Challenges in Preventing the Spread of COVID-19
Observations in the Philippines and Japan

1. Introduction
In addition to restricting entries at legal borders, governments generally recommend, and to great
extent enforce, four common actions to prevent the spread of COVID-19: staying home, social
distancing, wearing mask, and washing hands. Table 1 shows an observation (based on news
reports and actual experiences) between the Philippines and Japan.
Table 1 Policy Difference in COVID-19 Preventive Actions
Between the Philippines and Japan
Preventive Action
The PhilippinesJapan
Staying Home-MandatoryImposition of lockdowns(military, police, and related
enforcement agencies areengaged)-

Non-Mandatory
No imposition of lockdowns(drawing on individualresponsibility andcooperation)

Social/PhysicalDistancing-

Cancelation of group events(e.g., church worship, beachparties, and cockfights)-

Wearing Mask-

Legislated at local
governments (penalty forviolation of ordinance)-

Avoidance of 3Cs: crowds,closed spaces, closed contacts;
Also cancelation of groupevents (e.g., marathons)
Encouraged but not legislated
National Government
announced giving out masks

Washing Hands-

Encouraged (on your own)-

Encouraged (with wideestablishments’ support)

Policies and actions taken by governments differ for many reasons, including: 1) preparedness ofthe health systems, 2) demographics, e.g., percentage of elderly and poor, 3) population density,4) testing capacity, and 5) cultural, social, and political dynamics.

2. ‘Community Quarantine’ in the Philippines
Relief goods from the local government are a common sight of daily life during the quarantine.
Families, especially those living ‘below povertyline’ and ‘daily wage earners’, receive relief
goods to alleviate hunger. Goods usually include
3-5 kilos of rice, 5 canned sardines, and 3-5
packs of instant noodles. In Cagayan de Oro (acity in Mindanao, Southern Philippines), where
my relatives live, daily wage earners include:‘tricycle drivers’, ‘jeepney drivers’, ‘sidewalkvendors’, ‘hairdressers’, and ‘street cleaners’.
Other daily wage earners earn by selling freshly
harvested fruits and vegetables or freshly caught
Photo 1. Relief Goods (Inquirer 2020)
fish. They have so much anxiety during
quarantine, particularly how long relief goods can sustain. Essentially, this situation is happening
not just in Cagayan de Oro but also in all parts of the Philippines. When did it start?

1

On 16 March (with 142 reported confirmed COVID-19 cases)1, the Government of thePhilippines imposed ‘Enhanced Community Quarantine’ (ECQ) for the entire Luzon.2
Immediately after that, other provinces followed (e.g., Misamis Oriental and Davao). The ECQ isa lockdown.3•It restricts people’s movement: mass gathering is prohibited (e.g., church fellowship, beachparties, movies, and sports events), public transportation is stopped, and schools at all levels
are suspended. Front-liners (i.e., doctors, nurses, army, police, and relevant personnel) are
exempted. Private companies are ordered to implement “telework” arrangements. Only one
person in the household is allowed to go outside to buy basic needs (e.g., food and medicine).
In restricting people’s movement, military-police checkpoints (Photo 2) and ‘quarantine pass’(Photo 3) are essential requirements.

Photo 2 Police Checkpoint (CNN Philippines 2020)

Photo 3 Quarantine Pass (Philippines Star 2020)•It imposes closure of establishments: Hotels, casinos, cockpits, and related businesses are
not allowed to operate. Exempted establishments are financial institutions such as banks andmoney transfer services. Violators will be penalized (See Memorandum from the Executive
Secretary dated 16 March 2020).4•

It restricts travel: Issuance of visas and entry of foreigners into the Philippines aresuspended. Travel outside the Philippines is also restricted with exemptions to those whotravel with medical supplies related to COVID-19. Cargo forwarders, farmers, and other foodproducers are exempted. Violators will be penalized (See Memorandum of 16 March 2020).

2.1 Entire Philippines under ‘State of Calamity’On the first day of the lockdown, President Duterte declared the entire Philippines under a Stateof Calamity for a period of six months.5 This declaration allows all local governments to use theirrespective emergency funds, usually by providing relief goods to their constituents through thelocal disaster risk management office (LDRRMO). Some local governments invest on buying for
personal protective equipment (PPE) for medical personnel (e.g., Pasig City).6 Others offer
financial assistance as well doing disinfection-related activities.7 Note that, the President also

1

COVID-19 Tracker Philippines, https://www.doh.gov.ph/covid19tracker
CNN Philippines, ECQ, https://www.cnnphilippines.com/news/2020/3/16/luzon-enhanced-community-quarantine-covid-19.html
ECQ Memorandum, https://www.officialgazette.gov.ph/downloads/2020/03mar/20200316-MEMORANDUM-FROM-ES-RRD.pdf
4Memo 16 March 2020, https://www.officialgazette.gov.ph/downloads/2020/03mar/20200316-MEMORANDUM-FROM-ESRRD.pdf
5PH under State of Calamity due to COVID-19, https://cnnphilippines.com/news/2020/3/17/ph-state-of-calamity-coronavirus.html
6ABS-CBN, https://news.abs-cbn.com/ancx/culture/spotlight/03/20/20/heres-everything-that-mayor-vico-sotto-has-done-so-far-inresponse-to-covid-19
7
Financial assistance, https://www.rappler.com/nation/257106-manila-financial-assistance-families-under-coronavirus-lockdown
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issued a memorandum that ordered the freezing of price of basic goods, emergency medicines,and medical supplies.8
2.2 Special Powers to the President
On 24 March, Duterte signed a law known as ‘Bayanihan to Heal as One’ that authorizes thePresident to execute necessary powers for handling the COVID-19 national emergency.9 The law
specified thirty special powers that will last for three months unless modified by Congress. Oneof these powers is providing an emergency subsidy amounting to five thousand pesos (₱5,000.00)
to eight thousand pesos (₱8,000.00) to low income households based on prevailing regional
minimum wage rates. Duterte assigned the Department of Social Welfare and Development(DSWD) to distribute the subsidy to the beneficiaries.10 One issue is how to release this subsidy
without causing people to crowd at banks or designated money transfer centers while ensuringthat these beneficiaries maintain physical distance.
2.3 Challenges
Although many activities are implemented to restrict people’s movement, there is no ‘mass
testing’ for COVID-19 in the Philippines. The rich and powerful, especially the politicians areprioritizing themselves for testing.11 Additionally, these challenges are also noted:•••COVID-19 tracker shows that the percentage of those who died is higher than the percentageof those who recovered (https://www.doh.gov.ph/covid19tracker)
As of 10 April, 21 medical doctors died of COVID-19. Moreover, 152 doctors, and 63 nurses
are tested positive12
There are anecdotal reports of stigma and discrimination by middle class among poor people– branding them as lazy and plain beneficiaries of government subsidies

Originally, the lockdown was set for the period 15 March to 14 April. However, with lessindication of flattening the curve, the President accepted the recommendation from the InterAgency Task Force (IATF) on COVID-19 to extend the lockdown until 30 April.13

3. Drawing on ‘Individual Responsibility’ in Japan
Unlike the Philippines, where much of Government control is imposed on the people, Japan
appears lenient. Under existing Japanese law, lockdowns cannot be enforced. So, it amended theSpecial Measures Act for Pandemic Influenza and New Infectious Diseases Preparedness andResponse so that the Government of Japan (GoJ) can declare health emergency that would restrict
people’s freedom by requesting and ‘ordering’ them stay home to prevent the spread of novel
corona virus. However, there is no penalty if people refused. As there will be closures to many
stores, restaurants, amusement facilities, and factories in order to prevent people from going out
their homes unnecessarily, the government will implement a financial aid package for thosebusinesses, which includes providing 2 million yen to small and medium-sized corporations aswell as those relatively larger corporations to sustain their businesses. It will also provide 1
million yen to individual owners.14 On these bases, Prime Minister Abe, on 7th April 2020,declared a month-long State of Emergency for Tokyo, Kanagawa, Saitama, Chiba, Osaka,

8Rappler, Freezing of prices, https://www.rappler.com/nation/254915-duterte-orders-price-freeze-coronavirus-lockdown“Bayanihan Heal as One Act”, https://www.officialgazette.gov.ph/downloads/2020/03mar/20200401-IRR-RA-11469-RRD.pdf
10
DSWD to distribute cash aid, https://www.cnnphilippines.com/news/2020/4/2/dswd-lgu-cash-aid-distribution.html
11
VIP testing in the Philippines, https://www.ucanews.com/news/covid-19-testing-for-vips-sparks-outrage-in-philippines/87517
12
CNN Philippines, https://www.cnnphilippines.com/news/2020/4/8/doctors-nurses-with-coronavirus.html
13
Extension Memo, https://www.officialgazette.gov.ph/2020/04/07/memorandum-from-the-executive-secretary-on-extension-of-theenhanced-community-quarantine-over-the-entire-luzon-until-30-april-2020/
14
Amendment to Special Measures Act (Article 32), https://japan.kantei.go.jp/98_abe/statement/202004/_00001.html
93Hyogo, and Fukuoka prefectures (until 6th May).15 This declaration allows the governors to
introduce restrictions to prevent the spread of COVID-19. Note that the government’scountermeasures on COVID-19 is evolving, and on 16 April 2020, the Prime Ministerannounced to provide a cash handout of 100,000-yen (approximately US$930) to every resident
in Japan as economic measure to counter the effects of the new coronavirus outbreak.16
3.1 Covering 7 Prefectures Only17
Out of 47 prefectures, only 7 are covered in the State of Emergency (please note that thegovernment policy is evolving. On 16 April 2020, the State of Emergency has been expandedto entire Japan). In essence, the state of emergency is more of an authority of the governors torequest and order. Among these are asking residents to refrain from non-essential movements
and requesting schools to close and place limits on the use of nursery schools, elderly daycare
centers, and other welfare facilities. The governors have no legal authority to order privatecompanies to close. So, unlike the Philippines, there are no excessive use of military and policein Japan. In some sense, Japan’s State of Emergency contrasts that of the Philippines.
•It does not forcefully restrict people’s movement: Residents can still go outside theirhouses without a pass. Some people can still walk under the cherry blossoms (Photo 4)18
and can still do groceries in orderly manner at supermarkets (Photo 5).19

Photo 4 People under Cherry Blossoms (Kyodo News 2020)••

Photo 5 Special time for elderly in Kobe (Mainichi 2020)

It does not impose mandatory closure of establishments: Private companies are only
encouraged to arranging telework, but are not mandated to close.
It does not restrict travel: Public transportation still operates. Railway and bus companies
essentially maintain normal schedules. Additionally, there are no restrictions on taxi
drivers.

3.2 Powers of the Governors
Under a State of Emergency, governors have authority to close theaters, event venues, hotels,
gyms and pools, museums, libraries, and nightclubs. The real power of the governors is more
on facilitating the health system, which is core in easing the impact of this pandemic.
Governors can order the seizure of essential goods, including medicine – subjecting
penalties to those who refuse to comply. Governors can compel companies to transport

15

NHK World, https://www3.nhk.or.jp/nhkworld/en/news/20200407_43/
Y100,000 cash handout, https://www.channelnewsasia.com/news/asia/japan-offers-covid-19-stimulus-payment-to-all-residents12653052
17
Expansion of State of Emergency to entire Japan, https://english.kyodonews.net/news/2020/04/da404143318b-urgent-japan-looksto-expand-areas-covered-by-virus-emergency-declaration.html
18
Cherry blossoms, https://english.kyodonews.net/news/2020/03/14fb6e803d74-feature-japan-struggling-to-get-a-grip-on-socialdistancing.html
19
Special time for elderly, https://mainichi.jp/english/articles/20200408/p2a/00m/0na/015000c
164medical goods and equipment as well as use private property as temporary medical
facilities without the owner’s consent.20
3.3 Challenges
Perhaps, peoples’ anxiety in Japan is whether the democratic approach to flattening the curve
will be effective. Also, whether the limited coverage of the State of Emergency is enough sinceother prefectures also have COVID-19 cases (https://covid19japan.com/). In fact, some
prefectures (e.g. Kyoto and Aichi), which are not covered in the State of Emergency, areimplementing their own versions of state of emergency.21 Another challenge is on ‘perception’.
There is anecdotal observation that most Japanese still prefer to go to work physically at office,as they perceive working at home is less productive. Additionally, the support of higher
management is essential. If the higher management supports telework, then employees will be
inclined to work at home. Furthermore, ‘culture’ is also a factor. There are reports that thetraditional ‘seal system’ hampers telework.224. Insights•••

Both the Philippines and Japan have systems in place to handle disasters, and these systems(activated through the Declaration of State of Emergency) were used in efforts to preventthe spread of COVID-19. The Government of the Philippines utilized the NDRRMC
structure, wherein the chair now leads the Interagency Task Force (IATF) on COVID-19.23
PDRRMOs and MDRRMOs at the local government levels (chaired by governors andmayors) are subsequently utilized, particularly in the distributions of relief goods. In Japan,
it’s usually the local governments (especially the governors) who are leading and directing
the efforts of the addressing the crisis. So, the same procedure is applied in this pandemic.
The Philippines adopted a more ‘authoritarian’ approach in containing COVID-19,including giving extra powers to the President and excessive use of force with themobilization of military and police. This appears essential to keep people at home, as thePhilippines doesn’t have strong health system (i.e., limited hospital beds, ventilators, PPEs,
and even health care insurance).
Japan’s approach is more democratic. Japan maintains the separation of powers between
the national government and prefectural governments amidst corona virus. Most
importantly, Japan did not impose mandatory restrictions. Instead, the Government calls on
people to support and recognize their ‘individual responsibility’. The Government of Japan
can afford this kind of decision since the country has stronger health system, better welfare
support, and cooperative citizens.

20

Statement of Prime Minister Abe, https://japan.kantei.go.jp/98_abe/statement/202004/_00001.html
NHK World, https://www3.nhk.or.jp/nhkworld/en/news/backstories/1025/
22
Japan Times, https://www.japantimes.co.jp/news/2020/04/13/business/corporate-business/traditional-japanese-seal-system-hamperstelework/#.XpT8xlMzb-Y
23
NDRRMC COVID-19,
http://www.ndrrmc.gov.ph/attachments/article/4031/update_re_situational_report_no3_coronavirus_disease_2019_issued_17_march_2020_12nn.pdf
215