

Listed in the table 18 are to be established Evacuation Camps managed

by the MMDRRMC and Emergency Field Hospitals in every quadrant

Table 18. . Evacuation Camps and Emergency Field Hospitals

EVACUATION CAMPS EMERGENCY FIELD

QUADRANT
(MMDRRMC MANAGED) HOSPITALS

• Veterans Memorial Medical

• Veterans Memorial Medical Center, North Ave., Quezon

NORTH Center, North Ave., Quezon City City

• University of the Philippines (UP)

Diliman Grounds • Quezon Memorial Circle

EAST • Marikina Boys Town

LRT 2 Santolan Station Depot,
• Red Cross Compound, Marikina
City Santolan, Pasig City

• Ultra, Pasig

WEST Intramuros Golf Course Intramuros Golf Course

Villamor Air Base Golf Course,

SOUTH Villamor Air Base Golf Course, Pasay Pasay

The National Capital Region Police Office should deploy personnel to the

operating areas and provide security. In the table 19 are the guidelines on the

personnel and logistics needed on the evacuation camps.

Table 19. Security Logistics and Personnel

LOCATION/ # of PNP Personel # of NCRPO Logistics # of

AREA NEEDING Personel to be Personel
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 90

SECURITY with 8 hours shift deployed for Needed for all

24 hours locations
for 24
hours
operation

7 Evacuation 21/ evacuation 147 3 handheald 294

Camps camp/12 hours radio/
shifting evacuation camp

In the scenario presented, 3.0M Individuals are expected to be displaced due to

the damages, In the Table 20 is the list of expected individuals in each

quadrant.

Table 20. Expected Number of Evacuees in each Quadrant.

Evacuation Camp Evacuees (Individuals)

North Quadrant

Veterans Memorial Medical Center 87,616

UP Diliman Grounds 60,846

East Quadrant

Marikina Boys Town 86,797

Red Cross, Marikina 63,345

Ultra, Pasig 4,067

West Quadrant

Intramuros Golf Course 13,928

South Quadrant

Villamor Air Base Golf Course 118,089

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 91

The lead agency for the Camp and Relief Management is the Department of

Social Welfare and Development and the DSWD-NCR as the deputy. Listed in

the table 21 are the cooperating agencies and their tasks and responsibilities.

Table 21. Tasks and Responsibilities of Agencies in Evacuation Camps

AGENCY/ GROUP TASK/ RESPONSIBILITY

Department of Social Welfare and

Send augmentation to the needs in
Development Regions I, II, V, VI, VII,CAR, X, XI,
evacuation camps and other victims.
and other DSWD Regions

Department of the Interior and Local Coordinate provision of facilities inside the
Government-National Capital Region (DILG- evacuation camps (e.g. tents, portalets,
NCR) lights, etc.).

Department of Public Works and Highways- Coordinate provision of electricity and

National Capital Region (DPWH-NCRO) water source inside the evacuation camps.

Provide maintaining Water, Sanitation and

Department of Health National Capital Region
Hygiene (WASH) and nutrition guidance in
Office (DOH-NCRO)
the evacuation camps;

Department of Transportation and Facilitate the provision of transportation of

Communications (DOTC) relief goods to evacuation camps;

Provide security in evacuation camps,

repacking hubs and transportation of relief
National Capital Region Police Office (NCRPO) items.

Provide security in evacuation camps,

repacking hubs and transportation of relief
Armed Forces of the Philippines (AFP) items.

• Commission on Higher Education (CHED)

Ensure safety of students and immediate
• Department of Education (DepEd) resumption of classes

• Department of Labor and Employment

• Department of Trade and Industry (DTI) Provide income generating opportunities to

displaced
• Technical Education and Skills Development
Authority (TESDA) population.

• Metropolitan Manila Development Assist in coordinating needed resources

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 92

Authority (MMDA)

• Office of Civil Defense (OCD)

• Local Government Units (LGUs)

Ensure human rights is maintained in

Department of Justice (DOJ) evacuation camps.

In each Evacuation Center listed in the table 22 are the assigned DSWD-NCR

disaster team. These teams will be working in 2 shifts with 12 hours of duty per

shift. Found in table 23 are the composition of each team

Table 22. DSWD-NCR Disaster Team assignment

Evacuation Camp Team

North Quadrant

Veterans Memorial Medical Center Monday Team

UP Diliman Grounds Tuesday Team

East Quadrant

Marikina Boys Town Wednesday Team

Red Cross, Marikina Thursday Team

Ultra, Pasig Friday Team

West Quadrant

Intramuros Golf Course Saturday Team

South sector

Villamor Air Base Golf Course Sunday Team

Table 23. DSWD-NCR Disaster Team Composition

Team Composition
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 93

• 1 team leader

• 1 assistant team leader

• 12 team members

Monday Team • 17 support group members

• 5 medical and allied group members

• 1 reporting officer from Planning unit

• 31 members from Pantawid Pamilya

• 1 team leader

• 1 assistant team leader

• 12 team members

Tuesday Team • 15 support group members

• 6 medical and allied group members

• 1 reporting officer from Planning unit

• 31 members from Pantawid Pamilya

• 1 team leader

• 1 assistant team leader

• 9 team members

Wednesday Team • 15 support group members

• 5 medical and allied group members

• 1 reporting officer from Planning unit

• 31 members from Pantawid Pamilya

• 1 team leader

• 1 assistant team leader

Thursday Team
• 11 team members

• 16 support group members

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 94

• 5 medical and allied group members

• 1 reporting officer from Planning unit

• 31 members from Pantawid Pamilya

• 1 team leader

• 1 assistant team leader

• 12 team members

Friday Team • 15 support group members

• 6 medical and allied group members

• 1 reporting officer from Planning unit

• 31 members from Pantawid Pamilya

• 1 team leader

• 1 assistant team leader

• 9 team members

Saturday Team • 14 support group members

• 6 medical and allied group members

• 1 reporting officer from Planning unit

• 31 members from Pantawid Pamilya

• 1 team leader

• 1 assistant team leader

• 11 team members

Sunday Team • 12 support group members

• 4 medical and allied group members

• 1 reporting officer from Planning unit

• 31 members from Pantawid Pamilya

Operations • 4 members
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 95

6.1.1 Guidelines on Evacuation Center Coordination and Management

Joint Memorandum Circular No. 7

Series of 2012

VIII. Evacuation Center Management

1.1.7 Set-up the Evacuation Center

A. Visible and with proper directions

B. With adequate visibility using streamers or sign board

C. Sufficient supplies and communication capacity

3. Basic facilities and standards

3.1 Shelter and Accommodation

3.1.1 The Local government units shall ensure that

adequate shelter is provided to the evacuees

3.1.2 To guide LGUs: short-term and long-term

3.1.3 Check for connection on electricity and water

3.2 Camp Management desk or office

3.2.1 An office or desk will be set-up in each evacuation

center

3.2.2 The office/desk will be properly marked with

visibility

3.3 Toilets and Bathing Areas

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 96

3.3.1 Toilets must be well lighted, can be locked from the

inside, with adequate ventilation

3.3.2 For displacement exceeding 3 days, the camp

management team shall ensure the following:

There are many different designs for the

construction of toilet facilities which can achieve the

overall objectives. The most appropriate design is

dependent on the space constraints, soil geology,

available water, commitment to maintenance, local

sanitation practices and resources available.

The Sphere Standards have key indicators which

have a best possible scenario of 20 people per toilet

facility. However, this is difficult to achieve because of

resources, space and other considerations. While

determining the numbers to be installed, the EC

management team and concerned agency should observe

to see if open defecation is occurring, check to see that

existing facilities are functional and being used, and if

there are queues forming as people wait to use the

facilities. Often people only use EC's as a place to sleep

and return home during the day using their own facilities.

Based on these observations numbers should be

increased until the key indicator is met, however, if

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 97

people are using the toilets and there is no signs of open

defecation or long queues then there may be sufficient

facilities.

a. Short-term displacement: 1 per 50 persons

b. Long-term displacement: 1 per 20 persons

c. Separate toilet for men and women

d. For communal latrines, due consideration should

be given to children, on appropriateness in terms

of design, size

e. Must have garbage bins available, especially for

latrines assigned to women and men.

f. Toilets must be kept cleaned and maintained for

all intended users

g. Hand washing facilities preferably with soap

must be available adjacent to toilet facilities

h. DOH/CHO approval for use of WS Pit Latrines

in lieu of full septic pit will be site specific. A site

inspection by DOH/CHO will be conducted to

consider existing groundwater depth and usage,

soil type and planned design life.

i. Women to male toilets should be built at

approximately 4 Female toilets to every 3 Male

Toilets
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 98

j. 1 in 10 toilets should be disabled accessible, with

a minimum of 1 toilet per site.

3.4. Child-Friendly Spaces (CFS)

3.4.1. One (1) CFS for every 100 families (estimated to

serve at least 280 children below 18 years old)

3.4.2. CFS should be located near a clean toilet for boys

and girls

3.4.3. Additional guidelines:

a. Community-Based EC:

- The size of CFS is 6m x 7m floor area with

provision for open space for outdoor play

activities (see physical lay-out)

- For the TLS, at least two (2) 42 square meters

floor area spaces for learning activities cum

psychosocial care. They can be equipped as

follows but not limited to chairs and tables,

moving blackboards, and provision of learning

materials such as story books, modular

instructional materials for alternative education

and recreational materials for psychosocial

support sessions

- Open Space (like basketball court, open spaces)

can also be identified as CFS

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 99

b. School-Based EC

- Classroom - Identify a safe classroom that can be

a "child friendly space" to accommodate

children, boys and girls below 18 years old to

engage in psychosocial support activities by shift

per age group.

- Open Space (like basketball court, open spaces)

can also be identified as CFS

- to include; feeding of infant/pre-school children,

educational support activities (ALS), sessions on

prevention of violence, abuse and exploitation,

child labour, child trafficking and other CP

concerns

- CFS will be managed by at least Community

Welfare Volunteer (CWV) or Youth Focal Point

(YFPs)

3.5. Community Kitchen

3.5.1. Community kitchen for emergency feeding of

disaster victims shall provide hot meals or ready to eat

foods to disaster victims inside evacuation centers,

ensure that basic nutritional requirements of affected

groups shall be met, serve as storage for limited food

stockpile prepositioned before the occurrence of an

emergency. Community kitchen must be strategically

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 100

located in relation to the identified evac. Centers, it shall

service to ensure timely delivery of adequate food to the

affected persons inside ECs.

3.6. Information Board

3.6.1. An information board shall be set-up in each

evacuation center

3.6.2. Information can include:

Name of Evacuation No. of Schoolchildren Location of

Centre (EC) EC
Location of EC No. of Elderly
Name of Camp Manager, No. of PWDs Disaggregated by
agency and contact details Sex
No. of Families No. of Persons with Serious
illnesses
No. of Individuals
No. of 4Ps Beneficiary
No. Males
No. of Families with Damaged
No. of Females Houses Disaggregated whether
No. of Lactating Mothers Partially or Totally Damaged

No. of Pregnant Women No. of Families Living in

Hazardous
No. of Children
Disaggregated by of Areas Prohibited to Return in
Origin Age Bracket and Place of origin
Sex No. of Casualties (Dead, Missing,
Skills (Identify the skills; Injured)
carpentry, mason, Weekly Schedule of Activities
manicurist, hairdresser,
plumbing, vendor, tricycle Common Diseases
driver, licensed driver,
dressmaker, auto No. of Facilities: toilets, bathing
mechanic, technician, cubicles, community kitchen,
electrician)
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 101

washing area, women-friendly and

child-friendly spaces,
multipurpose

3.7. Storage Area

- A safe place where relief goods (food and non-food ) can

be stored free from rodents/insects.

3.8. Laundry Spaces

3.8.1. To ensure sanitation in the evacuation centers,

guides for laundry spaces:

a. Designated areas for laundry shall be made

available in ECs.

- 1 hand basin per 10 persons

- 1 wash bench (4-5m) per 100 persons

- 2 laundry platform (3m double sided) per

100 persons

b. Size of laundry areas should be sufficient to

accommodate 2 persons at any given time.

c. Should be connected to an existing drainage and

water tap.

d. Should be provided with roofing and lights

3.9. Water Spaces

3.9.1. 15 litres of water per person/day

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3.9.2. 500 meters between individual shelters and water

supply

3.9.3. 250 persons per functioning water tap

3.10. Health

3.10.1. Facility Requirements for Health

a. Health station/clinic

b. Breastfeeding room

3.10.2. All medical stations/clinic shall have

available basic drugs, medicines, medical

supplies and equipment for use during disaster in

evacuation center.

3.10.3.All medical stations/clinics shall ensure

availability of services 24/7 in evacuation center

for emergency cases.

3.10.4. All medical missions shall be coordinated

through the evacuation center

manager/authorized representative

3.10.5. Health Services for populations in ECs

located within 500 meters of a public health

facility should be provided by that health facility.

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3.10.6. Health services for ECs located more than

500 meters from the nearest public health facility

can be provided with health station manned by

health staff 8 hours on a daily basis for the first 2

weeks of the emergency.

3.10.7. The breastfeeding room/corner should be

easily accessible providing privacy, security and

supportive care namely; helpful maternity

services; continuing assistance and social

supports; and appropriate health services.

3.11. Couple Room

3.11.1. Designate a private room located at the end part

of the EC to accommodate legally married evacuee-

couples (present marriage certificate or proof of legal

marriage) for a period of time (at least 2-3 hours) to

spend moment of togetherness and romance with

privacy. Couples must pay a minimal fee for the hours

spent in the private room (maximum 3 hrs). Collected

fees will be included as donations to the EC. However,

should the evacuation center be located at a school site,

the couple room is not deemed appropriate and shall not

be allowed within school premises

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3.12. Provision for management of livestock and domestic

animals owned by evacuees

3.12.1. Space for livestock and other domestic animals of

evacuees shall be identified and provided in all

evacuation center or if possible a separate evacuation

facility for the animals shall be established. Facilities and

food for these animals shall also be provided during the

disaster until such time when they are able to return to

their owners residences. Care and safety of these animals

shall be ensured by the evacuation center management

officers and staff with the assistance of Department of

Agriculture, animal rights groups and other stakeholders.

4. Basic Services

4.1 Food

4.1.3. Immediate provision of mass feeding of RTEF during the

first three days of disaster operation-emergency phase.

4.1.4. Set up community kitchen as necessary.

4.2. Nutrition

4.2.4. Designation of breastfeeding area/corner

4.3. Protection

4.3.1 General Protection Concerns

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 105

k. Physical set-up of the EC must be properly lighted

especially at night, not crowded, and with proper

ventilation

l. Provision of adequate dividers per families to facilitate

privacy

4.3.2. Child Protection

b. Disseminate that CFSs (1) provide secure and 'safe'

environments for children, (2) it creates a stimulating and

supportive environment for children, (3) build on

existing structures and capacities within a community,

(4) uses a fully participatory approach for the design and

implementation, (5) supports integrated services and

programmes, and (6) are inclusive and non-

discriminatory.

c. Set-up Child Friendly Spaces (CFS) for children (boys

and girls) using a rights-based approach, inclusive and

non-discriminatory regardless of class, gender, abilities,

language, ethnicity, sexual orientation, religion, and

nationality to have equal access to the CFS, and consider

cultural norms and practices, community values, and

design age appropriate CFS activities (from birth to 6

years old, 7-12 years old, 13-17 years old). Coordinate

with the existing local structures, Local Social Welfare

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 106

Office, the BCPCs, Community-Based Child Protection

Networks (CBCPN) or any community-based child

protection group available in the locality and with

maximum participation of children/youth groups.

4.3.3. Gender-Based Violence

a. Ensure availability of disaggregated data of pregnant

and lactating mothers including women/men victims of

GBV indicating their ages, gender (male/female and

boys/girls), and any disability (PWDs) or special

concerns needing appropriate professional intervention

b. Setting-up of Women Friendly Space as venue for

psychosocial support for both women and men

4.4. Water Sanitation and Hygiene

The following table outlines the recommended toilet type based

on situation and the agreed WASH Cluster latrine ratios. These ratios

are based on the observation that populations are mobile throughout the

day, and utilising facilities outside the ECs and transit sites. Regular

monitoring of CHO Sanitary Inspectors on the practice of open

defecation and queuing at peak times is to be done. If either is found an

issue ratio will be decreased.

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 107

The maximum number of users per toilet, shower, handwashing

station and solid waste bin in evacuation centres and homebased areas

in affected areas must not exceed:

Table 24 Facility Requirements on each EC type

Toilet Type Latrine Showe Handwashing Solid

Ratios r Ratio waste
bins

School EC Permanent Septic to 1:50 1:100 1:10 toilets but 1:10 HH

meet School within 10m of
requirements, toilet
supplemented by
portalets + use of
existing facilities with
regular desludging

EC other Semi-Permanent Septic 1:50 1:100 1:10 toilets but 1:10 HH

supplemented by within 10m of
portalets + use of toilet
existing facilities with
regular desludging

Temporary Portalets/ Semi- 1:55 students nil Group 1:10 HH

Learning Permanent WS pit/ Handwashing
Spaces Urinals + Use of School Facilities min 15
latrines with regular taps
desludging

Tented Semi-Permanent WS 1:40 1:80 1:10 toilets but 1:10 HH

Transit Site Pit/ Portalets within 10m of
Rural toilet

Tented Semi-Permanent Septic 1:40 1:80 1:10 toilets but 1:10 HH

Transit Site + use of existing within 10m of
Urban facilities with regular toilet
desludging/ Portalets

Bunkhouse Semi-Permanent WS Pit 1:20 1:40 1:10 toilets but 1:10 HH

Transit Site within 10m of
Rural toilet

Bunkhouse Semi-Permanent Septic 1:20 1:40 1:10 toilets but 1:10 HH

Transit Site within 10m of
Urban toilet

Permanent Family Latrines Per Household

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 108

Site (Permanent Septic)

4.4.1. WATER SUPPLY STANDARD in accordance with the

national standards for drinking water supply, access of Evacuees

to adequate water supply shall be ensured at the following levels:

a. 250 people per tap (based on a flow of 7.5 liters/min)

b. 500 people per hand pump (based on a flow of 16.6

liters/min)

c. 400 people per single user open well (based on a flow of

12.5 liters/min.)

d. Until the minimum indicators are met, the priority should

be equitable access to an adequate quantity of water even

if of intermediate quality

e. The quantities of water needed may vary according to the

climate, the sanitation facilities available, people

practices, and the food they cook, among others.

4.4.2. Basic Survival Water Needs

Table 25. Basic Survival Water Needs

Water intake 2.5-3 liters per day Depends on the climate

and individual physiology
(drinking and food)

Basic hygiene practices 2-6 liters per day Depends on social

and cultural norms

Basic cooking needs 3-6 liters per day Depends on food type,
social as well as cultural
norms
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 109

Total basic water needs 7.5-15 liters per day

4.4.3. Minimum Water Demand per day (Prolonged Period)

Table 26. Minimum Water Demand per day (Prolonged
Period)

Use Minimum Demand

(liters/person/day)

Drinking 2 liters

Food preparation and cooking 10 liters

Bathing 15 liters

Laundry 15 liters

Sanitation and Hygiene 10 liters

Total 52 liters

● The maximum distance from the users to the nearest

water point is 500 meters

● Queuing time at a water source is no more than 15

minutes

● It takes no more than three minutes to fill a 20- liter

container

● The number of people per source depends on the yield

and availability of water at each source

4.5. Containment (within WASH)

4.5.1. Feaces, Urine and contaminated water must be contained

in such a way so as to prevent:

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a. Contamination of water supplies (leaching surfaces

should be 1.5 m above water table, more than 25m from

ground water source)

b. Prevent feaces and contaminated liquid from being

spread over the ground or in fields either through

flooding and/or vermin spreading the feaces

(containment tanks, septic tanks)

c. Flies from contact with contained materials and then

contaminating food or eating surfaces (water seal bowls,

lids, screened vent pipes). Fly spraying (deltamethrin) is

only to be carried out by professionally trained staff

using protective clothing and in event of diarrheal

outbreak.

4.5.2. If water used for anal cleansing and/or flushing, the

containment should be designed such that water has sufficient

retention time to reduce entrained solids before it is leached into

the ground (above the water table) or fed into storm water drains.

4.5.3. Sizing of containment/septic tanks etc. is dependent on the

number of users, soil type and ability to remove and dispose of

sludge. Containment Pits should be designed to only require

desludging one time per year.

4.5.4. If sludge removal is part of the design then access is

required for vehicles etc so that it can be safely removed.

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 111

4.5.5. Construction should use local materials and designed so it

is easy to maintain cleanliness.

4.5.6. Latrine slab should be smooth and with a slope draining to

the drop hole. Agencies should consider installing urinals for

men to reduce the number of latrines for men required.

4.6. Sanitation and Hygiene

4.6.1. Water or other anal cleansing materials must be readily

available. For Water Seal toilets should only be constructed if

there is sufficient water available for flushing within the

immediate proximity of the facility (water point within e.g.

50m).

4.6.2. Hand washing facilities must be designed into or nearby

the facility (maximum distance 10m from the facility)

4.6.3. Implementing agency is responsible for hygiene

promotion, training and strengthening local organizations to

maintain and clean the facility.

4.7. Superstructure considerations

4.7.1. Access to the facility must account for all sectors, women,

children, elderly and disabled. Latrines for disabled (1 in 10)

should include design features (rails, ramps, seats) that enable

safe access and defecation in safety and privacy according to

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 112

age, gender, and disability, with a minimum of 1 disabled toilet

per site.

4.7.2. Provision must be made for the hygienic collection and

disposal of children's feaces.

4.7.3. Cultural considerations must be considered in design.

Gender Separation and signposting of cubicles is required.

4.7.4. Privacy for users is a primary concern and should be

guaranteed. (eg door should be lockable from inside and latrines

should be lit at night in camps.)

4.7.5. Superstructure must be resistant to normal rain and wind

conditions to protect users

4.8. Hygiene Promotion

4.8.1. The key to reducing the public health risk is ensuring that

the toilets are used and used correctly. Hygiene promotion

programs, that explain the reasons for using toilets vs. open

defecation and changing behaviors (i.e.. hand washing, cleaning

of plates and cutlery, protection of food from flies etc.) are

needed so that the evacuees will use the facilities and ultimately

reduce the public health risks.

4.8.2. Implementation of the facilities depends on good hygiene

promotion strategy that should be sustained by the EC WASH

committee and Barangay Health Workers (BHWs) with

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 113

guidance from agencies and City Health Office. The objective is

to eliminate the open defecation practices and change risky

behaviors.

4.9. Maintenance of WASH facilities

4.9.1. Maintain sufficient water and anal cleansing materials as

well as soap and water for hand washing

4.9.2. Cleaning of facility so that it does not smell or get muddy

4.9.3. Maintain locks so that privacy is guaranteed, monitor the

conditions of walling and doors to make sure peepholes are not

being made

4.9.4. Each woman's block must have a clearly marked

receptacle for disposal of baby diapers and sanitary napkins.

4.9.5. Ensure that access is safe, i.e. lights at nights, clean and

safe pathways etc.

4.9.6. Agencies installing latrines are responsible for ongoing

maintenance for a 3-4 month period, after which time they

should ensure adequate maintenance systems are in place. This

includes decommissioning if it's within the 3-4 month period.

4.10. Dislodging

4.10.1. Feaces over time will decompose. However they will still

retain some volume and eventually any containment system will

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fill up and either the facility is sealed up and closed or the

containment vessel is emptied.

4.10.2. In this setting, the large number of users in a short time

will fill these containers much quicker. In addition to this, when

using water seal toilets, the amount of water used for flushing

cannot be leached into the ground quick enough or passes

through the system quickly and is not clean enough for storm

water drains. In both cases the sludge and black water needs to

be removed and treated on a regular basis.

4.10.3. Different designs:

a. Urinary Diversion Toilets

- In this design, the feaces are purposely collected, along

with the separated urine and processed into fertilizer.

This will follow established processes, however in the

emergency situation the collection and disposal of these

materials must be done safely and timely so as to reduce

the possibility of exposure to the displaced residents. In

these areas there are large proportions of children so

extra care must be taken with the storage and disposal of

these materials.

b. Portalets, Pit Latrines and Septic Tanks

- These can be manually emptied or emptied by pumps

into tanks or barrels for removal from site. Note that

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 115

during removal the workers need to protect themselves

and all spills need to be cleaned and disinfected. The

transportation vessels must be sealed.

4.10.4. This sludge can be treated in several ways:

a. Emptying into existing sewage treatment plants.

b. Lime Stabilization

4.11. Sewage Disposal

4.11.1. Environmental contamination or spillage from trucking

of excreta must be prevented. Final disposal of excreta must

prevent exposure of the general population to health risks.

Organizations must only use final disposal sites as designated by

Department of Health

4.11.2. Workers involved in the management, emptying,

transport, treatment or disposal of excreta must be provided with

protective clothing, tools and health and safety advice.

4.11.3. Disposal Site

a. With the influx of portalets which require regularly

scheduled emptying, along with school septic tanks that

are now full, a Lime Stabilization Area is required.

- At the landfill 2 pits will be dug (4m x 3m x1.5m deep).

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 116

- These will be lined with layers of tarpaulin and plastic

to reduce seepage of untreated waste into the ground.

- The sewage will be emptied into a pit and mixed with

hydrated lime (5kg/1000liters)

- The PH will be monitored. Target PH is 12 as this will

kill all of the pathogens. More Lime will be added if

needed

- Once the first pit is full the second pit will be started.

The first pit will then be emptied of the disinfected sludge

and spread over the landfill as cover.

b. This will require:

- Supply and storage of hydrated lime and other

equipment

- Scheduling of emptying of septic tanks and portalets,

including coordination with pumping company, landfill

for access and the camp management to make sure that

the truck has access

- Staffing (cash for work for IDPs)

● Trained to mix in lime

● Measure the PH

● Will need protective clothing

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 117

● Will be excavating the full pit and

spreading over the landfill

● Inventory of lime, gas and managing the

process Pump and hose for dewatering of

processed sludge

- Gas for the pump

4.12. Solid Waste Management

4.12.1. Agencies working in the sites will provide rubbish bins

at a ratio of 1 bin per 10 households. A central Collection

receptacle should be established in the designated areas to

facilitate emptying by the LGU (and associated contractors) on

a daily basis. LGU contact person should be contacted directly if

solid waste removal is insufficient.

4.12.2. Agencies can augment LGU in the collection system if

the need warrant it.

4.13. Vermin Control Program

4.13.1. The Barangay LGU will take care of its own area to

conduct spraying, fumigation, fogging if necessary to control

vector borne diseases with the assistance and support from the

DOH and agencies working in the sites, The DOH-CHDNM will

also distribute treated mosquito nets to all affected areas nearing

its assistance.
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 118

4.14. Health

4.14.1. Minimum Services Package for Health

a. Clinical

- Consultations/treatment - Emergency transport

- Hospital care

b. Public Health

- WASH - water sanitation hygiene - Nutrition

- MHPSS

- DSE Surveillance

- PIDSR

- SPEED

- Vector Control

- Management of dead

- Reproductive health (MSP)

4.16. Education

4.16.1. Assignment of areas as Child Friendly Spaces (CFS) or

Temporary Learning Spaces (TLS) should be ensured in each

evacuation center.
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 119

4.16.2. CFS/TLS provide venues for supervised neighbourhood

playgroup services for preschoolers and learning activities for

school-aged children.

4.16.3. Determine appropriate approaches sensitive to age and

culture to ensure that educational programmes respect the needs

and rights of learners example flexible school calendar

4.16.4. The location of the learning spaces should include easy

access to toilets. Toilets may need to be adjacent to the child

friendly spaces and temporary learning centers because young

children frequently supervision when going to the toilet.

6. Conduct of regular consultation and meetings with evacuees

6.1. All evacuees shall be organized into groups with identified team

leaders

6.2. The teams leaders shall have regular meetings with the camp

manager and team

6.3. All meetings shall be properly documented and recorded

6.4. The camp manager shall keep the records of the meetings for ready

reference when needed.

7. Maintenance and care of evacuation center facilities

7.1. Responsibility of the LGUS

10.Conduct of evacuation and emergency drills

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10.1. Orientation for short-term displacement

10.2. Drills during medium- and long-term displacement

IX. Termination of Evacuation or Evacuation Center Closure

1. Trigger and Criteria for Closure

1.1. Once all evacuees have voluntarily left the evacuation centers

1.2. Readiness of the resettlement site

1.3. Readiness of the evacuees to return to their respective places of

origin

1.4. Normalcy of the situation

2. Site Closure

2.1. Demobilization

a) All equipment provided by the local government or donated

to the local government for the improvement of conditions

during an emergency should be properly stored in safe areas for

use in the event of another crisis.

b) In cases where equipment may be turned over or donated to

the administrators of the site used as an evacuation center, a

memorandum of agreement should be finalized between the

LGU and the relevant counterpart.

2.2. Repair and Rehabilitation of Facilities

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● The local government is responsible for facilitating general

cleaning including fumigation, repair of broken facilities, etc.

This is an important activity in ensuring that the facility is safe

to be utilized in its original function.

6.1.2 Guidelines in the Implementation of Temporary Shelter

Assistance and Prioritization of Victims of Disasters/ Internally

Displaced Persons thereto

DSWD Administrative Order No. 09 Series of 2014

VI. ELIGIBILITY

1. General Qualifications

Priority beneficiaries of the bunk houses are the vulnerable

families residing in disaster prone areas whose shelter units are

totally damaged or partially damaged by all types of disaster but

their original area of habitation are declared by the national

and/or the local government units as “unsafe zone”, thus they are

no longer allowed to return to their original area of habitation.

They shall also be the priority for other shelter assistance to be

provided by government in resettlement or relocation sites or in

their location considered as safe and are not declared "not safe”

or “not fit for dwelling."

2. Eligibility Requirements of Beneficiaries

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 122

Should there be a need to further narrow down the list, family

beneficiaries shall be prioritized based on the following:

a. Family with income below the food threshold of the

region based on the prevailing food threshold rate report

of the NSCB;

b. Family is not a recipient of any other housing assistance

from any other government agencies, non-government

organizations, individuals or groups

c. Family whose head of household died or were

incapacitated as a result of the disaster;

d. Family whose head are seriously ill, incapacitated to

work or are differently-abled and cannot provide for the

minimum requirements for the food and shelter of the

family and have no other sources of support;

e. Family headed by an older person not receiving social

pension or other kinds of retirement pensions and are not

capable of earning a living;

f. Family who has a female member who is pregnant has

just given birth or lactating or who has children below

two years old;

g. Family with more than five (5) members where the

majority are below 18 years old;

h. Family headed by a solo parent;

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 123

i. Orphan child whose parents died during the disaster but

capable of assuming the responsibilities of his/her

parent/s to his/her younger siblings with guidance from

nearest kin;

j. Certification from Barangay Captain to support the

identification of families, which includes: residency;

affected by disaster; and whose house are partially/totally

damaged.

3. Selection Procedures

a. The LGU through its Local Social Welfare and

Development Office (LSWDO) shall administer the

Disaster Assistance Family Access Card (DAFAC)

which indicates the circumstances of the family, and

conduct actual validation on site if their homes are totally

or partially damaged and located in areas declared as no

dwelling zone. Once DAFAC is completed, LSWDO

shall submit immediately a masterlist of families with

totally and partially damaged houses to DSWD Field

Office.

b. DSWD Field Office shall conduct an area visit to further

validate the list of families with totally and partially

damaged houses submitted by the LGU. Verify the

names on such list with other Government Agencies like

the COMELEC for confirmation of their residence, and

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 124

with the National Housing Authority (NHA) for

confirmation if the names are not previous beneficiaries

of NHA Administered Resettlement Program. Shall meet

with the LSWDO to discuss the results of the validation

which shall be the basis in determining whether the

families are qualified as beneficiaries of the bunk houses

or other shelter facilities and come up with the final list

based on the criteria set in these guidelines.

c. DSWD and LGU's LSWDOs shall orient the family

beneficiaries on the procedure, selection, awarding and

maintenance of the shelter units

d. Beneficiaries shall undertake a contract with the DSWD

and the LGUS that the former shall not sell, rent out or

mortgage the shelter unit.

e. Qualified families with more than five (5) family

members shall be provided with two (2) rooms.

VII. INSTITUTIONAL ARRANGEMENTS

1. Department of Social Welfare and Development

1.1. Field Office (FO)

● Conduct field visit to validate the LGU list of

target beneficiaries for the bunk house and/or

transition shelter assistance

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 125

● Meet with the LGUs to come up with a final list

of beneficiaries for the bunk house and/or

temporary shelter assistance

● Provide technical assistance to the LGU in the

social preparation activities

● In partnership with the LGUs, undertake contract

with the beneficiaries and ensure compliance of

the family beneficiaries to the signed contract

● Monitor the status of the family beneficiaries in

the bunk houses and other temporary shelter

facilities

● Provide technical assistance to the LGU in the

organization of family beneficiaries into an

association

● Submit periodic progress report on weekly basis

to the DSWD DRRROO

1.2. Disaster Risk Reduction and Response Operation

Office (DRRROO)

● Monitor the status of the project/assistance in

coordination with the DSWD Field Office and the

LGU

● Ensure that the services are implemented based

on existing guidelines

● Provide technical assistance to the FOs

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 126

2. Local Government Units

● Undertake registration of beneficiaries using the Disaster

Assistance Family Access Cards

● Meet with the DSWD Field Office and a representative

from beneficiary community to come up with a final list

of beneficiaries for the bunk house, other shelter

assistance

● Submit a list of family beneficiaries for the bunk houses

and other shelter assistance to the DSWD Field Office

for validation

● In partnership with the DSWD Field Office, undertake

contract with the beneficiaries and ensure compliance of

the family beneficiaries to the signed contract

● Conduct the social preparation activities

● Undertake the transfer of the family beneficiaries to the

shelter units

● Closely monitor the status of the family beneficiaries in

the bunk houses and other temporary shelter facilities

● Ensure that the shelter units are occupied only by family

beneficiaries

● Ensure safety and protection of the vulnerable sectors in

the transfer of the beneficiaries to the bunk houses

● Ensure compliance of the family beneficiaries to the

signed contract
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 127

● Organize the family beneficiaries into an association

● Submit periodic progress report to the DSWD Field

Office

6.2 Statistics

6.3 Key-Informant Interview Results

6.3.1 National Housing Authority - Housing Technology and

Technical Research Department - Housing Design Division

Ar. Rochelle De Vera, Principal Architect of the Housing Design Division

The NHA is mandated to provide Housing Programs for the Informal

Settler Families (ISFs), Families displaced because of the construction of

Infrastructures, and families that live in danger zones. She mentioned that the

NHA also provides Housing Programs for IDPs of Disasters but as part of the

Thematic Phase 4: Disaster Rehabilitation and Recovery of the NDRRMP only.

She went on and said that since they are only mandated to help with the disaster

rehabilitation and recovery, the provision of housing will come a bit later after

the disaster and differs from the immediate response shelters. Architect De Vera

said that although there are no existing facilities yet for the disaster-affected

persons, plans and projects for these facilities are now being discussed in their

agency. These facilities are to be pioneered by the DILG.

According to the Ar. De Vera, the National Housing Authority is tasked

to provide technical assistance and assist in the implementation of Housing to

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 128

the Local Government Units. The LGUs are tasked to program and plan the

housing development and survey the number of families that will be needing

housing assistance. The site selection is also the responsibility of the LGUs with

the guidance of the NHA. The LGUs are also tasked to coordinate with local

suppliers of electricity and water.

She discussed that the NHA has a manual of Housing Designs that the

LGUs can request and decide if one of the designs will be applicable to their

sites. There are also Low-Rise Building (LRB) Designs that are available if

there are limited lands like in Metro Manila. The NHA will then assist the LGU

in the implementation of the Housing Program.

The designs can also come from the regional level. The contractors for

the projects are chosen through the Bidding Process. The bidding for the

projects with a budget of less than 50 Million pesos is to be done by the Regional

Bidding and Awards Office. The bidding for the projects with the budget of

more than 50 Million Pesos is to be done by their main office.

She also mentioned that the NDRRMC provided guidelines for the Site

Selection for relocation. But the NHA also authored a more detailed site

selection guideline. She said that sites should not be on calamity prone areas,

the site should have access to transportation, institutional and commercial

establishments, and should have available electricity and water supply.

She went on and said that although in-city relocation is preferred,

sometimes there are no available sites or facilities within the location of the

affected regions. In this situation, the LGUs will be considered as ‘sending

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 129

LGUs’ and will send families to ‘receiving LGUs’ that are close to the disaster-

affected areas.

She said that the NHA has a ceiling budget for their housing projects.

But when it comes to Disaster Housing, the budget will depend on the Calamity

Fund provided by the NDRRMC to the LGU of the disaster-affected regions.

She said that the transitional shelters do follow the National Building

Code and other laws but are exempted from the structural aspect since these

shelters are only temporary. According to Architect De Vera, their housing

programs also comply with the BP 220. This means that the provision of Public

Facilities is also included in their projects. She mentioned that the NHA also

has a specific Memorandum Circular for the provision of Public Facilities which

added more facilities like Livelihood Facilities and Talipapa (wet and dry

market).

She mentioned that these housing units are meant to be used only for 6

months to a year. But some families overstay because some of the permanent

housing projects are delayed and some families prefer to move back to their

original homes.

When asked about the usual causes of delays in the projects, she

mentioned that one reason is the site is not ready. The site sometimes has no

access roads, the supply of electricity and water, and some overlooked aspects

like soil type that will require variations on the design.

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 130

She mentioned that the Transitional Shelters provided for the victims of

the Marawi Siege are made up of panels that will be recycled for another

calamity. These materials are owned by the National Government. Storing these

materials are to be done by government agencies involved in the project. She

said that these materials are only to be used for transitional shelters and not

permanent housing projects.

Architect De Vera also said that the identified sites by the MMDA on

their Oplan Metro Yakal Plus: Metro Manila Earthquake Contingency Plan

were only intended for evacuation sites and not for permanent facilities simply

because they are not owned by the government.

She also talked about the use of Community-based Initiative Approach

Programs where they let the community help with the construction of the

Housing Units. This was applied with the provision of housing for Indigenous

People (IP) with the help of the National Commission on Indigenous People

(NCIP).

6.5 Case Studies

6.5.1 Local Case Studies

6.5.1.1 Marawi Temporary Shelter

According to the Annual Report of the year 2018 of the

NHA since the Marawi Siege in May of 2017, their agency has

embarked on to constructing 6,700 temporary shelter. While San

Miguel Corporation has committed to build 2,400 permanent

shelters with the NHA’s technical assistance. The first batch of

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 131

families moved to the completed 500 temporary shelter on

December 2017. After some complaints of the foul smell of

water, a 1000-liter water tank was installed for use. Trash bins

were also distributed for proper waste disposal. In the year 2018,

two more sites started construction. On December 2018, 1,170

shelters were completed on one site. On April 2018, two

additional sites are to start construction. Construction of the

shelters are to continue until the year 2021.

(National Housing Authority, 2018)

Figure 12 NHA Chief assures accomplishment of 500

transitional shelters by December

Photo from Antonio, L. (2017). NHA Chief assures accomplishment of 500 transitional
shelters by December [Photograph]. Retrieved from
https://pia.gov.ph/news/articles/1001794

The units were constructed by a Korean National

Contractor, Danny Seo, in partnership with an Iligan-based

single proprietorship registered with the DTR, Golden Gate

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 132

Construction. The houses were made up of “sandwich panels”.

These are prefabricated light metal sheets with styrofoam core.

The units have sliding glass windows.

Figure 13. Workers unload “sandwich panels” at the

transitional shelter site in Baranay Sagonsongan

Photo from Bueno, G. (2017). Workers unload “sandwich panels” at the transitional
shelter site in Baranay Sagonsongan [Photograph]. Retrieved from
https://www.mindanews.com/top-stories/2017/10/marawi-bakwits-told-theyd-
transfer-to-sagonsongan-soon-but-where-are-the-houses1/

The units are a 22-square meter single-detached, pre-

fabricated (with toilet) built on a 58-square meter lot. The

contactor claimed that they are able to complete one unit a day

and the units are typhoon and earthquake resistant. The unit has

no partition but has a comfort room and a kitchen sink. The unit

is 170,000 pesos each including trucking cost.

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 133

Figure 14. Duterte to turn over 500 to 600 transitional

shelters for Marawi “bakwits” by mid-December

Photo by Dejeto, M. (2017). Duterte to turn over 500 to 600 transitional shelters for
Marawi “bakwits” by mid-December [Photograph]. Retrieved from
https://www.mindanews.com/top-stories/2017/10/duterte-to-turn-over-500-to-
600-transitional-shelters-for-marawi-bakwits-by-mid-december/

On October 2017, there was a delay in finishing the

construction of the floorings. According to foreman Bobby

Lopez of Golden Gate Construction said it was because of the

delay of the delivery of steel bars and cement that came all the

way from Davao City which was 420 kilometers from the site.

Each unit needs 20 bags of cement for the flooring according to

Lopez.
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 134

Figure 15. Workers at the transitional shelter site in

Barangay Sagonsongan in Marawi City had yet to complete
the flooring for four houses.

Photo from Dejeto, M. (2019). As of Tuesday noon, 10 October 2017, workers at the
transitional shelter site in Barangay Sagonsongan in Marawi City had yet to complete
the flooring for four houses. [Photograph]. Retrieved from
https://www.mindanews.com/top-stories/2017/10/marawi-bakwits-told-theyd-
transfer-to-sagonsongan-soon-but-where-are-the-houses1/

As Promised by the Task Force Bangon Marawi

(TFBM), for every 1,000 units built, they will provide public

facilities such as mosque, madrasah/school building,

recreational facilities, health and day care center, wet and dry

market, livelihood center, police barangay out-post and transport

terminal.

(Arguillas, 2017)

6.5.1.2 Yolanda Bunkhouses

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 135

Figure 16. Finished Bunkhouses

Photo by Jazul, L. (2014). FINISHED BUNKHOUSES [Photograph]. Retrieved

from https://www.rappler.com/move-ph/issues/disasters/typhoon-
yolanda/47313-lacson-kicbacks-yolanda-haiyan-bunkhouses

Since the Yolanda Typhoon in the year 2013, the DPWH

was tasked to provide temporary shelters for the IDPs. The

agency came up with a design of bunkhouses that consist of 24

rooms each unit that has an area of 8.64 square meters. And is

made up of coco lumber wooden frames, GI sheet roofing,

plywood walls and flooring, and cement footing.

(Official Gazette, 2013)

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 136

Figure 17. "Yolanda" Bunkhouses Overpriced Shelters

Substandard

Photo by Vanzi, S. (n.d.). “YOLANDA” BUNKHOUSES OVERPRICED

SHELTERS SUBSTANDARDS [Photograph]. Retrieved from
http://www.newsflash.org/2004/02/hl/hl112775.htm

A report by ABC-CBN News, in an interview, Architect

Jun Palafox said that the bunkhouses were way below

international standards. The architect stated that the international

standard for bunkhouses were at least 22 square meters. They

must contain at least three bedrooms, windows for proper

ventilation, elevation should be at least 1 meter above the flood

line, and materials should not be vulnerable to fire.

"Some nations build monuments for the dead but can't

even provide decent houses for the living” (Palafox,

2014)
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 137

Figure 18. Two Years after Yolanda, Hundreds of Families still

Live in Bunkhouses

Sabornido, L. (2015). Two Years after Yolanda, Hundreds of Families still

Live in Bunkhouses [Photograph]. Retrieved from https://faq.ph/two-years-
after-yolanda-hundreds-families-still-in-bunkhouses/

Panfilo Lacson, Rehabilitation Secretary, stated that the

overpricing of the bunkhouses was not the issue, but the use of

substandard materials. Efforts are also being made to further

coordinate private companies, national agencies and local

government.

"For example, sa mga classrooms, may shelter

classroom na gagawin. Mas resilient siya kaysa sa ibang

classroom, na sya lang maiiwan kapag may destruction,"

(For example, on classrooms, there will be a shelter

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 138

classroom to be built, It’s more resilient than the other

classrooms, that classroom will be the only one left

standing when destruction happens)

(Lacson, 2014)

6.5.2 Foreign Case Studies

6.5.2.1 “Just a Minute” Pop-up Home by Barberio

Collela Arc

Figure 19 Just a Minute Perspective

This project was submitted to the competition by

Ikuku and was designed for the victims of the 2015

Earthquake in Nepal. The design is quickly deployable

and is made up of local materials like bamboo and

waterproof textiles. The shelter is intended for 4 to 10

people. It measures 4 by 11.7 meters but can be folded

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 139

into a 10 sqm box because of its X-shaped bamboo pole

construction that folds like an accordion. This also makes

the assembly easier and doesn’t require skilled labor.

Figure 20 Just a Minute Materials

The structure is mainly made out of six materials

that make sourcing efficient. The materials are OSB

panels (sourced from China), bamboo (from Nepal),

laminated bamboo (from China/ Nepal), white juta (from

Bangladesh/ India), recycled wool (from charitable

donations) and a waterproof membrane (from China).

Because of the lightweight materials, the units can be

deployed by airlifting it to the site.

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 140

Figure 21. Just a Minute Floor Plan

Figure 22. Just a Minute Demonstration

The unit has a central space made out of OCB

panels which creates the bathroom and kitchen. The sides

4 meters each are which make up to be the living and

sleeping spaces. The single pitched roof is also designed

to be ready for the installation of photovoltaic panels and

directs the water to a central rainwater collection system.

(Lynch,2015)
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 141

6.5.2.2 Shigeru Ban: Onagawa temporary container

housing + community center

Figure 23. Onagawa temporary container housing +

community center dining hall

This project was by shirengu ban architects following the

Japan earthquake in 2011. The firm started helping the evacuees

by installing 1800 units of 2 by 2 meters emergency partition

system within 50 evacuation centers. The firm learned about the

town of Onogawa was having difficulty providing shelters

because of the lack of flat land. To resolve this, a three-story

structure of stacked 20-foot shipping containers in a

checkerboard fashion was proposed.

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 142

Figure 24 Onagawa temporary container housing +

community center Interior

The alternate stacking of the units was designed mot only

to allow natural light and ventilation, but also to give way for

open living spaces. Shelves and storage spaces were also

installed. The various calibration of spaces make up different

units that include 19.8 sqm unit for 1-2 persons, 29.7 sqm units

for 3-4 persons, and 39.6 sqm units for 4 or more persons.
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 143

Figure 25. Onagawa temporary container housing +

community center Church

The community center was made by placing shipping

containers at the perimeter of the space to make up the walls, and

plywood was used to create the gable roof. Triangular clerestory

windows were placed for natural light. The market place was

made similarly with containers at the perimeter but is open-air

and with tensile roofing.

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 144

Figure 26. Onagawa temporary container housing +

community center Night Photo

Figure 27. Onagawa temporary container housing +

community center Construction Method
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 145

Figure 28 Onagawa temporary container housing +

community center Construction

6.6 Visitation & Photo Documentation

6.7 Data Analysis

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 146

Chapter 7: Spatial Programming and Analysis

7.1 List of Spatial Requirements

7.1.1 Single-Family Unit

Each family will require sleeping areas, living room, bedroom,

kitchen, and a toilet and bath. The transitional shelter will use a studio-

type plan and will not provide partitions. This space can accommodate

3-5 family members.

7.1.2 Couple’s Room

This space is a designated private room that will accomodate

legally married evacuee-couples. This is for the couples to spend a

moment of togetherness and romance with privacy. The space should be

located at the end part of the camp. Each couple should pay a minimal

fee to use the room at the maximum of 3 hours. The fees collected will

be used for the development of the camp.

7.1.3 Breast Feeding Area

This space is for the lactating mothers that are staying in the

camp. The area should be accessible and provide security and privacy.

Support care should be available like helpful maternity services;

continuing assistance and social supports; and appropriate health

services.
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 147

7.1.4 Communal Toilet and Bath

For long-term stay a minimum of 1 toilet for every 20 persons is

desired. There should be at least 4 toilets for every 3 Male toilets. In

every 10 toilets, one PWD toilet is required. Privacy shall be maintained

by the right materials and design of the facility. Women’s block should

have an available disposal area for baby diapers and sanitary napkins.

One shower facility is required for every 40 persons. One

handwashing area is required for every 10 toilets and shall not be more

than 10 meters away from the toilet.

7.1.5 Laundry and Drying Area

The Laundry area should accommodate at least 2 persons each.

1 hand basin for every 10 persons is required. A wash bench of 4-5

meters for every 100 persons is required. 2 double sided 3-meter laundry

platforms are required for every 100 evacuees.

7.1.6 Community Kitchen

This space is to help provide hot meals and ready to eat meals to

the evacuees. These spaces can be used as storage of food stockpile

before the occurrence of disasters. The location of these spaces must be

strategically located in relation to identified evacuation centers. The

designation of this spaces also promotes a sense of community between

evacuees and opens livelihood opportunities through the cash-for-work

program of the camp management.

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 148

7.1.7 Community Water Points

These spaces offer access to drinkable water and water for other

uses to the evacuees. The facility must offer 15 liters of water per person

per day. There should be a maximum distance of 500 meters between

water points and the individual water shelter. Each functioning water tap

can accommodate at least 250 persons.

7.1.8 Community Dining Hall

The Dining Hall should accommodate all the evacuees in each

camp at the same time. The hall shall have proper lighting and be roofed.

Tables and chairs shall have a designated storage space when not in use.

7.1.9 Retail Area

These spaces can accommodate the evacuees that would want to

start or continue businesses to help as a source of income during their

stay. The DSWD also have programs that support these businesses.

7.1.10 Community Clinic

This space must be available 24/7. If a Public health facility is

located within 500 meters of the site, it should be provided by that

facility. If the nearest Health facility is located more than 500 meters of

the site, a health station should be established and manned by health staff

8 hours a day within the first 2 weeks of the emergency.

7.1.11 Multi-Purpose Hall

The camp shall have a community gathering space for different

purposes. Events and community activities like disaster victim

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 149

debriefings, general orientation, government activities, and other events

that require the community to gather will be held at this space. Religious

practices are to be held in this space. But it must be considered that

evacuees might have different religions, therefore religious symbols

permanently installed on the space is not recommended.

An adequate storage facility must be provided for the furniture

and equipment required in the space.

7.1.12 Child-friendly Park/ Play Area

The space has a minimum dimension of 6 meters by 7 meters

with the provision of outdoor space. There should be at least 1

established child friendly space for every 100 families. The space should

be located near a comfort room. Each space can serve at least 280

children. The space shall be secure and provide visibility at any area.

The space shall also offer spaces for parents and grandparents.

7.1.13 Community Garden

The space offers leisure for the Evacuees. This can also offer the

opportunity for alternative sources of food and livelihood. The space is

desirably adjacent to the Community Park. The space shall offer social

spaces and storage space for gardening equipment.

7.1.14 Livestock Area

A space for livestock and domestic animals of evacuees shall be

provided in all camps. If possible, a separate camp shall be established

for the animals. Facilities and food for the animals must be provided
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 150

during their stay in the camp. Care and safety for these animals will be

ensured by the camp management and staff with the assistance from the

Department of Agriculture (DA), animal rights groups and other

stakeholders. In the urban setting, the citizens doesn’t often own

livestock, therefore the space will focus on designing for domestic

animals.

7.1.15 Temporary Learning Spaces (TLS)

Establishment of this space is required especially for long-term

stay in the camps. This space is coherent with the Play area. For every

100 families, 2 learning spaces with at least 42 square meters of floor

area should be established. The space shall be equipped with tables and

chairs, movable blackboards, and shall be provided with learning

materials such as story books, modular instructional materials for

alternative education, and recreational materials for psychological

support sessions.

7.1.16 Livelihood Workshop Area

This space shall be used for livelihood programs provided by

government agencies and other stakeholders to the leader of the

household of the evacuees. The space shall offer a workshop station and

learning spaces for adults.

7.1.17 Food and Non-food Items Storage

This space shall be able to store food items for the evacuees.

Preferably the space shall be adjacent to the community kitchen. The

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 151

space shall be secure from pests and moisture. Storage for Non-food

items shall be separate from the food items storage. This space shall be

enough to store relief goods and camp management operational

equipment.

7.1.18 Camp Management Office

The office shall be visible and properly marked. The space shall

offer work stations for shifting camp management staff. The space shall

be equipped with office furniture and supplies. Communication

equipment shall also be established.

7.1.19 Information Board

There shall be a space established to disseminate information to

the evacuees. This space shall be easily seen and secure from vandalism.

7.1.20 Waste Management Area

This space shall be located at the end of the camp and shall be

accessible by road. The space is preferably indoor to secure waste from

pests and contain foul odor away from the living spaces.

7.1.21 Mechanical/Equipment Area

This space shall be established in a secure area. It shall be

accessible by road and adjacent to the parking area.

7.1.22 Camp Parking Area

The parking spaces shall be dedicated for the camp management,

delivery of goods, maintenance and waste disposal vehicles, camp

visitors and volunteers, and emergency vehicles.

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 152

7.2 Room Data Sheet

Table 27. Room Data Sheets

Name of Space Single-Family Unit

Location/Department Front of the House

Functional Design Requirements

Primary Secondary

Activities Sleeping
Lounging
Living

Territorial
Private Space Group Space Interaction Space Access Space
Requirements

User Group Public Semi Public Private Specific

Active Quiet
Nature of Activity Noise Level
Passive Noisy

Day Morning Afternoon

Duration of Space
to be Used
Night Evening Late Evening

Environmental Conditions and Concerns

Natural Active
Light Ventilation
Artificial Passive

Daylight E D U Acoustic Treatment L M H

Ambient Light E D U Fire Risk L M H

Emergency Light E D U Other Risk L M H

Legend: Essential, Desirable, Unnecessary Legend: Low, Medium, High

Name of Space Couple's Room

Location/Department Back of the House

Functional Design Requirements

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 153

Primary Secondary
Activities
Private Time with each other

Territorial
Private Space Group Space Interaction Space Access Space
Requirements

User Group Public Semi Public Private Specific

Active Quiet
Nature of Activity Noise Level
Passive Noisy

Day Morning Afternoon

Duration of Space
to be Used
Night Evening Late Evening

Environmental Conditions and Concerns

Natural Active
Light Ventilation
Artificial Passive

Daylight E D U Acoustic Treatment L M H

Ambient Light E D U Fire Risk L M H

Emergency Light E D U Other Risk L M H

Legend: Essential, Desirable, Unnecessary Legend: Low, Medium, High

Name of Space Breast Feeding Area

Location/Department Back of the House

Functional Design Requirements

Primary Secondary

Activities Medical Care

Breast Feeding
Acquiring Supplies

Territorial
Private Space Group Space Interaction Space Access Space
Requirements

User Group Public Semi Public Private Specific

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 154

Active Quiet
Nature of Activity Noise Level
Passive Noisy

Day Morning Afternoon

Duration of Space
to be Used
Night Evening Late Evening

Environmental Conditions and Concerns

Natural Active
Light Ventilation
Artificial Passive

Daylight E D U Acoustic Treatment L M H

Ambient Light E D U Fire Risk L M H

Emergency Light E D U Other Risk L M H

Legend: Essential, Desirable, Unnecessary Legend: Low, Medium, High

Name of Space Communal Toilet & Bath

Location/Department Varies

Functional Design Requirements

Primary Secondary

Activities Relieving
Washing
Showering

Territorial
Private Space Group Space Interaction Space Access Space
Requirements

User Group Public Semi Public Private Specific

Active Quiet
Nature of Activity Noise Level
Passive Noisy

Day Morning Afternoon

Duration of Space
to be Used
Night Evening Late Evening
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 155

Environmental Conditions and Concerns

Natural Active
Light Ventilation
Artificial Passive

Daylight E D U Acoustic Treatment L M H

Ambient Light E D U Fire Risk L M H

Emergency Light E D U Other Risk L M H

Legend: Essential, Desirable, Unnecessary Legend: Low, Medium, High

Name of Space Laundry/Drying Area

Location/Department Back of the House

Functional Design Requirements

Primary Secondary

Activities Washing Clothes

Washing
Drying

Territorial
Private Space Group Space Interaction Space Access Space
Requirements

User Group Public Semi Public Private Specific

Active Quiet
Nature of Activity Noise Level
Passive Noisy

Day Morning Afternoon

Duration of Space
to be Used
Night Evening Late Evening

Environmental Conditions and Concerns

Natural Active
Light Ventilation
Artificial Passive

Daylight E D U Acoustic Treatment L M H

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 156

Ambient Light E D U Fire Risk L M H

Emergency Light E D U Other Risk L M H

Legend: Essential, Desirable, Unnecessary Legend: Low, Medium, High

Name of Space Community Kitchen

Location/Department Back of the House

Functional Design Requirements

Primary Secondary

Activities Cooking Dish Washing

Food Preparation Storage

Territorial
Private Space Group Space Interaction Space Access Space
Requirements

User Group Public Semi Public Private Specific

Active Quiet
Nature of Activity Noise Level
Passive Noisy

Day Morning Afternoon

Duration of Space
to be Used
Night Evening Late Evening

Environmental Conditions and Concerns

Natural Active
Light Ventilation
Artificial Passive

Daylight E D U Acoustic Treatment L M H

Ambient Light E D U Fire Risk L M H

Emergency Light E D U Other Risk L M H

Legend: Essential, Desirable, Unnecessary Legend: Low, Medium, High

Name of Space Community Water Points

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 157

Location/Department Front of the House

Functional Design Requirements

Primary Secondary
Activities
Accessing Water Supply Maintenance

Territorial
Private Space Group Space Interaction Space Access Space
Requirements

User Group Public Semi Public Private Specific

Active Quiet
Nature of Activity Noise Level
Passive Noisy

Day Morning Afternoon

Duration of Space
to be Used
Night Evening Late Evening

Environmental Conditions and Concerns

Natural Active
Light Ventilation
Artificial Passive

Daylight E D U Acoustic Treatment L M H

Ambient Light E D U Fire Risk L M H

Emergency Light E D U Other Risk L M H

Legend: Essential, Desirable, Unnecessary Legend: Low, Medium, High

Name of Space Community Dining Area

Location/Department Front of the House

Functional Design Requirements

Primary Secondary
Activities
Dinning Interacting

Territorial
Private Space Group Space Interaction Space Access Space
Requirements
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 158

User Group Public Semi Public Private Specific

Active Quiet
Nature of Activity Noise Level
Passive Noisy

Day Morning Afternoon

Duration of Space
to be Used
Night Evening Late Evening

Environmental Conditions and Concerns

Natural Active
Light Ventilation
Artificial Passive

Daylight E D U Acoustic Treatment L M H

Ambient Light E D U Fire Risk L M H

Emergency Light E D U Other Risk L M H

Legend: Essential, Desirable, Unnecessary Legend: Low, Medium, High

Name of Space Retail Area

Location/Department Front of the House

Functional Design Requirements

Primary Secondary
Activities
Commerce Interacting

Territorial
Private Space Group Space Interaction Space Access Space
Requirements

User Group Public Semi Public Private Specific

Active Quiet
Nature of Activity Noise Level
Passive Noisy

Day Morning Afternoon

Duration of Space
to be Used
Night Evening Late Evening
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 159

Environmental Conditions and Concerns

Natural Active
Light Ventilation
Artificial Passive

Daylight E D U Acoustic Treatment L M H

Ambient Light E D U Fire Risk L M H

Emergency Light E D U Other Risk L M H

Legend: Essential, Desirable, Unnecessary Legend: Low, Medium, High

Name of Space Community Clinic

Location/Department Front of the House

Functional Design Requirements

Primary Secondary
Activities
Medical Consultation Interacting

Territorial
Private Space Group Space Interaction Space Access Space
Requirements

User Group Public Semi Public Private Specific

Active Quiet
Nature of Activity Noise Level
Passive Noisy

Day Morning Afternoon

Duration of Space
to be Used
Night Evening Late Evening

Environmental Conditions and Concerns

Natural Active
Light Ventilation
Artificial Passive

Daylight E D U Acoustic Treatment L M H

Ambient Light E D U Fire Risk L M H

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 160

Emergency Light E D U Other Risk L M H

Legend: Essential, Desirable, Unnecessary Legend: Low, Medium, High

Name of Space Multi-Purpose Hall

Location/Department Front of the House

Functional Design Requirements

Primary Secondary
Activities
Community Gathering Religious Practice

Territorial
Private Space Group Space Interaction Space Access Space
Requirements

User Group Public Semi Public Private Specific

Active Quiet
Nature of Activity Noise Level
Passive Noisy

Day Morning Afternoon

Duration of Space
to be Used
Night Evening Late Evening

Environmental Conditions and Concerns

Natural Active
Light Ventilation
Artificial Passive

Daylight E D U Acoustic Treatment L M H

Ambient Light E D U Fire Risk L M H

Emergency Light E D U Other Risk L M H

Legend: Essential, Desirable, Unnecessary Legend: Low, Medium, High

Name of Space Child-friendly Park/ Play Area

Location/Department Front of the House

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 161

Functional Design Requirements

Primary Secondary
Activities
Leisure Evacuation Grounds

Territorial
Private Space Group Space Interaction Space Access Space
Requirements

User Group Public Semi Public Private Specific

Active Quiet
Nature of Activity Noise Level
Passive Noisy

Day Morning Afternoon

Duration of Space
to be Used
Night Evening Late Evening

Environmental Conditions and Concerns

Natural Active
Light Ventilation
Artificial Passive

Daylight E D U Acoustic Treatment L M H

Ambient Light E D U Fire Risk L M H

Emergency Light E D U Other Risk L M H

Legend: Essential, Desirable, Unnecessary Legend: Low, Medium, High

Name of Space Community Garden

Location/Department Front of the House

Functional Design Requirements

Primary Secondary
Activities
Leisure Evacuation Grounds

Territorial
Private Space Group Space Interaction Space Access Space
Requirements

User Group Public Semi Public Private Specific

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 162

Active Quiet
Nature of Activity Noise Level
Passive Noisy

Day Morning Afternoon

Duration of Space
to be Used
Night Evening Late Evening

Environmental Conditions and Concerns

Natural Active
Light Ventilation
Artificial Passive

Daylight E D U Acoustic Treatment L M H

Ambient Light E D U Fire Risk L M H

Emergency Light E D U Other Risk L M H

Legend: Essential, Desirable, Unnecessary Legend: Low, Medium, High

Name of Space Livestock Area

Location/Department Back of the House

Functional Design Requirements

Primary Secondary
Activities
Agriculture Visitation

Territorial
Private Space Group Space Interaction Space Access Space
Requirements

User Group Public Semi Public Private Specific

Active Quiet
Nature of Activity Noise Level
Passive Noisy

Day Morning Afternoon

Duration of Space
to be Used
Night Evening Late Evening

Environmental Conditions and Concerns

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 163

Natural Active
Light Ventilation
Artificial Passive

Daylight E D U Acoustic Treatment L M H

Ambient Light E D U Fire Risk L M H

Emergency Light E D U Other Risk L M H

Legend: Essential, Desirable, Unnecessary Legend: Low, Medium, High

Name of Space Temporary Learning Spaces (TLS)

Location/Department Front of the House

Functional Design Requirements

Primary Secondary
Activities
Education Psychological Care

Territorial
Private Space Group Space Interaction Space Access Space
Requirements

User Group Public Semi Public Private Specific

Active Quiet
Nature of Activity Noise Level
Passive Noisy

Day Morning Afternoon

Duration of Space
to be Used
Night Evening Late Evening

Environmental Conditions and Concerns

Natural Active
Light Ventilation
Artificial Passive

Daylight E D U Acoustic Treatment L M H

Ambient Light E D U Fire Risk L M H

Emergency Light E D U Other Risk L M H

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 164

Legend: Essential, Desirable, Unnecessary Legend: Low, Medium, High

Name of Space Livelihood Workshop Area

Location/Department Front of the House

Functional Design Requirements

Primary Secondary
Activities
Education Workshop Activities

Territorial
Private Space Group Space Interaction Space Access Space
Requirements

User Group Public Semi Public Private Specific

Active Quiet
Nature of Activity Noise Level
Passive Noisy

Day Morning Afternoon

Duration of Space
to be Used
Night Evening Late Evening

Environmental Conditions and Concerns

Natural Active
Light Ventilation
Artificial Passive

Daylight E D U Acoustic Treatment L M H

Ambient Light E D U Fire Risk L M H

Emergency Light E D U Other Risk L M H

Legend: Essential, Desirable, Unnecessary Legend: Low, Medium, High

Name of Space Food and Non-Food Items Storage

Location/Department Back of the House

Functional Design Requirements

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 165

Primary Secondary
Activities
Storage Supply Distribution

Territorial
Private Space Group Space Interaction Space Access Space
Requirements

User Group Public Semi Public Private Specific

Active Quiet
Nature of Activity Noise Level
Passive Noisy

Day Morning Afternoon

Duration of Space
to be Used
Night Evening Late Evening

Environmental Conditions and Concerns

Natural Active
Light Ventilation
Artificial Passive

Daylight E D U Acoustic Treatment L M H

Ambient Light E D U Fire Risk L M H

Emergency Light E D U Other Risk L M H

Legend: Essential, Desirable, Unnecessary Legend: Low, Medium, High

Name of Space Camp Management office

Location/Department Front of the House

Functional Design Requirements

Primary Secondary
Activities
Management Visitation

Territorial
Private Space Group Space Interaction Space Access Space
Requirements

User Group Public Semi Public Private Specific

Nature of Activity Active Noise Level Quiet

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 166

Passive Noisy

Day Morning Afternoon

Duration of Space
to be Used
Night Evening Late Evening

Environmental Conditions and Concerns

Natural Active
Light Ventilation
Artificial Passive

Daylight E D U Acoustic Treatment L M H

Ambient Light E D U Fire Risk L M H

Emergency Light E D U Other Risk L M H

Legend: Essential, Desirable, Unnecessary Legend: Low, Medium, High

Name of Space Information Board

Location/Department Front of the House

Functional Design Requirements

Primary Secondary
Activities
Information Dissemination Maintenance

Territorial
Private Space Group Space Interaction Space Access Space
Requirements

User Group Public Semi Public Private Specific

Active Quiet
Nature of Activity Noise Level
Passive Noisy

Day Morning Afternoon

Duration of Space
to be Used
Night Evening Late Evening

Environmental Conditions and Concerns

Light Natural Ventilation Active

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 167

Artificial Passive

Daylight E D U Acoustic Treatment L M H

Ambient Light E D U Fire Risk L M H

Emergency Light E D U Other Risk L M H

Legend: Essential, Desirable, Unnecessary Legend: Low, Medium, High

Name of Space Information Board

Location/Department Front of the House

Functional Design Requirements

Primary Secondary
Activities
Information Dissemination Maintenance

Territorial
Private Space Group Space Interaction Space Access Space
Requirements

User Group Public Semi Public Private Specific

Active Quiet
Nature of Activity Noise Level
Passive Noisy

Day Morning Afternoon

Duration of Space
to be Used
Night Evening Late Evening

Environmental Conditions and Concerns

Natural Active
Light Ventilation
Artificial Passive

Daylight E D U Acoustic Treatment L M H

Ambient Light E D U Fire Risk L M H

Emergency Light E D U Other Risk L M H

Legend: Essential, Desirable, Unnecessary Legend: Low, Medium, High

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 168

Name of Space Waste Management Area

Location/Department Back of the House

Functional Design Requirements

Primary Secondary
Activities
Waste Management Maintenance

Territorial
Private Space Group Space Interaction Space Access Space
Requirements

User Group Public Semi Public Private Specific

Active Quiet
Nature of Activity Noise Level
Passive Noisy

Day Morning Afternoon

Duration of Space
to be Used
Night Evening Late Evening

Environmental Conditions and Concerns

Natural Active
Light Ventilation
Artificial Passive

Daylight E D U Acoustic Treatment L M H

Ambient Light E D U Fire Risk L M H

Emergency Light E D U Other Risk L M H

Legend: Essential, Desirable, Unnecessary Legend: Low, Medium, High

Name of Space Waste Management Area

Location/Department Back of the House

Functional Design Requirements

Activities Primary Secondary

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 169

Waste Management Maintenance

Territorial
Private Space Group Space Interaction Space Access Space
Requirements

User Group Public Semi Public Private Specific

Active Quiet
Nature of Activity Noise Level
Passive Noisy

Day Morning Afternoon

Duration of Space
to be Used
Night Evening Late Evening

Environmental Conditions and Concerns

Natural Active
Light Ventilation
Artificial Passive

Daylight E D U Acoustic Treatment L M H

Ambient Light E D U Fire Risk L M H

Emergency Light E D U Other Risk L M H

Legend: Essential, Desirable, Unnecessary Legend: Low, Medium, High

Name of Space Mechanical/Equipment Area

Location/Department Back of the House

Functional Design Requirements

Primary Secondary
Activities
Maintenance

Territorial
Private Space Group Space Interaction Space Access Space
Requirements

User Group Public Semi Public Private Specific

Nature of Activity Active Noise Level Quiet

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 170

Passive Noisy

Day Morning Afternoon

Duration of Space
to be Used
Night Evening Late Evening

Environmental Conditions and Concerns

Natural Active
Light Ventilation
Artificial Passive

Daylight E D U Acoustic Treatment L M H

Ambient Light E D U Fire Risk L M H

Emergency Light E D U Other Risk L M H

Legend: Essential, Desirable, Unnecessary Legend: Low, Medium, High

Name of Space Camp Parking Area

Location/Department Back of the House

Functional Design Requirements

Primary Secondary

Activities Maintenance
Parking
Evacuation Grounds

Territorial
Private Space Group Space Interaction Space Access Space
Requirements

User Group Public Semi Public Private Specific

Active Quiet
Nature of Activity Noise Level
Passive Noisy

Day Morning Afternoon

Duration of Space
to be Used
Night Evening Late Evening

Environmental Conditions and Concerns

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 171

Natural Active
Light Ventilation
Artificial Passive

Daylight E D U Acoustic Treatment L M H

Ambient Light E D U Fire Risk L M H

Emergency Light E D U Other Risk L M H

Legend: Essential, Desirable, Unnecessary Legend: Low, Medium, High

7.3 Summary of Area Requirements

Table 28. Summary of Area Requirements

Area Minimu Tentative Area

Code User No. m Area Dimensions
Space User per (in No. of Total
No. Classification Users
User (in SQM) (in Meters) SQM) Spaces Area

Residential Area

Single-Family Evacuee
1 Unit Specific Families 5 18.6 93 3 8 24 1000 24000

2 Couple's Room Specific Couples 2 18.6 37.2 3 3 9 10 90

Breast Feeding Lactating

3 Area Specific Mothers 20 7.4 148 12 13 156 1 156

Evacuee
Families

Management
Communal
4 Toilet & Bath Public Staff 20 1.2 24 7 5 35 4 140

Laundry/Dryin Evacuee
5 g Area Public Families 50 4.6 230 15 18 270 1 270

Community
6 Kitchen Private Staff 10 18.6 186 16 12 192 1 192

Evacuee
Families

Management
Community
7 Water Points Public Staff 50 1.4 70 7 10 70 3 210
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 172

Evacuee
Families

Management
Community
8 Dining Area Public Staff 40 14 560 50 12 600 1 600

Circulation Space = 7697.4

33355.
Total Area = 4

Community Facilities

Evacuee
Families

Management

9 Retail Area Public Staff 20 4.6 92 9 11 99 1 99

Medical
Practitioners

Evacuee
Families

Management
Community
10 Clinic Specific Staff 4 8.4 33.6 3 12 36 1 36

Evacuee
Families

Management
Multi-Purpose
11 Hall Public Staff 1000 0.65 650 60 11 660 1 660

Evacuee
Families
Child-friendly Management
Park/ Play
12 Area Public Staff 100 1.8 180 18 10 180 1 180

Evacuee
Families

Management
Community
13 Garden Public Staff 100 1.8 180 18 10 180 1 180

Evacuee
Semi- Families

14 Livestock Area Public Management 25 4.6 115 10 12 120 1 120

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 173

Staff

Evacuee
Families
Temporary Management
Learning
15 Spaces (TLS) Public Staff 280 1.8 504 7 6 42 20 840

Evacuee
Families
Livelihood Management
Workshop
16 Area Public Staff 30 4.6 138 10 14 140 2 280

Food and Non-

Food Items Semi-
17 Storage Public Staff 10 28 280 20 13 260 1 260

Camp Management
Management Semi-
18 office Public Staff 20 9.3 186 18 11 198 1 198

Evacuee
Families

Management
Information
19 Board Public Staff 20 0.65 13 7 2 14 1 14

Circulation Space = 860.1

Total Area = 3727.1

Support Facilities

Waste
Management
20 Area Specific Staff 5 28 140 12 12 144 1 144

Mechanical/Eq
21 uipment Area Specific Staff 5 28 140 12 12 144 1 144

Evacuee
Families

Management
Camp Parking
22 Area Public Staff 500 0 0 1 0

Circulation Space = 86.4

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 174

Total Area = 374.4

13109.
Building Gross Up = 915

50566.
Total Area = 815

7.4 Adjacency Matrix

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7.5 Bubble Diagram

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 176

Chapter 8: Conceptual Development

8.1 Design Objectives

8.1.1 Design Objective 1

To design a self-sustaining environment through the use

livelihood facilities for Internally Displaced Persons and help support

the philosophy “building back better” through education.

8.1.2 Design Objective 2

To plan an integrated multi-phase project that uses construction

systems that will reduce environmental impacts through sustainable

architecture at the same time providing innovation that will accelerate

the recovery of the Internally Displaced Persons.

8.1.3 Design Objective 3

To design an environment that supports the Residents’ early

recovery through Motivational forces and Psychological Needs namely:

Social Needs, Stabilizing Needs, Individual Needs, Self-Expression, and

Enrichment Needs. To create a community-centric environment that

encourages comradeship and collective recovery and rehabilitation

through leisure activities and community-driven activities.

8.2 Design Philosophy

Architecture has always been exhibiting the greatness of people. In

the modern world, it now has the responsibility to include greatness
manifested in everyone.
EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 177

8.3 Design Concepts

“TIPID”

N. Filipino Word that means to save up, economize, or to refrain from spending.

The word “tipid” is commonly used by Filipinos that refer to

saving up money. This is a common behavior of Filipinos that would

encourage an individual to save up money or resources when they are

limited or in order to prepare for occasions that require them. The

concept in its true form, not only prioritizes the economic factors but

also puts sustainability as the idea where the design revolves. Designing

for an Emergency Housing project has many phases. Namely immediate

response, early recovery, and rehabilitation. Each phase has a lot of

construction involved. Construction then has environmental impacts

that when accumulated could cause the amplification of the natural

hazards. Reducing environmental impacts breaks the cycle of recovering

from the disasters that human activities amplify. Sustainability is

practiced by dematerialization, designing for disassembly, and

detoxification. Applying a concept that would integrate the project

phases and coordinating them towards sustainability is a good way to

“tipid”.

There is also the goal to “build back better”. This can be achieved

by educating the people on construction methods that would increase

their resilience to hazards. By applying the concept “tipid”, with

knowledge being recognized as a resource, educating people can be a

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 178

way of providing them resources that they can save and use when

necessary.

The concept “tipid’ can also be a motivational force. If people

can see that they are progressing by seeing the resources that they have

saved up, it provides a sense of growth. Therefore can be a way that

supports them psychologically.

8.4 Design Considerations

8.4.1 Economic Sustainability

The environment shall include a system that encourages an

internal sustainable economy. The spaces shall provide livelihood

opportunities and access to commercial, institutional, and transportation

facilities.

8.4.2 Educational Opportunities

The community shall provide educational facilities for all age

groups. Although there is no established curriculum for the education,

the community shall provide temporary learning spaces that would aid

the absence of the educational institutions. These spaces shall also

support the psychological care given to the users.

8.4.3 Sustainable Construction Methods

Sustainable ways to construct shall be considered in order to

reduce the environmental impacts. Minimalism with the design shall be

explored, at the same time maintaining acceptable structural

requirements of the structures.

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 179

8.4.4 Project Phase Cohesion

Each Project Phase shall be fully cohesive with each other in

order to maximize efficiency and cost-effectiveness of the construction.

Each Project Phase shall also support the succeeding phases through the

use of modular structural and architectural members.

8.4.5 Psychology of Spaces

The users are victims of disasters. The spaces shall allow and

encourage post-trauma growth and collective rehabilitation. The spaces

shall also have motivational forces and allow the provision of

psychological needs.

8.4.6 Communal Environment

The spaces shall remove the feeling of isolation. The spaces shall

be more socially active. The spaces shall support community gathering

and community-driven activities.

8.5 Design Strategies.

8.5.1 Livelihood Opportunities

The provision of spaces that would offer livelihood opportunities

at the same time increasing the number of various services and resources

available to the users.

8.5.2 Educational Facilities

There shall be an established learning spaces for all age groups

of users. Spaces for Children shall integrate play and recreational

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 180

facilities. Learning spaces for adults shall support livelihood workshop

activities and other income-generating activities.

8.5.3 Dematerialization

The construction methods shall prioritize the decrease in the use

of materials that greatly affect the environment negatively. This will also

be a way to be more cost-effective on construction.

8.5.4 Building for Disassembly

Since the project has multiple phases, the construction methods

shall allow disassembly to encourage the reuse of construction materials

during the different phases of the project

8.5.7 Leisure and Social Spaces

Leisure Spaces shall be established to support psychological

recovery for the users. Community-gathering spaces shall also be

socially active and encourage outdoor activities.

8.5.8 Communal Facilities

Support Facilities like the community kitchen and dining area

shall be provided. The provision of these communal facilities shall be a

secondary space for interaction and livelihood opportunities.

EMERGENCY SHELTER: A Disaster Response Transitory Housing Assistance for Metro Manila 181

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