COUNTRY PRESENTATION
Asian Disaster Reduction Center (ADRC, Japan)
Visiting Researcher 2009

The Philippine
Philippine System
DisasterTheManagement
Disaster Management System
by:by:Josefina T. Porcil
Civil DefenseJosefina
Officer,
Planning Division
T. Porcil
Civil Defense Officer,Disaster
Planning Division
Office of Civil Defense-National
Coordinating Council
Office of Civil Defense-National
Disaster Coordinating Council(OCD-NDCC)(OCD-NDCC)

Scope of Presentation
Part 1 - General Information on thePhilippines
Part 2 - RP Disaster Profile
Part 3 - The Philippine Disaster
Management System: An Overview

Introduction
The Philippines is anarchipelagic nation located inSoutheast Asia, comprising 7,107
islands, spanning 1,840 kms from
north to south.
 Total land area - 300,000 sq. kms.
 Coastlines - 36,000 kilometers, thelongest coastlines in the world Bounded by three large bodies ofwater:
on the west and north - by theSouth China Sea
on the east - by the PacificOceanon the south - by the Celebes
Sea and the coastal watersof Borneo

Topography
Large mountainous terrain, narrowcoastal plains and interior valleys andplains make up the country’s
topography.

•Three major island groups:
Luzon - largest island group with
141,000 sq. kms.
Mindanao - second with 102,000 sq.
kms.
Visayas - third with 57,000 sq. kms.



Luzon is the most mountainous withextensive valleys and plains running
through its interiors

Three major mountain ranges in the area:
the Sierra Madre, the Central Cordillera
and the Caraballo Mountains

The southern portion of the island has adominantly volcanic topography withridges and valleys of gentle slope andgenerally accordant drainage



Active volcanoes such as Mt Pinatubo,
Mayon Volcano and Mt Bulusan are foundin this group of islands

Topography
 Visayas Island - located in thecentral Philippines, has a severe
dissection of topography due to its
exposure to typhoons from Pacificand torrential rains
 characterized by mountains and hills(where peaks reach 900m), river
basins, floodplains, plateaus andvalleys Mindanao - has diverse structuralelements and different forms ofphysiographic development
including fault block mountains,
volcanic peaks, uplifted plateaus,
low flat basins, a notable fault zone
which also cuts through Luzon and
Visayas, fissure low masses, andincised valleys and canyons.
 Major mountain ranges: the Easternor Pacific Cordillera, the BukidnonDavao Range

Climate Tropical marine climate (hashigh temperature and warm air
currents flow over its landmasses) Dominated by two major
seasons: wet and dry seasons The summer (southwest)
monsoon brings heavy rains tomost of the archipelago from
June to November The winter (northeast) monsoon
brings cooler and drier air from
December to May
 Mean annual temperature is
26.6ºC 28.3ºC during summer months

Climate
 25.5ºC during rainy months
 Rainfall is the most important
climatic element in the Philippines.
 Rainfall distribution throughout thecountry varies from one region toanother, depending upon the
direction of the moisture-bearing
winds and the location of themountain systems.
 Mean annual rainfall varies from
965 to 4,064 millimeters annuallyMabuhay!
Population - 88.57
million as of August 2007
Filipino – official language
90% of the population are
Christians
80% are Roman Catholics
The Philippines is a newly
industrialized country, withan economy anchored on
agriculture but with
substantial contributions
from manufacturing,mining, remittances fromoverseas Filipinos, andservice industries such as
tourism, and businessprocess outsourcing.

RP DISASTER PROFILENatural Hazards: A Major Challenge to RP’s Development Gains• situated along two major tectonic
plates of the world – the EURASIAN
and PACIFIC Plates• 300 volcanoes, 22 as active• average of 20 quakes per day• average of 20 typhoons a year, five(5) of these are destructive• 36,289 kms. of coastline vulnerable
to tsunami

Natural Hazards: A Major Challenge to RP’s Development Gains• From 1970 – 2006, annual average
direct damage to disasters ranged
from PHP 5 Billion to PHP 15 Billion(US $ 100 Million to US $ 300 Million),
indirect and secondary impacts
further increase this cost

• Cost of direct damage is equivalent
to more than 0.5 % of the nationalGDP• Annual average casualties due tonatural disasters - 972

RP’s No. of deaths, injuries
and affected persons, 1980-2006
70,00060,00050,00040,00030,00020,00010,0000

1980-1990

1990-2000

2000-2006

Deaths5,220

17,2498,555

Injured19,315

15,1666,201

Affected ('000persons)

13,713

68,91142,543

Estimated Damage ofDisasters in RP (In M P @ 2000 Prices)
On the average, annual direct damage is P15 B
For typhoons, average of 0.5% of GDP every year

80,00070,00060,00015 disasters(1978)

Luzon Earthquake(1990)

1.2% of GDP

50,00040,00030,00020,00010,0000

Pinatubo Eruption(1991)

0.9% of GDP

Droughts(1984; 1987)

19 70

19 71

19 72

19 73

19 74

19 75

19 76

19 77

19 78

19 79

19 8 019 8 1

19 8 219 8 319 8 419 8 519 8 619 8 7

19 8 819 8 919 9 019 9 119 9 219 9 319 9 419 9 519 9 619 9 719 9 819 9 9

2000

2001

2002

2003

2004

2005

2006
Source: WBWB-NDCC

CALAMITY FUND APPROPRIATIONS VS.
COST OF DIRECT DAMAGE(1991-2007)*
45,00040,00035,00030,00025,00020,00015,00010,0005,000
0APPROPRIATIONS
1991
2001

1992
2002

1993
2003

1994
2004

1995
2005

COST OF DAMAGE
1996
2006

1997
2007

*January to June 2007. Appropriations include 8 billion CARE fund

1998

1999

2000

The Philippine
Disaster Management
SystemLEGAL AUTHORITY
PD 1566

JUNE 11, 1978
Strengthening thePhilippine Disaster
Control Capability
and Establishing the
National Program on
Community Disaster
Preparedness

PD 1566, Sec. 1
Declaration of Principles

 RESPONSIBILITY FOR LEADERSHIP RESTS ON THE PROVINCIAL
GOVERNOR, CITY MAYORS, AND MUNICIPAL MAYORS, (ANDBARANGAY CHAIRMAN), EACH ACCORDING TO HIS AREA OFRESPONSIBILITY.

PD 1566, Sec. 1
Declaration of Principles

 EACH POLITICAL AND ADMINISTRATIVE SUBDIVISION OF THE
COUNTRY SHALL UTILIZE ALL AVAILABLE RESOURCES IN THE
AREA BEFORE ASKING FOR ASSISTANCE FROM NEIGHBORING
ENTITIES OR HIGHER AUTHORITY

PD 1566, Sec. 1
Declaration of Principles

 THE PRIMARY RESPONSIBILITY RESTS ON THE GOVERNMENTAGENCIES IN THE AFFECTED AREAS IN COORDINATION WITH
THE PEOPLE THEMSELVES.

PD 1566, Sec. 1
Declaration of Principles

 SELF RELIANCE SHALL BE DEVELOPED BY PROMOTING AND
ENCOURAGING THE SPIRIT OF SELF HELP AND MUTUALASSISTANCE AMONG THE LOCAL OFFICIALS AND THEIRCONSTITUENTS.

PD 1566, Sec. 1
Declaration of Principles

 THE NATIONAL GOVERNMENT EXISTS TO SUPPORT THE LOCALGOVERNMENTS IN TIMES OF EMERGENCIES AND ACCORDING
TO THEIR LEVEL OF ASSIGNMENT, ALL NATIONAL GOVERNMENTOFFICES IN THE FIELD SHALL SUPPORT THE OPERATIONS OF
THE LOCAL GOVERNMENT.

PD 1566, Sec. 1
Declaration of Principles

 IT IS RESPONSIBILITY OF ALL GOVERNMENT DEPARTMENTS,
BUREAUS, AGENCIES AND INSTRUMENTALITIES TO HAVEDOCUMENTED PLANS OF THEIR EMERGENCY FUNCTIONS
AND ACTIVITIES.

DCC ORGANIZATIONAL NETWORKNATIONAL DISASTER COORDINATING COUNCIL
17 REGIONAL DISASTER COORDINATING COUNCILS
81 PROVINCIAL DISASTER COORDINATING COUNCILS
113 CITY DISASTER COORDINATING COUNCILS
1,496 MUNICIPAL DISASTER COORDINATING COUNCILS
41,956 BARANGAY DISASTER COORDINATING COUNCILSThe National Disaster Coordinating Council•

HIGHEST
POLICY
MAKING,
COORDINATING
AND
SUPERVISING BODY AT THE NATIONAL LEVEL FOR DISASTER
MANAGEMENT IN THE COUNTRY•ADVISES THE PRESIDENT ON THE STATUS OF NATIONALDISASTER PREPAREDNESS AND MANAGEMENT PLAN•

RECOMMENDS TO THE PRESIDENT THE DECLARATION OF
STATE OF CALAMITY AND RELEASE OF NATIONAL CALAMITY
FUND AS NEEDEDSecretary, National Defense - Chairman
Secretary, Interior & Local Gov’t- Member
Secretary, Public Works- Member
Secretary, Transportation & Communication - Member
Secretary, Social Welfare & Development - Member
Secretary, Agriculture - Member
Secretary, Education - Member
Secretary, Finance - Member
Secretary, Labor & Employment - Member
Secretary, Trade & Industry - Member
Secretary, Health - Member
Secretary, Science & Technology - Member
Secretary, Budget - Member
Secretary, Justice - Member
Secretary, Natural Resources – Member
Secretary, Foreign Affairs - Member
Director, Phil. Information Agency - Member
Sec-Gen, Phil National Red Cross - Member
Chief of Staff, AFP - Member

Administrator, Office of Civil Defense –Member & Executive Officer

TYPICAL ORGANIZATION OF DISASTER
COORDINATING COUNCILDISASTER COORDINATINGCOUNCILCHAIRMANDCC
ASST. CHAIRMAN

STAFF ELEMENTSINTELLIGENCE
AND DISASTERANALYSISDISASTER OPERATIONSCENTER

PLANS ANDOPERATIONSCOMMO &

TRANSPOREVAC

RESCUEWARNINGTATIONUATION& ENG’G

TASK

UNITS

HEALTHFIRE

RESOURCESPOLICERELIEFREHABI

PUBLICLITATION

INFO

. . . the nerve center for alert and monitoring,
resource mobilization, response coordinationand information management

. . . the nerve center for alert and monitoring,
resource mobilization, response coordinationand information management

Operates on a 24/7 basis
Manned by OCD personnel
round-the-clock, withcomplementation from selected
NDCC member-agencies such as
DSWD, DOH, AFP, DPWH,
PNRC during emergency
situations

Core Functions
•
•
•
•
•

Alert and Monitoring
Multi-agency Operational Coordination
Response Resource Mobilization
Information Management, andProgram Coordination for Operations Capability
UpgradeOFFICE OF CIVIL DEFENSE•One of the five (5) bureaus of DND(PD No. 1 as implemented by LOI No.
19, s-1972, and DND Order Nos. 737
and 737-A, s-1973•

Officially established on
July 1, 1973•

The operating arm and secretariat of
the National Disaster Coordinating
Council per PD 1566 issued on June
11, 1978•

It has the primary task of
coordinating the activities andfunctions of various government
agencies and instrumentalities,
private institutions and civicorganizations for the protection andpreservation of life and property
during emergencies…

VISION A service – oriented organization
 A prepared population
 A safe nation

MISSION
To administer a comprehensive
national civil defense and civil
assistance program by providing
leadership in the continuous
development of measures toreduce risk to communities andmanage the consequence ofdisasters

17 OCD REGIONALCENTERSCAR

REGION IIREGION I

NCR

REGION III

REGION V

REGION IV-AREGION VIIIREGION IV-B

REGION X

REGION VI

CARAGAREGION VII

ARMM

REGION IXREGION XIREGION XII

OFFICE OF THE ADMINISTRATOR
Glenn J Rabonza
Administrator

NDCC Secretariat

Anthony Rolando T. Golez, Jr., MD
Deputy Administrator

National Disaster
Management
Center (NDMC)

Dir. Ronald I. Flores, CEO
Executive Officer
Media Relations &Communications
Unit

ADMINISTRATIVEAND FINANCE

Atty. Priscilla P. Duque, MNSA
A/CDEXOPLANNING

TRAININGSEVENTEEN REGIONAL CENTERSEMIPOPERATIONS

Civil Defense
War Emergency Milestones and Trends in DM
Mode’70’s – ’80’s
Disaster Preparedness
Disaster Response Typhoon “Yoling”
 Birth of OCD
 AEGDM
 PD 1566’90’s – 2003

2004 – Present

Disaster Management

Disaster Risk
Management

 1990 EQ
 Pinatubo Eruption
 RA 7160
 IDNDR
 1997 Nat’l. DM Trng.
Framework 1998 GAA
 EO 137 dtd Aug. 10, 1999
 ACDM / ARPDM
 ISDR• REINA /GuinsaugonLandslides• Indian
Ocean EQ &Tsunami• ‘Milenyo,
Paeng,
Reming,Seniang’• Hurricane‘Katrina’• Guimaras
Oil Spill• ‘Cosme’• ‘Frank’• MV Princessof the Stars
Tragedy• Cyclone‘Nargis’• Sichuan EQ• DRR
Initiatives-AADMER-HFA-‘READY’
Project

IDNDR to ISDR: Focus on reducing
disaster risks.

1990s

2005

GEOPHYSICALHYDROMETEOROLOGICALPHIVOLCSPAGASATERRORISM

AFP

EPIDEMICS

DOH

CIVIL
DISTURBANCEINFESTATIONNUCLEAR &RADIOLOGICAL

PNP
DA
PNRI

S
U
R
V
E
I
L
L
A
N
C
E

PARADIGM SHIFT FROM REACTIVE
TO PROACTIVE MODE. . . .

DISASTER RISK MANAGEMENTFRAMEWORK

R=HxVCComprehensive
Disaster Risk Management Framework








Dev. Plan
Executive/Legislative Agenda
Environmental Management
Comprehensive Land Use Plan
Critical infra
Financial tools
S
Risk Assessment &Analysis Hazard ID / Analysis& Monitoring Vulnerability/capacity
ID & analysis

 Livelihood
 Housing

I

D

A

T

S

 Education
 Infrastructure
B’s
44B’s
“BEBETTERBETTERBUILD
BUILDBETTER”
BETTER”“BE

R• Risk Identification• Risk Reduction• Risk Transfer

Mitigation /Prevention*

PreparednessI Plans / SOPs
 I C S Development

post eventK  Damage Assessment &

C

*
R

E
U

D

 Drills / Exercises

Needs Analysis

ResponseO
T Early warning system

S

N

I

R

pre event* Rehabilitation/
Recovery LifelinesE Awareness Public commitment(institutional /legal,framework)
 Community actions
 Knowledge development
thru education &training, research &information

 Relief
 Search & Rescue
 Incident Command
System
 WATSAN / Health Temp. Shelter

R=HxVC

R = Risk
the probability of harmful consequences or expected
losses, resulting from interaction between natural or
human-made hazards and vulnerable conditions.

H = Hazard
a potentially damaging phenomenon or humanactivity that may cause the loss of life or injury,
property damage, social and economic disruption andenvironmental degradation.

V = Vulnerability
set of conditions resulting from physical, social,economic, and environmental factors which
increase susceptibility to losses from theimpact of natural or human-made hazards. It is
important to remember that incidence,
especially of natural events that could cause
disasters lie beyond our control, whilevulnerability can be controlled.

C = Capacity
refers to the ability of people,
organizations and society as a whole tomanage their affairs successfully.

Capacity Development
refers to the process whereby people,
organizations and society as a whole unleash,
strengthen, create, adapt and maintaincapacity over time.

Disaster Risk Management
is the systematic process of using administrativedecisions, organization, operational skills andcapacities to implement policies, strategies andcoping capacities of the society andcommunities to lessen the impacts of natural
hazards and related environmental andtechnological disasters. This comprises all formsof activities, including structural and nonstructural measures to avoid (prevention) or tolimit (mitigation and preparedness) adverse
effects of hazards.

World Conference on Disaster Reduction 2005
Kobe, Hyogo, Japan

4,000 participants. 168 countries.
Assessed the achievements of the past decade.
Provided the Hyogo Framework for Action 2005-2015.

Hyogo Framework for Action (HFA)• A comprehensive, action-oriented response tointernational concern about the growing impacts ofdisasters on individuals, communities and national
development• Adopted by 168 Governments at the World
Conference on Disaster Reduction (WCDR) held in
Kobe, Japan, on January 18-22, 2005
• A global print for disaster risk reduction efforts during
the next decade (2005 – 2015)

Hyogo Framework for Action(HFA)
GOAL: To substantially reduce disasterlosses by 2015 – in lives, and in thesocial, economic andenvironmental assets ofcommunities and countries

Hyogo Framework for Action (HFA)2005 - 2015

Building the resilience of nations & communities to disasters

Strategic Goals
 Integrate disaster reduction into
sustainable development
 Strengthen institutions and mechanisms tobuild resilience Incorporate risk reduction into emergency
management and recovery

Current
Disaster Risk Reduction
Strategies / Initiatives

Governance
Governance1.

Development of Policies and Guidelines




2.

Forging of national and regional agreements (e.g. AADMER,
IHAN, SASOP, Cluster Approach) to define the detailed
procedures and mechanism in facilitating accommodation ofinternational humanitarian assistance
Advocacy for the passage of the DRM Bill (S.B. No. 3086
entitled: “An Act Strengthening the Philippine Disaster Risk
Management Capability by Institutionalizing the National
Disaster Risk Manegement Framework, Appropriating Funds
Therefor and For Other Purposes
National Assessment of the State of DRM in the Philippines(ADB/UNDP)






3.

Assessment of DRM Issues in the Phil.
Formulation of 50 Community Contingency Plans
Documentation and Dissemination of Lessons Learnt
Preparation of DRM Framework
Strategic National Action Plan (SNAP) Project (EU/UNISDR/UNDP)








Establishment of a Multi-stakeholder Consultative
Mechanism on DRR
Formulation of a Strategic National Action Plan in the Phil.
Development of DRR Capacity Building Programme for
Selected Sectors
Support to Mainstreaming of DRR in Selected Sectors

Governance
Governance4.

Supporting Local Government Capacity to Manage
Natural Disaster Risks in the Philippines (World
Bank/DILG)

5.

Mainstreaming Disaster Risk Reduction in Local
Governance (GTZ/DILG/ECHO)

6.

Partnership for Disaster Reduction in Southeast Asia(PDRSEA) Phase 4 Project (ECHO/ADPC)





7.

National Strategic Plan on CBDRM
CBDRM Pilot Project in Albay Province
CBDRM Training for Local Authorities
Integration of CBDRM Recognition Scheme in the
Gawad Kalasag

Learning From Good Practices in DRM(ECHO/OXFAM GB)

CBDRM Case Studies Development andPublication
Promotion and replication of CBDRM Good
Practices and Institutionalization of DRM OfficeRisk
Risk Assessment
Assessment andand Early
Early Warning
Warning

1.

Hazards Mapping and Assessment for Effective
Community-based Disaster Management (READY)(UNDP/AusAID/DOST/DENR).

Covers 27 vulnerable provinces

2.

National Disaster Coordinating Council – Collective
Strengthening of Community Awareness to Natural
Disasters (NDCC-CSCAND)(AUSAID – DFAT/PHIVOLCS/PAGASA/NAMRIA/MGB)

3.

GoP Harmonization and Prioritization of Hazard Mapping4.

Climate Change Adaptation Project(Spanish Government/World Bank/ DENR) Study toto complement efforts of READY project. Covers
additional 16 provinces

establish impact of climate change in the agriculture
sector in two pilot areas (Bicol Region and Region 2).

Knowledge
Knowledge Management
Management andand Education
Education

1.

Development of a web-based GLIDE associatednational disaster event database under the
CALAMIDAT.ph collaborative project of with
ADRC.

2.

NDCC – WBI web-based DRM Courses

Knowledge
Knowledge Management
Management andand Education
Education
3. Mainstreaming DRR into the Education
Sector, in partnership with ECHO and
ADPC, which aims to develop DRM
modules into the secondary school
curriculum and undertake research on
the impact of disasters to theeducation sector
4. Stepping up of Department of
Education’s efforts on production anddistribution of Educational Multi-media
on natural and man-made hazards
5. Continuous conduct of hazard-specificmulti-sectoral Contingency Planning
Workshops
6. Enhancing effective incident
management through conduct ofIncident Command System (ICS)
trainings
7. Introduction of the ASEAN Rapid
Damage Assessment and Needs
Analysis (RDANA) Training foreffective response

The Association of Southeast
Asian Nations (ASEAN)
Rapid Damage Assessment andNeeds Analysis ManualKnowledge
Knowledge Management
Management andand Education
Education
7.

Continuous conduct of Collapsed Structure Search andRescue (CSSR) and Medical First Responders (MFR)
trainings under the Program for Enhancement ofEmergency Response (PEER) project (NSET/USAID)

8.

Conduct of Nationwide Water Search and Rescue(WASAR) Training for local government and volunteer
rescue groups in order to enhance their response
capacity for flooding and landslide incidents

9.

Capacity-building of health personnel through skills
development courses (e.g. Basic Life Support) andmanagement courses (e.g. Hospital Preparedness for
Emergency – HOPE Course)

10.

PHIVOLCS, PAGASA, and DENR continue to holdSeminars/Trainings on Seismic and HydroMeteorological Hazards Awareness and Preparedness

11.

Development of training modules on DRM

Risk
Risk Management
Management andand Vulnerability
Vulnerability Reduction
Reduction
1.

Mainstreaming Disaster Risk Management in Subnational Development and Land Use/PhysicalPlanning in the Philippines (ECHO/UNDP/NEDA)







2.

Formulation of Guidelines
Formulation of DRR-enhanced plans(Region 1 and Surigao del Norte)
Documentation of the application of therisk assessment methodology (Leyte,Southern Leyte, Surigao del Sur, and
REINA)
Training of 400 regional and provincial
land use planners nationwide

Priority Implementation Project on
Mainstreaming DRR in the Infrastructure Sector(ADPC/DPWH) by incorporating Risk Impact

Assessment procedures into planning process
before construction of new roads and bridges

Risk
Risk Management
Management andandVulnerability
Vulnerability Reduction
Reduction

4.

Mines and Geosciences Bureau Department of Environment andNatural Resources (MGB-DENR)
carries out the National Geohazards
Mapping; Suitability Assessment ofRelocation Sites; and Environmental
Impact Assessment.

5.

Implementation of the “Be Better,
Build Better “ program thatenvisions the construction of
innovative school buildings that are
not only conducive for learning but
also safe from disasters.

DisasterDisaster Preparedness
Preparedness
NDCC’s Four-Point Plan of Action on Disaster Preparedness
1.

Upgrading the forecasting capability ofwarning agencies for hydrometeorological and seismologicalhazards through improved equipment
and staff development as well as
networking with foreign forecasting
institutions

2.

Promoting an integrated and coherent
strategic public information campaign
on disaster preparedness through theconduct of nationwide tsunami andearthquake drills; distribution of posters
and flyers on natural hazards; and other
IEC through the tri-media.

DisasterDisaster Preparedness
Preparedness
NDCC’s Four-Point Plan of Action on Disaster Preparedness
3.

Enhancing capabilities ofLocal Chief Executives (LCEs)
and their respective Disaster
Coordinating Councils (DCCs)
in identified vulnerable areas
through the conduct of DMrelated trainings.

4.

Strengthening mechanisms
for government and private
sector partnership in relief
and rehabilitation.

DisasterDisaster Preparedness
Preparedness
1.

Annual Observance of National
Disaster Consciousness Month(July)

2.

Search for Excellence in Disaster
Management and Humanitarian
Assistance (Gawad Kalasag)

3.

National campaign to “Keep thePhilippines Bird Flu Free” throughthe National Avian Influenza Task
Force and the civil society
organizations led “AI/PI Network.”

4.

Institutionalization of the Cluster
Approach in the Phil. DM System

“. . . . . and we must, as a people, seek to do more to preserve our
precious natural resources because at the end of the day, many ofthese great calamities are coming because of CLIMATE CHANGE.
So if we are going to talk about disaster mitigation, we have to talkabout addressing climate change.”- President Gloria Macapagal Arroyo
National Multi-Stakeholder Dialogue on
Disaster Risk Reduction, July 25, 2007
“ CLIMATE CHANGE is the most severe problem we arefacing today, more serious even than the threat ofterrorism.”- Sir David King, Chief Scientist of thePrime Minister of England (2004)
Decaying solid waste inlandfills emits methane

Decomposing waste inwater also emits methane

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