Philippines
Country Report
1999

ATTY. PRISCILLA PANELA DUQUE, DIRECTOR IOFFICE OF CIVIL DEFENSE, DEPARTMENT OF NATIONAL DEFENSE
PHILIPPINE REPRESENTATIVE TO THE
2nd ASIAN DISASTER REDUCTION CENTER INTERNATIONAL MEETINGDECEMBER 6-8, 1999, KOBE, JAPANContents
Ⅰ．PAST MAJOR DISASTERS IN THE PHILIPPINES:
1. Situational Analysis
Ⅱ．DISASTER COUNTERMEASURES
1. LAWS AND REGULATIONS
1) BASIC LAW IN THE IMPLEMENTATION OF DISASTER MANAGEMENT PROGRAM IN THE PHILIPPINES
2) OTHER LAWS WITH DISASTER MANAGEMENT PROVISIONS
3) PRESIDENTIAL ISSUANCES
2. ORGANIZATIONS:
1) DISASTER MANAGEMENT PLANNING:
2) OTHER DISASTER MANAGEMENT PROGRAMS:
Ⅲ．DISASTER REDUCTION COOPERATION AMONG ASIAN COUNTRIES
1. Prospects for Further International Cooperation

Ⅰ．PAST MAJOR DISASTERS IN THE PHILIPPINES:
1. Situational Analysis
The Pacific Rim is not only a community of the fastest growing and most dynamic nations in the world. It is also
the area exposed to a wide range of natural disaster. The Philippines archipelago, located near the western edge of
the Pacific Ocean, is in the direct path of seasonal typhoons and monsoon rains which bring floods, storm surges,
and their attendant landslides and other forms of devastation. The Philippines also sits on the “ring of fire” where
the continental plates collide and thus experience periodic earthquakes and volcanic eruptions. The Philippine
exposure to natural disasters may be characterized as frequent, varied, and severe; a combination which has madethe country particularly attentive to disaster reduction.

Data shows -an upturned of disasters as the decade of the 90’s loomed. Impact of which exact tremendous toll on
lives and properties, notwithstanding rollback gains in the economy out of proportion. Coinciding with the
inception year of the IDNDR, the Philippines was hit by a 7.8 magnitude earthquake on July 15, 1990 killing
1,283 people and leaving three (3) cities in Luzon:
Cabanatuan City, Dagupan City and Baguio City davastated at about P12.2. Billion estimated damages. In thesame year, eight (8) strong typhoons hit the country, claiming 670 lives but registered at P 12.8 Billion high indamages.
Not to be outdone, 1991 was the year when Mount Pinatubo erupted after 400 years of slumber where 850 people
died. Dubbed as a disaster of global magnitude, it altered climatic conditions worldwide, and continues toreconfigure the terrain and landscape of the central plain of Luzon through the flows of lahar (Lahar I, U and V)
brought about by the eruption. The geological changes caused by this volcanic eruption continues to bringdisasters I Central Luzon with every rainy season. Cities of Olongapo and Angeles, where Clark Air Base andSubic Bay economic zones situated were greatly affected. On the other hand, though the smaller in damages
amounting to P 1 Billion, the tragic Ormoc City flashfloods left 5,101 people dead. So short a time, and with thin
forest cover to serve as breakers, rain water brought about by tropical storm “Uring” gushed downstream, washed
out and drown city folks into the sea.
Destructive typhoons, crossed the country, thirteen (13) in 1993 with 794 people dead and estimated P20 Billion
damages. Again, in 1995, nine (9) of them killed 1,204 and destroyed P15 Billion worth of damages. Floods andlandslides have also hit the country. In 1995, floods and landslides affected the islands of Mindanao and Negros.
The recent destructive natural phenomena that afflicted the Philippines in 1998, is the impact of the El Niflo
Phenomenon. Around 985,000 families have suffered from starvation due to the severe lack of water affecting
mostly farmers which subsequently reduced their income unable to purchase food at the household level in criticalareas.
For the year 1999, the effects of the La Nina Phenomenon has been mere pronounced with the occurrence of eight(8) typhoons and intense rainfalls and floodings in various parts of the country. The most tragic effect was alandslide at the Cherry Hills Subdivision in Barangay San Luis, Antipolo City, near Metro Manila on August 3,
1999, at around 7:30 P.M.
A cliff at the eastern side of the subdivision collapsed after three days of continuous rain. Loosened earth and mud
descended on the subdivision, burying in its wake nearly half of the 440 houses that made up the housing site.
Observers said that the surge of muddy water was so strong, it pushed the entire houses a few meters way fromits original location.
The landslide incident left behind 58 dead, 31 rescued/injured and one (1) still missing (Mr. Dante Tecson). A totalof 125 families were affected while 379 houses recorded collapsed/damaged.
Other disasters include locust/rat infestations, major volcano pyretic explosion, landslide, tornado and other manmade disasters. Effects of disasters were as follows: Dead - 435; Injured -311-; Missing -24, Affected Population 1,016,379 families or 4,722,460 persons and cost of damage P1.7 Billion or US $ 41 Million.
Under existing policies on emergency relief from abroad, the Philippine government may request or solicit forinternational assistance when requirements arising from human and physical damages are beyond its coping
capacity. However, offers of international assistance may be accepted but depending on the needs andrequirements in the disaster-stricken areas.
On this regard, there were only two major disaster events when the Philippine government issued an appeal forinternational assistance namely, the July 16, 1990 Earthquake (7.8 magnitude), and the Mt. Pinatubo Volcanic
Eruption in June, 1991 dubbed as the worst volcanic eruption of the century. Assistance came in the form of searchand rescue teams/equipment during the first ten days after the 1990 earthquake and relief supplies from various
countries and organizations.
For the 1991 Mt. Pinatubo Volcano Eruption, cost of emergency relief assistance from abroad amounted to around
US $ 92,145,756.00 coming from 10 UN bodies, 24 countries, 16 international NGOs and Red Cross Societies in 11
countries.

Ⅱ．DISASTER COUNTERMEASURES
Disasters have always been a part of life of the Filipinos and learned to live with them. Their resiliency toovercome these difficulties is a symbol of the steadfastness of the Filipinos who have always remained undaunted
despite these adversities that their way.

Deeply concerned with the serious effects of disasters, upon the lives and properties of the people, and realizing
the fact that disasters occurrence has to be a way of life of the Filipinos due to its geographical location, theGovernment of the Philippines has institituted to counteract the ill-effects of disasters in terms of laws andregulations, organizations and Disaster Management planning among others.

1. LAWS AND REGULATIONS
1) BASIC LAW IN THE IMPLEMENTATION OF DISASTER MANAGEMENT PROGRAM IN THE PHILIPPINESPRESIDENTIAL DECREE NO. 1566
This Decree, which was promulgated on June 11, 1978, calls for the “Strengthening of the Philippine Disaster
Control Capability and Establishing the National Program on Community Disaster Preparedness”.
Salient Provisions:
1.
State policy on self-reliance among local officials and their constituents in preparing for, responding toand recovering from disasters.
2.
Organization of the National, Regional and Local Disaster Coordinating Councils (DCCs).
3.
Preparation of the National Calamities and Disaster Preparedness Plan (NCDPP) by the Office of Civil
Defense and implementing plans by the NDCC member-agencies and local DCCs.
4.
Conduct of periodic drills and exercises by concerned agencies and local DCCs.
5.
Authority for the local government units to program funds for disaster preparedness activities such as
the organization of DCCs, establishment of Disaster Operations Center (DOC) and training and equipping of DCC
response teams. This is in addition to the 5% under Sec. 324 (d) of the Local Government Code of 1991, as
amended.
RULES AND REGULATIONS IMPLEMENTING P.D. 1566
Under the IRR of PD 1566, the disaster management activities of DCC member-agencies as well as procedures andguidelines for inter-agency coordination and dissemination of information during the three (3) phases are defined.

A. Pre -Disaster Phase
1. Planning for Disaster· Development/formulation of Disaster Management Plan (DMP) to be submitted to the RDCC through the OCD
for review and evaluation. The plan should conform to the guidelines in the NCDPP and shall be revised/updated
as necessary.

2. Organizing· Organization of DCCs in accordance with the DCC structure set forth in the NCDPP, supported with a
Sanggunian Resolution.
· Establishment of DCC guidelines for inter-agency coordination/ networking.

3. Training· Conduct of training on disaster management for DCC members; skills training for DCC operating teams,
volunteers and community members in coordination with the following agencies: OCD provides guidance andassistance in the development/preparation of programs of instruction and the conduct of training; DSWD provides
guidance in the conduct of disaster preparedness of the barangay tri-sectoral group focused on relief; PNRC
conducts disaster leadership training courses; DECS assists in the public education campaign through integrationin school curricula of subjects relative to disaster; DTI trains disaster control groups/reaction teams in large
buildings used for commercial purposes.

4. Drills· Conduct of organizational and community drills/exercises periodically in order to assess effectiveness in
responding to disasters. OCD shall assist/observe and provide critique in the conduct of drills and exercises.

5. Stockpiling· Pre-determination of food, clothing, shelter, medical supplies, transportation and other emergency requirement.
· Takes appropriate measures to stockpile the same.

6. Resource Data Canvassing· Identification of existing resources.
· Evaluation capability of resource organizations to carry out disaster-related tasks.
· Allocation of suitable roles to resource organization.

7. Public Information/Awareness Drive· Conduct of public information/awareness campaign in coping with disaster situations in coordination with the
Office of Civil Defense, Philippine Information Agency as well as other government/or private entities withfacilities for dissemination of information.

8. Communications and Warning Activities· Organization of warning units in the province.
· Establishment of a warning system that must be clearly defined and written down in plans, standard operatingprocedures and other relevant documents.
· Inform concerned officials and agencies in the province as well as the general public of the warning system.
B. Emergency Phase· Mobilizes all emergency services of the DOC, namely, rescue and engineering, evacuation, first aid and medical
services, emergency relief, police and fire auxiliary, transportation and survey and damage assessment with thenational government supporting the efforts of the Council..
· Evaluation of survey results and submission of damage report and recommendation to NDCC through the
RDCC.
C. Post-Emergency Phase
1.
Cross-checking of data of damage report with pre-emergency data obtained to facilitate the location orwhereabouts of persons and to assess available community resources for rehabilitation purposes.
2.
Rehabilitation Requirements
Determines the nature and extent of rehabilitation efforts to be undertaken and requests for assistance fromappropriate government agencies, private offices/agencies or individuals, if the situation goes beyond thecapability of the PDCC.

2) OTHER LAWS WITH DISASTER MANAGEMENT PROVISIONS
1.
PD 1096 - Otherwise known as the National Building Code of the Philippines. It specifies minimum
requirements and standards on building design for buildings to protect against fires and natural disasters.
2.
Rule 1040 of the Occupational Safety and Health Standards (as amended) provides for the organizationof disaster control groups/health safety committee in every place of employment and the conduct of periodic drills
and exercises in work places.
The administration and enforcement of this Rule is reposed upon the Department of Labor and Employment, in
co-ordination with the local government unit where the work placed is located.
3.
PD 1185 Otherwise known as the “Fire Code of the Philippines”.
This Decree requires, among others, the administrators or occupants of buildings, structures and other premises
or facilities and other responsible persons to comply with the following:a.
Inspection requirement by the Bureau of Fire Protection as a prerequisite to the grant of permits and/or
licenses by LGUs or other government agencies concerned.
b.
Provisions for safety measures for hazardous materials as well as for hazardous operations/processes.
c.
Provisions for fire safety construction, protection and warning system such as firesprinklers, alarm
devices, firewalls, fire exit plan, etc.
d.
Conduct of periodic fire and exit drills.
4.

R.A. 7160 otherwise known as the Local Government Code (LGC) of 1991, as amended.

The LGC of 1991 contains provisions supportive of the goals and objectives of the disaster preparedness,prevention/mitigation programs. These provisions of the LGC reinforce the pursuit of Disaster Management
Program at the local government level.
Sec. 16 General WelfareEvery local government units shall exercise the powers granted, those necessarily implied therefrom, as well as
powers necessary, appropriate or incidental for its efficient and effective governance, and which are essential tothe promotion of general welfare. Within their respective territorial jurisdiction, local government units shallensure and support, among other things, the preservation and enrichment of culture, promote health and safety,
enhance the right of the people to a balanced ecology, encourage and support the development of appropriate andself-reliant scientific and technological capabilities, improve public morals, enhance economic prosperity and social
justice, promote full employment among their residents, maintain peace and order and preserve the comfort andconvenience of their inhabitants.
Sec. 17 Basic Services and Facilities Devolved to LGUs
This provision speaks of the basic services and facilities devolved to the local government units.
Specifically, among the devolved functions and facilities are (1) health services which include hospitals and othertertiary health services; (2) social welfare services which include program and projects on rebel returnees andevacuees; relief operations, and population development services, and (3) infrastructure facilities intended toservice the needs of the residents of the province and which are funded out of provincial funds, including but notlimited to provincial roads and bridges; inter-municipal waterworks; drainage and sewerage; flood control andirrigation systems; reclamation projects, and similar facilities.
· Sec. 389 and 391. Powers, Duties and Functions of the Punong Barangay and Sangguniang Barangay· Secs. 444 and 447. Powers, Duties and Functions of the Municipal Mayor and Sangguniang Pambayan· Sec. 455 and 458. Powers, Duties and Functions of the City Mayor and Sangguniang Panlunsod· Sec. 465 and 468. Powers, Duties and Functions of the Provincial Governor and Sangguniang Panlalawigan
Generally, under the above provisions of RA 7160, the local chief executives and Sanggunian are expected to carryout the following DM functions and responsibilities:
Local Chief Executives:
1.
Implement the emergency measures during and in the aftermath of a disaster or emergency.
2.
Submit supplemental reports to higher authority/OP re extent of damages incurred due to disasters orcalamities affecting the inhabitants.
3.
Call upon law enforcement agencies to suppress civil defense disturbance/uprising.
4.
Promote the general welfare/ensure delivery of basic services.
Sanggnnian:
1.
2.
3.
4.

Adopt measures to protect the inhabitants from the harmful effects of natural or man-made disasters.
Provide relief and rehabilitation services/assistance to victims.
Adopt comprehensive land use plan.
Enact/Review zoning ordinances.

Sec. 324 (d) as amended by RA 8185, s-1997 which states that “Five percent (5%) of the estimated revenue from
regular sources shall be set aside as annual lump sum appropriations for relief, rehabilitation, reconstruction andother works or services in connection with calamities occurring during the budget year: Provided, however, thatsuch fund shall be used only in the area or a portion thereof, of the local government unit, or other areas affectedby a disaster or calamity, as determined and declared by the local sanggunian concerned.

3) PRESIDENTIAL ISSUANCES· EO 948, s-1984 on the grant of compensatory benefits to disaster volunteer workers (Note: This has yet to be
enforced).
· Proclamation No. 296 s, 1988 as amended by EO 137, s-1999 declaring the 1st Week of July of every year as
Natural Disaster Consciousness Week (now Whole Month of July as National Disaster Consciousness Month)· PMO No. 36, s-1992 as amended by PMO No. 42, s-1997 on the establishment of a special facility for theimportation and donation of relief goods and equipment in calamity-stricken areas.
· PMO dated February 10, 1999 on the guidelines on the programming and use of calamity fund
· EO 137 dated August 10, 1999, declaring the month of July of every year as National Disaster Consciousness
Month and Institutionalizing the Civil Defense Deputization Program.

D.

NDCC Issuances:· Memo Order No. 02, s-1999 - Revised policies and procedures on calamity fund management.
· Memo Order No. 04, s-1998 - Amended policies, procedures and criteria for calamity area declaration.
· Memo Order No. 13, s-1998 - Amended policies and procedures on the provision of financial assistance to victimsof disasters.
· Others such as policies and procedures on foreign disaster assistance, criteria and procedures on the search foroutstanding DCCs and disaster heroes, community-based rescue, evacuation and relief operations andvolunteerism.

2. ORGANIZATIONS:
The basic Philippine law on disaster management, Presidential Decree (PD) 1566, promulgated in 1978, provides
for the organization of multi-sectoral disaster coordinating councils at every level of government, from the national
level to the barangay (or village) level. Through these disaster coordinating councils, which are able to link withall relevant government agencies and civic organizations, Philippine communities mobilize resources andcapabilities needed to manage disasters.
The disaster coordinating council approach enables the country to utilize all available means for disaster response,means that are ordinarily used for military and police missions, public service or commercial purposes, but may berapidly converted into disaster reduction capabilities. It also allows for routine cooperation, sharing of resources,and dissemination of information during periods of extreme stress and emergencies. At the same time, the disastermanagement coordination approach provides for dedicated technical capabilities for specialized disastermanagement services as well as confuting attention to disaster preparedness.
At whatever scale of disaster, whether national, regional, provincial, municipal, village, or any levels in between,
an appropriate disaster coordinating council is established, organized and trained to respond. The National
Disaster Coordinating Council or NDCC, is the policy-making and coordinating body for disaster management at
the national level. It directs all disaster preparedness planning, as well as disaster response operations andrehabilitation, both in the public as well as private sectors. It advises the President on mattes related to naturalcalamities and disasters, including recommendations for the declaration of a state of calamity in disaster-affectedareas. It is composed of the heads of fourteen national ministries, the Chief of Staff of the Armed Forces of thePhilippines, the Secretary-General of the Philippine National Red Cross, and the Administrator of the Office ofCivil Defense. The Defense Minister, or Secretary of National Defense, serves as the Chairman, of the NDCC, with
the Civil Defense Administrator as Executive Officer.
In each local government of the province, city or municipality, the local disaster coordinating council is headed by
the elected chief executive, such as the governor or mayor. In these local disaster coordinating councils, local aswell as central government agencies operating at the local level cooperate with civic and non-governmentorganizations under the leadership of the highest elected local official. Thus, disaster management is imbedded
deeply into the democratic of governance of the Philippines.
Typical DCC organizational chart (see attached)1) DISASTER MANAGEMENT PLANNING:
Planning for disasters or emergencies was institutionalized under Presidential Decree No. 1566, s-1978, whichcalled for the formulation of a National Calamities and Disaster Preparedness Plan by the Office of Civil Defense,
and implementing plans by NDCC with member-agencies which should conform with the national plan. Other
DCC networks are likewise expected to formulate their respective plans for disaster management.

TYPICAL STRUCTURE OF A DISASTER COORDINATING COUNCIL

Disaster Operations

Center

OPERATINGTEAMS

In 1991, the government realizing the significance of disaster mitigation in achieving sustainable development
started integrating this component of disaster management into the Medium Term Philippine Development under
the Development Sector Administration.
At the local government level, provinces, cities, municipalities and barangays (villages) are required to integrate
their disaster management plans into their respective local development plans.
Part of the disaster management training for members of the Disaster Coordinating Councils is Disaster
Management Planning components of which include the preparation of a hazard and resource map of thecommunity, DM plan, implementing plans of the DCC Operating Teams and annual action plan.
Contingency plans are also formulated to address specific emergencies that may likely affect the country andcommunities.
These plans are regularly updated and revised and are activated upon the occurrence of a disaster or emergency.

2) OTHER DISASTER MANAGEMENT PROGRAMS:
1.

Disaster Preparedness and response· Enhancement of Early Warning and alert system including Emergency Broadcast System· Effective Networking for Disaster Response, particularly with the Armed Forces of the Philippines and thePrivate Sector.
· Conduct of Rapid Needs and Damage Assessment of calamity-stricken areas to facilitate timely and adequate
response.
· Conduct of simulation exercises, particularly for earthquakes and search and rescue operations.
· Development of an Emergency Information System (EMIS) to facilitate info sharing as basis of decision-making.
2.

Vulnerability and Risk Reduction as vital component of Disaster Management Planning· Review of public safety and risk management policies.
· Community-based hazard identification and risk assessment.
· Development of GIS capability
3.

Human Resource Development

· Establishment of an Emergency Management Institute of the Philippines. This is housed at the National
Defense College of the Philippines at Camp Aguinaldo, Quezon City.
· Development of Standard Training modules for Disaster Management training of DCC members.
We call these modules as “RERT” modules which means “Responsive, Effective and Relevant Training Modules”.
· Conduct of special training for AFP, Media and other critical groups.
4.

Advocacy for Civil Protection· Continuous conduct of public information and education through the mass media, symposia, orientation, briefing· Advocacy for public safety, protection of cultural resources and protection of the environment through radio/TV
plugs, radio/TV guestings, conduct/observance of relevant events.

Ⅲ．DISASTER REDUCTION COOPERATION AMONG ASIAN COUNTRIES
While the Philippines has largely relied on its own resources to manage the disasters it had encountered, it has
also benefited from tremendous international, and particularly Asian, cooperation in this field. The similarity inthe types and severity of disaster exposure shared by Asian countries make Cupertino among them particularly
useful and important. For the Philippines, this cooperation has contributed to the rapid development of national
and local disaster management capabilities.
The following are some examples of excellent international cooperation which the Philippines has experienced.
a.
In terms of strengthening the disaster-reduction organization and capabilities, the Philippines had
benefited from international cooperation in the development of the flood forecasting and warning systems for three
Luzon River Basins, namely the Agno, Bicol and Cagayn river basins; and installation of the lahar warning andmonitoring systems at the Mt. Pinatubo and Mt. Mayon areas.
b.
In terms of transfer of technology and training in disaster reduction, the Philippines has benefited frominternational cooperation in such examples as training of Filipino experts on Japan on disaster prevention
technology and administration, improving cyclone warning response, and a seismic engineering; in Thailand on
disaster management at the Asian Disaster Preparedness Center, and in Australia or radiological emergencies.
c.
In terms of increasing awareness in disaster reduction, the Philippines has participated in suchinternational conferences as the 1994 world conference on IDNDR; ASEAN experts meeting on disastermanagement; sessions of the Typhoon Committee.
d.
In terms of sharing relevant information, the Philippines has developed its own disaster information
system; participated in. networks for sharing weather satellite images and data communications to access UNDRA and other international disaster organizations.
e.
In terms of receipt of disaster relief assistance, the Philippines has benefited from generosity andkindness of many governments and nations. The extent of this foreign assistance is such that the Philippine hasdeveloped and implemented guidelines for the smooth and expeditious handling and receipt of food, clothing,
medicines and equipment donated by foreign governments and civic organizations for disaster relief andrehabilitation. The Office of the President serves as the primary conduit for all these donations to be channelled tothe affected communities.
The illustrative examples cited point to the catalyzing role of international cooperations. It brings new and added
capabilities which may not have been fully developed yet in the country. And it also increase the benefits ofsharing so that the benefactor as well as the recipient gain something from their cooperations. While international
cooperations in disaster reduction has been extensive and gratifying thus far, there could be other areas of possible
improvements in this field of international cooperation.

1. Prospects for Further International Cooperation
From the perspective of the Philippine disaster management experience, there are a number of areas which offer
good prospects for international cooperation in disaster reduction.
a.
Strengthening collapsed building rescue capabilities. This specific area of disaster management is apriority area of the Philippines because of its high exposure to earthquake risks. While a Philippine task force
trained and equipped for collapsed building rescue currently exists, its capabilities need to be strengthened andbroadened in terms of advanced specialized training, equipage and more exposure to varied real-life rescue
operations.

b.
Developing a national center for disaster research and training: In the light of the frequency, variety andseverity of disasters in the Philippines, the government has seen the need for a specialized technical center for
training and research in various aspects of disaster management. This center can specialize in those areas ofconcern to the Philippines and may be linked with other similar centers abroad.
c.
Mobilizing information technologies for disaster management: A broad class of information technologies
such as geographic information systems, database management systems and other rapid analysis andpresentation systems are currently available and useful for disaster management. The hardware, software andmodel uses of such technologies that can be made available to Philippine disaster management. organizations will
provide a tremendous boost its disaster preparedness and disaster reduction endeavors.
d.
Systematic disaster capabilities planning: Current knowledge about the nature of disaster risks invarious communities and areas of the Philippine could be matched by a set of appropriate disaster management
capabilities that may need to be developed in those areas or communities. This could serve as the basis for
upgrading current disaster preparedness plans. Such a systematic effort could be undertaken with international
cooperations and a special support program so that a better matching of risks and capabilities is achieved.
These are few of the current priorities of Philippine disaster management authorities for possible international
cooperations. Filipinos have learned that disasters do happen, but their destructive force can be mitigated withgood planning, prompt action, and constant preparation. International cooperation and support has helped
improve Philippine response in all these fronts. It is hoped that such cooperation will continue to be satisfying to
all its participants, and that all nations gain by helping each other.