PROJECT-DeVELOPMENT-effectiveness of DRRM
PROJECT-DeVELOPMENT-effectiveness of DRRM
PROJECT-DeVELOPMENT-effectiveness of DRRM
In Partial Fulfillment
Of the Requirement for the Subject
Developmental Research
A Research Proposal
Presented to
Faculty Member
Graduate School
Central Philippine University
By:
Jose Ituriaga
Yeno Lego
Ruzzel Diane Oducado
Central Philippine University
Graduate School Department
Lopez Jaena St., Jaro, Iloilo City
February 2020
Chapter I
Chapter I consists of (1) Background and Rationale of the Study, (2) Objectives of the
Study, Statement of the Problem and Hypothesis, (3) Significance of the Study, (4) Definition of
Part I, Background and Rationale of the Study presents the problem situation, expected or
ideal situation, possible reasons for the discrepancy between what is and what should be and
what is known about the problem and what questions remain unanswered.
Part II, Objectives of the Study, Statement of the Problem and Hypothesis presents the
Part III, Significance of the Study enumerates the different beneficiaries and benefits that
Part IV, Definition of Terms presents the conceptual and operational definition of terms.
Part V, Scope and Limitation specifies the coverage and scope and limitation encountered
in the study.
Hazards come in all shapes and sizes. People around the world have become more and
more vulnerable to these numerous types of hazards and disasters. Disasters can occur anywhere
Typhoons, earthquakes, floods, landslides, tsunamis and volcanic eruptions are natural
disasters commonly experienced not only by the Philippines but also by other countries in the
world. While efforts are made by the government to improve every aspect of life of its citizens,
i.e. poverty alleviation, these efforts or the results of such are either thrown to waste or hampered
by disasters. Disasters hold back development and progress. Disasters affect poverty reduction in
several ways.
In 2010, Republic Act No. 10121, An Act Strengthening the Philippines Disaster Risk
Reduction and Management System, Providing for the National Disaster Risk Reduction and
Management Framework and Instituionalizing the National Disaster Risk Reduction and
Management Plan, Appropriating Funds Therefor and for other purposes, was enacted.
Among others, the declaration of policies includes building the resilience of local
communities to disasters
Effective policies for disaster risk reduction (DRR) can greatly reduce the loss of life and
assets caused by disasters. Some governments have successfully adopted and implemented DRR
policies, but others lag behind, leaving their citizens highly vulnerable. (Williams, 2011)
Poverty alleviation, development and disaster risk reduction are strongly interdependent.
Constraints to progress towards the first two of these objectives will not be adequately addressed
without more attention to the third, because disasters impact substantially on livelihoods and
development. Conversely, disasters are rooted in poverty and development failures, so risk
reduction can only be effective as a core attribute of poverty alleviation and development.
Development gains are at a risk when natural phenomena occur, and wrong development
choices may allow these risks to rise even further. Knowledge about and causes of natural
disasters and the concern and commitment to activities that aim to alleviate the effects of these
disasters are increasing alongside disaster related human casualties and economic losses
In order to allow for a decision-making process that interacts with the citizens and the
key persons at the regional level, allocation of power to local governments should be
implemented with the greatest importance. Appropriate authority of local governments, human
limitations, and proper distribution of correct resources should be established. Competent risk
reduction at regional levels are reliant on their respective governance, especially in political
planning and management of authority in relation to land use planning, regulatory controls,
A Local Disaster Risk Reduction and Management Plan (LDRRMP) is expected from all
local government units. This LDRRMP includes four phases of DRRM: Disaster preparedness,
response, prevention and mitigation, & rehabilitation and recovery. Local councils are also
established by the law of NDRRMC Republic Act 10121. The relationship and collaboration of
the NDRRMC and the local councils are also named within this law. Effective and efficient
responses regarding disaster situations are allegedly assured by these well-defined frameworks
There are, however, situations where the local government fails to meet its
responsibilities. In this regard, a gap is created between what is planned and the actual situation.
Advisory negligence and breach on the use of the Disaster Management Fund are the two
primary reasons that have been determined by researchers to have caused this inconsistency.
Last September, the Department of Interior and Local Government issued Show Cause
Orders against 16 mayors from Cagayan Valley and Cordillera Administrative Region because of
their absence when Typhoon Ompong came to the country although an Advisory was given prior
to the typhoon which directed all mayors to be present in their respective areas in order to ensure
immediate government response[CITATION New19 \l 13321 ]. This situation has been viewed as a
Section 21 of the Philippine Disaster Risk Reduction and Management Act of 2010 stated
that 5% of the revenues of the LGUs must be allocated for disaster preparedness but the
Commission on Audit (COA) revealed that the LGUs were one of the biggest violators of the
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rules regarding the funds in 2015. In fact, state auditors said 22 of them have failed to allocate at
least P124.95-million funds for its expected purpose [ CITATION Inq17 \l 13321 ].
With the arising risks associated with the ill-preparedness of a Local Government in
Accountability and Equity of the Local Government in Disaster Risk Management Responses to
its People must be conducted. Furthermore, this would be a great help to the community, local
government units and the people around Iloilo City which could help alleviate or address issues
related to it. The accomplishment of this study would benefit the majority in terms of the
This study will be conducted to determine the effectiveness of disaster risk reduction
1. profile of resident of Leganes, Iloilo in terms of age, sex, civil status and educational
attainment;
2. determine the effectiveness of the disaster risk reduction plan of Leganes, MDRRMO in
terms of implementation;
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The study will delve into the effectiveness of disaster risk reduction and management
information effective?
effective?
Theoretical Framework
assessing equity contributes in developing a fair treatment. In order to challenge the development
paradigm of disaster risk management, the study will adopt the Assessment Theory developed by
Donald Kirkpartrick.
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Assessment Theory applies four levels of evaluation that works like a pyramid. It is
mostly used in the field of education although can also be applied for continuous development.
The information gathered from each successive evaluation provides the necessary base
information to advance into the next higher level of assessment. Thus, each successive levels
brings out a more accurate and refined measures in exchange of more rigorous and time-
consuming interpretation of data. The first level of Assessment theory is Reaction, where
subjects react to the training. The second level is Learning, where subjects are analyzed if they
understood the training. The third level is Behavior, where subject’s actions and behaviors are
being observed for signs of utilization. The fourth level, which is the last, determines if the
their roles in Disaster Risk Management, and plays a role in the overall development paradigm.
The changes implemented to this study in regards of the Assessment Theory are the
accountability and equity of the local government while the subject is the local government
itself. These two variables and the subject are needed for the training or changes that objectively
targets the problems and needs of the accountability and equity of local government in disaster
risk management. These training/changes will provide the information for the Response level in
the Assessment Theory. In in the fourth level, how the local government reacted, understood, and
destructiveness of the training/changes, which directly affects people and their community.
(https://www.andrews.edu/sem/dmin/surveys-assessment/theory/)
(https://educationaltechnology.net/kirkpatrick-model-four-levels-learning-evaluation/)
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Central Philippine University
Graduate School Department
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Conceptual Framework
Control
Development Paradigm
Effectiveness of Local
of Disaster Risk
Government in the Munipality of
Management
Leganes
Figure 1. Shows the connection of the accountability and Equity of Local Government
Local government - authority to determine and execute measures within a restricted area
threats due to hazards; processing and analyzing these threats; understanding people’s
vulnerability; assessing the resilience and coping capacity of the communities; developing
strategies for future risk reduction; and building up capacities and operational skills to implement
Effectiveness was used in the study to determine the performance of local government
unit in the development paradigm toward its people and as a basis of their performance level and
Local government was used in the study to assess the accountability and equity upon the
Disaster risk management was used in the study to get the responses of the people from
The study entitled “Challenging the Development Paradigm: Assessing the Effectiveness
Leganes” would be a great help to the community, local government units and the people around
Iloilo City. This study aimed to assess the accountability and equity of the local government in
The community. The success of this study will be a great help to the people especially
the residents of five barangays around Iloilo City to have additional information regarding the
The local government units. The result of this study will have a wide range of
The People. The accomplishment of this study will have a great impact to the people in
This study was limited only on the Effectiveness of Local Government in Disaster Risk
The researchers aimed to determine the responses of the local people to its people in the
Municipality of Leganes.
Chapter II
Review of Related Literature and Studies
This chapter includes the following parts: (1) Review of Related Literature, (2) Review of
Related Studies.
Part I, Review of Related Literature is composed of the background information about the
Part II, Review of Related Studies are composed of the summary and synthesis of
Related Literature
Timeline of policies
Being a country consistently battered with disasters, the Philippine government issued
laws and orders to counteract the effects and mitigate the impacts. The first landmark was during
1941 when former President Manuel L. Quezon issued Executive Order (EO) No. 335 which
created the National Emergency Commission and eventually, the Provincial Emergency
Committee that supervises both Municipal and City Emergency Committees. RA 1190 was
enacted in 1954, establishing National Civil Defense Administration (NCDA) and national and
local civil defense councils. Under the term of Ferdinand Marcos in the 1970s, Office of Civil
Defense (OCD) and National Disaster Coordinating Council (NDCC) were created under
Presidential Decree No. 1566. Embedded in RA 7160 or the Local Government Code (LGC) of
1991 was the giving of access to local government units (LGUs) with areas declared in a state of
calamity to five percent of estimated revenue from regular sources in the event of calamities. RA
8185 amended section 324d of the LGC and categorized the fund into relief, rehabilitation, and
reconstruction and other services in order to improve the fund utilization. It can be observed that
most laws and orders concerning disaster risk reduction and management (DRRM) coincide with
agreements in climate change, strengthening the correlation and causality of climate change and
disasters. In 1992, Philippine committed with the United Nations Conference on Environment
It was comprised of set of strategies and action plans that would marshal in a sustainable
future with five goal elements: poverty reduction, social equity, empowerment and good
governance, peace and solidarity, and ecological integrity (EMB, nd). Another is RA 8749
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passed in 1999. The Philippine Clean Air Act committed to monitor and follow the standards for
greenhouse gas emissions (GHGs). This was followed in 2004 by EO 320, s.2004 wherein
implemented projects are encouraged to prevent or absorb emitted GHGs. In 2009 and 2010,
twin laws were passed in the country with common objectives; The Climate Change Act and the
Philippine Disaster Risk Reduction and Management (PDRRM) Act aimed to lessen the
vulnerabilities and the damage impacted by disasters. The momentous passing of RA 10121
increased the number of members under the council from 19 to 44 members, and now included
financial institutions, private sector, and civil society organizations (CSOs). The council is still
chaired by the Secretary of National Defense, but has designated the four vice-chairperson
positions a specific phase for DRRM: the Secretary of Department of Science and Technology
(DOST) in charge of disaster prevention and mitigation; Secretary of the Department of Interior
and Local Government (DILG) for preparedness; Secretary of Department of Social Welfare and
Development (DSWD) for response; and the Director General of National Economic and
Development Authority (NEDA) for disaster rehabilitation and recovery. The national council is
In a nutshell, the Philippines underwent phases of DRRM, from disaster preparedness and
response in the 1970s, disaster management in the 1980s, risk management in the 1990s, and risk
Role of LGUs
preparedness, mitigation, response, and recovery. Preparedness is the level of readiness based on
consistent action to decrease and limit risk to people and infrastructure. The third phase,
response, consist of actions addressing human basic needs e.g. relief goods and evacuation
centers. The last phase focuses on the rehabilitation of economy and livelihood. These four
phases do not necessarily occur one before another; in face of disasters, they occur more often
The local government plays an integral role before, during, and after disasters because
they do not only have a direct jurisdiction over their constituents, but they are also expected to
know the community’s needs as well. The LGU in the Philippines is at the forefront of disaster
risk reduction and management as mandated by the Local Government Code of 1991. The LGU
must have the autonomy to act decisively and issue proactive decisions suited for their
constituents’ situation supported with the higher levels of government. Literatures across
highlight the importance of decentralization of responsibilities i.e. doing away with top-down
Solway (2004) outlined the basic roles of the local government in facilitating the
community during a disaster. The LGU must be able to (1) assess the vulnerabilities of the area
and its constituents, (2) instill basic knowledge of natural disasters and the possible impacts, (3)
conduct an information and education campaign (IEC) on disaster mitigation, (4) coordinate with
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officials in charge of planning, construction, health, and welfare, (5) conduct first-aid trainings,
(6) partner with educational institutions to broaden awareness and support existing knowledge,
and (7) build evacuation centers and determine safe locations for those affected.
Local institutions are integral in influencing community responses against disasters and
climate hazards. They help determine the effect of the impacts, develop capacity of households
to respond and adapt practices, and mediate different external interventions. In a review of 118
cases across 46 countries, climate adaptation was revealed to involve more informal institutions
wherein there exist five categories of local responses: mobility in response to risks and scarcities;
storage of surpluses including sturdy infrastructure for keeping seeds and harvested crops;
pooling of resources across families; and market exchange. Most of these came from the rural
communities dominated by indigenous people which have been exposed to various disasters and
later on developed adaptive responses against environmental risks (Agrawal et al. 2008).
Analysis of various social groups is integral to recommending adaptation strategies. There could
be underlying reasons for their increased risk and vulnerability which could influence the
should be able to establish a Local Disaster Risk Reduction and Management Plan (LDRRMP)
aligned with NDRRMP with themes on disaster preparedness, response, prevention and
mitigation, and rehabilitation and recovery. NDRRMCs and LDRRMCs should also be closely
coordinated, and RA 10121 delineated the jurisdiction of responsibilities. NDRRMC will be the
lead agency if two or more regions are affected, regional DRRMC if two provinces or more,
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provincial DRRMC if two or more cities and/or municipalities, city/municipal if two or more
barangays, and barangay development council if only one barangay is affected. LDRRMCs are
also in charge of integrating disaster risk reduction and climate change adaptation into
development programs to counter poverty and facilitate sustainable development, and they have
Representatives from the private sector and civil society groups are also part of LDRRMCs as
mandated through Memorandum Circular No. 03, s. 2012. The four CSOs that will be selected
will have a representative each from (1) an academe or research institution that is not part of a
and (4) foundations or community-based organization; all four must be within the jurisdiction of
the local government unit (LGU) they are applying for. The private sector representative shall be
chosen from chambers of commerce if applicable. It is vital for the vying organizations to have a
competent track record of DRRM activities, sound institutional structures, and valid registration
with the Securities and Exchange Commission (SEC) for national, and Cooperative Development
Authority (CDA) or Department of Labor and Employment (DoLE) for local. The performance
of the member organizations shall be tracked and monitored based on their annual deliverables
and feedback from other organizations. They have a term of two years and will only be allowed
two consecutive terms. However, they can apply for another term period after a year. The
membership may be revoked when the organization fails to fulfill its responsibilities to the
council, spreads false information, and sponsor activities that are no longer in line with the goals
of NDRRMC.
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However, the LGU was sidelined three years after RA 10121 was passed in the wake of
super typhoon Yolanda. In the event of a disaster, either the Defense Secretary or the President
would preside over NDRRMC meetings however, in the case of Typhoon Yolanda, it was the
Executive Secretary who presided. From there onwards, the command responsibility was blurry,
and no one knew who was calling the shots. Too many actors were in play that when
interviewed, the acting officials then gave different answers. This was particularly evident on the
ground, in Tacloban City, where former DILG Secretary Mar Roxas took over the reins and
allegedly “emasculated” Mayor Alfred Romualdez. Even the Defense Chief was relegated a
support position when supposedly he should be able to make decisions. Fund problems were also
not lost in the wide magnitude of the disaster. Municipal mayors shared the disappointment when
even after a year, they have not received a single centavo from the national government.
Moreover, the comprehensive rehabilitation and recovery plan (CRRP) was only approved the
year after. Relief assistance mostly came from non-governmental organizations and humanitarian
groups. Causes for delays were pinpointed to bureaucratic processes across intervening
government agencies. In terms of housing programs, the limited number of engineers or skilled
technical personnel slowed down the programs in at least 14 towns of Leyte which were
The Yolanda case coincided with the usual constraints on LGU disaster response which
In terms of funding, DRRM’s financial resources mainly come from the Department of
Budget and Management (DBM)’s formulated national budget. There is a partition reserved for
the Calamity Fund (CF) which is a specialized pool of fund intended for relief aid, rehabilitation,
repair, and reconstruction activities. The release of these funds are included in the special
provisions of the General Appropriations Act. It states that the fund remains untouched until all
donations and grants received by the agencies of the government are exhausted. If disbursed, the
fund will be released directly to the implementing agencies as per approval of the President of
the Philippines. After which, the NDRRMC will pass a report on the utilization of funds and
grants received by the agencies to the DBM, House Committee on Appropriations, and Senate
Committee on Finance. Across years, the Calamity Fund has increased by 275 percent which
gives evidence that the government is now prioritizing finances for man-made and natural
calamities. Looking closer at figure 1, the largest shares were mostly given to DILG in 2009, and
DSWD and DPWH for the following years. The fund for the front liner– the LGUs –
experienced a decrease from 2009 (14.98%) to 2011 (2.44%), an increased again at 9.94 percent
in 2012, and a drastic fall at 0.43% in 2013. A local disaster risk reduction and management fund
(LDRRMF) is established particularly for the LGUs. It is comprised of at least five percent of
estimated revenue from regular sources and 30 percent of it is classified as Quick Response
Fund. The fund can be transferred to other LDRRMCs under a state of calamity, but if unused, it
will be placed in a Special Trusts Fund for LDRRMC events for the next five years. If this
special fund remains unutilized, the money shall go back to the LGUs general fund (Bueza
2014).
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inequitable fund distribution hence the LGUs were forced to take care of themselves and
rehabilitate on their own. In a case study in Guiuan, the significant variables which affected the
communities of the area, and weak emergency evacuation centers (Campanero and Egargo
2017).
DRRM in NDRRMP and climate change acts, prospects and moving forward
All eyes were on the Philippines during late 2016 and early 2017 as President Rodrigo
Duterte refused to ratify the Paris Agreement which was already signed by almost 200 nations.
The 20- years-in-the-making agreement asked the signatories to reduce greenhouse gas
emissions, limit warming to two degrees Celsius, keep temperatures at 1.5C above pre-industrial
levels, and invest in environment and ecosystems (Goldenberg et al. 2015). Duterte’s refusal
came from the fact that Philippines is forced to cut down on emissions when it is still on its way
to industrialization while other nations, especially the rich ones, have already reached their peak,
thereby implying that the deal favors the richer nations more and hinders the further development
of the poorer ones (King 2016). However, 10 months after, Duterte relented, committing Metro
Manila to lower its emissions by 70 percent by 2030 (dela Cruz 2017). On March 14, the Senate
unanimously voted yes to Senate Resolution No. 261 adopted as Senate Resolution 320, ratifying
the Paris Agreement on Climate Change. The ratification gives the country access to the Green
Climate Fund amounting to USD 100 million which is pooled together annually by the world’s
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biggest carbon contributors (Quismundo 2017). The direction of DRRM and climate change
policies in the Philippines are gearing towards the goal of NDRRM Plan (NDRRMP) which is to
create “safer, adaptive and disaster resilient Filipino communities towards sustainable
While policies in the country are moving towards the right direction, challenges remain at
all governing levels. Smooth coordination and effective communication within and outside of
national and local councils are yet to be realized despite the vertical coordination between
regional, national, and local levels provided for by the RA 10121 (COA, nd).
Related Studies
Evidence-based Disaster Risk Reduction and Management: CBMS for Local Level
DRRM?
Due to the increasing hazards brought by climate change, Disaster Risk Reduction and
Management (DRRM) became a significant concern all over the globe. The legwork of the
DRRM mainly focused on the local level namely: communities, local government units (LGUs)
and other development groups situated locally. The Disaster Risk Reduction and Management
Act (RA 10121) of the Philippines certainly affirmed the close involvement in the reduction and
moderation of disaster hazards of local governments like barangays, municipalities, cities and
provinces. But, the effectiveness and efficiency of the operation of the local governments are
being defied by practical challenges. Significant information about hazards and societal
weakness are needed by the LGUs in decision making which is a vital task in public service.
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Notable data on the socioeconomic situations of their respective areas and members are also
important for LGUs apart from usual disaster-related information. In this study, Community-
based Monitoring System (CBMS) datasets were recognized as useful source of socioeconomic
information in generating significant data that can be used for disaster risk reduction and
management. This study revealed that CBMS data can give appropriate information that can be
human resource management, networking, and legislative support. The study suggested: more
attempt to create a potent and applied group of protocol for local governments; further studies to
improve understanding how CMBS can be used in DRRM; eagerness to further enhance local
DRRM performance; and greater connection among LGUs to enable collective learning,
systematic cooperation and other coaction for alleviate disaster hazards and decreasing disaster
A Case Analysis of Disaster Risk Reduction Preparedness of Iloilo Province: Basis for A
This study determined the effectiveness of Disaster Risk Reduction Preparedness of Iloilo
and Operation as evaluated by the 390 citizens of the ten (10) selected municipalities from the
five (5) Congressional Districts in the Province of Iloilo, Philippines. This narrative method of
research engaged random interviews and research-made instruments. the researchers used the
mean and standard deviation as descriptive statistics, and as for the inferential statistic, T-test for
independent samples and one-way analysis for variance set at .05 level of significance were used.
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Findings showed that, according to the evaluation of the 390 subjects of the ten (10) selected
municipalities from the five (5) Congressional Districts grouped as to personal variables,
Disaster Risk Reduction Preparedness of Iloilo Province, Philippines was "more effective" in
terms of dissemination, implementation, and resource utilization and operation. Lastly, the
results also showed that three (3) out of ten (10) municipalities were very effective and among
the five (5) districts, first district was very effective as to dissemination and resource utilization
and operation of their respective Disaster Risk Reduction Preparedness Program but as a whole,
Iloilo Province was more effective in its Disaster Risk Reduction Preparedness (Jurilla, 2016).
Resilience and Disaster Trends in the Philippines: Opportunities for National and Local
Capacity Building
Introduction: The Philippines is one of the top countries in the world at risk of climate-
related disasters. For populations subsisting at the poverty line in particular, but also the nation
as a whole, daily lives and well-being are routinely challenged. The Philippines government
takes disaster risk seriously and has devoted significant resources to build disaster capacity and
reduce population exposure and vulnerability, nationally and locally. This paper explores the
policy and institutional mechanisms for disaster risk reduction management and research which
have been conducted in the Philippines related to disaster preparedness, management and
resilience.
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Methods: This study drew on direct observations of and conversations with disaster
disaster preparedness, in the Philippines. This was a descriptive study based on a search of
mainly peer-reviewed studies but also articles, reports, and disaster risk reduction and response
projects in the Philippines. Search words used in various combinations included: Resilience,
building.
Results: Numerous activities in community based resilience and DRR have been
identified across the whole disaster continuum. Yet, important gaps in research and practice
remain.
However, a full picture of who is doing what, how, where and when on resilience and disaster
preparedness did not exist. Consequently, there was no single study that compares the impacts
and results that different preparedness measures are having in the Philippines. The researchers
community perceptions of disaster risk preparedness and resilience, and investigation into the
Chapter III
Methodology
This chapter includes the following parts: (1) Research Design, (2) Study Population and
Sampling Procedures, (3) Data Collection, (4) Data Processing Analysis.
Part III, Data Collection is composed of the description of how the data will be collected.
Part IV, Data Processing and Analysis is composed of the description of how data will be
collected.
Research Design
The purpose of this study is to know the level of effectiveness of disaster risk
reduction management in Leganes, Iloilo. The researchers will use checklist type of survey
concerning the effectiveness of disaster risk reduction management. The researchers will make
25 questions that is answerable by, yes or no to the respondent to know the effectiveness and
readiness of the present equipment that was used in responding in a disaster. The aim was to
conduct the survey with the employee of Disaster risk reduction management. This design will
measure the level of effectiveness of Disaster risk reduction management of Leganes, Iloilo.
that are randomly selected using stratified random sampling. Names will be listed from five
baranggays in Leganes, and we will randomly choose ten people in each five of the baranggays
in Leganes Iloilo, City
Data Collection
The researcher will collect the data by giving out questionnaire. After that the
researche, one is for information like posters and one is for animation in order for them to know
which is effective to their survey. The researcher will give out their questionnaires again to
determine what the participants learned and their opinions about the research study.
To analyze the the data gathered, the following statistical tools were employed:
Sampling Frame is used to list all the possible participants that will be picked.
Stratified Random Sampling is utilized in order to randomly choose the baranggays
where the participants would be picked.
Sampling Distribution will be used in order to determine the mean and the standard
deviation of the collected data.
Gareth Williams
2011
Disaster risk reduction: a development concern A scoping study on links between disaster risk
reduction, poverty and development
https://www.preventionweb.net/files/1070_drrscopingstudy.pdf