Fifteen years have passed since Tropical Storm Ondoy (international name: Ketsana) unleashed unprecedented devastation across Metro Manila and other parts of Luzon, exposing vulnerabilities in the Philippines’ disaster preparedness and climate resilience. The storm, which made landfall on September 26, 2009, brought record-breaking rainfall equivalent to a month’s worth of rain in just six hours, leading to severe flooding, displacing millions, and causing significant casualties and infrastructure damage. As we commemorate this disaster, it is essential to look back on the progress of rehabilitation efforts, the political and governance challenges that hampered the response, and how the lessons from Ondoy continue to inform disaster risk reduction and climate action today.
The Devastation of Ondoy
Tropical Storm Ondoy left an indelible mark on the Philippines, particularly Metro Manila and the provinces of Rizal, Laguna, Bulacan, and Pampanga. On September 26, 2009, Ondoy brought an extraordinary amount of rainfall, with an official total of 455 millimeters recorded within 24 hours, surpassing the previous record of 344 millimeters set in 1967. The result was massive flooding, with waters reaching up to 20 feet in some areas.
Key statistics on the damage caused by Ondoy include:
- Casualties: Over 464 people were reported dead, while 529 were injured and 37 were declared missing.
- Economic damage: The total economic cost was estimated at around Php 11 billion ($237 million), including losses in infrastructure, agriculture, and private property.
- Displacement: More than 4.9 million people were affected across the regions, with around 700,000 displaced and forced into evacuation centers.
- Infrastructure damage: Over 26,000 homes were either destroyed or severely damaged, alongside roads, bridges, and public utilities, which further complicated relief efforts.
Immediate Response and Relief Operations: A Mixed Legacy
The aftermath of Ondoy revealed several strengths and weaknesses in the Philippines’ disaster response mechanisms. On one hand, the outpouring of support from local and international organizations was immense. However, the government’s relief efforts were marred by accusations of inefficiency, corruption, and bureaucratic red tape.
Key Issues During Relief Operations:
- Lack of Preparedness: Ondoy exposed the lack of preparedness at both the national and local levels. Many local government units (LGUs) were overwhelmed by the scale of the disaster, with inadequate evacuation plans, insufficient emergency supplies, and a lack of coordination between agencies.
- Slow and Politicized Response: The National Disaster Coordinating Council (NDCC), the precursor to the National Disaster Risk Reduction and Management Council (NDRRMC), struggled to deliver aid quickly, with accusations that relief goods were being distributed along political lines. Some affected areas, particularly those with less political influence, reported delayed or insufficient assistance.
- Corruption Allegations: Corruption further tarnished the government’s response. Reports emerged of officials mismanaging or hoarding relief supplies. In 2010, a Commission on Audit (COA) report revealed that Php 105 million worth of relief goods went missing, allegedly due to corruption within the Department of Social Welfare and Development (DSWD) and the NDCC.
- Misallocation of Funds: Relief funds that were intended for disaster victims were also found to have been misappropriated. In 2010, the COA uncovered that the National Disaster Fund was spent on unrelated expenses, including the purchase of luxury vehicles and unnecessary travel expenses.
Short-term Rehabilitation Efforts: A Focus on Physical Recovery
In the immediate years following Ondoy, the Philippine government embarked on rehabilitation projects to restore damaged infrastructure and improve flood control systems. These projects included:
- Flood Control Projects: In response to the massive flooding caused by Ondoy, several flood control projects were initiated, including the Pasig-Marikina River Channel Improvement Project and the Metro Manila Flood Management Project. The latter, launched with assistance from the World Bank, sought to improve floodwater pumping stations across Metro Manila. However, many of these projects faced delays due to budget constraints, technical issues, and political wrangling.
- Housing Programs: The government’s resettlement programs were also prioritized, with informal settlers living along waterways being relocated to reduce the risk of future flooding. The Department of Public Works and Highways (DPWH) and the National Housing Authority (NHA) were tasked with relocating thousands of families, yet progress was slow, and many residents resisted relocation due to the lack of alternative livelihoods in resettlement areas.
- Livelihood Restoration: To address the needs of displaced individuals, various livelihood programs were introduced, although many were short-lived and lacked sustainable funding. Temporary job creation through “cash-for-work” programs helped some affected communities, but the broader challenge of restoring long-term economic stability remained largely unaddressed.
Long-term Impacts and Lingering Challenges
Fifteen years after Ondoy, the Philippines continues to grapple with many of the long-term impacts of the disaster, particularly in terms of governance and climate resilience.
1. Vulnerable Communities Remain at Risk: Despite flood control projects, many areas that were hit hard by Ondoy remain vulnerable to similar weather events. In fact, subsequent typhoons such as Typhoon Ulysses in 2020 demonstrated that the risks of flooding have not been adequately mitigated. Informal settlers continue to live along dangerous waterways, as resettlement efforts remain incomplete or have been undermined by urban migration.
2. Infrastructure Weaknesses: While there have been improvements in infrastructure, the country’s urban planning remains woefully inadequate. The Philippines’ growing urban population has strained existing drainage systems, and the completion of critical flood control projects has been delayed by bureaucratic challenges and underfunding.
3. Governance and Accountability Issues: The inefficiency and corruption in the aftermath of Ondoy raised questions about government accountability, yet little has changed in terms of anti-corruption measures. Investigations into the misuse of funds and relief supplies during Ondoy’s aftermath have yet to result in substantial reforms. As of 2024, there are still pending cases and unresolved corruption allegations related to the disaster’s rehabilitation.
4. Mental Health and Social Impacts: The psychological impact of Ondoy on survivors, especially those who lost family members or homes, has left lasting scars. The Philippines has only recently begun to acknowledge the importance of mental health services for disaster survivors, with government efforts remaining largely limited to ad hoc support.
Learning from Ondoy: Shaping Disaster Risk Reduction and Climate Action Today
Ondoy served as a watershed moment for the Philippines, highlighting the need for stronger disaster risk management and climate resilience strategies. Over the past 15 years, there have been significant reforms aimed at addressing these challenges, although progress has been uneven.
1. The National Disaster Risk Reduction and Management Act of 2010: One of the most important legacies of Ondoy was the enactment of the Philippine Disaster Risk Reduction and Management Act (RA 10121) in 2010. This law replaced the NDCC with the NDRRMC, creating a more comprehensive framework for disaster risk reduction, preparedness, and response. The act also decentralized disaster management, empowering LGUs to play a more proactive role in disaster preparedness and recovery.
2. Climate Change Adaptation and Mitigation: Ondoy also spurred the development of national climate change policies. The Climate Change Act of 2009 established the Climate Change Commission (CCC), which is responsible for coordinating the country’s climate action plan. In the years since, the Philippines has made significant progress in integrating climate resilience into national and local policies, though the implementation remains a challenge due to funding limitations and political will.
3. Community-Based Disaster Preparedness: Another key lesson from Ondoy is the importance of involving communities in disaster preparedness efforts. Community-based early warning systems, disaster drills, and the establishment of local disaster response teams have been rolled out across the country, significantly improving the capacity of vulnerable communities to respond to disasters.
4. Urban Planning and Sustainable Development: There is now a greater focus on integrating disaster risk reduction into urban planning, although much remains to be done. The construction of resilient infrastructure, such as flood-resistant roads and buildings, and the development of green spaces that can absorb excess rainfall are being promoted as key strategies to mitigate the impacts of future disasters.
Pending Issues and Unresolved Challenges
Fifteen years after Ondoy, several issues remain unresolved. First, the full rehabilitation of affected areas is still incomplete. Many communities that were displaced by the disaster continue to live in precarious conditions, either in temporary shelters or in informal settlements that remain vulnerable to future flooding. Second, the governance challenges that marred the immediate response to Ondoy persist today, with corruption and inefficiency still hindering the country’s disaster response efforts. Finally, the long-term impacts of Ondoy on mental health and social cohesion continue to be felt, with limited resources available to address these challenges.
Conclusion: A Call for Sustainable Climate Action and Governance Reform
The lessons of Ondoy remain as relevant today as they were 15 years ago. While there have been significant improvements in disaster risk management and climate resilience, the challenges of governance, corruption, and infrastructure development persist. As climate change continues to exacerbate the risks of extreme weather events in the Philippines, there is a pressing need for a more holistic and sustainable approach to disaster preparedness and recovery. This requires not only stronger government institutions but also the active involvement of communities, civil society, and the private sector in building a more resilient and equitable society. The memory of Ondoy should serve as a reminder that disaster risk reduction and climate action are not just about responding to immediate crises but about addressing the deeper social impacts.
