1 
Republic of the Philippines 
HOUSE OF REPRESENTATIVES 
Quezon City 
TWENTIETH CONGRESS 
First Regular Session 
HOUSE BILL NO. 692 
Introduced by REP. JAVIER MIGUEL L. BENITEZ 
EXPLANATORY NOTE 
The Philippines faces recurring and intensifying natural disasters due to its 
geographical and geophysical location. It is a well-known fact that the country 
is highly vulnerable to earthquakes, volcanic eruptions, typhoons, floods, and 
tsunamis, as it is situated along the Pacific Ring of Fire and within the typhoon 
belt. According to research, on average, 20 tropical cyclones enter the 
Philippine Area of Responsibility each year, causing widespread displacement, 
damage to infrastructure, and disruption of livelihoods.1 
While Republic Act No. 10121 introduced significant reforms in disaster risk 
reduction and management, emergency relief operations remain impeded by 
institutional coordination failures, undefined command structures, and 
systemic logistical constraints.2 These limitations are especially pronounced 
during large-scale disasters, as evidenced by past experiences with Typhoon 
Yolanda and other major calamities.3 Furthermore, mechanisms for the 
integration and regulation of international humanitarian assistance remain 
inadequate, resulting in inefficiencies and gaps in service delivery.4 
Recent research highlights the need for a unified, responsive, and accountable 
framework to govern emergency relief and recovery operations at all levels of 
government. Strengthening institutional capacity, improving interagency 
coordination, and formalizing procedures for receiving and managing foreign 
1 Doroteo, H.J.E. (2021). Disaster Risk Profile and DRR Framework of the Philippines. 
ResearchGate. 
2 Gaillard, J.C., & Navarro, J. (2018). Disaster Risk Governance in the Philippines. In: 
Handbook of Disaster Risk Reduction and Management, Edward Elgar Publishing. 
3 Bollettino, V., Alcayna, T., Dy, P., & Vinck, P. (2016). Resilience and Disaster Trends in the 
Philippines. PLOS Currents Disasters. 
4 Asian Development Bank (2017). Support for the Yolanda Response: Lessons for Future 
Operations. ADB Independent Evaluation. 
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and domestic aid are essential to reducing delays and ensuring an equitable 
response.5 
Given the challenges encountered in previous disaster response efforts, it is 
essential to institutionalize a streamlined process for emergency relief 
operations, governed by clear protocols, robust systems, and a collaborative 
framework involving national agencies, local government units, and 
international stakeholders. The establishment of a comprehensive disaster 
response framework will ensure the efficiency and inclusivity of relief and 
recovery operations and effectively address the needs of vulnerable and 
marginalized sectors of society. 
Moreover, the implementation of this framework will strengthen disaster 
preparedness and response mechanisms, thereby mitigating the adverse effects 
of future calamities. It will also promote long-term resilience through the 
formulation of sustainable recovery strategies that integrate disaster risk 
reduction measures, ensuring that the Philippines is adequately prepared to 
face future challenges and recover promptly. 
Towards this end, the State shall institutionalize a disaster response framework 
that guarantees swift, efficient, and inclusive relief and recovery operations. 
This will enable the Philippines not only to respond more effectively to 
disasters but also to reduce vulnerability, promote resilience, and build back 
better in the aftermath of calamities. 
In view of the foregoing, the immediate enactment of this measure is earnestly 
sought. 
JAVIER MIGUEL L. BENITEZ 
5 United Nations Office for Disaster Risk Reduction (UNDRR) (2019). Disaster Risk 
Governance Assessment: Philippines. 


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Republic of the Philippines 
HOUSE OF REPRESENTATIVES 
Quezon City 
TWENTIETH CONGRESS 
First Regular Session 
HOUSE BILL NO. 692
Introduced by REP. JAVIER MIGUEL L. BENITEZ 
AN ACT ESTABLISHING A COMPREHENSIVE EMERGENCY RELIEF AND 
DISASTER RESPONSE FRAMEWORK, AND FOR OTHER PURPOSES 
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 
"Comprehensive Emergency Relief and Disaster Response Framework Act". 
SEC. 2. Declaration of Policy. – It is hereby declared the policy of the 
State to establish a coordinated, effective, and inclusive system for emergency 
relief and disaster response. The State recognizes the urgency of protecting life, 
property, and the environment during disasters and shall institutionalize 
mechanisms to ensure prompt, transparent, and equitable delivery of 
assistance. Disaster response shall be integrated with preparedness, mitigation, 
and recovery efforts to strengthen national resilience. 
SEC. 3. Coverage. – This Act shall apply to all natural and human-
induced disasters affecting any part of the Republic of the Philippines. It shall 
govern the actions of all government agencies, local government units 
(“LGUs”), and accredited private and civil society organizations engaged in 
disaster 
response 
and 
relief 
operations. 
SEC. 4. Definition of Terms. – For the purposes of this Act, the following 
terms shall be defined as follows: 
(a) Disaster - A serious disruption of the functioning of a community
or a society involving widespread human, material, economic or
environmental losses and impacts, which exceeds the ability of
the affected community or society to cope using its own
resources. Disasters are often described as a result of the


 
 
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combination of: the exposure to a hazard; the conditions of 
vulnerability that are present; and insufficient capacity or 
measures to reduce or cope with the potential negative 
consequences, Disaster impacts may include loss of life, injury, 
disease and other negative effects on human, physical, mental 
and social well-being, together with damage to property, 
destruction of assets, loss of services, Social and economic 
disruption and environmental degradation; 
(b) Disaster Response - The provision of emergency services and 
public assistance during or immediately after a disaster in order 
to save lives, reduce health impacts, ensure public safety and 
meet the basic subsistence needs of the people affected. Disaster 
response is predominantly focused on immediate and short-term 
needs and is sometimes called "disaster relief". 
(c) Emergency Relief - The immediate assistance provided to 
individuals and communities affected by disasters or crises, 
focusing on saving lives and meeting basic needs like food, water, 
shelter, and healthcare; 
 
(d) National Disaster Response Framework - A strategic and 
operational guide developed and maintained by the National 
Disaster Risk Reduction and Management Council that outlines 
the roles, responsibilities, coordination mechanisms, and 
response standards of national and local stakeholders in times of 
disaster; 
 
(e) National Disaster Response Coordination Center - The 
principal operations hub tasked with coordinating, directing, and 
monitoring all disaster response efforts at the national level as  
provided in this Act; 
 
(f) Affected Area - A geographic locality or local government unit 
declared under a state of calamity or emergency due to a disaster 
or hazard impact, necessitating the activation of emergency 
response mechanisms; 
 
(g) Prepositioned Goods - Supplies and equipment strategically 
stored in advance in or near disaster-prone areas to ensure quick 
and efficient emergency response and relief operations; 
 
(h) Resilience - The ability of individuals, communities, institutions, 
and systems to anticipate, withstand, adapt to, and recover 
quickly from the impacts of disasters or emergencies; 
 


 
 
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(i) Humanitarian Assistance - A form of aid designed to save lives, 
alleviate suffering, and maintain human dignity during and after 
crises like natural disasters, armed conflicts, and famines; and 
 
(j) Vulnerable and Marginalized Sectors - Groups or individuals 
who are at greater risk of harm, loss, or difficulty during and after 
disasters due to their social, economic, physical, or political 
disadvantages. These are people who have limited capacity to 
anticipate, cope with, resist, or recover from the impact of 
disasters such as children and infants, older persons, persons 
with disabilities, pregnant and lactating women, people with 
chronic illnesses, and the poor and homeless. 
 
SEC. 5. Establishment of the National Disaster Response Framework. – 
The National Disaster Risk Reduction and Management Council (“NDRRMC”) 
shall establish and operationalize the National Disaster Response Framework 
(“NDRF”). The NDRF shall provide a strategic and systematic approach to 
disaster 
response, 
defining 
roles 
and 
responsibilities, 
coordination 
mechanisms, standards of service delivery, and procedures for mobilization of 
resources. The NDRF shall be reviewed and updated every three years. 
SEC. 6. National Disaster Response Coordination Center. – There is 
hereby established a National Disaster Response Coordination Center 
(“NDRCC”), which shall function as the principal operations hub for 
coordinating all disaster response activities across national government 
agencies, LGUs, civil society organizations, and relevant stakeholders during 
disaster events. 
(a) Mandate and Functions 
The NDRCC shall be responsible for: 
1. Real-time coordination and command of national disaster 
response operations in accordance with the NDRF; 
2. Serving as the national command post for multi-agency 
deployment and mobilization of emergency response 
resources; 
3. Maintaining 24/7 operations during states of national 
emergency or declared disasters; 
4. Ensuring 
interoperability 
and 
synchronized 
communication between national agencies, regional 
DRRM councils, and LGUs; 
5. Monitoring and reporting real-time data on affected 
populations, evacuation centers, logistics, and relief 
efforts; 


 
 
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6. Hosting and managing a national emergency dashboard 
for situational awareness and operational planning; 
7. Coordinating with international humanitarian actors, 
donor institutions, and foreign governments in case of 
large-scale emergencies; and 
8. Overseeing the pre-positioning of resources and activating 
quick-response mechanisms during the onset of a disaster. 
 
(b) Organizational Structure 
The NDRCC shall be headed by the Executive Director of the 
Office of Civil Defense (“OCD”) or a designated high-ranking 
official with operational command authority during disasters. It 
shall include permanent representatives from: 
● Department 
of 
Social 
Welfare 
and 
Development 
(“DSWD”) 
● Department of the Interior and Local Government 
(“DILG”) 
● Department of Health (“DOH”) 
● Department of Public Works and Highways (“DPWH”) 
● Department of National Defense (“DND”) 
● Department of Transportation (“DOTr”) 
● Armed Forces of the Philippines (“AFP”) 
● Philippine National Police (“PNP”) 
● Philippine Coast Guard (“PCG”) 
● Philippine Red Cross 
● Other 
relevant 
government 
and 
non-government 
organizations 
 
(c) Facilities and Capabilities: 
To fulfill its mandate as the principal operational arm of the 
NDRRMC during disaster response, the NDRCC shall maintain 
a central command facility operating on a 24/7 basis, equipped 
with a national operations room, multi-agency coordination 
desks, and a situation briefing center. It shall be supported by the 
following: 
1. An 
integrated 
dashboard 
aggregating 
data 
from 
Philippine Atmospheric, Geophysical and Astronomical 
Services Administration (“PAGASA”), the Philippine 
Institute of Volcanology and Seismology (“PHIVOLCS”), 
National Mapping and Resource Information Authority 
(“NAMRIA”), LGUs, and field responders, equipped with 


 
 
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Geographic Information System (“GIS”), remote sensing, 
and automated damage assessment tools. 
2. A secured emergency communications network with 
satellite backup, video conferencing with regional and 
local Disaster Risk Reduction and Management (“DRRM”) 
councils, and interoperability with AFP, PNP, PCG, and 
humanitarian partners. 
3. Mobile command centers and regional coordination 
satellites capable of field deployment and data relay to the 
NDRCC. 
4. A national inventory and resource tracking system for 
relief goods, rescue equipment, and transport assets, in 
coordination with DSWD, DOH, AFP, and other agencies. 
5. Disaster-resilient infrastructure with backup power, 
secure servers, and annual continuity audits to ensure 
uninterrupted operations during large-scale emergencies. 
SEC. 7. Disaster Response Fund. – There is hereby established a Disaster 
Response Fund (“DRF”) to be administered by the NDRRMC, distinct from the 
National Disaster Risk Reduction and Management Fund. 
The DRF shall be allocated exclusively for the following purposes: 
(a) Provision of Immediate Relief Supplies – Including but not 
limited to food, potable water, clothing, and hygiene kits, to be 
distributed to affected populations during emergencies; 
(b) Emergency Shelter and Temporary Housing – Establishment 
and maintenance of evacuation centers, provision of temporary 
housing units, and materials for shelter repair; 
(c) Emergency Medical Services – Deployment of medical teams, 
procurement of medicines and emergency equipment, and 
support for health-related interventions; 
(d) Logistical Operations – Transportation, warehousing, and 
distribution of relief goods and services, including fuel, vehicles, 
and support equipment; 
(e) Personnel Deployment and Operational Support – Mobilization 
of government response teams, hazard pay and allowances for 
field personnel, and related operational needs; 
(f) Rehabilitation of Critical Services – Immediate restoration of 
water supply, electricity, communication lines, and road access in 
affected areas; and 
(g) Contingency and Buffer Stocks – Procurement and maintenance 
of prepositioned goods, materials, and standby funds to ensure 
rapid deployment; 


 
 
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All expenditures shall be subject to existing government accounting, 
auditing, and procurement laws and shall be included in the annual report 
submitted to Congress pursuant to Section 8 of this Act. 
In urgent situations, LGUs may use local funds for immediate relief 
response, which shall be reimbursable by the national government upon 
submission of reports and compliance with NDRRMC guidelines. 
SEC. 8. Disaster Preparedness and Risk Reduction. – The NDRRMC, in 
coordination with LGUs, shall implement disaster preparedness programs that 
include hazard mapping, early warning systems, simulation exercises, and 
public education. These initiatives shall be integrated into local development 
plans to strengthen pre-disaster readiness and reduce 
community 
vulnerability. 
SEC. 9. Public Participation. – All disaster response efforts shall 
promote active public participation. The government shall institutionalize 
mechanisms for volunteer engagement, civil society partnerships, and 
inclusive consultation in planning and implementing relief operations. 
SEC. 10. Report to Congress. – The NDRRMC shall submit an annual 
report to Congress detailing the implementation of the NDRF, utilization of the 
DRF, outcomes of relief operations, and recommendations for improvement. 
SEC. 11. Implementing Rules and Regulations. – Within ninety (90) days 
from the effectivity of this Act, the NDRRMC, in consultation with relevant 
stakeholders, shall promulgate the necessary implementing rules and 
regulations. 
SEC. 12. Separability Clause. – If any provision of this Act or a portion 
thereof is declared unconstitutional, the remainder of this Act or any provision 
not affected thereby shall remain in force and effect. 
SEC. 13. Repealing Clause. – All laws, decrees, orders, rules, and 
regulations or parts thereof inconsistent with the provisions of this Act are 
hereby repealed or modified accordingly. 
SEC. 14. Effectivity. – This Act shall take effect after fifteen (15) days 
from its publication in the Official Gazette or in a newspaper of general 
circulation. 
Approved.