Capacity Assessment of RAPID Partner LGUs

Transcription

1 Capacity Assessment of RAPID Partner LGUs 2015

2 Table of Contents Content Page Acronyms 1 Executive Summary Background 2 Assessment Approach 2 Assessment Activities 2 Lessons Learned 10 Good Practices 11

3 Acronyms Acronym AIP CBMS CCA CCC CCVA CDP CDRA CLUP CP ClimExDb DILG DRA DRR DRRM ELA GIS GIZ GPS HLURB ICS IEC JICA KRCs LDCs LDIP LDRRMC LGUs MOU PTCP RAPID UNDP ZO Full Form Annual Investment Plan Community-Based Monitoring System Climate Change Adaptation Climate Change Commission Climate Change Vulnerability Asessment Comprehensive Development Plan Climate and Disaster Risk Assessment Comprehensive Land Use Plan Contingency Plan Climate Exposure Database Department of the Interior and Local Government Disaster Risk Assessment Disaster Risk Reduction Disaster Risk Reduction and Management Executive Legislative Agenda Geographic Information System Deutsche Gesellschaft für Internationale Zusammenarbeit (German Society for International Cooperation) Global Positioning System Housing Land Use and Regulatory Board Incident Command System Information, Education, and Communications Japan International Cooperation Agency Knowledge Resource Centre Local Development Councils Local Development Investment Program Local Disaster Risk Reduction and Management Council Local Government Units Memorandum of Understanding Project Climate Twin Phoenix Resilience and Preparedness for Inclusive Development United Nations Development Programme Zoning Ordinance Capacity Assessment of RAPID Partner LGUs 1

4 Executive Summary Background Project Climate Twin Phoenix (PCTP), implemented by the Climate Change Commission (CCC) Philippines with support from the United Nations Development Program (UNDP) and the Australian Government, is envisioned to be the first stage of a more comprehensive and long term capacity development program for cities and municipalities in addressing both risks from climate change and other related natural hazards. In 2014, CCC expanded the PCTP to cover areas affected by Typhoon Yolanda. The expansion, called the Resilience and Preparedness for Inclusive Development (RAPID) Program is envisaged to strengthen the capacity of local government units (LGUs) and communities to manage risks from and adapt to the overall impacts of climate change towards resilient and sustainable development. To support its programming activities, RAPID commissioned a capacity assessment exercise to evaluate and analyze the current capacities of target LGUs and communities to manage risks from and adapt to the overall impacts of climate change so that they can achieve resilient and sustainable development. The capacity assessment was designed to have following outputs: capacity assessment and stocktaking tools; list of capacity gaps; and a capacity development/building assistance plan. Assessment Approach The assessment looked at three major areas as these relate to RAPID. These areas are Individual skills (competency). These refer to knowledge, skills, and competencies of LGU staff needed to perform particular tasks. Examples include, map interpretation, database management, data analysis, and technical writing. Organizational systems (organizational capacity) are business processes and organizational practices that support and facilitate the performance of tasks. Examples are functional Local Development Councils (LDCs), mechanism for inter-lgu cooperation, and established processes for multistakeholder consultations. Readiness or ability to manage change refers the openness and willingness of LGUs to improve their current practices. Examples are, the ability to manage and communicate with stakeholders, absorptive capacity (i.e. internal resources, other on-going assistance), and agreement to the principles espoused by RAPID. Assessment Activities The following steps were undertaken as part of the assessment process: 1. The assessment started with an orientation about RAPID, including the experience of PTCP in assisting LGUs in Mindanao affected by Typhoons Pablo and Sendong. 2. An Inception Report containing the proposed approach, key assessment activities, and timelines was drafted and finalized in close consultation with RAPID staff. 3. RAPID-specific performance standards were then developed to serve as bases for the assessment. Areas where Barangays are expected to play an active role were also identified. 4. A workshop-learning session was conducted in November 2014 as the first data gathering activity for the assessment. 5. Workshop outputs were then summarized and placed in a performance continuum ranging from major area for improvement, minor area for improvement, area of adequacy to area of strength. 6. Results of (5) above were then presented to the LGUs for validation. The purpose of the validation exercise was to allow the

5 Capacity Assessment in Balangiga, Eastern Samar LGUs to correct facts and to review the rating provided. 7. Barangay consultations took place as a parallel session during the LGU validation visits. Results and Proposed Capacity Development Interventions The table below contains a summary of the results of the assessment. RAPID Outputs Major Area of Minor Area of Area of Adequacy Climate Exposure Database MacArthur, Basey, Lawaan Abuyog, Tolosa, Palo, Marabut, Balangiga Dulag, Mayorga, Tacloban Risk Assessments Basey, MacArthur, Marabut, Palo, Tolosa Abuyog, Mayorga, Dulag, Lawaan, Balangiga Tacloban CLUP/ Land Use Planning Mayorga, Dulag, Tolosa, Balangiga, Basey MacArthur, Palo, Marabut, Lawaan Abuyog, Tacloban CDP/ Development Planning MacArthur, Dulag, Tolosa, Palo Mayorga, Tacloban, Basey, Marabut, Lawaan, Balangiga Abuyog LDIP/ Investment Programming Abuyog, MacArthur, Dulag, Tolosa, Lawaan Mayorga, Palo, Tacloban, Basey, Marabut, Balangiga LDRRMP and LCCAP Preparation MacArthur, Tolosa, Basey, Lawaan, Balangiga Mayorga, Dulag, Palo, Tacloban, Marabut, Abuyog Contingency Planning MacArthur, Tolosa, Mayorga, Basey, Marabut, Lawaan, Balangiga Abuyog, Dulag, Palo, Tacloban, Capacity Assessment of RAPID Partner LGUs 3

6 Capacity Assessment in Lawaan, Eastern Samar RAPID Outputs Major Area of Minor Area of Area of Adequacy Community-based EWS MacArthur, Mayorga, Tolosa, Basey, Lawaan, Balangiga Dulag, Palo, Tacloban, Marabut Abuyog Knowledge Resource Centres MacArthur, Mayorga, Tolosa, Basey, Lawaan, Balangiga Dulag, Palo, Tacloban, Marabut Abuyog Based on these results, the following capacity development interventions are proposed. A summary is presented in the table below. RAPID Outputs/ Target Capacities Climate Exposure Database Major Area of Minor Area of Conduct of Surveys Survey management Survey administration, including organizing/managing volunteer enumeratros Validation and quality assurance of field survey data Conduct of field surveys Data analysis and management Statistical analysis GIS and basic map making Basic GIS-based risk assessment Preparation of thematic maps and exposure maps Basic map reading ClimExDb-specific topics Use of ClimEx.db app Server operations Data report generation and analysis GPS operations Area of Adequacy Review of surveys, data analysis Data management including possible data migration from one system to ClimExDb ClimExDb-specific topics Use of ClimEx.db app Server operations Data report generation and analysis GPS operations Capacity Assessment of RAPID Partner LGUs 4

7 RAPID Outputs/ Target Capacities Risk Assessments CLUP/ Land Use Planning CDP/ Development Planning LDIP/ Investment Programming LDRRMP and LCCAP Preparation Contingency Planning Major Area of Minor Area of Data analysis, including using GIS in analysis CDRA methodology (probabilistic) Identifying risk management options CLUP formulation using the new HLURB Guidelines Use of risks assessment results Formulation of spatial policies and strategies, zoning ordinances CDP preparation using CDP Guidelines Use of risks assessment results, Guidelines on mainstreaming DRR and CCA Formulation of spatial policies and strategies, zoning ordinances Area of Adequacy Review and enhancement of existing assessments. Refresher on the C/DRA methodology Integrating CCA and DRR considerations Formulation of risk management options Monitoring end enforcement of the CLUP and the Zoning Ordinance Integrating CCA and DRR considerations Key skills on planning and analysis Technical writing Using the LDIP guidelines (e.g., ranking and prioritization) Budgeting/financing and identification of financing options Using the LDRRMP/LCCAP Guide Note OCD/DILG Guidelines on Contingency Planning Incident command system Disaster preparedness protocols Capacity Assessment of RAPID Partner LGUs 5

8 Capacity Assessment in Palo, Leyte RAPID Outputs/ Target Capacities Community-based EWS Knowledge Resource Centres Major Area of Minor Area of Risk Monitoring Identification of hazards in the community Setting-up and Managing KRCs Area of Adequacy Review, enhancement, and expansion based on best practice RAPID can follow the following models to deliver the proposed capacity development interventions. Model 1 (full version) will employ several capacity development methodologies and will target both individual competencies and organizational capacities. This option will use traditional classroom-based training, complemented with other support activities to ensure that there are systems and processes to allow individuals to apply the skills and knowledge they have acquired through the training. Model 2 (basic version) will target individual skills and knowledge and as such will mainly employ classroom training. Planning Module Enabling Competencies Topics Fundamentals of Planning, Analysis, Investment Programming, Budgeting, and Financial Management Operationalizing Plans including translating plans to policies (e.g. ordinances, executive orders) Local Governance (including administrative oversight) Inter-LGU cooperation Stakeholder engagement Working with adult learners Change management Capacity Assessment of RAPID Partner LGUs 6

9 Results for the Barangays are similar to those of their mother LGUs. These are presented below. Structure or Output Participation in data gathering (e.g. enumerators for CBDRM) Summary of Results All Barangays have participated in the conduct of household (HH) surveys. Barangay personnel such as the Barangay Secretary, Barangay Nutrition Scholars (BNS), Day Care Workers, and in some instances Barangay Officials. Surveys conducted by barangays are mostly paper-and-pencil enumeration. For ClimExDb, the gap will be in terms of using tabs and analyzing the data. Capacity Development Needs Review of data gathering do s and don t s Using tabs Familiarization with the ClimExDb App and indicators/data points Capacity Assessment of RAPID Partner LGUs 7

10 Capacity Assessment in Marabut, Samar Structure or Output Summary of Results Barangay DRRM Committee High awareness among Barangay DRRM Plan barangays re DRRM committee and the DRRM plan. Quality of plans is not assured. Most barangays have DRRM Committees but these are not functional. Planning is not widely practiced. Given lack of Funding for DRRM and CCA understanding of DRRM activities and CCA concepts, it is highly unlikely that these have been considered in their DRRM planning (if at all). The barangays consider the 5% of the local revenues as an upper limit (rather than a minimum). Coordination with the Municipal/City government Coordination with other barangays (shared risks, resources) Done through monthly meeting of the Association of Barangay Captains (ABC), through text/calls, etc. Not a common practice among barangays. In cases where this is done, there is no system (ad hoc basis) that defines the rules of engagement. Capacity Development Needs Local governance Planning Financial management and resource mobilization CCA and DRRM 101 Managing volunteers and volunteer organizations Working with partners Local governance systems Capacity Assessment of RAPID Partner LGUs 8

11 Structure or Output Organizing basic sector groups, people s organizations, nongovernmental organizations (NGOs) IEC activities Early warning systems Evacuation drills Identification of evacuation areas Summary of Results People s Organizations women s, fisherfolks, youth, persons with disability (PWDs), senior citizens are present in the barangays. Barangays have worked with external NGOs (especially after Haiyan). Barangays provided data (for the identification of recipients) and/ or assisted in the implementation of activities. Common practices are Barangay assemblies, house to house information drives, use of Barangay workers (e.g. Day Care Workers, BNSs). No established systems except for the usual practices (e.g. bandillo, house to house information dissemination). Sources of information include Municipal Disaster Risk Reducation Council (MDRRMC)/ Mayor and TV/Radio news. Some barangays have conducted evacuation drills, mostly for fires and earthquakes. One of the top constraints identified by the barangays is the lack of evacuation centres. Barangays have identified indigenous evacuation centres (e.g. caves in Marabut, kulongs in Balangiga) Capacity Development Needs Community organizing Stakeholder engagement Communications for development CCA and DRRM 101 Process documentation Maps, map reading/ reading hazard maps Strengthening indigenous practices on evacuation Drills Capacity Assessment of RAPID Partner LGUs 9

12 Given the homogeneity of the results of the assessment among the Barangays, it is proposed that a standard capacity development package be provided to them. These are: Module Basics Governance Surveys (for ClimExDb) Partnerships Contingency Planning Topics DRRM and CCA DRRM Committee DRRM Plan and DRRM Fund Maps (reading hazard maps) Basics of Surveys Data Gathering Do s and Don t s Use of tabs Orientation on ClimExDb data points Risk Sharing and Coordination with other Barangays/ LGUs Stakeholder Engagement Community Organizing Communications for Development Managing Volunteers and Volunteer Organizations Contingency Planning Early Warning Systems Process Documentation Drills Building on Indigenous Practices (Use of volunteers such as tanods, Zones, use of caves etc) Lessons Learned 1. The most challenging portion of the assessment was defining the standards that will be the bases of the assessment. The standards were important because the assessment was meant to propose capacity development interventions with a purpose and not just capacity development for its own sake. A fully developed proof of concept for RAPID could have also helped in the initial stages of the assessment, including during the development of the capacity standards. 2. Further refinement of the standards developed for the assessment will assist in monitoring the progress of RAPID capacity development interventions in. The standards can be further improved and can be informed by RAPID s implementation experience. These standards can also be a legacy of RAPID and a contribution to improving the body of knowledge on climate resiliency at the local level in the Philippines. 3. There were assessment findings that are outside the components of RAPID but could nonetheless impact on the capacity of LGUs. Some of the needs indicated by LGUs equipment for the early warning systems and evacuation centres are outside the coverage of RAPID but can assist LGUs become more resilient. While RAPID is not expected to address these needs, it would be good if CCC, in collaboration with other development partners, can have a referral system for these needs. This referral system can also be used to avoid duplication of capacity development assistance to Yolandaaffected areas. 4. The view that classroom-based training is the best way to address capacity development needs is still common. This method may be the most practical Capacity Assessment of RAPID Partner LGUs 10

13 Capacity Assessment in Marabut, Samar method especially when dealing with several partners/large groups. This method may also be effective in improving knowledge and skills of individuals but may not be as effective if the intention is to institutionalize practices or change business processes. Diversifying the methodologies that will be used in delivering capacity development programs can potentially improve the effectiveness of interventions and enhance the sustainability of investments. Good Practices Good practices were observed during the course of the assessment. Practices that can be used by RAPID in its activities include tapping local volunteers and the spirit of volunteerism, using indigenous technology, and working with local chief executives. Given the heavy emphasis of RAPID on capacity development, it is best if the program can align its approaches and interventions with prevailing good practices. Some of the principles that can be considered by the Program include 1. Using adult and workplace learning methodologies including the rule. 2. Providing flexibility in terms of capacity development methodology particularly for resource-constrained partners. 3. Well-considered outsourcing capacity development interventions, from the development of the Terms of Reference to contracts management. 4. Ensuring commitment and buy-in of partner LGUs to capacity development. 5. Using jointly-agreed performance milestones and key performance deliverables. 6. Monitoring capacity development at various points. Capacity Assessment of RAPID Partner LGUs 11

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