Republic of the Philippines
Emergency Assistance for the Reconstruction and Recovery of Marawi Project

Output 3:
Restoring Water Utilities and Health Infrastructure

Implementing Agency for the Water Supply Component:
Local Water Utilities Administration (LWUA)


  1. The Government of the Philippines has requested ADB to provide emergency assistance combining a $400 million Emergency Assistance Loan (EAL) and $8 million in grants to support the reconstruction of Marawi. The Emergency Assistance for the Reconstruction and Recovery of Marawi Project (ERRM) is structured to provide the Government of the Philippines (government) with immediate and flexible financing to implement programs, projects and activities (PPAs) included in the Bangon Marawi Comprehensive Rehabilitation and Recovery Program (BMCRRP), as may be updated from time to time.1 The ERRM comprises of four outputs: (i) fiscal support; (ii) reestablishing connectivity in Marawi by building back better public infrastructure; (iii) restoring water utilities and health infrastructure; and (iv) improving social services and livelihoods to affected persons.
  2. Output 3 of the ERRM will be financed by a $5 million allotment under the Urban Climate Change Resilience Trust Fund (UCCRTF). It will include a water supply component and a health component.  These two sectors has been identified as critical components for the recovery of the city.  Hence, UCCRTF as a multi-donor trust fund created to enhance resilience, particularly of the poor and vulnerable, is directing its support towards the provision of these key urban services
  3. For the water component, the output will finance reconstruction and rehabilitation of water supply infrastructure in area of the existing water supply system, comprising 19 barangays (villages) currently served by Marawi City Water District (MCWD) and develop a comprehensive water supply, septage/sewerage and drainage master plan for the city. The new infrastructure will improve 24-hour supply of water with a minimum pressure of 10 psi. The grant will build on the study conducted by Maynilad with support from the International Committee of the Red Cross (ICRC) which was completed in August 2018. The master plan shall be informed by consultations held with the local communities, ensuring participation of women and marginalized groups. The water supply component supports items 118 and 119 in the physical infrastructure PPAs under the BMCRRP.
  4. As a UCCRTF grant, the design of the proposed interventions have to embed climate change and disaster resilience and must demonstrate transformative elements (i.e. building back better). The grant will also provide institutional and operational support related to the above activities.


  1. Grievance Redress Mechanism (GRM) is a part of project management that is likely to increase accountability and responsiveness among service providers and provide a friendly environment to the beneficiaries of the project. GRM aims to address complaints of local affected people because of project interventions in the selected barangays under ERRM Output 3 during the project period.
  2. A GRM is a systematic process to receive, evaluate, and address the project-related grievances of project affected persons (PAPs) and/or groups. A project level grievance redress mechanism has been established to receive, evaluate and facilitate the resolution of affected people’s concerns, complaints and grievances about the social and environmental performance at the level of the project. The GRM provides an accessible and trusted platform for receiving and facilitating resolution of PAPs concerns, complaints or grievances related to the implementation of the project. Grievances may be channeled through letters, emails; text messages (SMS), verbal narration, grievance drop box and registers. Steps, time-bound schedules and with responsible Grievance Redress Focal (GR Focal) Persons and members identified to address concerns, complaints or grievances at each stage is outlined in the succeeding discussion.

    A. Structure of GRM, Its Composition and Functions
  3. Grievance Redress Committees (GRCs) are established at project level, project implementing unit and project management unit levels, each composed of a GR Focal and members. The functions of the GRC are: (i) to provide support to affected persons on problems arising from environmental or social disruption due to construction or project implementation; (ii) record grievances of APs, categorize and prioritize them and provide solutions upon receipt of complaint/grievance; and (iii) ensure feed back to the aggrieved parties about developments regarding their grievances and decisions of the GRC. Specifically, the GRC has the following duties:
    • Receiving and Registration of complaints/grievance
    • Eligibility assessment of grievances
    • Information to the complainant about eligibility of the complaint
    • GRC meetings to discuss grievances and action required
    • Ensuring collection of detailed information about the eligible complaint
    • Assessment of complaint, draw conclusion from discussions and make recommendations
    • Develop action plan outlining activities required to implement the recommendations
    • Ensuring implementation of recommendations by stakeholders or concerned authorities
    • Monitoring actions of the recommendations in view of timeline
    • Feedback to the complainant on action completed against registered complaint
    • Seeking complainant feedback on level of satisfaction
    • Closing complaint after all actions taken as per recommendations and feedback to the complainant.
    • Advise to complainants about approach /appeal to the next level, ADB Accountability Mechanism and Court of Law in case the complainant is not satisfied or complaint is beyond the scope of the GRC PMU.
  1. The three-level composition of GRM of ERRM Output 3 is discussed below:
  2. First Level (Project Level) and Composition of GRC is as follows:
    • Barangay Captain or nominated representative (covered barangays of project
    • Field/Supervising/Site Engineer of MCWD
    • Field/Supervising Engineer of LWUA
    • Field/Supervising/Site Engineer of Contractor or nominated representative
  1. Second Level (PIU Level) and Composition of GRC is as follows:
    • LCE of MCLGU or GR Focal designate
    • GM of MWCD or GR Focal designate
    • DPWH Regional Office GR Focal designate
    • LWUA Project Manager
    • LWUA Social Safeguard and Environment Safeguards Specialists
  2. Third Level (PMU Level) and Composition of GRC is as follows:
    • DPWH-ESSD GR Focal designate
    • LWUA Project Director
    • Governor
  3. ADB Accountability Mechanism
  4. The GRM has three levels of decision making process:
  5. The first Level which is at the Project Level aims to resolve all construction related concerns, complaints or grievances which require quick and efficient action. In case of grievances that are immediate and urgent in the perception of the complainant, the Contractor, and Supervising Engineers of LWUA and MWCD and Barangay GRC Focal will provide the most easily accessible or first level of contact for the quick resolution of grievances within 3 days.
  6. The second Level which is at the Project Implementation Unit (PIU) will handle complaints that could not be resolved by the first level. A decision should be made within 15 calendar days after receipt of the complaint. The aggrieved PAP or stakeholder will be informed in writing of the decision within two working days
  7. The third Level which is at the Project Management Unit (PMU) will handle concerns, complaints or grievances that are over and above the scope of the first and second levels and/or concerns, complaints or grievances that could not be resolved at the first and second levels. The DPWH PMU will have 10 calendar days within which to resolve the complaint. The resolution will be officially communicated in writing to the PAP within five working days from the date of the issuance of the decision.
  8. In addition to the project level GRM required by ADB’s SPS, ADB also has an Accountability Mechanism Policy (May 2012). The accountability mechanism provides opportunities for people (2 or more complainants) that are adversely affected by ADB-financed projects to express their grievances, seek solutions, and report alleged violations of ADB’s operational policies and procedures, including safeguards policy. ADB’s accountability mechanism comprises of (i) consultation led by ADB’s special project facilitator to assist people adversely affected by ADB-assisted projects in finding solutions to their concerns and (ii) providing a process through which those affected by projects can file requests for compliance review by ADB’s Compliance Review Panel.
  9. An aggrieved person or complainant shall have access to the country’s legal system at any stage and accessing the country’s legal system can run parallel to accessing the GRM and is not dependent on the negative outcome of the GRM.
  10. Who can complain: A complaint may be brought by persons who are, or could be, “directly, indirectly, materially, and adversely” affected by the project. A complaint can be submitted on behalf of the affected person/people by a representative, provided that he or she identifies the affected person/people and includes evidence of the authority to act on their behalf.
  11. How to file a Complaint. Although different modes of filing are acceptable to the project, the GRC at different levels will determine the validity of complaints filed and will see to it that the purpose of creating the GRC will not be misused or abused. The complainant, should he/she decide to personally file his/her complaint(s), will be assured of confidentiality by the officers and members of the GRC until proper venue has been provided to discuss and settle the reported issues.
  12. Modes of Filing Complaints with the GRC:
    • (i) Filing of complaints through GRC Logbook /database – the barangays officials will be required to provide a Logbook to record complaints raised by community member(s) or any individual in relation to the project implementation.
    • (ii) Complaints/Grievance Reports via text messages – members of the GRC will make available official contact numbers for complaints/grievance filing (depending on availability of resources and technology). However, such messages will need to be documented and signed by a responsible GR Focal.
    • (iii) Letter addressed to GRC head or members.
    • (iv) Any other mode, e.g. direct hotline, social media, etc.
  1. The following STEPS are adopted for receiving complaints and addressing received complaints:

Step 1: Receiving Grievances/ Complaints and its Registration:

  • All grievances, complaints, concerns submitted through complaint box, verbally or in writing to Contractor or to any GRC member shall be filed using the completed Grievance Redress Form.
  • GRC members are informed of grievance/complaint through phone, text message or in writing

Step 2: Validity Assessment of Grievance/Complaint:

  • Validity of registered grievance/complaint is reviewed and sorted out by GRC.
  • Grievance/complaint is rejected if it is not related to project implementation or construction
  • If not valid, grievance/complaint is rejected, GRC informs or sends feedback to the Complainant
  • If valid, grievance/complaint proceeds to Step 3, assessment, meeting and decision or action
  • If needed, additional information on the eligible grievance/complaint can be collected

Step 3: Validity, Preparation for GRC Meeting and Action Plan:

  • GRC determines the validity of the grievance/complaint.
  • If at the time grievance/complaint is lodged verbally and reported grievance/complaints are inconveniences caused by minor construction, GRC immediately refers to Contractor or site engineer to manage the grievance. For example, site engineer is instructed to resolve grievances associated with construction such as restoration of road, obstruction in accessing house/shop or any place due to dumping of construction materials, dust etc. Proceed to Step 4 onwards.
  • If grievance/complaint is complex in nature and cannot be resolved by the Contractor/site engineer, GRC meeting is scheduled.
  • During meeting, the GRC can consult and seek relevant information about complaint from the concerned parties
  • The GRC members may arrange field/site visit/s and interact with the concerned persons, if needed before reaching the conclusion
  • On basis of the collected evidences during meeting (or after field/site visit), GRC draws conclusions and make recommendations for a solution.
  • The GRC agrees on the action plan required to be implemented according to the recommendations made. The action plan will include detailed activities and responsible entities along with timeline.
  • If upon the convening of the Grievance Committee and the complainant or concerned parties are not present, then the Grievance Committee meeting will have to reschedule the meeting on the day that the complainant or concerned parties will be able to attend. Two meeting re-scheduling will be allowed. If on the 3rd scheduled meeting and the complainant or concerned parties would still not be able to attend, then the complaint or grievance will have to be dismissed for lack of interest on the part of the complainant.
  • Record of the proceedings and decisions taken by GRC members to further track the status as per decided time line.
  • If the complaint is complex and/or the complainant is not satisfied with the resolution, the GRC may request for additional time and resolution after proper assessment or refer the complaint to the GRC PIU Level. If grievance/complaint cannot be resolved, GRC PIU Level can refer the complaint to GRC PMU. It is noted at this stage, the complainant can avail of or appeal the ADB Accountability Mechanism or avail of court of law system.

Step 4: Implementation of Action:

  • Responsible persons/entities identified in the action plan during GRC meeting will implement the agreed plan.
  • GRC members may arrange field/site visit/s and interact with the concerned persons, if needed to verify if plan of action has been satisfactory implemented before closing the grievance/complaint.
  • Photos, log books or any relevant documents should be taken or collected by GRC for documentation and reporting
  • GRC provides feedback to complainant in verbal during filed/site visit or may send in writing if necessary.

Step 5: Monitoring and Reporting

  • The GRC members may arrange field/site visit/s and interact with the concerned persons, if needed to verify if plan of action has been satisfactory implemented before closing the grievance/complaint.
  • GRC provides feedback to complainant in verbal during field/site visit or may send in writing if necessary.
  • GRC is responsible to track and record status of all complaints. It will submit or make available documents and data/information to GRC PIU the following:
    • Grievance/complaints registered
    • Grievance/complaints forwarded to Contractor/site engineer
    • Grievance/complaints in process to be resolved
    • Grievance/complaints addressed and closed
    • Grievance/complaints forwarded to Second and/or Third Level GRC
    • Grievance/complaints appealed to ADB Accountability Mechanism
  • GRC is responsible to report/inform status of the complaints (received, addressed and forwarded) to the PIU Level GRC
  • GRC will be assisted by GRC PIU in monitoring, reporting and overall management of grievance/complaint

Step 6: Closure of the Complaint:

  • Grievance/complaint is considered closed if all actions have been taken and the complainant satisfied with the resolution.
  • GRC prepares a closure report of the grievance/complaint handled
  • GRC sends a written notice of closure if necessary or provide feedback to complainant in verbal during filed/site visit
  1. Appeals to the Second and Third level GRCs:
    • In the event that GRC Level 1 cannot make a decision on how to resolve the complaint, or if a complainant is not satisfied with the actions taken to resolve the complaint, an appeal through writing can be made or availed by the complainant to the Second and Third GRC Level.
    • GRC Level 1 or complainant can submit an appeal in writing to Second and Third Level GRCs.
    • Steps 4 and 6 will proceed thereafter. At any stage, the complainant can also appeal to ADB Accountability Mechanism and court of law.
  2. Ethnic Minority Grievance Redress Procedure. Conflicts between members of the affected ethnic minority will be addressed by the community in the context of customary laws and dispute resolution mechanisms. If invited, project-related staff and other stakeholders, e.g., barangay or municipal officials, may participate in the process, but their role will be defined by the officiating leader or council. Inter-community conflicts will be addressed by the communities themselves according to their customary or agreed upon dispute resolution processes. If an outside facilitator, mediator, or arbiter is required or requested, the project implementing and monitoring units will seek the intervention of the LGU to assume the role. This guideline applies to conflicts or disputes between the affected ethnic group and any of the project units or others groups or individuals involved in project implementation.
  3. Awareness Campaign. Public should be informed of about the project, its activities and availability of grievance procedures.
  • Project Billboard and GRM Posters. Awareness campaign materials such as Project Billboards and GRM Posters can be installed or placed at appropriate locations such as construction sites, Contractor’s temporary facility, Barangay Offices and other public areas accessible to residents and community where the project is implemented. The Project billboard tarpaulin may be posted in ½” thick marine plywood with measurement of 4×8 feet while the GRM poster can be printed and posted in ½” thick marine plywood or directly posted/installed in walls or designated spaces with measurement of 3×6 feet. See Sample Formats in paragraph 28
  • Public Consultations. It is important to conduct consultations with key stakeholders, implementers and residents before the start of construction. Keeping well informed project stakeholders and providing venues to discuss project related concerns fosters cooperation, facilitate smooth implementation and minimize project related grievances or concerns during construction. In consultations, information about the project such as location of water units, transmission and distribution lines, anticipated minor disturbances and mitigation measures, schedule of construction and availability of grievance mechanisms can be discussed. Minutes of consultations, attendance sheets and photographs should be taken for documentation and reporting purposes.
  • Official Name and Contact Number/s. A designated phone and/or mobile number and email address shall be established and created for the project by LWUA and MWCD. These contact information will be included in the GRM Poster. A standard reply/response for queries, grievances or complaints shall also be developed by LWUA/MWCD. The project will use the following number/s and email address:

Contact Name: Marawi City Water District (MWCD)
Mobile Numbers: 09511665435 (TNT); 09058188780 (TM)
Email Address:

  1. Below are the agreed visibility boards:

Project Information Billboard

GRM Billboard/Poster

23. Grievance Redress Form