Republic of the Philippines
House of Representatives
Quezon City, Metro Manila

SIXTEENTH CONGRESS
‘Third Regular Session

HOUSE BILL No. 6292

Introduced by Honorable Kimi S. Cojuangco

EXPLANATORY NOTE

"Storms carrying winds of at least 300 kph, like Super-typhoon Yolanda
(international name: Haiyan), are likely to be the norm for the Philippines as
a result of climate change." !'!

‘This was the findings of a panel of climate experts which was submitted to
the United Nations. Thus, the experience the country had under Super-
typhoon "Yolanda" would be a recurring event and not a once-in-a-lifetime
experience. Such could be the norm for our country in the future. |"!

According to the World Meteorological Organization (WMO), a specialized UN
agency, Yolanda was not an act of nature but a result of “human-induced
climate change.” !!!

In a 2013 statement, the WMO reported that it saw heavier precipitation,
more intense heat and more damage from storm surges and coastal flooding
as a result of sea level rise—as Typhoon Haiyan so tragically demonstrated
in the Philippines.

‘The report further stressed that developing countries, like the Philippines,
that are exposed to extreme weather events face a “grim” future unless they
are equipped with the tools needed to deal with climate change’s disastrous
effects. I"!

Our country endures more than twenty (20) major storms a year I'l, Super-
typhoon “Yolanda” was the most destructive on record I'l, With its 275-
kilometer-per-hour winds, it was the strongest typhoon ever to hit the
country I, turning all towns and cities in its path into an utter wasteland.

Our experience with "Yolanda" has shown that equally, if not more
dangerous than wind and flying debris, is the water element. Typhoon
Yolanda sent solid walls of water, two stories high, that swept thousands of
victims out to the sea. The intense rain, on the one hand, caused massive


flooding as water came from all directions. Shelters, even in traditional
safer grounds, were inadequate because of the high water. Basements,
which supposedly keep people safe from the extreme winds, were submerged
with water, forcing residents to evacuate. Those affected had to make a
difficult choice between being drowned and being battered by debris. As a
result, 6,300 of our countrymen had perished, 1,061 remained missing or
unaccounted for, 28,689 suffered injuries and 1,473, 251 families were
adversely affected.

It seems that no nation today has more to fear from its climate than the
Philippines.!"| We are an archipelago of more than 7,000 islands scattered
at the end of the Pacific Ocean. By its length, its many islands, and its
moving ocean currents, the weather can change considerably from island to
island, even from the exposed windward side to the more protected leeward
side of any island.'*1

Our country also sits astride shifting tectonic plates that have spawned 13
magnitude-6.0 or higher earthquakes since 2001. The magnitude-7.2 quake
that struck the provinces of Bohol and Cebu just a few weeks before
“Yolanda” caused buildings and massive churches to crumble, killing 222
people.|4!

Since 2002, the Philippines has recorded more than 200 natural disasters.
The storms are becoming more frequent and more intense."Yolanda” came
10 days after the traditional end of the typhoon season and it was the
second Category 5 (winds in excess of 150 miles an hour) to hit the
Philippines in the last 11 monthsl'! since Typhoon “Pablo” (international
name: Bopha) cut a swath through Central Mindanao. Typhoon "Ruby"
(international name: Hagupit), the most intense tropical cyclone of 2014,
started as a tropical storm on December 1 and then became a typhoon the
next day. It explosively intensified into a Category 5 super typhoon on
December 4 and, then, subsequently began to weaken before making
landfall in Dolores, Eastern Samar as a Category 3 typhoon.l'°l Typhoon
"Lando" (international name: Koppu) was the worst typhoon to hit the
country this year, in terms of sheer strength and scope of destruction. It
approached the Philippines as a Category 5-comparable in strength to
Yolanda-but weakened into a Category 3 upon landfall. Although it
continued to weaken as it marched across Luzon, it lingered on land for
almost a week, pouring intense rain and wreaking havoc across Luzon for
days on end.\'1I At least 35 people have been killed and nearly a million
people have been affected by the onslaught of Typhoon "Lando." The damage
to agriculture and infrastructure was estimated at P6.S7 billion, with
agriculture suffering the biggest loss.!'21

Our experience with all the typhoons that have ravaged this country, most
especially with super-typhoon "Yolanda", is a wake up call to sound the
clarion for more effective damage mitigating measures. More than the
improved typhoon warning capability of PAGASA, we must further
strengthen and enhance the country’s system readiness for disasters,



further build the capacity and resilience of local communities, and foster
community preparedness and engagement. One way to achieve this is to
institutionalize and establish engineering designs and techniques, and
hazard-resistant construction as well as sound engineering policies aimed
at protecting the people against unnecessary sufferings and loss caused by
recurring disasters.

‘This bill therefore proposes the establishment of "community shelter" (also
known as storm shelter in other countries) in every city and municipality, or
cluster of municipalities nationwide, identified by the National Disaster
and Risk Reduction Management Council (NDRRMC) to be vulnerable or
exposed to intensive risk or other intense hazard events. These community
shelters will serve as the primary evacuation or relocation centers of people
during storms and other forms of hazard events, providing them with near-
absolute protection.

The duty to provide our people with safe refuge in times of disaster is the
primordial duty of the Government. We cannot and should not leave our
countrymen’s lives at the mercy of nature’s wrath.

It is for these reasons that the immediate approval of this measure is
earnestly sought.

HON/ KIMI §. Ct CO

References

{11 Inquirer Southern Luzon: 300-kph storms seen to be PH torm?
Posted 12:04 AM | Thursday, April 10th, 2014

[2] Manila Bulletin, July 18, 2014
Editorial: Typhoon Glenda: Improving our anti-calamity action program.

[3] ‘Typhoon Yolanda: “The Storm of the Century” and more to come
by B.J. Stolbov
[4] The Platform, Nov. 12, 2013

Worst Effects of Climate Change seen in the Phil. Typhoon

[5] RLA.No, 10121
"Philippine Disaster Risk Reduction and Management Act of 2010"

[6] FEMA Tornado Recovery Advisory
Storm Shelter
Selecting Design

viteria

[7] FEMA Tornado Recove
Residential Sheltering:
In-Residence & Stand-Alone Shelters

y Adv



[3]

{9]

fol

fin)

fz)

2009
UNISDR Terminology
FEMA P

Business

20 - Taking Shelter From the Storm: Building a Safe Room For Your Home or Smal

Wikipedia
Typhoon Hagupit (2014)

“Typhoon Lando was the worst Storm to hit the PHLin 2015 - NDRRMC
by'T] Dimacali, GMA News
October 22, 2015

Rappler, Oct. 21, 2015
Typhoon Lando: 35 Killed, Nearly a Million Affected.


Republic of the Philippines
House of Representatives
Quezon City, Metro Manila

SIXTEENTH CONGRESS
Third Regular Session

HOUSE BILL NO. 6292

Introduced by Honorable Kimi S. Cojuangco

AN ACT
ESTABLISHING COMMUNITY SHELTERS IN EVERY CITY AND
MUNICIPALITY OR CLUSTER OF MUNICIPALITIES IDENTIFIED BY
THE NATIONAL DISASTER RISK REDUCTION AND MANAGEMENT
COUNCIL AS AREAS EXPOSED TO INTENSIVE RISK OR OTHER
INTENSE HAZARD EVENTS, AND APPROPRIATING FUNDS
THEREFOR

Be it enacted by the Senate and the House of Representatives of the Philippines in
Congress assembled:

SECTION 1. Short Title. — This Act shall be known as the “Community
Shelter for Protection from Intense Hazard Event Act.”

SEC. 2. Declaration of Policy. It is hereby declared the policy of the
State to strengthen and enhance the country’s system readiness for
disasters, further build the capacity and resilience of local communities,
and foster community preparedness and engagement.

Towards this end, the State shall institute and establish engineering
designs and techniques, and hazard-resistant construction as well as
sound engineering policies aimed at protecting the people against
unnecessary sufferings and loss caused by recurring disasters.

SEC. 3. Statement of Objectives. - It is the objective of this Act to:
a. Provide the people with a place where they could seek

temporary refuge during storms, calamities and other related disasters that
assure them of near-absolute protection, and;

b. Develop and establish the different types of shelter design
guidance, code requirements, and other criteria pertaining to the designs
and construction of shelters for storms and other hazard events.



SEC. 4. Community Shelter. — To realize and implement the policy
declared in this Act, there is hereby established, under the supervision of
the National Disaster Risk Reduction and Management Council (NDRRMC),
a community shelter, hereinafter referred to as the “shelters,” in every city
and municipality, or cluster of municipalities nationwide, identified by the
NDRRMC to be vulnerable or exposed to intensive risk or other intense
hazard event as defined within the concept of United Nation International
Strategy for Disaster Reduction (UNISDR) Terminology on Disaster Risk
Reduction. These shelters shall serve as the primary evacuation or
relocation center of people during storms and other forms of hazard
events.

As used in this Act, a community shelter refers to a_large interior
room, space within a building or an entirely separate building, specially
designed and constructed to protect a large number of occupants from
storms and other intense hazard events, providing them with near-absolute
protection

SEC. 5. Designs & Standards. - Every shelter to be established in
cities and municipalities, or cluster of municipalities shall follow the
minimum standard for the design and construction requirements of
shelters, with the ICC/NSSA Standard for the Design and Construction of
Storm Shelters, also known as ICC 500-2008, including subsequent
revisions thereof, if there be any, as the preferred baseline model.

ICC 500-2008 was developed by the International Code Council
(ICC)/National Storm Shelter Association (NSSA) Consensus Committee on
Storm Shelters of the United States as a standard that provide minimum
design and construction requirements for storm shelters that offer safe
refuge from storms with high winds that generate wind pressures on
buildings and structures at levels and intensities that are higher than those
for which most commercial building and residences are designed. This
standard is also incorporated and mandated by the Alabama Building
Commission in Chapter 170-X-2-.01 (j) of the Alabama State Building Code,
USA, and expected to be incorporated (by reference) into the 2009
International Building Code (IBC) and International Residential Code (IRC).

SEC.6.Critical Support Systems. - All shelters shall be provided with
structures, systems and components that ensure the health, safety and
well-being of the occupants. Such support systems include potable and
waste water system, electrical power system, life safety systems and
ventilation systems.

SEC. 7. Conversion and Upgrading of Public Buildings into Community
Shelter. - Existing buildings, structures, offices, workplace, gymnasium,
stadium, coliseum, houses, residences, quarters and others of similar
nature, or a section, space or part thereof, whether owned by the national or
local government, may be converted into shelters: Provided, That these
buildings and structures, or a section, room or part thereof are upgraded to


83

85
86
87
88
89
90
91
92
93
94
95
96
97
98
99

100

101

102

103

104

105

106

107

108

109

110

a

112

113

114

115

116

117

118

119

120

yaa

122

123

124

125

126

127

128

129

130

meet the standard design and construction requirements as mandated
under Section 5 hereof.

SEC.8. Operation and Maintenance. - In addition to its functions
under Section 12 of Republic Act No. 10121, otherwise known as the
Philippine Disaster and Risk Reduction Management Act of 2010, the Local
Disaster Risk Reduction and Management Office (LDRRMO) shall be
responsible for the operation and maintenance of the shelter within their
territorial jurisdiction. In the case of shelter established for cluster of
municipalities, it shall be the Provincial LDRRMO which is primarily
responsible for their operation and maintenance with the assistance of the
respective Municipal LDRRMOs of the clustered municipalities.

SEC. 9. Promotion of In-Residence and Stand-Alone Shelter. - Given the
need for safe refuge during hazard events, the NDRRMC shall adopt a
program for the promotion of In-Residence and Stand-Alone Shelter, also
known as "safe room." Through the various LDRRMOs, it shall disseminate
to and acquaint home and building owners as well as renters and lessees of
tenements or apartment buildings, in areas susceptible to extensive and
intensive risk, about the concept of "safe room”. They shall make available
the design guidance and construction requirements thereof to any
interested party free of charge except for the cost of materials and printing.

The FEMA P-320 applicable design standards for safe room of the
Federal Emergency Management Agency of the United States shall be the
preferred baseline model for the design and construction requirements for
In-Residence and Stand-Alone Shelter.

SEC. 10. Implementing Rules & Regulations.— Within ninety (90) days
from the approval of this Act, the NDRRMC shall promulgate the necessary
rules and regulation for the effective implementation of this Act. The
implementing rules and regulations issued pursuant to this section shall
take effect thirty (30)days after its publication in a newspaper of general
circulation.

SEC. 11. Annual Report. - The NDRRMC, through the Office of Civil
Defense, shall include in its annual report to the Office of the President, the
Senate and the House of Representatives, as required under Section 24 of R.
A, 10121, the progress of Community Shelter Development as well as the
impact it generates within the context of disaster preparedness and relief
recovery. The NDRRMC may also submit such recommendation as may
necessary to further enhance the development of shelters in other
vulnerable areas of the country.

SEC. 12. Congressional Oversight Committee. - The Congressional
Oversight Committee created under Republic Act No.10121 shall monitor
and oversee the implementation of this Act.



131
132
133
134
135
136
137
138
139
140
141
142
143
144
145
146
147
148
149
150
151
152
153
154
155
156
157

SEC. 13. Appropriations - The amount necessary for the initial
implementation of this Act shall be charged against the National Disaster
Risk Reduction and Management Fund established under Section 22 of R.A.
10121. Thereafter such sum as may be necessary for the continued
operation and maintenance of shelters shall be included in the annual
budget of the city or municipality where the shelter is located, in the case
of cities and first, second and third class municipalities. For fourth, fifth and
sixth class municipalities, the same shall be subsidized in part by the
national government and in part by the local government concerned. For
shelters established for cluster of municipalities, the amount necessary for
their continued operation and maintenance shall be included in the annual
budget of the province having jurisdiction over these municipalities.

SEC.14. Repealing Clause. - All laws, presidential decrees or
issuances, executive orders, letters of instruction, administrative orders,
rules and regulations contrary to or are inconsistent with the provisions of
this Act are hereby repealed or modified accordingly.

SEC.15. Separability Clause. - If any provision or part hereof is
declared invalid or unconstitutional, the remainder of this Act or the
provisions not affected thereby shall remain valid and subsisting.

SEC.16. Hffectivity. - This Act shall take effect fifteen (15) days after
its publication in the Official Gazette or in a newspaper of general
circulation.

Approved,