Philippines: Landslides and Floods Emergency appeal No. MDRPH001 Interim Final Report

Situation Report
Originally published


Period covered by this Interim Final Report : February 2006 - April 2008

This interim final report will be finalized with the completion of the operation's financial report and notification sent to partners when this is available. As a left-over balance of approximately CHF 200,000 from the operation is anticipated, the International Federation would greatly appreciate agreement by partners to roll over these remaining funds in support of the 2008-2009 Philippines appeal.

Appeal target (current): CHF 2.80 million1 (USD 2.67 million or EUR 1.70 million)

Appeal history:

- A preliminary appeal was launched on 17 February 2006 for CHF 2.13 million (USD 1.73 million or EUR 1.29 million) for six months.

- On 8 March 2006, appeal was revised to CHF 2.59 million to assist 8,000 beneficiaries for 18 months, to 31 August 2007, focusing on recovery and rehabilitation.

- On 22 June 2006, the appeal budget was increased to CHF 2.66 million (USD 2.17 million or EUR 1.62 million) as recorded in Operations Update no. 5

- In June 2007, the budget was revised to CHF 2.83 million, taking into consideration support from the Geneva secretariat in programming and fundraising, and documented in Operations Update No. 6.

- Disaster Relief Emergency Funds (DREF) allocated: CHF 200,000 (USD 162,602 or EUR 121,212).

- Several extensions were necessary due to bankruptcy of the designated construction company and the lead time to allow PNRC to administer the final construction themselves. A dispute related to the ownership of the land on which the Red Cross chapter premises are built further hampered the implementation of part of the programme.

- The operation came to a close at the end of April 2008.


This report seeks to faithfully provide information on the successes and lessons learnt of a programme that faced major challenges in its implementation. In its course of supporting families affected by the Guinsaugon landslides with food and non-food relief items, camp management and new homes, the Philippines National Red Cross (PNRC) society was also caught in a situation where provision of these new homes took far more time than originally planned.

This situation led to several activities being cancelled due to financial constraints or avoidance of duplication. These financial constraints were tied to the increasing cost of labour and supplies as a result of inflation, while planned activities were subject to re-thinking in order to not duplicate similar activities already implemented in the field. One major factor that exacerbated the situation is probably the poor performance and subsequent bankruptcy of the company contracted for the construction of the homes. This was also compounded by the contractor's preference of avoiding what was considered a transparent and reasonable solution to the problem. This created a legal deadlock that needed a very careful and time-consuming response to avoid an even longe legal dispute that could have adversely affected the programme and subsequently, the beneficiaries, indefinitely.

There were also several other causes of delay. These included (1) less-than-adequate initial assessments of the needs and working conditions in the field; (2) subsequent challenges due to the incompatibility of existing PNRC systems and procedures with the operation; and/or (3) insufficient management experience in recovery programmes at chapter and headquarters levels. Following its identification of these factors and in a bid to improve its service delivery, the PNRC has realized the need to review the structure of its logistics and finance systems. This forms the basis for the national society's renewed commitment to capacity building and systems development. Once fully developed, these structures could help the national society become as proficient at managing community-based risk reduction and recovery programmes as it is in emergency response.

Despite these challenges and the need to address its identified limitations, the PNRC achieved considerable progress between September 2006 and July 2007 in constructing 12,300 homes in ten provinces using lessons learnt from the landslide operation. This effort should be taken into account in evaluating this programme.

The key objectives of this operation were:

I. Emergency relief The PNRC will provide necessary relief for the affected persons of the mudslide.
II. Health and care The PNRC has the capacity to provide psychological support and training.
III. Emergency response and risk reduction capacity building The PNRC will upgrade and enhance the capacity
of the chapters to respond to disasters.
IV. Organizational development The PNRC will strengthen the organizational capacity of chapters.
V. Reconstruction and recovery The PNRC will provide shelter to the evacuees and train health volunteers to be mobilized.
VI. Management and coordination The PNRC with the International Federation will create effective administration and management for the appeal