Adaptive Capacity of Households, Community Organizations and Institutions for Extreme Climate Events in the Philippines

Tropical cyclone is the most commonly occurring natural hazard in the Philippines causing billions of pesos worth in socio-economic losses and other forms of damages. Analysis of 59-year data on Philippine typhoons revealed that their intensity had been increasing, especially since the 1990s. It is therefore important for people, communities, and institutions to enhance their capacity to adapt to typhoon events and improve resilience to their probable risks. This research work focused on local government units (LGUs), community organizations (COs), and households in the province of Batangas and their experience with Typhoon Milenyo (international name Xangsane) in September 2006. Using data from primary and secondary sources, key informant interviews, and focus group discussions (FGDs), the study assessed their adaptive capacity and how this capacity was translated to adaptation behavior as manifested in their specific responses to Typhoon Milenyo. The LGUs‘ response to typhoon and flooding was essentially 'relief, rescue, and rehabilitation‘ in nature. However, they recognized that there were other adaptation possibilities that could make the communities less vulnerable to typhoon events. This indicates some gaps between adaptation practices actually taken and practices recommended but were not done. One acknowledged gap in LGU response was better preparedness to typhoon event, showing the importance of establishing an early warning. This system would inform the public and decision makers about critical adaptation decision points such as what adaptation options are available and what adaptation strategies would be most appropriate. Other recommended strategies are medium to long- term in nature in order to mitigate or prevent damages from future typhoons. Constraints to adoption of more effective adaptation options pertain to weak enforcement of existing policies and standards (e.g., land use policy, building code), which are some of the underlying risk factors that could exacerbate vulnerability of the localities. Other barriers include unclear operational procedures; financial constraints, particularly for long-term and infrastructure development measures; and integration of climate risk management to local development plans. While LGUs rate their adaptive capacity high, their programs and policies and human resource capability were apparently low. There may be a need to further enhance this capacity for more effective and sustainable adaptation strategies. Partnership with other sectors of society is crucial, thus the current limited role of community organizations should also be intensified. The second part of the study analyzed the adaptive capacity of households and their experiences and adaptive behavior to deal with the impacts of Typhoon Milenyo. Primary data were generated from personal interviews of lowland and coastal households in two localities of Batangas. Results of the analysis showed that, overall, lowland and coastal households had the same adaptive capacity index. However, their differences emerged when it came to specific indicators. Lowland households had the highest capacity index in terms of infrastructure, followed by technology, and lowest in terms of social capital. On the other hand, coastal households fared highest in social capital, followed by economic adaptive capacity, and lowest in skills and knowledge. The damage brought by Typhoon Milenyo varied by sector. The cost of damage to houses was highest in the coastal areas, while agricultural production suffered the most in the lowland areas. Recovery period for majority of affected households was within one month, but agricultural households took a longer period to recover as the income they could have generated from their harvest was lost. During the typhoon, however, there was an increase in fish catch and sales of retail business. Adaptation strategies of the households to deal with Typhoon Milenyo were mostly structural such as reinforcing their houses and household properties as well as behavioral such as securing food, water, and other household needs including boats and livestock. Some collective action took place in the community particularly after the typhoon as relief operations were mobilized. Some households were not able to take some possible adaptation options because of financial reasons. Those who were not willing to adopt strategies recommended by experts such as moving to a safer place preferred to stay in their own homes. The awareness of households on climate change-related events has not been always translated to individual actions. The lack of action was not only because of the low adaptive capacity of households but also because of their attitude and perception over climate change-related problems and solutions. The lessons learned from the Typhoon Milenyo experience showed the importance of disaster preparedness. Households expressed the need for financial assistance and hard infrastructure to deal with typhoon events. However, majority of the respondents ?agree to ?strongly agree? that their experience with an extreme typhoon event such as Milenyo was a matter of fate over which they had little control. The respondents pointed to the role of LGUs in minimizing risks and facilitating rehabilitation recovery, which involve early warning system, information campaign, and monitoring system. Community organizations could also enhance their role in providing assistance in funding, warning system, information dissemination, and rescue and relief operations. Policymakers need to be aware of the barriers to action and analyze policy options accordingly. Relevant policy areas include communication and public education and institutional capacity building.