Disaster MGMT

NAVAL COMMAND AND GENERAL STAFF COLLEGE
NAVAL EDUCATION AND TRAINING COMMAND

Naval Station San Miguel, San Antonio, Zambales
DISASTER MANAGEMENT IN THE PHILIPPINES
BY
CDR VICENTE L. CEJOCO PN
Naval Command and General Staff Course

Class Nr 09
In Partial Fulfillment
Of the Requirements for the
Class Nr.09
Camp Aguinaldo, Quezon City
2003
DISASTER MANAGEMENT IN THE PHILIPPINES
BY
CDR VICENTE L. CEJOCO PN

Class Nr 09
In Partial Fulfillment
Of the Requirements for the
Class Nr.09

2003
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TABLE of CONTENTS
CHAPTER PAGE
I. INTRODUCTION - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 1
A. Background - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 1
B. Purpose - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 1
C. Scope - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 1
D. Review of Related Studies - - - - - - - - - - - - - - - - - - - - - - - - - - - 2
II. Definition of Terms - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 3
III. Principles of Civil Defense and Disaster Management - - - - - - - - 12

A. Civil Defense Concepts - - - - - - - - - - - - - - - - -- - - - - - - - - - - 12
B. Introduction to Disaster Management - - - - - - -- - - - - - - - - - 13
C. Impact of Disasters on National Development and People - - - - 16
1. Disaster and National Development - - - - - - - - - - - - - - - - - - 16
2. Effects of Contemporary Development - - - - - - - - - - - - - - - 18
3. Effects of Long- Term Development - - - - - - - - - - - - - - - - 18
4. Impact of Disasters on People’s Lives - - - - - - - - - - - - - -- - - 19
D. Need of National Disaster Management Policies and Plans - - 20
E. Major Requirements for Coping With Disasters - - - - - - - -- - - 21
F. The Disaster Threats - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 22
1. Traditional Disaster Threats - - - - - - - - - - - - - - - - - - - - - - - - - 22
2. New Disaster Threats - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 23
3. Types of Natural Disasters - - - - - - - - - - - - - - - - - - - - - - - - - 24
4. Geographic Dimensions of Disasters - - - - - - - - - - - - - - - - - - 24
5. Characteristics, Countermeasures and Problem Areas - - - - 25
a. Earthquakes - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 25
b. Volcanic Eruptions - - - - - - - - - - - - - - - - - - - - - - - - - -- 25
c. Tsunami / Seismic Sea Waves - - - - - - - - - - - - - - - - -- 25
d. Tropical Cyclones / Typhoons - - - - - - - - - - - - - - - - - - 26
e. Floods - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 28
f. Landslides - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 28
g. Bushfire - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 29
h. Drought - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 30
i. Epidemic and Outbreaks - - - - - - - - - - - - - -- - - - - - - - - 32
j. Selected Major Disasters in the Philippines - - - - - - - - -32
G. Counter-Disaster Resources - - - - - - - - - - - - - - - - - - - - - - - - - - 33
1. Types of Resources - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 33
2. Evaluation of Resources - - - - - - - - - - - - - - - - - - - - - - - - - - - 34
H. International Disaster Assistance - - - - - - - - - - - - - - - - - - - - - - - 35
I. Disaster Prevention - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 36
J. Disaster Mitigation - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 38
1. Guiding Principles in Mitigation - - - - - - - - - - - - - - - - - - - - - -- 38
2. Requirements for Effective Mitigation - - - - - - - - - - - - - - - - - - 39
K. Disaster Response - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 39
1. Problem Areas in Disaster Response - - - - - - - - - - - - - - 40
2. Requirements for Effective Response - - - - - - - - - - - - - - 42
3. Major Emergency Response Aspects - - - - - - - - - - - - - - - 45
4. Allocations of Tasks - - - - - - - - - - - - - - - - - - - - - - - - - - - - 46
5. Period of Response Operations - - - - - - - - - - - - - - - - - - -- 48
6. Follow-on Response Operation - - - - - - - - - - - - - - - - - - - 48
7. Human Factors in Response - - - - - - - - - - - - - - - - - - - - - 50
8. Resources Relevant to Various Aspects of Response - - 51
CHAPTER IV – Disaster Legislation - - - - - - - - - - - - - - - - - - - - - - - - 53

A. The Need for Disaster Legislation - - - - - - - - - - - - - - - - - - - - - 53
B. The National Disaster Coordinating Council - - - - - - - - - - - - - - - 53
C. Basic Philippine Laws on Disaster Management - - - - - - - - - - - - 59
1. Presidential Decree 1566 - - - - - - - - - - - - - - - - - - - - - - - - - - 59
5. Republic Act 8185 - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 66
6. Presidential Issuances - - - - - - - - - - - - - - - - - - - - - - - - - - 67
7. NDCC Issuances - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 67
CHAPTER V – The AFP Calamities Response Task Force - - - - - - - - 68.

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A. AFPDRTF Activation - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 68
B. AFPTRDF Mission - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 68
C. Organization of PNDRTG - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 68
D. Auxiliary Service - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 70
CHAPTER VI – Conclusions and Recommendations - - - - - - - - - - - 76

A. Conclusions - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 78
B. Recommendations - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 78
BIBLIOGRAPHY - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 80
ANNEX A – RP Calamity and Disaster Preparedness Plan - - - - - - - - 82
ANNEX B- The Office of Civil Defense, DND - - - - - - - - - - - - - - - - - - - 95
ANNEX C – The Emergency Management Information System - - - - - 97
ANNEX D – Summary of Natural & man-Made Disasters (1990 –2001) -98
ANNEX E – Summary of Destructive RP Typhoons (1970 –2002) - - - - 99
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CHAPTER I - INTRODUCTION
A. Background
Disaster constitutes a threat to the national security, indeed it is a serious threat to the basic structures or the fundamental values of a social
system, which is under time pressure and highly uncertain circumstances require decision making. Disasters result to severe economic loss and long-term
psychological trauma among victims and causes stagnation for developing countries. Natural calamities affect nations all over the world. The Philippines
which is frequently visited by natural calamities like floods, typhoons, earthquakes and drought occurring in different parts of the country, can be considered
as one of the “disaster capitals of the world”. While not all natural calamities can be predicted and prevented, a state of preparedness and ability to respond
quickly to a natural calamity can considerably mitigate loss of life and property and the human suffering and restore normalcy at the earliest. It is, therefore, of
paramount importance that a plan of action for dealing with contingencies that arise in the wake of natural calamities is formulated and periodically updated.
B. Purpose and Scope

1. Purpose
The purpose of this paper is to present a comprehensive overview of the different disaster threats, the basic principles of disaster management
and the organizational framework for the conduct of disaster response operations with the active participation of the DND-AFP in general, and the Philippine
Navy in particular.
2. Scope
This paper presents various concepts on disaster management and its applications in the Philippine setting at all levels, through the National
Disaster Coordinating Council down to the Barangay level, with the active participation of the Armed Forces of the Philippines, other government entities,
private organizations and local communities. It also attempts to cover the mandate and organization of the AFP/ PN in the conduct of disaster-related
operations as part of MOOTW or non-traditional mission of the Navy.
C. Review of Related Studies

Venadas1 (1978) made a study and came up with several recommendations which focused on the improvement of existing organization for
effective implementation of national programs as to planning, preparation and implementation of contingency plans on natural disasters. He recommended
for a more aggressive effort towards the legislation of disaster-oriented policies and stressed the importance of a more dynamic and effective organization for
disaster management.
Adug2 (1982) looked into the effectiveness of the government’s warning systems as to its mission of reducing damages and concluded that the
warning system of the government is perceived to be effective in motivating the people in protecting their lives and properties. He recommended for the
development of an effective damage assessment to include forgone income or opportunity loss due to disruption of work, commerce and other economic
activities.
Doctor3 (1987) made an assessment of the RP national disaster preparedness plan and concluded that there is an ineffective communications
system which resulted to unnecessary deaths due to delayed issuance of warnings or information during emergencies.
De Guzman4 (1992) made another study and recommended the amendment of Memorandum Order 51 (January 16, 1967), which proposes for the
creation of a Committee on Warning and Emergency Communications System (COWECS). This committee will provide advanced warning information of an
impeding disaster and the communications requirements for disaster emergency operations. The present Committee on Warning Systems (COWS) as
created by a Presidential memorandum provides for advance and adequate information of impending disasters but did not mention about the quick-response
disaster communications system down to the barangay level for affected areas.
CHAPTER II -Definition of Terms
1. Attack - A hostile action taken by foreign forces or terrorists, resulting in the destruction of or damage to military targets, injury or death to the civilian
population, or damage or destruction to public and private property.
2. Affiliated Reserve - A component of the AFP Reserve Force as prescribed in RA 7077 composed of vital public and/or private utilities organized as
affiliated units of the AFP Reserve Force.
3. AFP Affiliated Reserve Units - Reserve Units organized by the AFP within certain government and private entities, corporations, establishments, and
organizations at the national, provincial and municipal levels which provide essential public services such as water, light, transportation and others which are
necessary to support the prosecution of national defense plans or to meet an emergency.
4. Calamity - A situation usually catastrophic in nature, in which a number of persons are plunged into helplessness and suffering and as a result maybe in
need of food, clothing, shelter, medical care and other basic necessities of life.
5. Checklist - Written (or computerized) enumeration of actions to be taken by an individual or organization, meant to aid memory rather than provide detailed
instruction.
6. Chief Executive Official - The official of the community who is charged with authority to implement and administer laws, ordinances, and regulations for
the community. He or she may be a mayor, city manager, etc.
7. Civil Emergency - the disruption of normal activities of the civil populace occasioned by riots, rebellion, revolution and other similar events.
8. Civil Defense – the performance of some or all of humanitarian tasks intended to protect the civilian populace against danger, and to help them recover
from the immediate effects of hostilities or disaster and also the provision of conditions necessary for their survival. These tasks include: warning, evacuation,
shelter management, management of blackout measures, rescue, medical services, fire fighting, detection and marking of danger zones, decontamination,
provision of emergency accommodation and supplies, emergency assistance in the restoration and maintenance of order in distressed areas, emergency
disposal of the dead and the assistance in the preservation of objects essential to carry out these tasks.
9. Civil Defense Operations Center (CDOC) – the facility through which all disaster planning and operations of the national government are conducted.
10. Community - A political entity which has the authority to adopt and enforce laws and ordinances for the area under its jurisdiction. In most cases, the
community is an incorporated town, city, township, village, or unincorporated area of a county. However, each State defines its own political subdivisions and
forms of government.
1
Venadas, Deogracias C. “The Effectiveness of the AFP as an Instrument of Disaster Control: An Assessment. Master’s Thesis. National Defense College of the
Philippines. Fort Bonifacio, Makati City. 1978.
2
Adug, Elequim A. “A Assessment of the Effectiveness of Government in Reducing Damages caused by Typhoons and Floods”. Masters Thesis, National
defense College of the Philippines. Fort Bonifacio, Mkati City. 1982.
3
Doctor, Claro S. The National Calamities and Disaster Preparedness Plan: An Assessment. Masters Thesis, National Defense College of the Philippines, Fort
Bonifacio, Makati City. 1987.
4
De Guzman, Alejandro F. “Telecommunications for National Security Emergency Preparedness: An Assessment. Maters Thesis. National defense College of
the Philippines. Fort Bonifacio, Makati City. 1992.
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11. Conflagration – a large disastrous fire involving numerous buildings, houses or structures.
12. Contamination - The undesirable deposition of a chemical, biological, or radiological material on the surface of structures, areas, objects, or people.
13. Dam - A barrier built across a watercourse for the purpose of impounding, controlling, or diverting the flow of water.
14. Damage Assessment - The process used to appraise or determine the number of injuries and deaths, damage to public and private property, and the
status of key facilities and services such as hospitals and other health care facilities, fire and police stations, communications networks, water and sanitation
systems, utilities, and transportation networks resulting from a man-made or natural disaster.
15. Decontamination - The reduction or removal of a chemical, biological, or radiological material from the surface of a structure, area, object, or person.
16. Disaster - An occurrence of a natural catastrophe, technological accident, or human- caused event that has resulted in severe property damage, deaths,
and/or multiple injuries. Disaster is an event, natural or man-made, sudden or progressive, which impacts with such severity that the affected community has
to respond by taking exceptional measures. It is a sudden calamitous event producing great material damage, loss and distress characterized by: (a) the
unexpected and widespread disruption to normal patterns of life, loss of life, injury, hardships, health problems (human effects), destruction of or damage to
government systems, buildings, communications and essential services (social structure effects), need for shelter, food, clothing, medical assistance and
social care.
17. Disaster Control – the act of limiting or mitigating the effects of disaster through the introduction of measures designed to prepare the inhabitants and to
protect their lives and properties before, during and after disaster.
18. Disaster Management - an applied science which seeks, by the systematic observation and analysis of disasters, to improve measures relating to
prevention, mitigation, preparedness, emergency response and recovery.
19. Disaster Mitigation – concentrates on reducing the harmful effects of a disaster, mitigation accepts the occurrence of disasters, but attempts to limit their
impact on human suffering and economic infrastructure.
20. Disaster Operations - Any concerted effort by two or more agencies, governmental and/or otherwise, to provide emergency assistance in relief to
persons who are victims of a disaster/calamity and in the restoration of essential public activities and facilities. Specific aid and assistance that may be
provided in disaster operation include: issuance of medical supplies and equipment and emergency medical treatment; food, water, and shelter, rescue and
firefighting services; police protection; route clearance and traffic control; prevention of panic; communications; and restoration of facilities.
21. Disaster Preparedness – activities that aim to limit the impact of a disaster by structuring the response and providing quick and effective actions after
the disaster. It addresses actions in both the pre-disaster phase, as well as post-disaster phase. It includes: Vulnerability assessment, conducting and
introducing disaster research and related technology, e.g. satellite warning system, tsunami or lahar monitoring stations, supporting organizations and
institutions that plan and implement disaster response programs, maintaining regional disaster stockpiles and training.
22. Disaster Recovery Center - Places established in the area of a Presidentially declared major disaster, as soon as practicable, to provide victims the
opportunity to apply in person for assistance and/or obtain information relating to that assistance.
23. Earthquakes – are earth vibrations produced when the stability of rock masses under the surface of the earth is disturbed. These disturbances usually
occur along existing fault lines or zones of structural weaknesses. An Earthquake is a sudden motion or trembling of the ground produced by abrupt
displacement of rock masses, usually within the upper 10 to 20 miles of the earth's surface.
24. Emergency - Any occasion or instance--such as a hurricane, tornado, storm, flood, tidal wave, tsunami, earthquake, volcanic eruption, landslide,
mudslide, snowstorm, fire, explosion, nuclear accident, or any other natural or man-made catastrophe- -that warrants action to save lives and to protect
property, public health, and safety.
25. Emergency Alert System - A digital technology (voice/text) communications system consisting of broadcast stations and interconnecting facilities
authorized by the National Telecommunications Commission. The system provides the President and other national, provincial and local officials the means to
broadcast emergency information to the public before, during, and after disasters.
26. Emergency Environmental Health Services - Services required to correct or improve damaging environmental health effects on humans, including
inspection for food contamination, inspection for water contamination, and vector control; providing for sewage and solid waste inspection and disposal; clean-
up and disposal of hazardous materials; and sanitation inspection for emergency shelter facilities.
27. Emergency Health Services - Services required to prevent and treat the damaging health effects of an emergency, including communicable disease
control, immunization, laboratory services, dental and nutritional services; providing first aid for treatment of ambulatory patients and those with minor injuries;
providing public health information on emergency treatment, prevention, and control; and providing administrative support including maintenance of vital
records and providing for a conduit of emergency health funds. Services, including personnel, facilities, and equipment required to ensure proper medical care
for the sick and injured from the time of injury to the time . Emergency Medical Services of final disposition, including medical disposition within a hospital,
temporary medical facility, or special care facility, release from site, or declared dead. Further, emergency medical services specifically include those services
immediately required to ensure proper medical care and specialized treatment for patients in a hospital and coordination of related hospital services.
28. Emergency Mortuary Services - Services required to assure adequate death investigation, identification, and disposition of bodies; removal, temporary
storage, and transportation of bodies to temporary morgue facilities; notification of next of kin; and coordination of mortuary services and burial of unclaimed
bodies.
29. Emergency Operating Center - The protected site from which national and local civil government officials coordinate, monitor, and direct emergency
response activities during an emergency. Locally called the RDCC, PDCC or MDCC.
30. Emergency Operations Plan - A document that: describes how people and property will be protected in disaster and disaster threat situations; details
who is responsible for carrying out specific actions; identifies the personnel, equipment, facilities, supplies, and other resources available for use in the
disaster; and outlines how all actions will be coordinated.
31. Engineering - As applied to a disaster situation pertains to repairs and restoration of infrastructures, buildings and utilities.
32. Epidemic / Outbreak – is the occurrence of communicable or non-communicable diseases or illness of the same nature in excess of the normal.
32. Evacuation - Organized, phased, and supervised dispersal of people from dangerous or potentially dangerous areas. Evacuation may be classified as:
(a)  Spontaneous Evacuation. Residents or citizens in the threatened areas observe an emergency event or receive unofficial word of an actual
or perceived threat and without receiving instructions to do so, elect to evacuate the area. Their movement, means, and direction of travel is
unorganized and unsupervised.
(b) Voluntary Evacuation. This is a warning to persons within a designated area that a threat to life and property exists or is likely to exists in the
immediate future. Individuals issued this type of waning or order are NOT required to evacuate, however it would be to their advantage to do so.
© Mandatory or Directed Evacuation. This is a warning to persons within the designated area that an imminent threat to life and property exists
and individuals MUST evacuate in accordance with the instructions of local officials.
33. Evacuees - All persons removed or moving from areas threatened or struck by a disaster.
34. Flash Flood - Follows a situation in which rainfall is so intense and severe and runoff so rapid that it precludes recording and relating it to stream stages
and other information in time to forecast a flood condition.
35. Flood - A general and temporary condition of partial or complete inundation of normally dry land areas from overflow of inland or tidal waters, unusual or
rapid accumulation or runoff of surface waters, or mudslides/mudflows caused by accumulation of water. Flood is the condition that occurs when water
overflows the natural or artificial confines of a stream or body of water, or when run-off from heavy rainfall accumulates over low-lying areas.
36. Hazard Mitigation - Any action taken to reduce or eliminate the long-term risk to human life and property from hazards. The term is sometimes used in a
stricter sense to mean cost-effective measures to reduce the potential for damage to a facility or facilities from a disaster event.
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37. Hazardous Material - Any substance or material that when involved in an accident and released in sufficient quantities, poses a risk to people's health,
safety, and/or property. These substances and materials include explosives, radioactive materials, flammable liquids or solids, combustible liquids or solids,
poisons, oxidizers, toxins, and corrosive materials.
38. High-Hazard Areas - Geographic locations that for planning purposes have been determined through historical experience and vulnerability analysis to
be likely to experience the effects of a specific hazard (e.g., hurricane, earthquake, hazardous materials accident, etc.) resulting in vast property damage and
loss of life.
39. Incident Command System (ICS) - A standardized organizational structure used to command, control, and coordinate the use of resources and
personnel that have responded to the scene of an emergency. The concepts and principles for ICS include common terminology, modular organization,
integrated communication, unified command structure, consolidated action plan, manageable span of control, designated incident facilities, and
comprehensive resource management.
40. Local Disaster Coordinating Council – is a group of persons at the provincial, city, municipal or barangay government level, duly organized for the
purpose of preparing the people under its jurisdiction, to mitigate the effects of disasters and to control the disaster operations of its tasked units.
41. Mass Care - The actions that are taken to protect evacuees and other disaster victims from the effects of the disaster. Activities include providing
temporary shelter, food, medical care, clothing, and other essential life support needs to those people that have been displaced from their homes because of
a disaster or threatened disaster.
42. National Disaster Coordinating Council (NDCC) - The highest governmental body responsible for advising the President on the status of disaster
preparedness program and disaster relief and rehabilitation efforts at the national level.
43. National Emergency - The sudden declaration by the government that there exists a state of actual invasion, rebellion, and other lawless violence
perpetrated by a sizable group of men who publicly rises in arms to overthrow the duly constituted authority and that public safety requires immediate and
effective action to be taken in order to maintain peace and order, secure the safety of the people, and preserve the authority of the state. It includes hereof,
the declaration of public calamities, which are extraordinarily strong like typhoons, earthquakes, and other natural disasters, which are national in scope.
44. Operational Control - As distinguished from administrative control, this refers to supervision and direction over units involved in disaster operations, but
only during periods of disaster.
45. Pollution – is any discharge of liquid, gaseous or solid substances into land / soil, natural waters, atmospheric space, which will crate or render such
environmental elements and atmospheric air harmful, detrimental or injurious to humans, animals, plants and the ecological balance of nature.
46. Public Information Officer (PIO) - A national, regional or local government official responsible for preparing and coordinating the dissemination of
emergency public information.
47. Radioactive Fallout - Are dust particles of earth and debris, together with the radioactive materials that cling to them, which are drawn up into the
mushroom cloud resulting from detonation of a nuclear weapon or device, and which are carried by the wind for many kilometers and then fall back to earth.
48. Recovery - The long-term activities beyond the initial crisis period and emergency response phase of disaster operations that focus on returning all
systems in the community to a normal status or to reconstitute these systems to a new condition that is less vulnerable.
49. Regional, Provincial, City, Municipal and Barangay Disaster Coordinating Councils - The organizations responsible for the conduct of disaster
operations at their respective levels.
50. Relief - An act of helping or alleviating the condition of persons who are suffering from the effects of disaster/calamity and are at the same time
completely helpless. Relief assistance is that aid which is provided to save lives or relieve human suffering and has immediate impact on the conditions of
disaster victims.
51. Rehabilitation - The restoration of a person’s economic dependency to an independent or stable way of living either physically, economically, socially or
emotionally.
52. Regional, Provincial, City, Municipal and Barangay Disaster Coordinating Councils - The organizations responsible for the conduct of disaster
operations at their respective levels.
53. Resource Management - Those actions taken by a government to: identify sources and obtain resources needed to support disaster response activities;
coordinate the supply, allocation, distribution, and delivery of resources so that they arrive where and when most needed; and maintain accountability for the
resources used.
54. Secondary Hazard - A threat whose potential would be realized as the result of a triggering event that of itself would constitute an emergency. For
example, dam failure might be a secondary hazard associated with earthquakes.
55. Standard Operating Procedure – A set of instructions constituting a directive, covering those features of operations which lend themselves to a
definite, step-by-step process of accomplishment. SOPs supplement EOPs by detailing and specifying how tasks assigned in the EOP are to be carried out.
56. State of Calamity – a condition declared by the President in the event of widespread destruction to property and loss of life due to destructive forces or
man-made emergencies.
57. Storm Surge - Is an abnormal rise of the level of body of water along a shore as a result, primarily, of the winds and pressures associated with storms.
Storm Surge is a dome of sea water created by the strong winds and low barometric pressure in a hurricane that causes severe coastal flooding as the
hurricane strikes land.
58. Tornado - A local atmospheric storm, generally of short duration, formed by winds rotating at very high speeds, usually in a counter-clockwise direction.
The vortex, up to several hundred yards wide, is visible to the observer as a whirlpool-like column of winds rotating about a hollow cavity or funnel. Winds may
reach 300 miles per hour or higher.
58. Tropical Cyclone - Is an intense weather disturbance such as typhoons and storm composed of a big whirling mass of winds and rains, similar to
whirlwind, tornado or water sprout but having immense dimensions. It has violent winds which flow around and towards the center and is associated with
torrential rains often accompanied by thunderstorms. Its central area is known as the ”eye” some tens of kilometers in diameter when there is unusually little
cloud or even a clear sky, no rain and various winds.
59. Tsunami – is a series of traveling ocean waves of long length and period usually caused by seismic disturbances in the ocean floor or confines which
upon reaching the shore, loses speed but increases in height. Depending upon the residual force upon arrival, such waves may rush inshore and cause
devastation to human settlements and infrastructures along the shoreline. Tsunami are sea waves produced by an undersea earthquake. Such sea waves
can reach a height of 80 feet and can devastate coastal cities and low-lying coastal areas.
60. Vital Public Utilities - Certain government and private entities, corporations, establishments, and organizations at the national, provincial and municipal
levels which provide essential public services.2
61. Volcanic Eruption - Is the ejection of volcanic materials such as lava, ashes, rock fragments, steam and other gases through a fissure brought about by
the tremendous overlying pockets of molten rocks or steam reservoirs found under the earth’s crust.
62. Warning - The alerting of emergency response personnel and the public to the threat of extraordinary danger and the related effects that specific hazards
may cause. A warning issued by the NWS (e.g., severe storm warning, tornado warning, tropical storm warning) for a defined area indicates that the particular
type of severe weather is imminent in that area.
63. Warning Information – bulletins, notices, advisories, forecasts and others issued by PAGASA, PHILVOLCS, PINRI, HIS, and the AFP/ DND to
impending disaster or other emergencies.
(source: http://ww.ndcc.gov.ph))
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CHAPTER III- Principles of Civil Defense and Disaster Management
A. Introductory Concepts in Civil Defense
1. Basic Elements of Civil Defense 5
Based from the general information lifted from the NDCC website, the following are the basic elements of Civil Defense:
(a) Civil Defense ensures Protection and Assistance
"Protection" means all prevention activities, and in particular information and training, forecasting and preparation, related to sheltering people
and property from disasters and accidents of all nature. "Assistance" covers all measures intended to reduce the consequences of disasters, namely rescue
actions and rehabilitation operations during and after disasters. This principle is the basis for the existence of all national civil defense structures. It does not
signify that all these activities must be the exclusive responsibility of these services.
(b) Civil Defense is a public service .

It is the responsibility of the State to protect and assist the people in times of emergency, a power bestowed impartially covering its entire territorial
jurisdiction. Civil defense is a national public service which functions based on the legal authority and established principles. Generally, the safety of persons,
more particularly from disasters of all kinds, belongs to hard core public service activities which the State is bound to ensure, a service that is characterized by
management rules different from those applied by private enterprises since public service requires a 24 hour a day, seven days a week uninterrupted
regimen..
In public service, all persons are treated equally without discrimination. The principle of neutrality is the corollary of this principle of equality,
regardless of one’s ethnicity, religion, sex and other demographic attributes. Civil defense as a public service implies that the services provided always be
adapted to the needs of the population for the benefit of the persons and property which it is bound to protect .
(c ). Civil Defense is an instrument requiring multi-sectoral coordination

National civil defense services are the ideal entities for conducting the diverse operations for the safeguard of persons, property and the
environment before, during and after disasters. During the preparation phase for disasters and in the implementation of prevention measures, civil defense
must assume this role of senior management at the time when demographic, social technical and other parameters must be integrated. In the same way, it is
up to national civil defense organs to manage and coordinate the actions of the various civil and military intervention units involved in rescue operations during
emergencies. Multiform and multifunctional, national civil defense structures are a favored management tool meant to deal with risks and disasters of all kind
under the best possible conditions.
Civil defense is an instrument of multi-sector coordination. At the national level, this requires the establishment of an inter-departmental structure
attached to the Presidency, if only to allow an overall view of the questions related to civil defense. Its first mission is to establish and promote a national civil
defense policy and to provide the necessary support to the decentralized civil defense services.
B. Introduction to Disaster Management

Disaster Management is an applied science which seeks, by the systematic observation and analysis of disasters, to improve measures relating
to prevention, mitigation, preparedness, emergency response and recovery. The major aspects of natural disaster management is shown in a wheel
diagram in Figure 1 devised by the Disaster Management Center at the University of Wisconsin6.
Figure 1 – Disaster Management Cycle
Carter7 on the other hand, describes disaster management cycle to consist of the following stages : (a) prevention, (b) mitigation, (c) preparedness, (d)
disaster impact, (e) response, (e) recovery, (f) development.
Prevention include measures aimed at impending the occurrence of a disaster event and/or preventing such an occurrence having harmful effects
on communities. Preventive measures include: construction of a dam or levee to control flood waters; controlled burning-off in a bushfire-prone area prior to
a high-fire risk season or some forms of legislation like land-use regulations which prohibit development of communities in flood-prone low-lying areas..
Preparedness comprises measures which enable governments, organizations, communities and individuals to respond rapidly and effectively to disaster
situations. Examples of measures are: (a) Formulation and maintenance of valid, up-to-date counter disaster plans, (b) Special provisions for emergency
action such as mass evacuation of people to safer places, (c) Provision of warning systems and emergency communications, (d) Public education and
awareness, (e) Training programs such as drills and test, (f) Family preparedness.
Some authors divide disaster management cycle’s preparedness segment into warning, threat and precaution periods. Warning is the time
or period when a hazard has been identified but is not yet threatening a particular area such as notification of that a typhoon exists but is still far away. Threat
is the period when the hazard has been identified and is assessed as threatening a particular area. Precaution includes actions taken after receipt of
5
http://www.ndcc.gov.ph/ocd/
6
Disaster Management Center at the University of Wisconsin. http://www.metu.edu.tr/home/wwwdmc/what-is.html
7
Carter, Nick W. “ The Disaster management Cycle”. Disaster Management: A Disaster Manager’s Handbook. Asian Development Bank 1991. Pp 55- 59.
7
warning to offset effects of disaster impact, e.g. closing offices, schools, bringing emergency power generators, cutting crops to avoid total loss, storing
emergency water supply and making boats and vehicles safe.
Mitigation includes programs intended to reduce the effects of disaster on a nation or community such as: the development and application of
building codes, land-use regulations, safety rule related to high rise buildings, etc. to reduce damage in case of earthquake or cyclones.
Disaster preparedness are measures which enable governments, communities and individuals to respond rapidly and effectively to disaster
situations. It includes actions designed to impede the occurrence of a disaster event and/or prevent such an occurrence having harmful effects on
communities or key installations. Viable counter-disaster plans, maintenance of inventories of resources and personnel training are part of preparedness.
Disaster Impact is the point when the disaster event occurs and can vary depending upon the type of disaster. An earthquake may give no
warning signs, impact is short but damages can be severe as in the July 16, 1990 killer quake in Northern Luzon.
Disaster Emergency Response are measures taken immediately prior to and following disaster impact. They are directed towards saving life
and protecting property and to deal with the immediate disruption, damage and other effects caused by the disaster. Typical measures include:
implementation of plans, activation of counter-disaster system, search and rescue, provision of emergency food, shelter, medical assistance, survey and
assessment, and evacuation measures. A state of emergency of state of calamity may be declared by the government..
Recovery is the process by which communities and the nation are assisted in returning to their proper level of functioning following a disaster.
This process may take 5 to 10 years or even more. Main categories of these activities are: restoration, rehabilitation and reconstruction. Typical activities
include: (a) restoration of essential services, (b) restoration of repairable homes and buildings, (c) provision of temporary housing, (d) Measures to assist the
physical and psychological rehabilitation of persons who have suffered the effects of disaster, (e) Long-term measures of reconstruction, including
replacement of buildings destroyed by the disaster, (f) Post-disaster review.
Development is the progressive advancement and modernization of societies as it interrelates with disaster effects and management. provides
the link between disaster-related activities and national development. It is intended to ensure that the results of disaster are effectively reflected in future
policies in the interest of national progress. Building systems and programs may be modernized, international disaster assistance may be used and disaster
experiences may be used for future research and development programs.
Major disaster management resource needs include the provision of (a) A capable Emergency Operations Center (EOC), (b) A good information
picture, (c) Effective communication between the direction / coordination authority and individual resource organizations, (d) Sensible commitment of resource
organizations to operational tasks, bearing in mind their capability and durability.
The scope of disaster-related action indicates that a multiplicity of skills is necessary for an effective disaster management. Most skills required
include:(a) search and rescue, (b) Survey, assessment and reporting, (c) First aid, (d) Mobile medical teams, (e) Emergency welfare (mass feeding), (f)
Emergency shelter ( erection of tents, building repairs), (g) Emergency logistics,(h) Staffing of emergency operations centers, especially communications
personnel, (i) Information management. Unskilled or untrained disaster operatives can well be a menace to themselves and to other people also. The NDCC
should identify our own training needs and frame individual policies accordingly and not just “cut and paste” from foreign models. Training programs must be
designed to be compatible with and to give support to disaster plans. Responsibility for training must be clearly defined and corresponding course curricula
must be carefully planned to address existing national needs, comply with national disaster policy. In-country and international training may be resorted to in
order to enhance skills of disaster managers and operatives.
In preparing a template for disaster management the following issues may be covered8:
a) Database: information on various resources, skills, and services required for relief at short notice. It shows availability of safety equipment, oxygen
cylinders and various other equipment, skills and other information required to deal with emergency.
b) Logistics: One of the most difficult problems to be handled is the organization of supply chain for relief, e.g. on how to integrate with the GIS system so
that supplies could be tracked right down to barangay level.
c) Technological Needs: Whole range of technical questions regarding buildings, cutting concrete slabs, rescue and relief emerged which needed to be
solved on the spot.
d) Self Reliance: Excessive aid sometimes discourages efforts towards self-reliance. In some instances, communities come together to help each other. The
lessons of community self-help need to be put together. A database of volunteers who can move at short notice will need to be developed.
e) Communication Infrastructure: Communications has always been a serious problem and has to be resolved once for all. It will require network of ham
radios, use of all amateur radio clubs and commercial radio networks, setting up help lines, etc. It also includes early warning systems and information
dissemination system through mass media such as printed publications (newspapers) and broadcast (radio and TV), Cellular text messaging, etc.
f) Emergency Preparedness: Includes the conduct of regular drills or emergency exercises to keep people prepared to deal with such emergencies.
g) Forecasting: Disasters that can be anticipated need attention. Buildings erected on landfill or low-lying areas were more likely to get damaged during
floods or earthquakes. Weather can be forecasted using advanced meteorological satellite mapping and data processing techniques.
C. Impact of Disasters on National Development and The Filipino People

1. Disaster and National Development
Our nation’s policies may be thrown into sharp relief whenever it becomes involved in major international or national crises. Disaster is one of the
national crises which can raise many issues and perceptions which reflect on our nation’s image. When a nation is hit by a disaster, there is usually a
widespread international reaction to offer assistance, especially if the stricken country is still developing and have limited response and recovery capability
and is markedly disaster-prone such as the Philippines and Bangladesh..
There can be damaging consequences from disaster where a nation’s international image is concerned despite humanitarian sympathy and
willingness to help. International donor countries and organizations have provided assistance to developing countries in order to help the latter to cope with
disaster. This assistance include: (a) regional seminars and workshops aimed at enhancing disaster management knowledge and encouraging counter-
disaster capability, (b) Provision of funding and expertise for the formulation of plans, (c) Provision of key systems and facilities, such as emergency
communications, operation centers and warning networks, (d) Provision of training for key officials and others..
In response operations, similar circumstances arise,. A stricken country which is well-prepared for disaster has a good idea of what its post-impact
needs will be: food, clothing, shelter materials, medical assistance and emergency equipment. This simplifies the task of assistance agencies. For an ill-
prepared nation, difficulties are likely to arise in defining what type and scale of assistance is required. Misunderstandings and irritations may then arise
between the recipient nation and donor agencies and will affect the nation’s international reputation or image. They can have repercussions on national
development because they may engender a reluctance from the international community to provide assistance in the case of vital, non-disaster development
programs ones we tarnish our international image. Disaster-related events can have a variety of international effects, some of which may reflect on future
development.
2.Effects of Contemporary Development

Disasters can have very serious effects on the contemporary development of a nation, especially in revenue-producing areas and infrastructure.
For example, long-term export crops may be damaged such as coconut and palm oil plantations which takes 7 to 8 years to rehabilitate and market will be lost
8
Gupta, Anil K. A Guideline for Disaster Management:” Seven Point Disaster Management Proposal for the Creation of India’s Disaster Management Information System.”.
Lecture at Amedabad Management Association. India. http://www.ndmindia.nic.in/manageplan/manageplan.html
8
to other countries offering viable alternatives. Such destruction may result in loss of development capital, destruction of production resources, loss of
processing facilities and equipment, loss of employee housing, etc. Loss of livestock, through an outbreak such as “mad cow” or “hoof and mouth” disease or
rural wildfire, can devastate valuable national resources such as meat, dairy production. Land inundated by storm surge or tsunami can bring about
salinization, with severe consequences to both domestic and export food resources. Drought can cause severe restrictions on rice production and drying up of
fishponds, and consequent loss of export market for shrimps, fish and other food products. Damage to harbors and wharves can drastically limit maritime
transport capability – our main mode of transportation as an archipelagic state, and restricting export and import activity. Loss of aircraft and airport facilities
may impose serious constraints. Loss of roads and bridges may curb important ongoing construction and impede the free flow of basic commodities such as
farm products and industrial raw materials. Loss of buildings and facilities can seriously hamper the conduct of business and commerce.
3. Effects on Long-Term Development

When a disaster strikes, it deprives a nation of many of its vital resources such as: communications, power and water supplies, houses, roads,
crops and other food sources, airport and port facilities, shipping, schools, medical health facilities, etc. . These resources need to be renewed or rehabilitated
before even moderate development can continue.
Disasters can seriously upset the sequence of development planning as it disrupts current plans. It makes it difficult to forecast development
progress and predict the likely status at the end of an ongoing plan. Formulating the scope and content of the next national development plan would be a
problem since post-disaster recovery process is difficult to define accurately. Areas of concern include: forecasting, budgeting, planning progress and program
implementation. Disasters upset the rhythm of national development and threaten satisfactory achievement.
International assistance programs have limitations on scope, size, time and cost. If another disaster strikes midway of the program, there will be
loss factors and escalates costs to the donor country forcing it to spread the program over a further year. Donor countries may be discouraged by setbacks
caused by the disasters as they nullify ongoing efforts and would mean additional costs. The loss, damage or disruption caused by a disaster can significantly
affect a nation’s capacity to absorb subsequent assistance programs
3. Impact of Disaster on People’s Lives

Calamities have multifaceted impact upon the lives of the Filipino people and our country. The social, economic and health consequences of
different types of disasters are indicated in Table 1.
Table 1- SOCIAL, ECONOMIC & HEALTH CONSEQUENCES OF NATURAL CALAMITIES
NATURAL CALAMITIES
Consequences
Earthquake Cyclone / Flood Fire Drought/
Typhoon Famine
Loss of life X X X X
Injury X X X X X
Epidemiological threat X X
Loss of crops X X X
Loss of housing X X X X
Damage to infrastructure X X X X
Disruption of communications X X X X
Disruption of transport X X X X
Panic X X X X
Looting X X X X
Breakdown of social order X X X
Short-term migrations X X
Permanent migration #
Loss of Industrial production X X X X #
Loss of Business X X X X #
Disruption of marketing systems X X X X #
LEGEND : X - Direct Consequences; # - Secondary Consequences
D. The Need for National Disaster Management Policy and Plans

We need a clear definition of a national disaster management policy for our country to establish and maintain adequate arrangement. us to deal
with all aspects of disaster threats. Ill-defined, inadequate or non-existence of a disaster policy leads to unnecessary loss of lives and properties and the
whole nation will suffer. A strong, clear policy offers several advantages such as:(a) demonstrated lead from government in disaster-related affairs, (b) A
foundation for appropriate legislation and associated regulations, (c) A basis for good organization and allocation / delineation of responsibilities, (d) Overall
direction for ensuring optimum utilization of resources against a carefully assessed threat, (e) National competence and self-reliance stimulates international
assistance when the need arises.
In order to define national disaster management policy, we need to consider the main factors like: (a) An accurate definition of the threat, (b)
Identification of likely effects, (c) Assessment of resources available to deal with the threat, (d) Organizational arrangements, (e) Definition of how the policy
interlocks with other aspects of national policy like national development and environmental protection.
9
The method by which a policy is issued is a matter of individual national choice. Policies may be issued in the form of government decrees,
statements, legislation, regulation and other means. The policy must designate responsibility for monitoring and reviewing the national policy statement, and
in our case, it is the NDCC whose chairman is the Defense Secretary. Post disaster review provides feedback whether existing national policies are valid or
need review and amendment.
The purpose of planning is to anticipate future situations and requirements, thus ensuring the application of effective and coordinated counter-
measures. Planning should not be merely confined to preparedness for and response to specific disaster events; it should cater to the whole scope of disaster
management cycle.
The need for counter-disaster plans has been well illustrated internationally, that without them, nations suffer more seriously than would otherwise
have been the case. Planning for disaster offer several advantages such as : (a) Clear and coherent approach to dealing with disaster, (b) Provides a
common reference for all departments and authorities which have roles in counter-disaster activity, (c) Provides basis for coordinated action, (c) Clear
allocation of responsibilities, (d) A focus for disaster-related training, (d) A setting against which to review and evaluate current and future disaster
management requirements.
Certain pitfalls can apply to planning and they include: (a) Plans becoming outdated and no longer applicable – it may cause more trouble, (b)
Plans being nominalistic and therefore cannot be implemented, irrelevant or unrealistic due to lack of funding, personnel, equipment, facilities, systems and
training support, etc, (c) Plans becoming inapplicable due to changes in government organization or similar causes.
E. Major Requirements for Coping With Disasters

The overriding philosophy in coping with disasters is that it is the primary responsibility of the government to meet the needs created by a disaster
as with other aspects of national life. The government may need the assistance from non-government organizations, private sector, general public and even
from international friends. The main function of disaster management system is to ensure that the resources and operations of government departments,
NGO’s and members of the community are coordinated to produce the best possible counter-disaster effort.
In assessing the scale of organizational, planning and other measures against disaster threats, it is best to bear in mind the range of
responsibilities and tasks such as: (a) The provision and dissemination of warning, (b) Search and rescue, (c) Survey, assessment and reporting of disaster
effects, (d) Treatment and care of victims, (e) Clearance of debris, rehabilitation of roads, airfields, railways, etc. (f) Provision of emergency food, water and
shelter, (g) Evacuation of people and livestock , (h) Provision of health and sanitation measures, (i) restoration of essential services such as communications,
water and power supplies, (j) Direction and coordination of counter-disaster measures, (k) Information and advise to the public, (l) Immediate financial
assistance to victims, (m) Maintenance of public morale, (n) Counseling of victims and relatives, (o) Control and distribution of emergency supplies, (p)
Liaison with media, (q) Rehabilitation of crops, production and other aspects of subsistence and livelihood, ® Emergency building programs, (s) Measures for
long-term recovery and application of emergency regulations..
A sound organizational system is one of the major keys to successful disaster management. Operational coherency during response operations is
having a clear picture of the needs caused by the disaster and the pattern of action being taken to cope with such needs.
F. The Disaster Threats
In order for us to anticipate actions for response and recovery, it is important for disaster managers to analyze the effects of disaster in relation to
their own local circumstances to define in advance the requirements that apply to each disaster management cycle. There can be variations in the process by
which disaster management authorities and associated scientific and technical agencies define the threat from any particular form of disaster. The ability to
define disaster threats accurately is likely to vary between countries depending on national standards and disaster-related activities such as study and
research. The basic pattern comprises the main areas of identifying hazards, assessing vulnerability of settlements, communities and assets to relevant
hazards and the evaluation of risks. The hazard, vulnerability and risk information serves to illustrate the value of disaster threat information as applied to
disaster management, i.e. the formulation of disaster plans (preparedness, response and recovery), formulation of relevant training and public awareness
programs, definition and application of measures which can reduce vulnerability in specific areas and the formulation of long-term programs for mitigation and
prevention.
1. Traditional Disaster Threats

Natural phenomena such as earthquakes, cyclones, volcanic eruptions, tsunamis, wildfires, floods, landslides and droughts and
man-made counterparts such as major accidents and civil unrest still persists, hence they are referred to as “traditional disaster threats”.
These disasters continue to give grievous human casualties / loss of lives, injuries, damage and destruction of properties, subsistence and cash crops,
disruption of production, and lifestyle, economic and social loss such as loss of livelihood, disruption of essential services, and damage to national
infrastructure and environment and non-quantifiable sociological and psychological after-effects.
Mankind has learned to cope with them to some extent but they could never be eliminated or contained. Some of the long-standing threats have
grown more severe. In the 1920’s, the risk of air disaster was insignificant as only a few aircraft were in the air and chance for collision as very remote and
affecting only a few people. As more and more aircraft crowd the skies, the risk of air disaster has enormously increased such as the collision of passenger
jets in 1977 at Azores resulting to the death of 561 people. In 1988, a total of 270 people died following a terrorist sabotage of an airliner in Scotland 9. Of
course, the most recent terrorist attack on the twin towers of the World Trade Center using jetliners killing more than 6000 people was one of the worst
tragedies that hit the USA resulting to damages of far more thane ever imagined by mankind.
The increase of population has forced people to live in disaster-prone areas, especially in developing countries such as the squatters in flood-
prone areas of major river systems in the Philippines, particularly in Metro-Manila. What is often regarded as “progress”, in fact, could be considered as a
backward or retrogressing step. In our cyclone-prone country, traditional building construction, designed to cope with high winds, has been modified.
Increasing population again dictates the needs for more water, so the use of tin roofing and metallic structures has been espoused by our legislators to
preserve the trees of the watershed areas and enhance water collection. However, a piece of tin-roofing material ripped off a house and flown by swift
typhoon winds can be lethal and enough to decapitate people.
2. New Disaster Threats
New disaster threats have developed after World War II. Increased social violence has drastically affected many nations and communities such as
cases of hijacking terrorism, civil unrest and conflict with conventional arms. The development of hazardous materials or substances brought about by rapid
industrialization has hatched a new breed of lethal threat. The Bhopal (India) tragedy in 1985 has killed about 3000 people and affected a hundred thousand
inhabitants in various ways as highly toxic materials from Union Carbide leaked into the atmosphere. The uncontrolled dumping of poisonous waste materials
such as chemicals and nuclear byproducts into the ocean floors constitute a disaster threat much greater than those posed by natural phenomena.
The threat from atomic and nuclear sources poses yet another modern problem for disaster management. The 1986 explosion at Chernobyl Power
Plant in Russia highlighted the extent and severity of problems resulting from radiation overexposure killing hundreds of people and requiring mass
evacuation of 135,000 more. Radioactivity was observed as far away as 1600 miles affecting all forms of life such as pasture grasslands and surrounding
bodies of water, the main source of food of dairy animals and the habitat of aquatic flora and fauna. This technological advancement brought about by the
increasing need to search for new and greater sources of energy has led to a disaster of unimaginable magnitude. And although the “Cold War” era is over
and the possibility of nuclear war diminished, the probability of terrorists using nuclear weapons or “dirty bombs’ and other weapons of mass destruction could
9
Carter, Nick W. “ The Significance of Disaster”. Disaster Management: A Disaster Manager’s Handbook. Asian Development Bank. 1991. p 4.
10
not be entirely ruled out and people will severely suffer. Thus, this has become one of the most compelling issues, aside from political reasons, for the
mothballing of the Bataan Nuclear Power Plant by the Aquino administration.
3. Types of Natural Disasters

Natural calamities may be categorized into major and minor types depending upon their potential to cause damage to human life and property.
Natural calamities like earthquakes, droughts, floods and typhoons could be regarded as major calamities. Avalanches, landslides, fire accidents, etc.
whose impact is localized and intensity of the damage is much less can be categorized as minor calamities.
Minor calamities occur without any appreciable degree of forewarning and cause damage to properties and lives. Areas prone to such disasters
could be identified and certain precautionary measures taken in the context of potential threat requiring general awareness and an ability to relate to a
predefined system of appropriate responses on the part of the local administration.
4. Geographic Dimension of Disasters

Statistics will show that most of the world’s worst disasters tend to occur between the Tropic of Cancer and the Tropic of Capricorn, and
coincidentally, this is the area where poorer setbacks to economic progress, as in the case of the Philippines which is blessed with a chain of volcanoes and
frequently visited by about 26 to 39 typhoons a year. Natural calamities such as typhoons and floods cause a slowdown on agricultural and industrial
production, damage physical infrastructures and exact a high toll on human life. “Managing” disasters, crises or emergencies, is therefore a continuing
challenge.
Among the ASEAN countries, the Philippines is frequently subjected and/or visited with various man-made or natural calamities/disasters as
experienced in the previous years. Due to, our country is being called the Circum-Pacific belt of fire and typhoons in the Region.
5. Disaster Characteristics, Countermeasures and Problem Areas

a. Earthquakes
Earthquakes have unusually sudden speed of occurrence and cannot be predicted. It has no warning signs except observations of unusual
behavior from animals such as ants, termites and other earth-burrowing dwellers. After a major earthquake, secondary shocks may give warning of a further
earthquake. The earthquake-prone areas are generally well-identified and known and the major effects arise mainly from land movement, fracture or
slippage. Earthquakes result to very severe damages to structures and systems and considerable casualties due to lack of warning. General
countermeasures to prevent these damages include: land use regulations, building regulations, relocation of communities, public awareness and education
program and the development of possible electronic warning indicators such as advanced seismographs and other sensors. Special problem areas include:
the need for urgent search and rescue and medical assistance before major after shocks cause total collapse of structures with trapped survivors, difficulty of
access and movement due to damaged roads, bridges, airports and widespread losses in essential services and life support systems, extensive and costly
recovery requirements as in the case of the July 16, 1990 Northern Luzon “killer earthquake”.10
b. Volcanic Eruptions
Volcanoes most likely to constitute a disaster threat are well-documented and in many cases monitored for possible activity. Major eruptions can be
predicted as in the case of Mount Mayon, Taal, Bulusan, Hibok-hibok, etc. Mount Pinatubo eruption was unexpected by most people as it has been dormant
for several hundred years. Volcanic blast can destroy structures and environment and also cause fires and land surface cracking affect buildings and other
structures, Lava flow can bury buildings and crops, cause fires and render land unusable, ashes cause eye and respiratory problems, affects aircraft and
passenger safety due to ingestion into engines, lahar deposits destroy crops, fishponds, bridges and water supplies, mudflows arise during heavy rainfall
resulting to massive destruction of infrastructure such as bridges, control dikes, etc. 11 General countermeasures against the effects of volcanic eruptions
include: land use regulations, lava control systems, development of monitoring and warning systems, evacuation pans and arrangements, relocation of
population, public awareness and education programs. Problem areas include: accessibility during eruption, timely and accurate evacuation decisions, public
apathy due to false alarms, control of incoming sightseers when evacuation programs are implemented. Evacuation may be resisted by native inhabitants
such as the Buluga or Aeta tribes in Zambales province.
c. Tsunami or Seismic Sea waves

Tsunamis are seismic sea waves which are characterized by very destructive effects brought about by waves which go as high as 30 meters. The velocity
of the wave depends on the depth of water at the point where the seismic disturbance occurs. Initial wave velocity may be as high as 900 kph, slowing don to
approximately 50 kph as the wave strikes the land. The impact on the shoreline can be preceded by marked recession of normal water level prior to arrival of
the wave. People may be trapped by going to investigate the phenomenon on the outgoing tide and then struck by the incoming wave. The impact can cause
flooding, salt water contamination of crops, soil and water supplies, destruction of buildings, structures and shoreline vegetation. General countermeasures
against tsunami damages include: optimum arrangements for receipt and dissemination of warning, evacuation of threatened communities from sea level ,
low areas to higher grounds, land use regulations, public awareness and education programs. Special problems areas include: timely dissemination of
warning in view of the possible short period between receipt of warning and the arrival of tsunami wave, effective evacuation time-scale, search and rescue
and very extensive an costly recovery due to destruction / damages.
d. Tropical Cyclone / Typhoons

Tropical cyclones are the most destructive weather disturbances due to voluminous rains and strong winds. They are characterized by low pressure
center called the “eye” of the storm with no rain or wind. The winds of a tropical cyclone blow this low pressure center in a counterclockwise direction in the
Northern hemisphere with increasing magnitude as one approaches the eye. The typhoon season in the Philippines begins in the month of May and lasts until
January. Tropical cyclones may form as early as March but these are relatively few in number. Most typhoons form during the months of July to September.
The size and shape of typhoons vary a great deal from 100 miles to 600 miles or more in diameter. Most typhoons originate from Easterly waves – a wind
system called “trade winds” a great river of air moving from east to west at an average speed of 16 to 19 kilometers per hour depending on the season.
Factors favoring the formation of typhoons are: warm ocean surface (more than 27 oC), weak vertical wind shear, sufficient latitude to get the twisting effect
from earth’s rotation.
Tropical cyclones normally have long warning, derived from the systematic international meteorological observation such as satellite remote
sensing. Forecasting tropical cyclones is a highly specialized job which can be best accomplished by experienced meteorologists with the aid of computers
and satellites. In their absence, barometers may be used ( pressure decrease of 3 inches or more in four hours duration) or 5 inches or more in 24 hour
duration. Sea swells breaking intermittently at the time when winds are light indicate that a storm is somewhere in the ocean. Blood red coloration of clouds
may also indicate the existence of a storm 12. Storms are likewise characterized by gradual speed of onset and conformity to seasonal pattern. Major effects
arise mainly from destructive force winds, storm surge causing inundation and flooding from intense rainfall. Landslides may follow flooding and heavy rainfall.
10
Final Report on the July 16, 1990 Earthquake. National Disaster Coordinating Council, OCD, DND, Camp Aguinaldo, Quexon City. October 22, 1990.
11
Summary of Extent of Destruction of Mount Pinatubo Eruptions, Lahar Flows and Flashfloods.. June 1991 – December 199 and Summary report on Mount Mayon Eruption.
OCD, DND, Camp Aguinaldo, Quezon City. February 2, 1993.
12
Philippine Navy Typhoon Doctrine. HPN SOP Number 4. December 21, 1971.
11
Destruction and severe damage may be caused to buildings and other structures, roads, essential services, crops and the environment. Major of human lives
and livestock may occur. General countermeasures include: effective warning arrangements, precautionary measures during warning period, moving people
to safe shelters, general readiness and cleanup measures prior to expected cyclone season, building regulations, public education and awareness. Special
problems areas include: difficulty in the assessment of effects and needs especially due to bad weather following main disaster impact, problems of carrying
out emergency feeding, shelter and medical assistance programs due to poor accessibility and mobility resulting form high damage levels and loss of
counter-disaster measures, search and rescue, evacuation, rehabilitation of agriculture, disruption of services.
e. Floods
Floods may either have long, short or have no warning at all. Flooding within parts of a major river system may develop over a number of days or even
weeks, whereas flashfloods give no warning as in the case of the “Ormoc Disaster”. 13 The speed of the onset may be gradual or sudden, flooding may follow
seasonal patterns and major effects mainly arise from inundation and erosion, isolation of communities and may involve the need for large-scale evacuation.
General countermeasures include: flood control such as the use of walls, gates, dams, dykes, levees, implementation of land use and building regulations,
forecasting, monitoring and warning systems, relocation of population, evacuation plans and arrangements, use of emergency equipment, facilities and
materials such as special flood boats / amphibious vehicles, sandbags and supplies of and, public awareness and education programs. Special problem
areas include: difficulties of access and movement, rescue and evacuation operations, medical and health or sanitation, loss of relief supplies, large-scale
relief requirements until next crop harvest.
f. Landslides
Landslides are characterized by: variable warning period, rapid onset speed, damage to structures and systems – buildings may be buried or swept away,
rivers may be blocked causing flooding, crops may be affected, little or no warning may be available if the cause of the landslide is an earthquake (as in the
case of the collapse of Mount Parker water reservoir, the Payatas Dumpsite Incident and the Cherry Hill Disaster) but some general warning may be
assumed if it is caused by heavy rains. General countermeasures include: implementation of land use and building regulations, employment of monitoring
systems, evacuation and relocation of communities and public awareness programs. Special problem areas include: difficulties of access and movement in
affected areas, search and rescue, risk of follow-up landslides may hamper response operations.
g. Bushfire
Most bushfire-prone areas are well known and defined and the occurrence is seasonal. For example, bushfire in the Mountain provinces in Northern
Luzon always occur during prolonged dry season. Onset speed may vary, high temperatures and high winds may cause rapid spread of fires. The effects can
be very destructive, especially in loss of buildings, timber, wildlife habitat and livestock. Recovery from effects of bushfire on the environment may take several
years and evacuation of communities may be difficult and dangerous in the face of a major fire front.
h. Drought
Droughts have been recorded even in the old testament bible. They are characterized by prolonged duration but major areas liable to drought are
well known, areas affected may be large, warning period is long, the effects on agriculture, livestock, rural industry production and human habitation may be
severe and may lead to prolonged shortage of food or famine. The recent series of “El Nino” phenomenon occurring in various parts of the world due to loss of
ozone layer and “greenhouse effect” has brought about a new trend of global ecological problems such as the meltdown of eons old glaciers resulting to the
rise of sea water level. The long-term effects of drought can be in the form of economic loss, erosion which affects future habitation and production, and
sometimes abandonment of large tracts of land, man-made activities may aggravate the possibility and extent of drought problem such as overgrazing of
agricultural land, slash and burn (kaingin) farming. There are a few, if any, quick solutions to the drought problem: effective countermeasures tend to be mostly
long-term. Land management and special plans may be implemented such as reforestation programs for preservation of watersheds, construction of
structures to store water, etc. Response to drought-caused emergencies usually includes provision of food, water, medical supplies and health assistance,
emergency accommodation. Special problem areas include: extensive and prolonged response requirements involving major commitment and expenditure of
resources, prolonged drought may undermine self-reliance of affected communities, logistic requirements may exceed in-country capabilities.
i. Epidemic / Outbreaks
Disaster-related epidemic arises generally from the disrupted living conditions which follow disaster impact. Epidemic may arise from: food and water
sources, inadequate medical and health facilities, malnutrition, vector-borne sources, bio-terrorism and use of bacteriological weapons of mass destruction
containing virulent viruses and bacteria such as anthrax. Types of diseases which can spread into outbreaks include: SARS, hepatitis, ebola, bubonic plague,
typhoid, diptheria, malaria, cholera, influenza, enteritis, diarrhea, skin diseases, food poisoning, Under post-impact conditions, when personnel and facilities
may be limited, outbreaks may prove difficult to contain and control. This may apply if community health education is substandard. The general
countermeasures include: effective medical / health plans. Close monitoring of medical and health aspects, reinforcement of medical resources and supplies
in anticipation of outbreaks. Special problem areas include: loss of medical and health resources during disaster impact, in-country shortage of special
equipment, integration of international and local medical assistance systems, containment and control of common diseases.
j. Selected Major Philippine Disasters

Recent massive loss of lives and destruction of properties in the aftermath of a series of national misfortunes have caused extensive dislocation to
affected inhabitants in the disaster-stricken areas in our country. Among these “world-class” calamities and disasters include: the “Killer Earthquake of July 16,
1990 that devastated Northern Luzon, Typhoon “Uring” which claimed lives of 6,161 people on November 4, 1991 during the so-called “Ormoc Disaster”,
Typhoon “Ruping” which struck regions 5, 6, 7 and 9 between November 14-20, 1990, the Mount Pinatubo eruption on June 12, 1991, Mount Mayon
Explosion on February, 2, 1993, The flashfloods in Eastern Mindanao on February 2, 1993, the killer tidal waves of Mindoro on 14 November 1994, etc.
The most lethal contributor to mass deaths are air and sea accidents. According to the records of the Philippine Coast Guard, the most deadly sea
disasters recorded in history occurred in our territorial waters, surpassing the death toll of the famous sinking of the “Titanic” reported in the Guinness Book of
World Records. The most accident-prone area involving the death of a few thousand people were at the congested waterways between Manila bay and
Tablas Strait near Marinduque and Mindoro. These inclkde the collision of M/V Dona Paz and MT Vector in 1988, The M/V Sulcon XI and M/V Aboitiz Con VIII
in 1993, the M/V Filipina Princess and M/V Unimaster in 1994, F/B Cris and M/B Island Queen and the collision of M/V Cebu City and M/T Kuta Suria in
1994, the recent collision of Super Ferry 12 and M/V San Nicolas in Manila Bay this year. Most of these sea mishaps were traced to complacency or
incompetence of ships’ crew on duty, Captains’ failure to follow international regulations the “Maritime Rules of the Road” and poor navigational equipment
also contribute to such deadly collisions at sea..14
The Philippines, because of its geographical location is very susceptible to disasters. In fact, the Center for Research on the Epidemiology of
Disasters in Belgium, in a diagnostic study conducted on the vulnerability of countries, reported that the Philippines is the most disaster prone country in the
world (NDCC Briefing for Cabinet Members, 2003). Every year, an average of 20 typhoons enter the country’s area of responsibility causing billions of pesos
13
Final Report on Tropical Storm “Uring” . OCD, NDCC, DND, Camp Aguinaldo, Q. C. November 1991.
14
Manila Standard. “2,234 Sea Mishaps Including 115 Collisions Killed 6,127”. December 15, 1994.
12
worth of damages. Drought brought about by the El Nino phenomenon caused untold suffering to millions of people in Mindanao in 1998. Floods are a
common occurrence in the country, the worst of which was the Ormoc flash flood which killed 8,000 people. The unforgettable 1990 killer quake killed 1,666
people and injured 3,500 others. This was followed in 1991 by the worst volcanic eruption of the century, the Mount Pinatubo eruption, causing the death of
800 persons and property damage worth P10.6B. Another source of misery for the country are recurring landslides like that of Cherry Hills (59 dead) and the
Payatas incident (224 dead). Then, there are the man-made calamities such as maritime and air disasters, bombing incidents and the continuing conflict in
Mindanao which continues to kill, maim, and injure persons, displace families, destroy properties and cause untold sufferings to so many people. Records
show that for the period 1987 to 2000, there were 523 different disasters that stuck the country causing damage estimated at P157.071B, not to mention the
psycho-social effects they had on the survivor-victims (DND Briefing for Cabinet Members, 2003).
Calamity happens anywhere and anytime mostly with little or no warning with varying degrees of destructive capacity. They may also be
compounded as when an earthquake also causes flood, fire, and if the epicenter is offshore, even seismic (tidal) waves. The possible dangers from these
natural hazards cannot be ignored and neither can man-made accidents of disaster proportions. If a situation is reached or is developing whereby the Police,
Fire and Ambulance services or the normal emergency services of the Local Government are inadequate, it is a case for emergency measures and to meet
such occurrences, planned arrangements must be available (The Facts of Civil Defense, Department of National Defense, Undated). Thus, laws have been
enacted to address the safety and welfare of the people as well as to save and protect property when disaster strikes. The Armed Forces of
the Philippines and the Philippine Navy play a vital role in the conduct of disaster response operations in such times of calamities whether
natural or man-made and it is for this reason that leaders of the AFP should have a working knowledge of the subject. Over a period of 32 years
(1970 to 2002), typhoons that hit our country has resulted to the following damages: 18,339 human deaths, 22,333 injured and 6,233 missing persons,
affected 1,688,664 families or 83,765,406 persons, displaced 2,111,246 families or 9,398,995 persons, totally damaged 2,140,938 houses, partially damaged
4876,742 houses with a total economic loss amounting to P 139,994.84 million pesos.15
These disasters have brought so much misery and confusion to our countrymen, most especially in the remote areas where there are poor or non-
existent communications and warning systems. Most often, commercial telecommunications networks are heavily damaged, sometimes beyond economic
repair, thus, people are isolated from the rest of the world where they expect to receive help in the form of search and rescue, relief and rehabilitation efforts
up to the time government and non-governmental organizations step-in for reconstruction.16
The series of disasters that hit our country has become a major obstacle to economic development and in the attainment of our national
leadership’s dreams of building a strong republic. Cognizant of the country’s vulnerability to various natural disasters and their impact on our environment and
the people’s socio-economic status, the President through the NDCC, has undertaken Disaster Preparedness Plans and has always been allocating
resources for disaster mitigation and management.
The Calamities and Disaster Preparedness Plan that was originally drafted in 1970 and amended since then, aims to save lives, prevent needles
suffering, protect property and minimize damages during disasters and calamities. This comprehensive plan is composed of ten component services:
Communications and warning, emergency transportation, evacuation service, reserve and engineering services, health services, auxiliary fire services, police
auxiliary services, rehabilitation service and public information service.
Unless disaster can be mitigated to the optimum extent possible, it will continue to dominate our country’s economic stagnation. This would be so because of
the repeated loss of existing national assets and the diversion of national resources and effort, away from ongoing subsistence and development. There is a
need therefore for a comprehensive approach to cover all aspects of disaster management such as prevention, mitigation, preparedness, response, recovery
and other related development.
G. Counter-Disaster Resources
1. Types of Resources
National resources include national government and non-government organizations and international resources. Government resources include
all the different departments, Bureaus (Please see Annex A), Commissions, and government-owned and controlled corporations. Non-government resources
include: private airlines, shipping companies, amateur radio operators, flying clubs, chambers of commerce, church and religious groups, community service
clubs, food suppliers, general agents, red cross, transport companies, welfare organizations and members of the public ( volunteers, blood donors).
The use of international resources depends on (a) the scale and effectiveness of one’s own resources, (b) Bilateral assistance arrangements
with allies, (c) Political implications of accepting assistance, (d) Suitability of international resources in a particular disaster situation. The type of international
resources most generally needed by stricken country fall into the following categories:
(a) Pre-disaster Stage
Equipment and expertise for developing measures of prevention, mitigation and preparedness, i.e. the provision of emergency communications or
development of plans and organizational arrangements.
(b) During Response Operations
Monitoring and warning of a potential threat, Post-impact survey and assessment, provision of emergency equipment and facilities such as shelter
materials, food and medical supplies and personnel.
(c) During Recovery Programs
Technical assistance in the form of building materials, equipment, re-housing programs, extended feeding programs, financial grants, agricultural
redevelopment programs, etc.
(d) For Future Development
Assistance from the resources of overseas governments and international organizations, as extension of recovery programs.
2. Evaluation of Resources
(a) Capability
National resource organizations need to be evaluated in order to determine their suitability and effectiveness for disaster management purposes as
to capability, availability, durability and operational integrity.. The ability of resource organizations to carry out designated disaster-related tasks such as first
aid, search and rescue, emergency feeding, building repairs, welfare assistance, counseling of victims and disaster workers. Experienced organizations
produce best results as compared to inexperienced operatives. Government policy and financial constraints may affect disaster roles of various organizations.
(b) Availability
Availability of resources and lead-time before responding must be considered. Volunteer organizations may be delayed due to mobilization
difficulties. Internal arrangements within resource organizations for switching over to disaster roles will also affect availability time-scales.
© Durability / Endurance
Durability means the degree to which the resource organizations can carry out sustained operations and when they need to be relieved by other organizations
such as: extreme weather conditions, limited resources, heavy task loads, high levels of damage and disruption, community trauma and suffering. A crisis-
oriented organization is likely to be highly trained and well-equipped Non-crisis-oriented organizations have lower durability.
15
http://www.ndcc.com.ph. Summary of Damages – Destructive Tropical Typhoons. OCD, NDCC, DND. 2003
16
Cejoco, Vicente L. A Study on the Feasibility of Establishing a National Telecommunications Network for Disasters and Calamities. Bachelor of Science in
Electronics and Communications Engineering Thesis. March Central Colleges of the Philippines. 1995.
13
(d) Operational Integrity
This is the ability of a resource organization to take on an allotted task and complete it satisfactorily without supervision or continuous detailed
direction from the disaster coordinating authority.
H. International Disaster Assistance

Modern concept of international disaster assistance started with the introduction of the US Marshall Plan immediately following World War II which
constituted international disaster assistance on a massive scale. Europe was shattered by the disaster of global war and was threatened by political,
economic and social uncertainties unless given substantial assistance towards recovery. The Marshall Plan aims to rehabilitate the economies of post-World
War II European nations in order to create stable conditions in which democratic institutions could survive 17. The plan’s concept of economic aid was very
successful and it was later extended to underdeveloped countries world-wide. This provided a great deal of experience and precedent on which to develop
current and future disaster assistance programs. The increasing interdependence of nations tends to give disaster assistance a respectable image and make
it acceptable part of international relations. However, it is still the prerogative of the stricken country whether or not it will accept international assistance.
Types of assistance are divided into four broad categories: pre-disaster, response, recovery and future development. The responsibility for
dealing with international assistance should be clearly defined who should take relevant action. Likewise, the channels for dealing with these aid packages
should be defined and well-understood by both recipients and donors and must be stated in the National Disaster Plan and in any bilateral memorandum of
understanding.
One of the most damaging aspects of international assistance is inefficiency of the recipient country in arrangements for reception and
utilization of resources and commodities. In some circumstances, problems can arise locally from international assistance such as over-dependence on
aid which erodes self-reliance, rapid injection of aid such as food items can upset a local economy when local markets and production are
interdependent. Often local food stocks held in warehouses may be damaged by the disaster or bulk of refrigerated goods may deteriorate due to lack of
power supply and result to food wastages. International assistance prompted by best humanitarian reasons, may arrive very early after impact, while local
food stocks are still adequate. This can embarrass the local situation but the recipient government in the interest of good relations cannot reject such
assistance. Another potential problem is oversupply of aid not suitable to the actual needs of the victims such as sending canned goods like corned beef
to Hindus, or pork products to Muslim disaster victims, skimpy bikinis to inhabitants of semi-arctic regions, high-heeled shoes and brassieres to primitive
tribes living in remote villages who would never likely wear them, etc.
I. Disaster Prevention
Disaster prevention are measures which are aimed at impeding the occurrence of a disaster event and preventing such occurrence
having harmful effects on communities such as construction of dams and levees. Problem areas in prevention include traditional outlooks, costs,
national priorities, political aspects, development, balance in disaster management and apathy.
A nation which has survived recurring flood problems fro centuries may not recognize preventive measures because the people are already
“immune” to said floods. The cost of some preventive measures can be very high due to large public works or engineering projects required. Higher priorities
may be given to other national programs and preventive measures are sometimes marginalized or received little attention in national development programs.
Political motives may sometimes adversely affect disaster prevention. The spread and increase of population may expose people to disaster risks, because
they may be obliged to live in areas like flood-prone housing zones or low-lying islands. Forcing people to move may not be feasible for political or economic
reasons. Normal development may cause problems such as safety considerations in constructing airports near highly populated areas like NAIA (Pasay City)
which will increase the risk on people’s lives in the event of a major air accident such as emergency landing due to malfunctioning aircraft flight control and
landing systems. Lack of appropriate preventive measures may increase the loads on other aspects of disaster management when calamities occur such as
response and recovery.
There is a need for a clear and comprehensive national disaster policy which addresses the total disaster management spectrum. The government
must be ready to institute preventive measures regardless of their popularity. Legislation may be resorted to implement measures of prevention such as
mandatory building codes and land zoning. The need for prevention could be accurately identified and defined if there is an adequate assessment and
monitoring of disaster hazards. For example, installing high-rise buildings and tall radio or TV broadcast towers near airstrips are forbidden.
Resources that may be used to identify and analyze disaster threats are: (a) academic institutions, (b) research establishments, (c) technical
authorities, (d) scientific programs, (e) government departments and agencies which may have major public safety responsibilities, e.g. DOTC: ATO, LTO,
PCG, (f) private sector authorities concerned with programs and projects which may generate potential disaster threats, e.g. companies manufacturing
hazardous chemicals, (g) industrial safety organizations, (h) international assistance agencies in connection with development projects of various kinds.
The resources to assess then potential need for and possibilities of implementing programs of disaster prevention include:(a) government
departments, organizations and agencies, (b) national planning authorities, (c) disaster management authorities, (d) co-opted specialist institutions.
To implement disaster prevention programs and measures, the following resources may be used: (a) government departments with technical
capability and expertise, (b) private sector companies and contractors, (c) military forces, (d) international disaster assistance agencies, (e) disaster
management authorities. Disaster prevention activity can be supported by: (a) non-government organizations, (b) media, (c) general public, (d) educational
authorities.
J. Disaster Mitigation
Mitigation involve measures aimed at reducing the impact or effects of a natural or man-made disaster on a nation or community. Mitigation
components may be structural or non-structural. Non-structural mitigation include: legislations, incentives / inducements such as lower insurance
premiums for hazard-resistant buildings, training and education of stakeholders, public awareness of local hazards and vulnerabilities, mitigation measures
and community preparedness programs, provision of warning systems and agricultural mitigation measures. Structural mitigation include: engineered
infrastructures, employing architects and engineers, and non-engineered structures constructed by owners themselves who lack formal training.
Examples of mitigation measures are the following: (a) Strengthening buildings to render them more resistant against cyclones and floods or installing rollers
against earthquakes, (b) Incorporation of hazard resistance in structures or procedures to be followed in new development projects, (c) Planting certain
varieties of crops that are less affected by specific kinds of disaster, (d) Changing crop cycles so that crops mature and are harvested before the onset of
flood or typhoon season, (e) Adoption of land-use planning and controls to restrict activities in high-risk areas, (f) Economic diversification to allow losses in
one sector to be offset by increased output in other sectors.
Problems areas in mitigation include: costs, higher priorities given to other major national programs, inadequate measures may cause overload
on response operations, inadequate planning may reduce the effectiveness of mitigation.
1. Guiding Principles in Mitigation

The following are the guiding principles in disaster mitigation: (a) Disasters offer unique opportunities to introduce mitigation measures in the context of
reconstruction, new investments and the existing environment. (b) Mitigation measures are complex and interdependent and they involve widespread
responsibility, therefore, effective leadership and coordination are essential to provide a focal point. Active mitigation measures that rely on incentives are
17
Carter, Nick W. “International Disaster Assistance”. Disaster Management: A Disaster Manager’s Handbook. Asian Development Bank. 1991. Pp 108 - 118.
14
more effective than passive measures based on restrictive laws and controls. Mitigation must not be isolated from related elements of disaster planning such
as preparedness, relief and reconstruction.
2. Requirements for Effective Mitigation

The following factors are to be followed in order to achieve effective mitigation programs: (a) A clear and comprehensive national disaster policy
which addresses all aspects of disaster management and ensures that mitigation is given proper consideration and priority, (b) Adequate assessment and
monitoring of disaster hazards and vulnerabilities – an effective vulnerability analysis is a primary pre-requisite, (c) Adequate and accurate analysis of all
reasonable mitigation projects, (d) Readiness of the government to institute appropriate mitigation programs, (e) Inclusion of mitigation measures in National
development Plans, (f) A basis of organization and planning centered on a permanent disaster management section, (g) Post-disaster review every after
major disaster events, (h) Specialist programs which may assist in the development of large-scale mitigation measures, (i) Support of self-reliance and self-
help at community level.
K. Disaster Response
Response refers to the measures taken immediately prior to and following disaster. Such measures are directed towards saving life and protecting
property and to dealing with the immediate damage caused by the disaster. Disaster response on the other hand is defined as ‘planning, initiation and conduct
of appropriate measures and actions, which would minimize catastrophic effects of any natural or man made calamity on human lives and materials.
Response measures are those which are taken immediately prior to and following disaster. Such measures are directed towards saving life and protecting
property and to dealing with the immediate damage caused by disaster. “From the above definition it is clear that the scope of response is usually extensive
and that its success must depend vitally on good preparedness. The effectiveness or otherwise of response also has a considerable bearing on subsequent
recovery requirements and activities.
Response operations usually have to be carried out under disruptive and sometimes traumatic conditions. Often, they are difficult to implement
and they tend to make heavy demands on personnel, equipment and other resources. Thus, without a sound basis of planning, organization and training,
response operations are unlikely to achieve optimum success.
Effective response to the impact of disaster is critical, mainly in order to (a) Limit casualties, (b) Alleviate hardship and suffering, (c) Restore
essential life support and community system, (d) Mitigate further damage and loss, and (e) Provide the foundation for subsequent recovery.
There are certain characteristics which typically apply to response effort, These include: (a) The type of disaster - depending on its type, the onset
of disaster may provide long warning, short warning or no warning at all. This will obviously influence the effectiveness of activation, mobilization and
application of response effort. (b) The severity and extent of disaster - these represents the size and shape of the response problem and particularly affects
aspects such as: (1) the ability of response effort to cope with the problem; (2) the urgency of response action and the priorities which are applied; (3)
exacerbation of disaster effects if appropriate action is not taken; (4) requirements for external assistance. (c) The ability to take pre-impact action - if
warning time and other conditions permit pre-impact action to be taken (in the form of evacuation, shelter and other protective measures), this may have a
major effect on the success of response overall. (d) The capability for sustained operations - A frequent requirement of response operations is that they must
be sustained over a long enough period to be fully effective. Several factors are involved here, including: (1)resource capacity; (2) management, (3)
community self-reliance; (4) international assistance. However, the capability to sustain operatio9nns, relative to potential threats, is a disaster management
objective which needs to be carefully addresses both during preparedness and response action itself. (f) Identification of likely response requirements - an
important characteristic of response is that it is generally possible to identify beforehand the kind of response action which is likely to be needed for any
particular disaster. The effects likely to emanate from individual disasters are well established. Thus, the required response actions are also identifiable. This
represents a considerable advantage in disaster management terms, in that it is possible to plan and prepare for well-defined response action in the face of
potential threats. This, again, constitutes a tangible objectives for disaster management. It is suggested that an assessment of response needs in the light of
the foregoing and similar factors, has useful application to most circumstances.
1. Some Problem Areas in Response

Problem areas include: background factors, inadequate preparedness, warning factors and slow activation of response system, etc. Background
Factors may particularly apply to preparedness such as (a) lack of adequate policy direction, (b) poor organization, (c) inadequate planning.
Inadequate preparedness can be caused by: (a) plans becoming out-dated, (b) low standards of readiness on the part of resource organizations,
(c) poor public awareness, (d) a disaster of unexpected magnitude. Warning factors may include: (a) inadequate warning lead-time, (b) errors in warning
information, (c) faults in warning systems, usually for technical reasons, (d) delays in transmission of warning to key officials or organizations, (e) failure of
public warning system ( e.g radio broadcast stations) due to effects of disaster impact, (f) failure of people to respond to warning.
Slow activation of the response system may be due to: (a) warning factors, (b) poor system for activation, (c) lack of functional readiness ( e.g. in
emergency operations centers), (d) lack of testing and exercising the response system, (e) coincide with some national events (e.g. national holidays).
Effects of impact and crisis pressure may include: (a) disruption to or loss of communications, (b) destruction or delayed availability of planned
resources (e.g. transport, relief supplies ), (c) damage to key installations such as power supplies, emergency operations centers, communications facilities,
(d) high damage levels generally, (e) loss of key personnel.
Difficulties in survey of damage and assessment of needs may arise from: (a) adverse weather conditions following disaster impact (e.g. post
cyclonic low cloud and heavy rain), (b) lack of suitable aircraft for survey purpose, (c) difficulties of ground survey (perhaps caused by problems of access
and movement), (d) inadequate planning and preparation to cover this requirement, which has to cover a number of detailed aspects, (e) loss of vehicles or
vessels.
Inaccurate and / or incomplete information from survey can cause serious response problems through inaccurate figures of people who are: (a)
homeless, (b) without food and shelter, (c) in need of medical assistance. Convergence on to the disaster area or site by large numbers of people and
vehicles can seriously interfere with response operations. Poor information management may arise from a number of aspects , such as: (a) gathering and
collation of information, (b) evaluation of information, (c) decision making, (d) dissemination of decisions and information. The OCD, DND established the
Emergency Management Information System (EMIS) to generate critical information for decision-making in disaster management. 18
Inadequate relief commodities may involve essential items, such as: (a) foods supplies, (b) water supplies, (c) shelter materials ( tents,
tarpaulins, etc) ; (d) medical supplies. Logistics problems can be caused by shortage of air, sea and land transport for the distribution of relief supplies and
other activities. Poor coordination of response operations result from problems involving: (a) information, (b) duplication of effort, (c)
unwillingness of some private sector organizations to work within a coordinating system, (d) inadequate training of personnel.
Inadequate public awareness can cause various difficulties for disaster management authorities when dealing with the requirements of stricken
communities, especially if the latter do not understand local plans and arrangements. If arrangements for dealing with the media are inadequate or
unsatisfactory, this is likely to cause problems for the disaster management authorities. Response operation may be adversely affected if expected
international assistance is delayed, inadequate or inappropriate. This can arise if effective prior arrangements have not been with relevant overseas agencies.
2. Requirements for Effective Response
18
http://www.ndcc.gov.ph/emis_detail.html. “The Emergency Management System (EMIS). 2003
15
Wide international experience has shown that effective response depends fundamentally on two factors: (a) Information and (b) Resources.
Without these two vital components, the best plans, management arrangements, expect staff and so on become virtually useless. The effectiveness of
response operations will depend vitally on the general background of preparedness which applies. This includes various aspects of policy direction, planning,
organization and training. The readiness of resource organization ( both government and non-government) to respond to disaster situations, often at very
short notice, is a very important requirement for response operations. Sometimes, failure on the part of only one designated organization may seriously upset
the total response effort. However, disaster management authorities do need to bear in mind that the response lead-time for resource organization can differ
markedly. Response management needs to take account of, and harmonize differences in organizational lead-time if a balanced response is to be achieved.
An effective system of warning is vitally important for successful response operations; even though there are bound to be some occasions when little or no
warning will be available. The main needs for warning are:(a) Initial detection, as early as possible, of the likelihood that a disaster will occur, (b) Origination of
the warning process as early as practicable, bearing in mind false or unnecessary warning needs to be avoided. In this regards, however, precautions can be
built into the warning sequence by ensuring that , where doubt exist , only key officials are initially informed. (c) Effective means of transmitting warning
information, (d) Facilities to receive and assess warning information. (e) Response decisions, as a result of assessing warning information, (f) Dissemination
of response decisions and, as appropriate, broadcast of warning information to the public.
Preliminary reaction to warning, before a disaster actually strikes, can save lives and property. This preliminary reaction might include: (a) Closing of
schools, offices and other public places, (b) Checking emergency power supplies and similar facilities, (c) Taking precautions in households to ensure
supplies of food and drinking water. It is re-emphasized that preliminary reaction usually needs to be planned beforehand and, where necessary, the relevant
information passed to disaster-related organization and the public.. It is a common experience in Metro-Manila for example, that students have already
reached their schools before classes are suspended by DECS even during heavy rains which result to flooding in the streets or even classrooms,
unnecessarily exposing them to the dangers of drowning in filthy flood waters.
The evacuation of communities, groups or individuals is a frequent requirement during response operations. Evacuation is usually (a)
Precautionary - undertaken on warning indicators, prior to impact, in order to protect disaster-threatened persons from the full effects of the disaster) or (b)
Post–impact - in order to move persons from a disaster-stricken area into safer, better surroundings and conditions). The question of evacuation is a
complex one which involves a wide range of factors.
For rapid and effective response, there usually needs to be a system for activating disaster management officials and resource organizations. It is
useful to implement activation in stages. These might be Alert, Stand-by and Action. The benefit of this arrangement is that if, after the initial warning, the
disaster does not materialize, activation can be called off. Thus, full mobilization of resource can be avoided and the minimum of disruption is caused to
normal life. It is advisable for government departments and other resource organizations to work to this system of stages in their own internal plans.
Coordination of the action taken in response operations is very important. Good co-ordination ensures that resource organizations are utilize to
best effect, therefore avoiding gaps or duplication in operational tasks.
Appropriate emergency operations centers are essential for achieving effective co-ordination, because the EOC system is designed to facilitate
information management and accurate decision making. Also, appropriate disaster management committees (usually at national, intermediate and local
government levels) are necessary, in order to ensure that, as far as possible, there is overall co-ordination in decision making and i9n the allocation of tasks.
As with all aspects of disaster management, good communications are essential for effective response. Also, since communications may be
adversely affected by disaster impact, reserve communications (with their own power supplies) are necessary part of response arrangements. The value of
solar-powered communications especially under severe disaster conditions, can be considerable. This system does not work in areas where thick (nimbus)
clouds cover the rays of the sun. It is virtually impossible to carry out effective response operations without accurate survey of damage and consequent
assessment of relief and other needs. To be fully effective, survey and assessment needs to be carefully planned and organized beforehand. It usually calls
for: (a) survey from the air using PAF and PN air assets, (b) survey by field teams, (c) accurate reporting from disaster management and other official
authorities in or near the disaster area. In most cases, a general survey needs to be made as early as possible after impact, with follow-up surveys as
necessary. Some training is usually required for personnel who are required to carry out survey and assessment duties. This is necessary in order to ensure
the accuracy of information which is collected. The information gathered through survey and assessment is, of course, vitally important for the implementation
of immediate relief measures. However, it should also be noted that much of the information is also required for the formulation of recovery programs.
In the confused circumstances which tend to exist following disaster impact, it is not easy to obtain accurate and complete information. However,
without accurate and comprehensive information, it is difficult to ensure that response operations are focused upon the correct tasks, in the right order of
priority. Emergency operations centers are essential for effective information management. Especially, EOCs ensure that information is correctly
processed according to the proven intelligence cycle of: (a) Collection / acquisition of information, (b) Information analysis, evaluation and assessment, (c)
Decision making, (d) Dissemination of decisions and information. Therefore, even if there are limitations in obtaining information, the EOC system will make
the best use of that which is available.
3. Major Emergency Response Aspects

Following the impact of disaster, there are usually varying degrees of damage to, or destruction of, the systems which support everyday life.
Communities therefore need help (usually urgently) in order to subsist through the emergency phase and beyond. Key aspect of this assistance include: (a)
Rescue - To rescue persons who may be trapped in buildings and under debris, isolated by flood waters, or need rescuing for any other reason. (b)
Treatment and care of victims so as: (1) To dispose of the dead, (2) To render first aid, (3) To ensure identification tagging of casualties. To identify needs
in terms of medical treatment, hospitalization and medical evacuation; and to deal with these accordingly. (c) Evacuation - to determine whether persons
need to be evacuated from the stricken area immediately, or whether such a requirement is likely to arise later. (d) Shelter - to provide shelter for victims
whose housing has been destroyed or rendered unusable. This may involve: (1) making urgent repair to some housing, (2) issuing tents and / or tarpaulins to
provide means of temporary shelter, (3) accommodating groups of homeless people in community buildings such as schools. (e) Food - to organize and
distribute food to disaster victims and also emergency workers, to estimate damage to crops and food stocks, to estimate food reserves available ( including
unharvested crops). (f) Communications - to re-establish essential radio, telephone, telex and facsimile links. (g) Clearance and Access- to clear key
roads, airfields and ports in order to allow access for vehicles, aircraft and shipping; also to prepare helicopter landing sites. (h) Water and power supplies -
to re-establish water and power supplies, or to make temporary arrangements for them. The provision of potable water is often difficult, particularly in the early
post-impact stages. Water purifying equipment might therefore have to be obtained and/or water purifying tablets issued. (i) Temporary subsistence
supplies - to provide supplies, such as clothing, disaster kits, cooking utensils and plastic sheeting, so as to enable victims to subsist temporarily in their own
area, thus helping to reduce the need for evacuation. (j) Health and Sanitation - to take measures to safeguard the health of people in the stricken area and
to maintain reasonable sanitation facilities. (k) Public Information - to keep the stricken community informed on what they should do, especially in terms of
self-help, and on what action is in hand to assist them. To prevent speculation and rumor concerning the future situation. (l) Security - to maintain law and
order, especially to prevent looting and unnecessary damage. (m) Construction requirements - to estimate high priority building repair and replacement
requirements. (n) Disaster Welfare Inquiry - to make arrangements to handle national and international inquiries concerning the welfare of citizens and
residence, including tracing of missing persons.(o) Maintenance of Public Morale - depending on cultural and other local circumstances, to make
arrangements for counseling and spiritual support of the stricken community. This may involve religious bodies, welfare agencies and other appropriate
organization. (p) Other Requirements - depending on individual circumstances, other requirements, additional to those above, may arise.
4. Allocations of Tasks
If planning and preparedness has been properly carried out, the majority of response tasks, as outlined in the foregoing paragraph, will have been
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designated beforehand to appropriate government departments and other resource organizations. For instance: (a) Public Works Department to undertake
debris clearance tasks, etc., (b) Medical and Health Department to implement health and sanitation measures., (c) Police to maintain law and order, and to
assist with control of people and vehicles around the disaster area, (d) Red Cross to carry out first aid and other emergency welfare assistance.
The disaster management authority may need to give especial attention to tasks such as emergency feeding and emergency shelter programs,
since these tend not to be in the normal day-to-day schedules of government departments and other organizations. Priorities for the implementation of
response tasks are usually decided by the appropriate level of disaster committee. These priorities may have to be changed frequently and both disaster
management authorities and resource organizations need to be capable of accepting and implementing such changes.
The ready availability of relief supplies and commodities is an important factor in effective response. After disaster impact there is usually in
urgent need to provide and distribute: (a) Food, (b) Drinking water, (c) Clothing, (d) Shelter materials, (e) Medical supplies and assistance.
Disaster management action therefore needs to cover two main areas: (a) Obtaining the various commodities from government stores, emergency
stockpiles, commercial supplies and international assistance sources; and (b) Organizing the distribution of this commodities according to the best possible
orders of priority.
International assistance resources often play a valuable part in response operations. These resources mainly comprise relief commodities,
especially food, shelter and medical supplies. However, specialist personnel and equipment are also available for damage survey and similar tasks. Disaster
management authorities responsible for response operations should also bare in mind that some international agencies and some countries hold stockpiles of
relief supplies conveniently situated around the world. Access to such stockpiles maybe extremely valuable in terms of urgent need.
Good public co-operation with the disaster response authorities is essential if response operations are to be successful. The foundation of such
co-operation should, of course, belayed during the public awareness programs which are a necessary part of preparedness. However, disaster response and
coordinating authorities should remember that the affected public needs to keep informed. This particularly applies to intended response action and the timing
of relief supplies.
If the affected public is not kept as fully inform as possible, rumors and false reports are likely to be started, thus causing problems of cooperation
for the response authorities. Disaster, especially major disaster, is news, hence, media cooperation is important. Consequently, requests for information by
local and international media are inevitable. Thus, it is clearly advisable to have well-organized arrangement to deal with aspect. These arrangements are
usually outlined in plans and standards operating procedures, and they are responsibilities of government information and broadcasting agencies. It is
important that conditions in the stricken nation should be accurately reported internationally and that there should be no misreporting or misrepresentation of
international assistance effort. Most disasters events will be superceded by other happenings on the scene in a fairly short time. Therefore, to avoid possible
misunderstandings and misinterpretation, it is important to give media representative appropriate opportunities to be briefed and to gather information as soon
as possible after disaster impact. Delays may lead to some media representative making their own news, which may not be in the best interest of the affected
nation. Good relations with the local media are also important and usually two-way benefits are involved. Not only do the local media benefit from good co-
operation from the disaster management authority, but they can also perform valuable services in roles such as warning, evacuation and public awareness. It
is recognized that during pressurized response operations, disaster management authorities may regard media information as having to take a low priority.
However, this should and can be avoided if proper arrangements are in place and appropriate use is made of specialist information staff.
It is important, especially in the interest of operational coherency, that disaster managers should try to develop and maintain a pattern of
management during response operations.
Resource management depends on four major factors: (a) A capable EOC system. (b) A good information picture, (c) Effective communication
between the disaster management and individual resource organizations. (d) Sensible commitment of resource organizations to operational tasks, bearing in
mind their capability and durability. Given that these factors can be applied, it is useful if the response management authority works to a pattern of: (a)
Maintaining the best possible information picture (from surveys, situation reports and other information) concerning the disaster situation and the tasks which
may need to be undertaken. (b) Establishing priorities for tasks. (c) Committing resources to tasks in the most effective manner, bearing in mind that
personnel need time for meals and reasonable rest periods. (d) Continuously assessing the situation in terms of: (1) tasks competed, (2) tasks needing to be
undertaken, (3) resources available, (4) possible reinforcement by additional resources, etc. (d) Maintaining close liaison with other relevant disaster
management authorities (e.g. committees at higher and lower government levels). (e) Maintaining close liaison with non-government organization. (f) Keeping
the public as fully informed as practicable., (g) Utilizing self-help from within the community.
5. Period of Response Operations

Most governments find it expedient to keep the period of emergency response operations down to a fairly limited period . This period
usually tends to be 2-3 weeks, after which remaining relief and associated needs are met through the normal systems and processes of government. Undue
extension of the emergency is usually regarded as undesirable in order to avoid: (a) Over dependence on emergency aid (especially food supplies), (b)
Adverse effects on the local commercial system, and (c) Unnecessary delay in returning to normal community life. It may be useful, therefore, for disaster
managers to bear this likely time frame in mind in formulating their overall concept of response operations.
6. Follow-on from Response Operation

Response operations will usually constitute a short, pressurized period of activity. The major aims of disaster management during this period can be
summarized as follows: (a) To counter the initial effects of disaster impact as rapidly and effectively as possible. (b) To utilize all suitable resources in a
coordinated manner, (c) To provide urgent needs to stricken communities, (d) To rehabilitate, as far as possible, those facilities and systems which are of
priority importance to the functioning of the national system and way of life,. (e) The emergency response period is therefore a transient one. It does not have
a definite cut-off point in terms of national and community requirements. Indeed, from a disaster manager’s viewpoint, the period is best regarded as a vital
bridge between the shock and disruption caused by disaster impact and the organized process of returning to normal. This means that, following the official
ending of the emergency phase, there will still be a need to continue certain relief activities (e.g. that is emergency feeding); (f) Convert some of these relief
activities into more formal types of rehabilitation program (e.g. it may become necessary for the stricken nation to establish a long-term community assistance
program); (g) Extend some temporary measures (e.g. the emergency clearance and repair of port facilities) into major programs of restoration; and (h) assist
all post-emergency phase activities and requirements and co-ordinate them into an overall recovery program.
Before the recovery program can be put fully into implementation ( and this may take several months) there tend s to be a somewhat blurred period.
Many people who have been directly involved in disaster situations have cited this period as the most difficult of all in disaster management. It is important
that disaster managers should be aware that this period is likely to arise following most disasters and that it tends to be caused by: (a) The ending of
emergency powers which usually apply during response operations, (b) The transfer of responsibility from the central disaster management authority ( i.e. the
National Disaster Council) back to individual government departments, (c) The necessary continuance of relief activities by non-government organizations,
whether or not government agencies are involved, (d)The addition of many disaster-caused problems to the normal work load of most government, non-
government and private sector organizations. (e) The residual social and psychological problems which are likely to exist within the community following the
disaster.
It is also worth noting that to overcome this difficult blurred period that some governments have deemed it advisable to utilize a Technical Advisory
Team during the emergency response period. The main purpose of such a team (whilst standing aside from the emergency response operations) has been to
identify the strands of relief, rehabilitation and restoration which emerge post-disaster and bring these strands together for integration into the total recovery
program. In this way, response operations, emergency relief, initial rehabilitation and restoration measures are carried through into the definitive programs
which constitute the total recovery process.
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7. Human Factors in Response
The turbulence and pressures of response operations do not usually allow much opportunity for coping in detail with the trauma inflicted upon
communities and individuals. Obviously, extreme cases have to be dealt with by medical attention and associated counseling, but generally this activity tends
to fall within recovery programs. However, it is essential that disaster management officials should understand that many human factors are involved during
response operations. This understanding can materially assist in the assessment of various situations and in the process of decision making. In brief, the main
factors tends to be:
(a) The plight of disaster victims - In extreme disaster circumstances, the plight of disaster victims is severe and traumatic. Shock, personal
injury, bereavement, loss, turmoil and other aspects have a severe effect on the capability of victims to comprehend their circumstances, to realize what is
being done for them in disaster management terms and to co-operate in a meaningful and positive way in their own relief and rehabilitation. It is true that
extended family members and persons from neighboring community areas will usually be available to provide assistance of various kinds. (“Bayanihan spirit”).
But, severely affected victims themselves constitute a response liability which disaster managers must recognize. In less severe disaster circumstances,
where community members are capable of providing some coherent self-help, the situation may be more encouraging. However, disaster managers must still
recognize that unless levels of community preparedness and experience are high, there may well be problems of organizing self-help in a productive way.
(b) The nature of the counter-disaster tasks - The nature of the counter-disaster tasks also involves human considerations in most
circumstances. The nature of response operations can make heavy physical and mental demands on emergency workers. This may well result in lowered
functional capacity of resource organizations.
(c) The worker/family factor - Disaster circumstances will very often result in some emergency workers being separated from their families, with
consequent fear and apprehension on both sides. Indeed, cases are known where, for instance, volunteer firefighters have been engaged in trying to save the
community as a whole, while their own families were being put at risk under homes and properties destroyed. This is clearly a disaster management factor
which is difficult to handle and one which can only be mitigated according to local events. However, disaster managers need to be aware of it and to be
prepared to resolve it as best possible.
(d) The transfer factor - The impact of disaster can affect both victims and emergency workers. There is, however, an additional factor which
needs to be taken into account. This is the transfer of trauma effects from the disaster victims to the emergency worker. This can particularly apply when
emergency workers are inexperienced volunteers and are exposed to disaster trauma for the first time. For instance, a case is known where welfare workers,
distributing food to disaster victims, were so badly affected by the latter’s suffering that they themselves became unable to continue this important response
task.
8. Resources Relevant to Various Aspects of Response

Disaster circumstances, particularly if they are severe, are likely to require response from the widest possible range of resources. This may even
include people who had themselves become victims. Given below are the main categories of resources which are, therefore, applicable to response.
Resources capable of assisting in the definition of response requirements and the type of operations required to deal with them: (a) disaster study and
research institution;, (b) disaster management authorities; (c) disaster records, especially of post-disaster review and analysis.
Resource organizations primarily concerned with direction, co-ordination and management of response operation: (a) national disaster
management authority; (b) regional or provincial disaster committees; (c) special task forces; (d self-contained international assistance teams. Resource
organizations which provides support for management and direction by the provision of specialist information and advise: (a) meteorological services; (b)
geological services; (c) technical advisory services; (d specialist in various other fields, as required.
Resources organizations which carry out allotted tasks in response operations: (a) standard emergency services (police, fire authorities,
ambulance services etc); (b) government departments, organizations and agencies; (c) military services; (d) non-government organizations, including welfare
agencies, religious bodies and a wide range of community services; (e) emergency task force teams; (f) international assistance teams; (g) community self-
help teams.
CHAPTER IV - Disaster Legislation
A. The Need for Disaster Legislation

International experience show that disasters may bring about the following outcomes 19: (a) The fall of governments due to inadequacies in disaster
management, (b)( National loss and damage on a crippling scale, (c) Problems with international assistance program, (d) Delays in national development, (e)
Severe human trauma, hardship and suffering, (f) Widespread destruction of and damage to the environment.
Dealing with disasters effectively requires a carefully calculated and accurate approach, culminating in a series of counter-measures which involve
government, non-government agencies, the private sector and the general public. This actions will benefit if there exist some form of legal backing. Lack of
disaster legislation causes problems and there are no recorded cases where legislation became a hindrance or constraint.
The following are the benefits of disaster legislation: (a) It provides a formal basis for counter-disaster action, supports plans, organizational
arrangements, preparedness measures, response action, etc., (b) It allocates major responsibilities in legal form and helps ensure that such responsibilities
are properly implemented., (c) It can be made to have a uniform national effect, thus ensuring that all levels of the national counter-disaster structure receive
the full benefit of its support, (d) It provides a wide protection measure for:(1) Governments, (2) Organizations and individuals carrying out disaster activities,
(3) Organizations or individuals affected by disasters, (e) It does not have a conflict with other legislation, such as emergency powers.
B. The National Disaster Coordinating Council (NDCC)

1. History of NDCC 20
Disasters have always been a part of Filipinos’ lives but they have learned to live with their wrath by force of circumstances. And, by virtue of its
geographic location in the pacific, the Philippines can never get rid of the threats of disaster, and the people have no other choice but to live in harmony with
the destructive effects of typhoons, floods, drought and other calamities bestowed upon them. Filipinos has learned to be resilient to difficulties brought about
by these destructive calamities and rise back from the ashes like a phoenix. Deeply concerned with the serious effects of disaster upon the lives and
properties of the people, the Philippine government has devised survival schemes to counteract their effects. National legislation laid down the grounds for the
establishment of disaster organizations at all levels of government, planning for all types of emergencies, and delineating tasks and responsibilities on
disaster management to various government agencies.
President Manuel L. Quezon issued two Executive Orders during the Commonwealth period, namely: Executive Order Nos. 335 and 337.
Executive Order No. 335 created the Civilian Emergency Administration (CEA) , which was tasked primarily through the National Emergency
Commission (NEC) to formulate and execute policies and plans for the protection and welfare of the civilian population under extraordinary and emergency
conditions. The National Emergency Commission (NEC), which was established to administer the CEA, was composed of the following official members: (1)
Philippine National Red Cross (PNRC) Manager; (2) Director of Publicity and Propaganda; (3) Food Administrator; (4) Industrial Production Administration; (5)
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Carter, Nick W. “Disaster Legislation”. Disaster Management: A Disaster Manager’s Handbook. Asian Development Bank. 1991. PP 72 – 83.
20
http://ndcc..gov.ph
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National Welfare Warden; (6) Director of Communications; (7) Fuel and Transportation Administration; (8) Other officials as may be appointed from time to
time.
Local emergency committees from the provincial, city and municipal levels were likewise organized with the following structure: (1) Chairman -
Provincial Governor/City/Municipal Mayor; (2) Members: (a) Provincial/City/Municipal Treasurer, (b) Ranking Teacher or Principal, (c) Chief of Police, (d)
Sanitary Officer, (e) Provincial/City/Municipal Agriculturist, (f) Representative of the Municipal Council Local Units - Volunteer Guard, (g) Air-raid Protection,
(h) Protection of Utilities and Industries, (i) Food Administration, (j) Evacuation, (k) Public Welfare and Morale, (l) Transportation and Fuel Administration, (m)
Medical and Sanitary, (n) Publicity and Propaganda, (o) Other services as may be authorized from time to time.
The organization and training of volunteer guards and air-raid protection units were given much emphasis by the government during that time with
the issuance of Executive Order No. 337 which empowered the volunteer guards to assist the maintenance of peace and order in the locality, to safeguard
public utilities and to provide assistance and aid to the people during natural or man- made disasters.
During the Japanese occupation, the puppet government under President Jose P. Laurel issued Executive Order No. 36 which created the
Civilian Protection Service (CPS) which was empowered to formulate and execute plans and policies for the protection of civilian population during air
raids and other national emergencies. The Civilian Protection Service functioned through a Civilian Protection Administration (CPA) which was composed
of three members, namely, the Civilian Protection Administrator, the Chief of the Air Warden and the Chief of the Medical and First Aid Service.
Executive Order No. 36 also provided for the establishment of the Provincial, City and Municipal Protection Committee with the Provincial
Governor, City and Municipal Mayor as Chairman, respectively. Members of the local protection committees included the highest local official of the
Treasurer's Office, Justice, Engineer's Office, Schools, Health and the Police. These executive orders had mandated the formulation of plans for the
protection of the people during a national emergency but literatures on this regard were absent which revealed the sad state of the country's disaster
preparedness program even during those times. This could have also been one of the reasons why we were caught unprepared on December 8, 1941.
Republic Act 1190, otherwise known as the Civil Defense Act of 1954 was promulgated as a result of difficulties experienced during World War II,
the country's vulnerability to all types of disasters particularly typhoons and floods, and the nuclear arms race of the three superpowers in the 1950's. Under
RA 1190, a National Civil Defense Administration (NCDA) was established which was tasked primarily to provide protection and welfare to the civilian
population during war or other national emergencies of equally grave character. RA 1190 also provided for the establishment of civil defense councils at the
national and local levels, namely: the National Civil Defense Council (NCDC) and the provincial, city and municipal civil defense councils, respectively:
The NCDC was composed of the following: (1) Chairman: NCDC Administrator; (2) Members: (a) Chairman, Committee on National Defense and
Security of both Houses of Congress, (b) Chief, Philippine Constabulary, (c) Commissioner of Social Welfare, (d) Manager, Philippine National Red Cross, (e)
Manager, Philippine National Development Company, (f) Manager, Price Stabilization Council. The Provincial Governor, City and Municipal Mayor as the
Provincial, City and Municipal Civil Defense Director, respectively, were designated as local civil defense council members. The municipalities and cities which
were directly under the supervision of the Provincial Civil Defense Director relative to civil defense services, were the main basic operating units for the
purpose.
The operating services of the national and civil defense organizations were as follows: (a) Warden Service; (b) Police Service; (c) Fire Service; d)
Health Service; (e) Rescue and Engineering Service; (f) Emergency Welfare Service; (g) Transportation Service; (h) Communication Service; (i) Evacuation
Service; (j) Air-raid Warning Service; and (k) Auxiliary Service.
The National Civil Defense Administration (created in 1954) , as a planning body under the Office of the President, has been constrained to
carry out its functions effectively due to budgetary constraints and the apathy and indifference by the public and the government itself to NCDA's disaster
preparedness and prevention programs.
The collapse of Ruby Tower building in Manila in 1968 to a powerful earthquake, reversed the general public’s and government’s negative attitude
towards disaster management programs leading to the creation of a National Committee on Disaster Operation through Administrative Order No. 151
issued on December 2, 1968. The composition of the Committee was as follows: (a) Chairman - Executive Secretary, (b) Vice-Chairman - Secretary of Social
Welfare, (c) Members - Secretary of National Defense, Secretary of Health, Secretary of Public Works and Natural Resources, Secretary of Commerce and
Industry, Secretary of Education, Secretary of Community Development , Commissioner of the Budget, Secretary-General, Philippine National Red Cross,
Executive Officer - A Designated National Coordinator.
Under this Order, the national committee was created to ensure effective coordination of operations of the different agencies during disasters
caused by typhoons, floods, fires, earthquakes, and other calamities. To carry out its functions effectively, the Committee Chairman issued a Standard
Operating Procedure which prescribed for the organizational set-up for disasters from the national down to the municipal level, their duties and responsibilities
and the preparation by concerned agencies of their respective SOPs for the same purpose as the national SOP.
.On October 19, 1970, as an aftermath of Typhoon "Sening" which ravaged the Bicol Region, the flooding of Metro Manila for almost three months,
a Disaster and Calamities Plan prepared by an Inter-Departmental Planning Group on Disasters and Calamities, was approved by the President. The Plan
has provided, among others, the creation of a National Disaster Control Center which was composed of the following: Chairman - Secretary of National
Defense; Overall Coordinator - Executive Secretary; Members: Secretary of Health, Secretary of Public Works and Communications, Secretary of Agriculture
and Natural Resources, Secretary of Commerce and Industry, Secretary of Education, Secretary of Community Development. NCDA was abolished and
transferred its functions and personnel and those of the NDCC to a newly-created agency - the Office of Civil Defense (OCD), which was entrusted the
mission of ensuring the protection and welfare of the people during disasters or emergencies. Under Letter of Implementation No. 19, Series of 1972, the
missions and functions of OCD are enumerated.
On June 11, 1978, PD 1566 was issued to strengthen the Philippine disaster control capability and to establish a community disaster
preparedness program nationwide. PD 1566 formally Established the NDCC, RDCC and Local DCCs. Among the salient provisions of the Decree are
the following:
• State policy on self-reliance among local officials and their constituents in responding to disasters or emergencies;
•Organization of disaster coordinating councils from the national down to the municipal level;
• Statement of duties and responsibilities of the National Disaster Coordinating Council (NDCC), RDCCs and LDCCs;
• Preparation of the National Calamities and Disaster Preparedness Plan (NCDPP) by OCD and implementing plans by NDCC member-agencies;
• Conduct of periodic drills and exercises; and
•Authority for government units to program their funds for disaster preparedness activities in addition to the 2% calamity fund as provided for in PD 474
(amended by RA 8185).
The National Disaster Control Center, which was created on October 19, 1970, is the forerunner of the National Disaster Coordinating
Council created under PD 1566. It serves as the highest policy-making body for disasters in the country and includes almost all Department Secretaries as
members. The original composition of the NDCC was as follows: (a) Chairman: Minister of National Defense; (b) Members: Minister of Public Works and
Highways, Minister of Transportation and Communications, Minister of Social Services and Development, Minister of Agriculture, Minister of Education,
Culture and Sports, Minister of Finance, Minister of Labor and Employment, Minister of Trade and Industry, Minister of Local Government and Devt., Minister
of Health, Minister of Natural Resources, Minister of Public Information, Minister of Budget, Minister of Justice, Presidential Executive Assistant, Chief of
Staff, Armed Forces of the Phils., Secretary-General, Philippine National Red Cross, Member and Executive Officer - Administrator, Office of Civil Defense.
The disaster coordinating councils (DCCs) from the regional, provincial, city and municipal level, on the other hand, are composed of
representatives of national government agencies operating at these levels and local officials concerned. A more detailed discussion of the DCCs will be made
in the succeeding session. In the late 1980s, the UN declared the 1990s as the International Decade for Natural Disaster Reduction with the objective to
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reduce the loss of life, property damage, social and economic disruption caused by natural disasters through a concerted effort in the international and local
fronts.
The NDCC and the member-agencies of the Council were identified as those responsible in addressing the concerns of the IDNDR as it fell within
the scope of NDCC. The NDCC created four committees to support the UN objectives and these were the Committees on Structural Measures, Non -
Structural Measures, Disaster Research and Disaster Legislation headed by DPWH, OCD, DOST and DOT, respectively. Through these IDNDR Committees,
disaster mitigation initiatives were evolved such as the submission to Congress of a proposed legislation to strengthen the Philippine Disaster Preparedness,
Prevention and Mitigation capability.
During Estrada’s Administration, new program thrusts were developed and pursued to address the emerging concerns and need along civil protection
and emergency management. One of these is Vulnerability Reduction and Risk Management which is a major component of the Disaster Management
continuum. Notable projects along this line are the Brigada Kontra Baha and Linis Bayan which are intended to mitigate/minimize flooding through de-clogging
of canals, esteros, rivers and other drainage systems involving NG-LGU-Private sector participation. This is in line with its policy to strengthen the institutional
structures for coordination, implementation and enforcement of policies for the promotion of welfare of the vulnerable sectors, including disaster victims.
The program thrusts on disaster management under the Estrada administration were the following: (a) Emergency Preparedness and Response,
(b) Vulnerability Reduction and Risk Management, (c) Human Resource Development, (d) Advocacy for Civil Protection.
2. NDCC Tasks
The NDCC has four primary tasks: (a) preparation of National Disaster and Calamities Readiness Plan, (b) Organization of a Disaster Coordinating
Council down to municipal level, (c) Development of self-reliance among government units in disaster management, and finally, (d) To advise the President on
the status of the national disaster preparedness program, disaster operations and rehabilitation efforts of the government and the private sectors.
C. Basic Philippine Laws on Disaster Management

There are governing laws, policies and guidelines that will address the disaster response and/or preparedness in our country in order to
avoid/preempt/minimize loss of lives and damage to properties against a hostile environment. These laws are:
1. PRESIDENTIAL 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".
(a) Salient Provisions:

 State policy on self-reliance among local officials and their constituents in preparing for, responding to and recovering from disasters.
 Organization of the National, Regional and Local Disaster Coordinating Councils(DCCs).
 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.
 Conduct of periodic drills and exercises by concerned agencies and local DCCs.
 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.
(b) Rules and Regulations on the implementation of PD 1566
Under the IRR of PD 1566, the disaster management activities of DCC member-agencies as well as procedures and guidelines for inter-agency
coordination and dissemination of information during the three (3) phases are defined.
(b) 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 and assistance 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 integration in 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 of 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 with facilities 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 operating procedures and other relevant
documents. Inform concerned officials and agencies in the province as well as the general public of the warning system.
(c ). Disaster Phase
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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 the national government supporting the efforts of the Council. Evaluation of survey results
and submission of damage report and recommendation to NDCC through the RDCC
(d) Post-Disaster Phase

 Cross-checking of data
 Cross-checking of damage report with pre-emergency data obtained to facilitate the location or whereabouts of persons and to assess available
community resources for rehabilitation purposes.
 Rehabilitation Requirements
 Determines the nature and extent of rehabilitation efforts to be undertaken and requests for assistance from appropriate government agencies,
private offices/agencies or individuals, if the situation goes beyond the capability of the PDCC.
(e) Levels of Implementation
PD 1566 emphasizes the importance of disaster preparedness in order to usher the survival capability of mankind and economic growth of our
country. Relatedly, Disaster Coordinating Councils were created so that responsibility of all government agencies involved will be defined in order to avoid
confusion. This will result to better actions relative to the disaster response operations.
(1) At the National Level
Secretary, Department of National Defense Chairman

Secretary, Department of Public Works.
and Transportation and Communication - Member
Secretary, Department of Social Services and
Development - Member
Secretary, Department of Agriculture - Member
Secretary, Department of Education and
Culture - Member
Secretary, Department of Finance - Member
Secretary, Department of Labor - Member
Secretary, Department of Justice - Member
Secretary, Department of Trade - Member
Secretary, Department of Local Government
and Community Development - Member
Secretary, Department of Health - Member
Secretary, Department of Natural Resources - Member
Secretary, Department of Public Information - Member
Commissioner, Budget Commission - Member
Presidential Executive Assistant - Member
Presidential Assistant on General Governments Member
Chief of Staff, Armed Forces of the Philippines - Member
Secretary General, Philippine National Red Cross - Member
Administrator, Office of Civil Defense - Member and Executive Officer
Furthermore, their respective functions and tasks as members of the councils were spelled-out for their information and guidance.
(2) At the Regional Level
There shall be constituted a Regional Disaster Coordinating Council with the Regional Commissioner or the official so designated by the President
as Chairman. The Council shall be composed of the executives of regional offices and field stations at the regional level.
(3). At the Local Government Level

(a) In Metro Manila - The Metro Manila Governor shall be the Chairman and shall determine the composition of the Council.
(b) At the Provincial Level - The Provincial Governor is the Chairman while the Police Superintendent of the Integrated National Police is the
Vice-Chairman. The membership of the Council shall be determined by the Provincial Governor.
(c) At the City/Municipal Level - The City/Municipal Mayor will be the chairman while the Station Commander of the Integrated National Police is
the Vice-Chairman. The Councils shall be further composed of organic City/Municipal officials as well as National Officials assigned to the City/Municipality.3
As the Minister of National Defense and Chairman, National Disaster Coordinating Council, Juan Ponce Enrile promulgated the implementing
rules and regulations pursuant to Section 7 of PD 1566 dated 11 June 1978. These rules and regulations applied to all government ministries, agencies,
corporations, and political subdivisions of the country as well as that of the private sector. In his behalf, the OCD Administrator and Executive Officer of the
National Disaster Coordinating Council shall be responsible in the coordination of implementation of the disaster preparedness program of the country.4
3. PD 1096, ( National Building Code of the Philippines)

PD 1096 specifies minimum requirements and standards building design for buildings to protect against fires and natural disasters. Rule 1040 of
the Occupational Safety and Health Standards (as amended) provides for the organization of 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 workplace is located.
3. PD 1185, (Fire Code of the Philippines) -

PD 1185 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) Provision for fire safety construction, protection and warning system such as fire sprinklers, alarm devices, firewalls, fire exit plan, etc. (d) Conduct of
periodic fire and exit drills.
4. R.A. 7160, ( Local Government Code (LGC) of 1991, as amended)
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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.
5. RA 8185 – ( LOCAL CALAMITY FUND) )
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 and other works or services in connection with calamities occurring during the
budget year: Provided, however, that such fund shall be used only in the area or a portion thereof, of the local government unit, or other areas affected by a
disaster or calamity, as determined and declared by the local Sanggunian concerned.
(a) Requisites for the use of the 5% Local Calamity Fund:

Appropriation in the LGU budget as annual lump sum appropriations for disaster relief, rehabilitation and reconstruction.
To be used for calamities occurring during the budget year in the LGU or other LGUs affected by a disaster or calamity.
Passage of a Sanggunian Resolution re calamity area declaration.
In case of fire, the LCF can be used only for relief operations.
It will be noted that the 5% LCF cannot be used for disaster preparedness activities of the LGUs unlike the National Calamity Fund. One of the reasons given
by the authors of RA 8185 was that the local government units should already program their preparedness activities in their respective budgets for the
ensuing year.
(b) Procedures for the Allocation, Release, Accounting and Reporting of Local Calamity Fund:
1. In case of calamity and upon the recommendation of the local Chief Executive based on the reports of the local DCC, the local Sanggunian shall
immediately convene within 24 hours from the occurrence of the calamity and pass a Resolution declaring a state of calamity in the area/s of the LGU
affected by the calamity and adopt measures to protect the lives and properties in the area and implement disaster mitigation.Sanggunian Bayan
resolutions embodying the declaration need not be reviewed by the Sangguniang Panlalawigan. However, when the whole province is being affected
by a calamity, the Sangguniang Panlalawigan, upon the recommendation of the Provincial Governor, declare the whole province under a state of
calamity. The Sangguniang Bayan of the respective municipalities need not declare their areas as calamity areas.
2. The local Budget Officer shall release the allotment from the 50% Calamity Fund within24 hours from the occurrence of the calamity, provided the following
requirements are present:
 • Approved Disbursement Voucher
 • Sangguniang Resolution containing the calamity area declaration, and
 • Local DCC reports on damages.
3. Pending the passage of the Sangguniang resolution on the calamity area declaration, the local Chief Executive may already draw cash advances from the
General Fund which should not exceed 50% of the total Calamity Fund, subject to replacement after receipt of the above Sanggunian Resolution.
4. The Local Treasurer shall submit a utilization report, duly approved by the local chief executive, to the Sanggunian concerned, Commission on Audit, and
Local Development Council, copy furnished the LDCC.
5. For unused or unexpended balance of the local CF at the end of the current year, the fund shall be reverted to the unappropriated surplus for
reappropriation during the succeeding year, except unused funds for capital outlay which shall remain valid until fully spent or reverted.
5. PRESIDENTIAL ISSUANCES
(a) EO 948, s-1984 - On the grant of compensatory benefits to disaster volunteer workers (Note: This has yet to be enforced).
(b) Proclamation No. 296 s, 1988 as amended by EO 137, s-1999 declaring the lst Week of July of every year as Natural Disaster Consciousness Week
(now Whole Month of July as National Disaster Consciousness Month)
(c) PMO No. 36, s-1992 as amended by PMO No. 42, s-1997 on the establishment of a special facility for the importation and donation of relief goods and
equipment in calamity-stricken areas. Requirements for availment of importation and donation of food, clothing, medicines and equipment under this special
facility:
• Calamity area declaration either by the President of the Philippines or local Sanggunian pursuant to RA 8185.
• For relief and rehabilitation programs of the Government in areas declared under a state of calamity.
• The importations and donations should be in accordance with Sec. 105 of Tariff, and Customs Code and pertinent provisions of the GAA on national
internal revenue taxes and import duties of the national and local government agencies.
• Importations, which are considered as importations by OP, shall be consigned to the latter.
• Favorable endorsement by the following departments:
(a) DSWD - Relief clothing and Food
(b) DOH – Medicine
© DND - Rehabilitation Equipment
With respect to importation and donation of rehabilitation equipment, prior approval by the President is needed before the necessary clearances
are issued.
(d) Clearance from the Office of the President.
PMO dated February 10, 1999 on the guidelines on the programming and use of
calamity fund.
(e) Guidelines:
• NCF to be programmed as an interventive fund of the President.
• Repair and maintenance of government infrastructure to be sourced, to the extent possible, from the regular budget of agencies concerned.
• Requests for NCF shall be accompanied with justifications with regard to the following: (1)Urgency of the project, (2) High impact to the community, and (3)
Non-availability of funding source other than the calamity Fund.
• Submission of post-evaluation report to OP.
(c) 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.
Salient Provisions:
1. Declaration of the whole month of July of every year as National Disaster Consciousness Month. This is to allow national and local government agencies
as well as the general public to implement their disaster awareness campaign with longer focus and on a comprehensive basis.
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2. Implementation of a Civil Defense Deputization Program at the local government level. The Civil Defense Deputization Program calls for the designation of
Civil Defense Deputized Coordinators (CDDCs) or Tanggol Patrols by the LGUs who shall serve as focal point of civil protection and disaster management
programs at the local government level. The CDCCs are also the Executive Officers of their respective DCCs.
6. NDCC ISSUANCES
(a) MEMO Order No. 02, s-1999 - Revised policies and procedures on calamity fund management. Upon the assumption of DND Secretary Orlando S.
Mercado, one of his initial actions Chairman, NDCC, was the call for a review of the policies and procedures on the requesting, allocating, release and
monitoring of calamity funds. He wanted to come up with a fund management system that is characterized with responsiveness, transparency and
accountability to prevent its misuse and ensure that the NCF shall be used only for the purpose for which it is intended.
(b) Memorandum Order No. 13, s-1998 - Amended Policies and Procedures on the Provision of Financial Assistance to Victims of Disasters
CHAPTER V-
AFP Calamities and Disaster Preparedness Plan
As one of the members of the NDCC, the AFP has issued standing operating procedure (SOP) Nr 15, GHQ, AFP dated 11 December 1995 which
created the AFP Disaster Response Task Force (AFPDRTF) and spelled out the general guidelines and tasks to be undertaken by AFP units in time of
disasters and calamities in support to NDCC. This SOP is intended to tap the AFP’s civil assistance capability in search, rescue, relief and rehabilitation
operations and in civil reconstruction and development activities.
AFPDRTF Activation
To fulfill its mandate as the protector of the people and the republic, GHQ, AFP has activated the AFP DISASTER RESPONSE TASK FORCE
effective 15 April 1993 under the functional supervision of ODCS for Operations (J3), ODCS for Logistics (J4), and ODCS for CMO (J7). The Vice-Chief of
Staff, AFP is the designated Commander, AFPDRTF in a concurrent capacity.
AFPDRTF Mission
Assists the NDCC and the various local Disaster Coordinating Councils in the conduct of search, rescue, relief, and rehabilitation operations and
reconstruction’s and development activities nationwide, to save lives, protect properties and minimize damages caused by natural disasters and calamities,
including air/sea mishaps, crises caused by labor walkouts/strikes of air traffic controllers, health/hospital workers, communication networks, transportation,
food centers and the like.7
Organization of PNDRTG
As part of the AFP Disaster Response Task, PN Disaster Response Task Group is organized to carryout its tasks/mission:
ORGANIZATIONAL CHART
COMDR, PN DISASTER RESPONSE TASK GROUP

V/COM, PN
DEP COMDR, PN DRTG

COMREADFOR
Chief of Staff
AC of NS, N3
Dep N1 Dep N2 DNOC Dep N4
ASST N7 ASST N8 ASST N9
ASST N10 ASST N5 ASST N1
CNTF 80 DCNETC DCNFN DCNFC DCNFS DCNFW DCNCBde

CNTU 90.5.2 CNTU 90.5.6 CNFU 90.5.1 CNFU 90.5.4 CNFU 90.5.5 CNFU 90.5.3 CNFU 90.5.7
PHILFT
PMC NETC NS Poro NS Legapi NS Zambo NS Palawan NCBdc
PCG 7CGD MNOB 3CGD 4 CGD 3 Platoon
NSSC NRCI 5CGD NS Davao NRC 4
NRC 2CGD NRC 6
NBC 6CGD NRC 7
BNS NRC3
NLC NRC5
MNH
CNH
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The mission of PN Disaster Response Task Group is: “To organize, train, equip, maintain and deploy units of the Naval Disaster Response Task
Group and conduct rescue, relief and rehabilitation operation, in order to save lives and protect properties caused by, but not limited to natural disaster and
calamities.” The organization is in compliance with the AFP SOP Nr. 15, wherein the Vice-Commander, Philippine Navy, is the Task Group Commander, in
concurrent capacity.9
Auxiliary Service
In line with this, the Philippine Navy will tap/utilize the Affiliated Reserve Units (PNARUS) in accordance with the intent of RA 7077.As mandated in
RA 7077, Section 63 “Auxiliary Service” provides for the purpose of helping maintain local peace and order, meeting local emergency threat, assisting in
rescue and relief operation during disaster and calamities, health welfare activities and participating in socio-economic development project.
Along this line and in consonance with GHQ LOI 07/98 (PAGHAHANDA) dated 01 April 1998 DISASTER RESCUE AND RELIEF UNIT (DRRU)
was created by the AFP Reserve Force in support to AFDRTF and in coordination with NDCC for the conduct of research, rescue, evacuation and relief
operations throughout the country in the event of disaster or calamities. This is further in compliance with the AFP Campaign Plan “KAISAGANAAN”, that the
Reserve Force as geographical component of the AFP’s total force, will organize DRRU in support to the regular force. The unit is composed of affiliated
reserve units of the PN to support the regular force for the conduct of search, rescue, and evacuation and relief operations throughout the country.
Accordingly and as provided for in the MOA, between the PN and PNARUs, their floating assets will be committed in times of emergencies (calamity/disaster
and war).
With this, all Naval Reserve Centers of NAVRESCOM, will have at least one (1) search and rescue company of reservists and affiliate shipping
companies with search and rescue capabilities. This is proven during the sea mishap of MV Asia-South Korea. The DRRU is composed of 137 reservists.
DRRU
1ST DRRU NFN Poropoint, La Union NRC I
2ND DRRU - DO - Sangley Point, Cavite NRC II
3RD DRRU - DO - Legaspi, City NRC III
1ST DRRU NFW Puerto Princesa, Palawan NRC IV
1ST DRRU NFC Mactan, Cebu NRC V
1ST DRRU NFS Zamboanga City NRC VI
2ND DRRU NFS Davao City NRC VII
Affiliate Shipping (PNARUS Vessels)
M/V Maricel Misamis Institute of Technology
M/V Josefina University of Visayas
M/V Don Manuel University of Cebu
Based in the Organizational Set-Up as well as the role of PNARUS, the strategic importance can be visualized in term of employment/deployment
of the existing naval disaster response units strategically located in the country.
PNART Organization and Deployment
UNIT COMDR NR OF PNART AREA

1. CNTU90.5.1 DCNFN NFN AOR
NS PORO 2 TMS – 2 O’S/28 EP
7CGD 1 TM – 1 O’S/14 EP
NRC1 1 TM – 1 O’S/14 EP
TOTAL 4 TMS
2. CNTU90.5.2 CNTF 80 NCR AOR
PHILFLT 4 TMS – 6 O’S/60EP
NAVRESCOM 1 TM – 1 O’S/14 EP
PCG 2 TMS – 2 O’S/28EP
PMC 4 TMS – 4 O’S/56 EP
NASCOM 1 TM – 1 O’S/14 EP
NBC 1 TM – 1 O’S/14 EP
BNS 1 TM – 1 O’S/14 EP
NLC 1 TM – 1 O’S/14 EP
TOTAL 15 TMS
3. CNTU 90.5.3 DCNFW NFW AOR
NS PALAWAN 2 TMS – 2 O’S/28EP
4CGD 1 TM – 1 O’S/14 EP
NRC4 1 TM – 1 O’S/14 EP
TOTAL 4 TMS
4. CNTU 90.5.4 DCNFC NFC AOR
NS LEGASPI 2 TMS – 2 O’S/28 EP
MNOB 2 TMS – 2 O’S/28 EP
2/5/6 CGD 2 TMS – 2 O’S/28 EP
NRC 3/5 2 TMS – 2 O’S/28 EP
TOTAL 8 TMS
5. CNTU90.5.5 DCNFS NFS AOR
NS ZAMBO 2 TMS – 2 O’S/28 EP
NS DAVAO 2 TMS – 2 O’S/28 EP
3/8 CGD 2 TMS – 2 O’S/28 EP
NRC 6/7 2 TMS – 2 O’S/28 EP
TOTAL 8 TMS
6. CNTU90.5.6 DCNETC 2 TMS – 2 O’S/28 EP HNETC
7. CNTU90.5.7 DCNCBDE 1 COY OF 3 PLATOONS HNCBDE
The Philippine Navy reorganized the PN disaster response task group into a lean and mean but competent rescue task group composed of PN
Disaster Response Task Units. The PN units within NCR shall be primarily committed and automatically OPCON to CNTU90.5.2 when the need arises. All
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naval forces also have their own DRTU intended for the calamity/disaster in its area of responsibility. However, CPNDRTG, is the overall lead in the
command and control. The PN disaster response task group shall integrate all rescue operation activities committed to the PN nationwide by higher
headquarters. It will oversee the general conduct of rescue operation and will coordinate with the different Local Government Agencies.
Similar to the AFPDRTF, the PNDRTG disaster management activities has three (3) phases
Phase I – Pre-Disaster Phase

 Planning for Disaster/Calamity
 Organizing and Training
 Public info Drive
 Communication and Warning Activities
The PNDRTG shall review and evaluate all the documented plans on disasters prepared. The plan should be based on a “Worst Case Scenario.”
after the activation of the TG, training will be conducted through drills and exercise. Disseminate information about disaster prevention and safety
measures. Assist through the area command the local disaster coordinating council particularly in communication and warning activities.
Phase II – Emergency Phase

“The PN disaster response shall be coordinated with the local disaster coordinating council at the affected areas. Emergency needed in the
disaster areas are rescue and engineering, evacuation, first-aid and medical services, disaster relief services, police/fire assistance and security coverage,
emergency transportation services and damage assessment.”
Phase III – Post Emergency Phase
“The PNDRTG through the local disaster coordinating council shall determine the nature and extent of the rehabilitation effort to be undertaken.
Conduct assessment of the available resources for rehabilitation purposes by cross-checking all information gathered during and before the emergency and
shall coordinate and synchronize effort with the concerned government agencies in the hiring of labor force from the affected population needed for
restoration, repair and construction of public buildings, roads, bridges, dams, harbors, airports and dike damaged by disaster or calamity.” In the conduct on
disaster response operations, PNDRTG shall always abide by the rules of engagement.
SOP Nr. 1 dated 02 February 1999 prescribed the rules of engagement in the conduct of disaster rescue, relief and rehabilitation operations that
will guide the members of the PNDRTG either individually or collectively in handling the required interpersonal contacts with the key local political leaders,
government agencies, tri-media and the disaster victims themselves.”
Recent disaster response operations were conducted in the landslide incident at Cherry Hills Subdivision at Antipolo City and Sea Mishap of MV
Asia-South Korea in Cebu, wherein many lives were lost and worth of millions of pesos of properties were damaged. The disasters have caused miseries to
the living families; relatives and friends of the innocent victims of said tragedies. The accomplishments of the retrieval and rescue mission by the AFPDRTF
and other volunteers from LGUs and NGOs were brought by the following factors.
1. Effective organizational structure and conceptual frame work on the rescue operation.
2. Inter-agency cooperation was facilitated through coordinating conferences to identify and address the prevailing problems.
3. All out support was made possible by all sectors of society including the subsistence of rescuers.
4. Multi-agency interoperability in terms of disaster response for both government agencies and NGOs was realized.
5. Effective leadership, command and control were established.
6. Establishment of Emergency operation / information center.
7. Adequate perimeter security, effective traffic and crowd control measures were established.
8. Adequate mass media support for information dissemination.
9. Systematic distribution of relief good’s.
10. Maximum support extended from local government.
The AFP has always been the first to respond and render necessary assistance to disaster stricken areas and to integrate all other government
agencies and other non government organization effort in the disaster and relief. The following areas of concerned are considered critical in any organization
to ensure success in any disaster relief operation.
a. Delineation of functions should be emphasized in situation where other sectors of society are taking part in the operation.
b. Communications should readily be made available to facilitate command and control.
c. Emergency Operations Center (EOC) should be organized for proper and prompt dissemination of information to victims and general public.
Similar area should be provided to the victim’s relatives where they can assemble for counseling service, assistance and briefing on the
progress of the operations.
d. Joint efforts through sound leadership specifically in the affected areas is needed to harmonize the deployment of resources and at the same
time enable the AFP to deploy some of its resources to other areas requiring more attention for rescue and relief assistance.
e. The AFP must always be prepared to provide trained personnel and necessary emergency equipment for it to carry out its tasks properly..
f. Other CMO consideration should also be undertaken to preempt possible public outrage through medical civic action and distribution of relief
goods.
g. Proper use of the media should be observed for fast and accurate dissemination of information.
The PNDRTG has done their best. however, there are critical problems encountered in the conduct of same:
1. Delayed arrival of skilled personnel and special heavy equipment.
2. Delayed procurement of supplies and materials for rescue operations.
3. Delayed identification and deployment AFP units dedicated for rescue and retrieval operations.
4. Lack of special tools and equipment for search and rescue operation.
Generally, the participation of PNDRTG in various disaster relief operations have always been very commendable.
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CHAPTER VI – Lessons Learned and Corrective Measures
A. Lessons Learned
1.. EARTHQUAKES
 There is a need to upgrade earthquake monitoring through the provision of advanced seismic equipment and establishment of additional seismic
stations in strategic sites of the country
 Need for upgrading awareness and preparedness of Filipinos about geologic phenomena like earthquakes and volcanic activities
 Need for effective and fast relief rescue management and implementation during times of natural calamities
 Need for effective and proper land use management and inclusion of preventive measures against adverse effects of geologic hazards in urban
development
 Need for coordination and facilitation of entry of foreign assistance
 Failure of local DCCs to react immediately during emergencies.
 Need for the establishment of effective management relief centers and staging areas for relief responses in affected areas.
 Need for an effective quick- response rescue/recovery capability
 Need for an immediate damage assessment/ feedback information as basis of decision making by NDCC and tasked agencies.
 Need to decentralize decision-making on rescue, recovery and relief management to tasked agencies
2. FIRES (MANOR HOTEL INCIDENT)

 Need to review the fire and building code of the Philippines
 Need to conduct intensive training of responders for urban search and rescue operations
 Need to conduct regular fire drill in all establishments
 Need to implement the Incident Command System during operations
 Lack of Self-contained breathing apparatus and other rescue equipment
3. SEA TRAGEDY (m/V CARMELA)

Responders:
 Responders were hardly identified due to lack of uniform / identification
 Improper handling/disposal of casualties
 Lack of coordination and no established Incident Command System (ICS)
 No Standard Operating Procedures
LGUs
Triage for medical was not applied
 Failure to control the crowd
 No Media Center was set-up
 Lack of uniform and identification
 LDCC is hesitant to augment/release funds for the purpose
 Networking between the PDCC and CDCC is weak
 Lack of necessary knowledge on emergency management
4. TROPICAL CYCLONES
a. TYPHOON FERIA 2001
 The need to immediately release of NDCC financial assistance to dead and injured victims
 The need to have direct communication linkage with provincial and municipal DCCs to validate reports received from other sources
 The need for awareness and education of people living along areas vulnerable to disasters remains a major issue
 Mitigation and preparedness activities need to be intensified to minimize casualties and damage properties
 Discrepancy on the figures on disaster impact also remains a major issue
 The need to upgrade the rescue capability of local responders on SAR
b. TYPHOON NANANG - 2001

 Urgent need for effective land use management and institution of precautionary measures against adverse effects of geologic hazards and the like
 52nd EBde, AFP needs available strategic POL reserves to effectively deliver timely emergency response services
 52nd EBde, AFP needs to replace vintage equipment which hampers the rehabilitation effort of the concerned AFP unit
 Delayed reporting by some lower DCCs and no existing SOPs at the Disaster Operations Center
 Need for close coordination with the deputized coordinators even during weekends
 Lack of manpower and funds for operations purposes.
5. FLOOD (Ormoc Disaster)

 Ineffective watershed management program
Need to establish/identify flood hazard zones, warning system and flood mitigating measures
 Poor drainage system
 Need to have massive reforestation program nationwide, especially in strategic watersheds and headwaters
 Assessment and evaluation of flood high risk areas
5. VOLCANIC ERUPTION
a. MOUNT PINATUBO
 The local DCCs and LGUs as well as the national implementing agencies have been very responsible and effective in disaster management
particularly in terms of monitoring and warning dissemination, rescue, evacuation, relief and rehabilitation operations yet there is still a need for
foreign technical assistance.
 Since we lack experts on lahar, the assistance provided by the US Government through USGS Team and the Japanese Government through the
JICA had complemented the government’s present capability.
Successes:
 Unrest of long dormant volcano must be treated urgently
26
 Willingness to make and to act on uncertain forecasts as needed for successful risk mitrigation
 Manned lahar watch points are viable valuable parts of the monitoring efforts
 Video portrayal of volcanic hazards is a lifesaver
 Satellites or cellular phones are needed for reliable communications during major eruptions because cellular phones worked when all other
communications had failed
Shortcomings:
 Planning for worst case scenarios needs to consider combinations of events – for example, an eruption and a typhoon together
 Manuals instructing local readers how to prepare should be brought to each future crisis
 Plans for notification must be streamlined and tested
 Seismic networks need redundant, dual gain or wide dynamic-range instrument, to allow survival of a sufficient number of stations and to keep
recording on line and on scale
b. MOUNT MAYON
 During the duration of the Mayon operations, one single and concerted effort on disaster management program was effectively implemented.
DCCs from the provincial down to the barangay level had been very responsive in terms of preparedness, prevention and mitigation with their
objective of reducing vulnerability of the people to disaster.
 There was a pro-active transparent and institution-directed management system wherein quick and immediate reaction to the emergency situation
was made possible. All available resources were prepositioned at strategic places for rapid distribution. Relief goods and donations intended for
the victims and evacuees were directed to CDCC and MDCC immediately
CORRECTIVE MEASURES
1. EARTHQUAKE
 Upgrade existing monitoring set-up
 Inclusion of geologic hazards in the elementary school curriculum
 Creation of teams of trained personnel in rescue operations and provide them with the necessary logistics and appropriate equipment
 Conduct information and education campaign (IEC) regarding geologic hazards in school and communities and include preventive measures in the
regional and national urban planning
 Strict enforcement of national building code should be done to ensure safety of buildings and structures
 Institutionalize existing procedures of coordination and facilitation of entry of foreign assistance
 Retrain/revitalize/ reorganize DCCs at all levels
 Require LGUs to prepare functional disaster plans
 Strict implementation of 2% budgetary reserve for disaster operations under PD #477 and allocation of funds for disaster preparedness under PD
#1566
 Determination of relief goods requirements for the duration of relief operations and acquisition of same
 Organize/train the rescue/recovery/evacuation team of NDCC and local DCCs with AFP unit as nucleus
 Procurement of special equipment for 200-men set-up for rescue/recovery/evacuation purposes
 Local DCCs to form a survey team for immediate dispatch in affected areas where communication lines are cut-off
 Back up communications to be readily available for damage assessment and reporting purposes
 Spell out an NDCC policy on decentralization of decision- making during emergencies
2. FIRES (MANOR HOTEL INCIDENT)
 Strict implementation of Fire Code and Building Code of the Philippines
 Proper inspection of vital facilities by concerned authorities
 Conduct of Intensive training of responders for urban search and rescue operations
 Regular conduct of fire drills in vital facilities
 Establish an Incident Command System during disasters and clearly define roles of the ICS Structure
 Allocate additional funds specially for purchase of Self-contained breathing apparatus and other rescue equipment
3. SEA TRAGEDY (M/V CARMELA)
 Provision of uniforms to response teams for purposes of identification
 Reorientation/networking of local DCCs giving emphasis on SAR, Incident Command System and Emergency Medical Services
 To clearly define RA 8185 regarding utilization of 5% Local Calamity Fund
 Strict implementation of Maritime Laws
 Specific training design for Local Chief Executives (LCEs)
 Equipage of response teams to deal with maritime disasters
 Proper observance in the handling of cargoes/combustible inflammable materials
 Augmentation support from the management for such operations
TROPICAL CYCLONES
1. TYPHOON FERIA- CY2001
 Immediate restoration of power lines in all affected areas; repair and rehabilitation of damaged roads and bridges by local DPWH and Provincial
Engineering Office
 DSWD to provide Emergency Shelter Assistance to families with partially damaged houses and Core Shelter Assistance to families whose houses
were totally destroyed
 DSWD and PSWDO to implement Food-For-Work program to support families while they repair/rebuild their houses
 National and provincial offices of the Department of Agriculture to extend technical assistance and other services such as farm inputs, seeds, easy
loan terms to the affected farmers for immediate recovery of their losses
 Train barangay-based Quick Response Teams and other special operating units
 Reorient key implementors of disaster management focusing on lower DCCs to strengthen the system
 Augment Provincial Disaster Operations Centers with NDCC Calamity Fund
2. TYPHOON NANANG- CY2001
 Implementation of proper land use (Zoning)
 Institution of precautionary measures against adverse effects of disasters
 Augmentation support or allocation of funds from the higher headquarters for the purpose
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 Improvement of alert warning/ communications and linkages with NGOs and volunteers
 Review the lapses in the system to improve emergency response operations
FLOOD (Ormoc Disaster)
 There must be an affective watershed management program
 Develop efficient drainage system
 Massive and aggressive reforestation program nationwide, especially in strategic watersheds and headwaters
 Assess other potential disaster areas
VOLCANIC ERUPTION
1. MOUNT PINATUBO
 It is for the government to equip all RDCCs, particularly those in disaster-prone areas with high technology equipment and devices for monitoring
and warning dissemination, helicopters and heavy duty trucks to support immediate SAR operations
2. MOUNT MAYON
CHAPTER VIII - Conclusions and Recommendations
A. Conclusions
The Philippines is the most experienced country in terms of disaster management. It has more than enough laws to address the needs of a sound
disaster management program. The Armed Forces of the Philippines plays a vital role in the different phases of disaster management. The contribution of
military forces in dealing with disaster has long been recognized in many countries throughout the world, this is in terms of aid to civil power, as laid down in
national constitutions or special legislation. The organization and management systems of military forces make them well-suited for operations under disaster
condition since many of their normal activities are parallel to public emergency services. Military forces can offer invaluable support in engineering,
communications, transport, rescue, emergency medical services, field sanitation, cooking, water supply, etc. The units are usually deployed
nation-wide and close to population centers where disasters have most significant effect. Military forces have quick reaction capability and can respond
rapidly with their own management, communications and administrative systems in self-contained, self-sufficient and highly mobile form.
Soldiers are well trained in their individual fields of specialty needed to perform their professional and functional activities . Likewise, the armed
forces has the capability to sustained operations away from their home base in all weathers by day or night.
Principal sources from which military assistance to the civil communities are likely to be available include regular forces, the most readily available
and integrated in meeting their responsibilities of the civil administration and its supporting public emergency services. The regular, full-time military force
is possibly the best trained and equipped for this role but, it is equally probable that it may have other responsibilities and operational commitments which
constrain its availability when its assistance is most needed. Some authors suggest the use of the national militia or part-time military forces (like the
CAFGU) to have the significant role in counter-disaster action. They have the advantage of being part of the community in which they are located and have a
good current knowledge of local resources, the operational are / terrain, the disaster threat and its implications. Leading to better coordination and
collaboration. However, militia forces may lack the skills, equipment and technical training. Key members of the force may become victims themselves or may
have family or personal commitments which prevent their availability when most needed.
Collaboration and coordination can be achieved among military forces of countries who are members of alliances or signatories to regional defense
and other treaties such as the NATO, ASEAN, etc. Military assistance in the form of transport aircraft and helicopters from friendly countries can be obtained
from friendly countries. Naval ships can be tapped for evacuation, to provide manpower, helicopter reconnaissance and airlift, engineering skills,
fresh water and even providing food, medical assistance and temporary shelter. For optimum benefit, armed forces units should be small, self-
contained and self-supporting and shall only remain for a limited time during the emergency period of the host country.
The nature and extent of military assistance in disaster depend on the combination of in-country and overseas forces which are available. Typical
examples are: (a) Air, land and sea survey and assessment to ascertain casualties and damage, (b) Reconnaissance in the disaster zone and
the routes within and leading to it, (c) Organized and mobile manpower to assist in rescue, (d) Well-trained and equipped engineers, (e)
Communications units such as the CEISSAFP and major service CEIS units to provide emergency radio and telephone links, (f) Helicopters
and fixed wing aircraft for reconnaissance and transport duties, (g) Provision of naval forces for sealift / transport support and when in
harbor, provision of electrical power, mechanical engineering, water purification, long-distance radio communications and cooking facilities.
In a disaster-prone country like the Philippines, military resources have been integrated into the national counter-disaster system as part of the
non-traditional operations, from national level down to the local community level, with valuable results. In some countries, the absence of joint civil-military
planning has prevented optimum use of military resources.
To ensure maximum availability of emergency service support from military units, armed forces commanders must be involved in the process of
disaster preparedness planning with civil government counterparts. This will make them aware of the requirement and responsibilities and the constraints and
restrictions which may affect the provision of military assistance. The construction of retaining walls like the mega-dykes in lahar-stricken areas in central
Luzon, flood protection embankments, the deepening or clearance of river channels and the development of safe evacuation routes, are all tasks which have
been undertaken by military engineers (PN Seabees) in support of national prevention. Logistic operations planning, as an element of disaster preparedness
planning, is a responsibility which can be usefully placed on the military member of any disaster preparedness planning group such as the NDCC, RDCC,
PDCC. Provision should also be made that military transport is available to support such logistic operations.
The military can also be usefully involved at the community level in public information and training programs. These activities include first aid
training, simple field engineering relating to the provision of drinking water, drainage and field hygiene. The use of helicopters as a means of reconnaissance,
emergency rescue, evacuation and supply has become a feature of disaster response in many situations. Helicopter operations are extremely expensive and
are dependent upon a high degree of ground support. Selected individuals in communities must be made aware of the requirements for a cleared landing site
and its dimensions and the necessity to keep this area clear of people and to indicate the wind direction on the ground.
In predominantly agricultural communities, especially in remote rural areas, “Food for Work” projects can form important elements of disaster
preparedness planning is relation to rehabilitation and recovery. Many of these projects are engineering tasks related to local requirements to create and
develop tracks, roads, irrigation and drainage, river crossings, construction of pontoon bridges, etc. which are being performed by the AFP Corps of
Engineers, particularly the PN Construction Brigade or Sea Bees. The potential of armed services to provide well organized, trained and equipped support to
the civil authorities and emergency services is great and should become an element of all disaster preparedness plans.
Recommendations
1. Conduct massive information drive to all private and government agencies / institutions with regards to the intent and purpose of section 63, RA 7077.
2. Regular conduct of PN reservist assembly test and mobilization training exercise to maximize the utilization of manpower and floating assets of the Navy
and auxiliary units in order to address the primary mission, as mandated.
3.Acquisition of more emergency equipment to allow better disaster response operations.
4.. Disaster preparedness training should be emphasized not only to those tasked to perform disaster response operations but to all sectors of the society.
For a disaster prone country like the Philippines, training should start as early as in grade school and these topics should be included in their curriculum. AFP
and PN personnel should cross-train with other agencies both local and foreign, to ensure smooth coordination and better performance during actual disaster
response operations.
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1. Equipment, vehicles, materials and supplies necessary in the conduct of disaster response operations should be procured and pre-
positioned in strategic locations in the country. The practice of borrowing equipment just to comply with inspections (AGI) and assigning people at random
without benefit of training should be discontinued. Items procured should be used solely for disaster response to ensure that they are available and
functioning when needed. Ambulances and rescue vehicles for example, must not be used by politicians as family utility service vehicles.
4. To avoid panic and morale problems due to disinformation and rumors in times of disaster, information centers should to be organized for proper and
prompt dissemination of information to the general public. Media centers should be put up and organized in the first opportunity for this purpose.
5. Communication linkages using standardized equipment should be established between various agencies involved. Necessary emergency
response equipment should be procured, doctrines developed, and procedures rehearsed / tested on a regular basis to ensure fast activation / mobilization
when disaster strikes.
6. Amendment of the following laws / regulations:
a. PD 1566 - Change INP/PC to PNP and transfer it from DND to DILG
b. NDCC’s disaster and preparedness plan - - RDCC chairmanship
c. GHQ’s SOP Nr 15 - Philippine Coast Guard is no longer under PN (AFP) pursuant to EO 477
BIBLIOGRAPHY
Adug, Elleqium A. “ An Assessment of the Effectiveness of Government in Reducing Damages Caused by Typhoons and Floods. Masters Thesis. National
Defense College of the Philippines. Fort Bonifacio, Makati. 1972
Carter, Nick W. Disaster Management: A Disaster Manager’s Handbook. Asian Dvelopment Bank, Manila, Philippines. 1992.
De Guzman, Alejandro F. “telecommunications for National Security Preparedness: An Assessment”. Masters Thesis. National Defense College of the
Philippines. Fort Bonifacio, Makati. 1992.
Doctor, Claro S. “The National Calamities and Disaster Preparedness Plan: An assessment”. Masters Thesis. National Defense College of the Philippines.
Fort Bonifacio, Makati. 1987.
Inciong, Simon V. “An assessment of the National Emergency Preparedness Program on Natural Disasters: Focus on the Barangay.: Masters Thesis. National
Defense College of the Philippines. Fort Bonifacio, Makati. 1985.
Tan, Belen S. “ An Assesssment of Emergency Management program for National Disasters in Manila”. Masters Thesis. National Defense College of the
Philippines. Fort Bonifacio, Makati. 1988.
Venadas, Deogracias C. “The Effectiveness of the AFP as An Instrument of Disaster Control: An Assessment.” Masters Thesis. National Defense College of
the Philippines. Fort Bonifacio, Makati. 1978.
Agency for International Development. “Disaster Prevention, Mitigation and Preparedness Strategy”. Nov 19, 1991.
AFP Approved RDF Program
AFP Calamities and Disaster Preparedness Plan. 04 Appril 1993.
AFP Circular Nr 06 dated 3 Jun 95.
AFP FRAGORD 01 to LOI 07/98 (PAGHAHANDA).
AFP Standing Operating Procedure Nr 15 dated 11 Dec 95 pp. 1-5.
Barangay Disaster Manual. Office of Civil Defense. 1988.
“Principal Threats Facing Communities and Local Emergency Management Coordinators.” Federal Emergency Management Agency. Office of Civil Defense,
USA. March 6,1999.
NDCC Information Kit, 1990. National Calamities and Disaster preparedness Plan of 1976.
HPN LOI Nr 27-97 dated 30 May 97, PN Disaster Response Task Group 90.5.
Implementing Rules and Regulations to RA 7077.
National Disaster Coordinating Center, “Calamities and Disaster Preparedness Plan” dated 24 Aug 88 pp. 18-19.
National Disaster Coordinating Center, Statistical Report.
Philippine Navy Typhoon Doctrine. SOP Number 4. December 21, 1971.
Pilar, Nestor Dr. “An Assessment of the Disaster Management in the NCR/Metro Manila” (Quezon City: 1999) pp. 1-2.
Presidential Memorandum Order 51. January 16, 1967.
Presidential Decree No. 1566 dated 11 June 78, “Strengthening the Philippine Disaster Control Capability and Establishing the National Program on
Community Disaster Preparedness” pp. 41-43.
Republic Act 7077
Rules and Regulations Implementing the National Defense Act as Amended by RA 7077 or the AFP Reservist Act pp. 1-2.
Rules and Regulations Implementing the Provisions on PD 1566 pp. 44-48.
Warning System. GHQ, AFP SOP Number 77-01. May 11, 1977.
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ANNEX A
RP CALAMITY AND DISASTER PREPAREDNESS PLAN

(Reference: Presidential Decree 1566 dated June 1978 National Calamities and Disaster Preparedness Plan, Revised Edition, 24 August 1988.)
A. Introduction
The Philippines, being in the so-called Pacific Ring of Fire and typhoon, has always been subjected to constant disasters and calamities. The great
ocean and seas around her, while providing wide avenues for international trade and commerce and a source of tremendous marine resources also serve as
the spawning areas of destructive typhoons and monsoons. In whatever part of the country we are located, the possibility of our experiencing the gloom and
the stark reality of disasters such as floods, typhoons, tornadoes, earthquakes, tsunamis, volcanic eruptions, drought, flashflood and man-made disasters
such as land, air and sea disasters, civil strife armed conflict, etc., their resultant toll in lives and properties, is always present. Everyone, even in the safety of
his home, has not been spared the sight now the feeling of loss by the terrific disasters and calamities, not as an abstract tragedy, but in the pictures of
stunned faces of the survivors.
B. Objectives
The primary objective of this Plan is: to ensure effective and efficient implementation of civil protection program thru an integrated, multi-sectoral
and community based approach and strategies for the protection and preservation of life, property and environment.
C. Concept
This Plan embraces all conceivable contingencies, making use of all available resources, both government and private. It also develops self-reliance by
promoting and encouraging the spirit of self-help and mutual assistance among the local officials and their constituents. Each political and administrative
subdivision of the country shall utilize their own resources before asking for assistance from neighboring entities or higher authority. While emergency
preparedness is a joint responsibility of the national and local governments, its effectiveness will depend largely on the skills and resources and the
involvement of private organizations and the general public in the area of disasters. Regular exercises and drills will be conducted at all levels to enhance the
people's reaction capability and ensure precision and spontaneity in responding to emergencies.The Regional offices of the departments shall provide similar
support/assistance to the Regional Disaster Coordinating Council. This relationship shall be maintained down the line to the Barangay Disaster Coordinating
Councils and their respective Disaster Operations Centers.Disaster Councils at the Regional, Provincial, Municipal/City and Barangay levels shall be
established to complement the National Disaster Coordinating Council. Each Council shall have staff elements, stationed in their respective operations
centers, composed of the following:
 Damage Assessment and Needs Analysis Unit;
 Emergency Management Information Service Unit;
 Vulnerability Risk Reduction Management Unit;
 Plans and Operations Unit; and a
 Resource Unit;
Each council shall provide operating units for:
 Communication Transportation Service and Early Warning Service;
 Health Service;
 Auxiliary Fire and Police Service;
 Relief and Rehabilitation Service;
 Public Information Service; and
 Rescue, Evacuation and Engineering Service
COORDINATING COUNCILS
FUNCTIONS OF THE NATIONAL DISASTER COORDINATING COUNCIL
1. Advises the President on the status of disaster preparedness programs, disaster operations and rehabilitation efforts undertaken by the government and
the private sector;
2. Advises the lower-level Disaster Coordinating Councils and Disaster Control Groups through the Office of Civil Defense in accordance with the guidelines
on disaster management;
3. Formulates policy guidelines on emergency preparedness and disaster operations involving relief and rehabilitation;
4. Formulates priorities in the allocation of funds, services, disaster equipment and relief supplies;
5. Formulates a comprehensive disaster management plan based on various calamities/disaster that often hit the country (i.e. drought, flooding, typhoon,
earthquake, etc.);
6. Recommends to the President the declaration of a state of calamity in areas extensively damaged;and submits proposals to restore normalcy in the
affected areas, subject to the provision of RA 8185;
7. Constitute a Technical Working Group composed of permanent representatives from the member-Departments and other government agencies with the
Executive Officer as head; and
8. Utilizes the facilities and services of the Office of Civil Defense in Camp Aguinaldo, Quezon City, in discharging its functions.
Regional Disaster Coordinating Council (RDCC)

The Regional Disaster Coordinating Council (hereinafter referred to at RDCC) shall be composed of the Regional PNP Director as Chairman, and heads of
regional offices and field stations, national agencies and selected Non Government Organizations (NGOs) at the regional level as member.The Regional
Governor of ARMM shall act as the Chairman and PNP Regional Director as Vice- Chairman and the OCD Regional Office shall be the Executive arm and
secretariat and as such, the Regional Director shall serve as the Executive Officer.
Metro Manila Disaster Coordinating Council (MMDCC)

The Chairman, Metropolitan Manila Development Authority (MMDA) shall be the Chairman of the Metropolitan Manila Disaster Coordinating Council
(hereinafter referred to as MMDCC) with the Mayors of the 17 Cities and Municipalities comprising Metropolitan Manila, the Director of National Government
Agencies; and Heads of NGO's situated in the National Capital Region to be determined by the MMDA Chairman as members. Regional Director, Office of
Civil Defense, National Capital Region, shall act as the Executive Officer of the council.
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Provincial Disaster Coordinating Council (PDCC)
A Provincial Disaster Coordinating Council (hereinafter referred to as PDCC) shall be composed of the Provincial Governor as Chairman, the Provincial
Director of the PNP as Vice-Chairman, and all organic provincial officials, as well as of national officials working at the provincial level, as members.The
Provincial Civil Defense Deputized Coordinators shall act as action officer of the council.
City Disaster Coordinating Council (PDCC)
A City Disaster Coordinating Council (hereinafter referred to as CDCC) shall be composed of the City Mayor as Chairman, the City Director of the PNP as
Vice-Chairman and all organic city officials, as well as all national officials working at the city level, as members. The City Civil Defense Deputized
Coordinators shall act as the action Officer of the council.
Municipal Disaster Coordinating Council (MDCC)

A Municipal Disaster Coordinating Council (hereinafter referred to as MDCC) shall be composed of the Municipal Mayor as Chairman, the Chief of Police of
the PNP as Vice-Chairman and all organic municipal officials, as well as all national officials working at the municipal level, as members. The Municipal Civil
Defense Deputized Coordinators shall act as action officer of the council.
Barangay Disaster Coordinating Council (BDCC)

A Barangay Disaster Coordinating Council (hereinafter referred to as the BDCC) shall be composed of the Barangay Captain as Chairman and leading
persons in the community as members.
Reference: Presidential Decree 1566 dated June 1978 National Calamities and Disaster Preparedness Plan, Revised Edition, 24 August 1988
a. The NDCC Chairman

The Secretary of National Defense as Chairman of the Council Shall:
1.Convene the Council as often as necessary to effectively coordinate the national efforts on disaster preparedness, emergency operations, relief, recovery
and rehabilitation activities; and
2. Call on all other departments, bureaus, agencies and instrumentality’s and corporations of the government and the private sector for assistance in
preparing for, reacting to and recovering from the effects of disasters/calamities and national emergencies.
b. The NDCC Executive Officer

The Administrator, Office of Civil Defense, as Executive Officer of the Council shall:
1. Coordinate the activities and functions of the various agencies and instrumentality’s of the national government, private institutions and civil organizations to
implement the policies set by the National Disaster Coordinating Council relative to disaster management;
2. Convene and preside over meetings of the Action Group as often as necessary to effectively carry out the instructions of the Council and prescribe
standard operating procedures for the guidance of the Action Group;
3 Organize a secretariat which shall provide services to the National Disaster Coordinating Council and the Action Group;
4. Prepare and disseminate disaster control manuals and other publications related to measures on disaster prevention, control and mitigation; and
5. Advise the Chairman on matters concerning disaster management and operations.
c. The NDCC Action Group

1. Acts as the resource and recommendatory body in support of the functions of the Council; and
2. Reports to the Civil Defense Operations Center upon receipt of notice of an impending disaster from any authoritative source, and monitor the activities
undertaken by the concerned departments or agencies relative to their disaster/calamity plans.
Meetings may be called by the Executive Officer. It may also be called upon the initiative of any member of the Action Group.
B. THE MEMBER-DEPARTMENTS/AGENCIES
1. Department of Agriculture (DA)
a. Maintains updated data on agricultural crops, livestock and fisheries specifically in disaster-prone areas to facilitate assessments of damage in case of
calamity, and furnishes these data to the Council through the Office of Civil Defense (OCD);
b. Undertakes surveys in disaster areas to determine the extent of damage on agricultural crops, livestock and fisheries and renders reports to the Council
through the OCD:
c. Renders technical assistance to disaster victims whose crops or livestock have been destroyed, damaged or lost; and
d. Organizes reaction teams in the Department proper as well as in the offices and bureaus under it.
2. Department of the Budget and Management

a. Releases the necessary funds required by the Department for Disaster Operations, and
b. Organizes reaction teams in the department proper as well as in the offices and bureaus under it.
3. Department of Education, Culture and Sports (DECS)
a. Organizes disaster control groups and reaction teams in all schools and institutions of learning;
b. Makes available suitable school buildings nearest the affected areas as evacuation centers;
c. Assists in the public education campaign through integration in the school curricula of subjects relative to the different calamities their causes and
precautionary measures; and
d. Organizes reaction teams in the department proper as well as in the regional and division offices and bureaus under it.
4. Department of Environment and Natural Resources (DENR)

a. Reforests and controls areas which tend to cause flooding, landslides, mudflows and ground subsidence;
b. Provides seeds, seedlings and samplings;
c. Provides technical assistance regarding mines, forests and lands;
d. Promulgates rules and regulations for the control of water, air and land pollution;
e. Issues advisories on environmental pollution and informs concerned agencies on such advisories; and
f. Organizes reaction teams in the department proper as well as in all bureaus and offices under it.
5. Department of Finance (DOF)

a. Issues rules and regulations with the relevant agencies concerned for the funding by local governments of the requirements for organizing, equipping and
training of their disaster coordinating councils and reaction teams pursuant to Section 9 of PD 1566;
b. Issues rules and regulations jointly with the Department of Budget and Management on the preparation of Local Government Budget and the utilization of
the 2% reserves for disaster operations; and
c. Organizes reaction teams in the department proper as well as in all bureaus and offices under it.
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6. Department of Health (DOH)
a. Organizes disaster control groups and reaction teams in all hospitals, clinics, sanitaria and other health institutions;
b. Provides for the provincial, city/municipal and rural health services to support all respective disaster coordinating councils during emergencies;
c. Undertakes necessary measures to prevent the occurrence of communicable diseases and other health hazards, which may affect the population;
d. Issues appropriate warning to the public on the occurrence of epidemic or other health hazards;
e. Provides direct service and/or technical assistance on sanitation, as may be necessary; and
f. Organizes reaction teams in the department proper as well as in the offices and bureaus under it.
7. Department of Labor and Employment (DOLE)

a. In coordination with the Department of National Defense (DND) thru the Office of Civil Defense (OCD) and Department of Public Works and Highways,
organizes disaster control groups and reaction teams in all factories and industrial complexes.
b. Provides emergency employment opportunities to disaster victims;
c. In coordination with the DND through the OCD, implements Industrial Civil Defense Programs and Measures; and
d. Organizes reaction teams in the department proper as well as in the office and bureaus under it.
8. Department of Local Government (DLG)

a. Oversees the organization of Disaster Coordinating Councils in the provinces, cities, municipalities and barangays in coordination with the Office of Civil
Defense (OCD);
b. Assists the Local Disaster Coordinating Councils in the establishment of Disaster Operations Center;
c. Conducts training of members of Local Disaster Coordinating Councils in coordination with the OCD, the Department of Social Welfare and Development;
the Philippine National Red Cross and other appropriate agencies;
d. Directs the Local Government Units to organize and train Disaster Control Groups and Reaction Teams in large buildings for commercial and recreational
use; and
e. Organizes reaction teams in the department proper as well as in the Offices and Bureaus under it.
f. Through the PNP, organizes Police Auxiliary Services and Auxiliary Fire Services in the cities, municipalities and barangays; and
g. Provides security coverage in disaster areas.
9. Department of National Defense (DND)

The Department of National Defense through the:
a. Armed Forces of the Philippines (AFP)
1) Establishes communication linkages and makes these available for disaster operations;
2) Assist the Integrated National Police in providing security coverage in disaster areas;
3) Assists in the reconstruction of damaged national and local roads and/or bridges, structures of facilities;
4) Assists in providing transportation facilities for the rapid movement of relief supplies and personnel and for evacuation of disaster victims; and
5) Organizes reaction teams in all military installations
b. Office of Civil Defense (OCD)

1) Makes available the Civil Defense Operations Center for use by the Council during disaster operations and during conferences of the Action Group;
2) Spearheads, in coordination with the Department of Local Government, the organization of Disaster Coordinating Councils and with the other
departments/agencies in the organization of Disaster Control Groups or Reaction Teams;
3) Develops and prepares programs of instruction for disaster preparedness training of disaster council members, in coordination with the Department of
Social Welfare and Development and Department of Local Government;
4) Develops and prepares training programs and trains the organic trainors of those departments/agencies tasked with the organization of Disaster
Coordinating Councils, Disaster Control Groups or reaction teams;
5) Conducts studies on disaster management;
6) Receives bulletins from warning agencies and disseminates the same to appropriate agencies and the general public; and
7) Monitors the implementation of the various provisions of P.D. No. 1566.
c. The Department of Defense Itself

Organizes Disaster Control Groups and Teams in the department proper in the bureaus, offices or agencies under it.
10. Department of Public Works and Highways (DPWH)

a. Restores destroyed public works such as flood control, waterworks, roads, bridges, and other vertical and horizontal facilities/structures;
b. Provides heavy and light equipment for rescue and recovery operations;
c. Makes available existing communications facilities for disaster operations;
d. Assists in providing transportation facilities to transport relief supplied personnel and disaster victims;
e. Provides warning to the public on impending releases of water from dams under its control; and
11. Department of Social Welfare and Development (DSWD)

a. Undertakes training on disaster preparedness of barangay tri-sectoral groups;
b. In coordination with the Office of Civil Defense and the Department of Local Government, assists in the training of Disaster Coordinating Councils in all
levels;
c. Organizes relief and rehabilitation services to be tied up with the Provincial/City/Municipal/Barangay Disaster Coordinating Councils to provide immediate
relief assistance to disaster victims;
d. Distributes donations received by the Department in accordance with relief requirements;
e. Provides appropriate assistance for the rehabilitation of victims; and
12. Department of Tourism (DOT)
a. Organizes and trains Disaster Control Groups and Reaction Teams in hotels, pensions, restaurants and other tourist-oriented facilities; and
b. Organizes reaction teams in the department proper as well as in all bureaus and offices under it.
13. Department of Trade and Industry (DTI)
a. Carries out measures to maintain normal level of prices of commodities during emergencies;
b. Assures the availability of commodities in calamity areas; and
32
c. Organizes reaction teams in the department proper as well as in regional offices under it.
14. Department of Transportation and Communication (DOTC)
a. Coordinates the organization of the emergency transport service from the national down to the barangay level;
b. Restores destroyed transportation and communications facilities such as railroads and vertical structures;
c. Makes available existing communications and transportation facilities for disaster operations; and
d. Controls and supervises the emergency functions, if any, of the bureaus, offices and agencies under it.
15. The Department of Transportation and Communications through:
(a) Air Transportation Office:
1) Undertakes aerial search and rescue operations as needed;
2) Coordinates the harnessing of private aircraft’s, airlines and other organizations for airlifts and airdrop operations;
3) Undertakes repairs of damaged airports, runways and facilities; and
4). Initiates inter-agency contingency planning for air crashes outside airport facilities especially on built-up areas.
(b) Ninoy Aquino International Airport (NAIA) - initiates inter-agency planning for air crashes within the NAIA jurisdictional area.
16. Department of Science and Technology (DOST)
a. Philippine Atmospheric, Geophysical and Astronomical Services Administration (PAGASA):

1) Keeps a continuing watch over the environmental conditions within the country, through its network of surface and upper air synoptic stations, astromet and
radar stations;
2) Prepares daily weather forecasts, typhoon warnings and flood outlook;
3) Disseminates weather information to OCD and other concerned agencies and the general public;
4) Gives marine meteorological service to the maritime sector in the form of checking ship barometers and briefings to Officers of moored vessels at ports and
harbors; maintains a visual storm signal network for international shipping;
5) Gives aeronautical meteorological service for the safety and efficiency of air travel, both for domestic and international flights, through the provision of flight
documentation, take-off and landing information;
6) Conducts researches and training in relation to natural disaster preparedness and mitigation;
7) Provides assistance and advice to the hydrological sector through dam monitoring; and
8) Makes available climatological data for use of agricultural, industrial, public works and energy utilization.
b. Philippine Institute of Volcanology and Seismology (PHIVOLCS)
1) Issues advisories on earthquakes, volcanic activities and tsunamis to the general public;
2) Advises concerned agencies on such advisories;
3) Pinpoints suitable evacuation sites in coordination with appropriate agencies concerned; and
4) Organizes Disaster Control Group and Reaction Teams in the commission proper and in its field stations.
c. Philippine Nuclear Research Institute (PNRI)
1) Issues advisories on radioactive fallouts/ contamination and radiation accidents to the general public;
2) Informs concerned agencies on such advisories;
3) Decontaminates contaminated areas in coordination with concerned agencies;
4) Organizes and trains Disaster Control Teams in the PNRI Offices and facilities; and
5) Supervises the organization and training of Disaster Control Teams in nuclear installations and in facilities storing, handling or using radioactive source.
16.National Economic and Development Authority (NEDA)

a. Determines and analyzes the effects of disasters and calamities on the socio-economic plans and programs of the country;
b. Develops damage assessment schemes to be used by agencies surveying after-disaster damages; and
c. Organizes Disaster Control Groups and Reaction Teams in the NEDA proper and its attached agencies and Regional Offices.
17. National Housing Authority (NHA)
a. Assesses housing requirements of displaced persons;
b. Provides emergency or temporary housing with adequate sanitary facilities;
c. Rebuilds destroyed areas;
d. Plans and sets up new communities as may be required or desired upon;
e. Organizes Disaster Control Teams among home owners in subdivisions not covered by barangays; and
f. Organizes and trains Disaster Control Teams in NHA Offices.
18. Philippine Information Agency (PIA)

a. Coordinates with government and private media in educating the public on disaster preparedness and operations;
b. Provides public information service to disseminate disaster mitigation measures as well as to assist in warning the public on impending disasters;
c. Monitors activities and gathers feedbacks relative to emergencies; and
d. Organizes reaction teams in the PIA as well as other Offices under it.
19. Philippine National Red Cross (PNRC)

a. Conducts disaster leadership training courses and assists in the training of Disaster Coordinating Councils and their emergency welfare service units at all
levels;
b. Assists in providing emergency relief assistance to victims of disasters;
c. Make available whole blood and its derivatives in times of disasters;
d. Interfaces its other emergency welfare services (warning, rescue, evacuation, medical/nursing, first-aid/ambulance and social services) with the activities
of member-agencies at all levels;
e. Provides tracing service (local and foreign) during emergencies; and
f. Organizes Disaster Control Teams in PNRC establishments.
DISASTER OPERATIONS FLOW

If a warning bulleting or information is issued relative to an impending disaster or emergency by any of the warning agencies such as PAGASA for
typhoons, floods, tsunamis and other meteorological hazards; PHIVOLCS for volcanic eruptions, earthquakes and other geological hazards; PNRI for
radiological emergencies, DOH for epidemics, and AFP and PNP for civil unrest, the said bulletin or information relayed by these agencies simultaneously to
the National Disaster Management Center (NDMC), to their respective regional/field offices concerned and to the general public through media broadcast for
widest dissemination.
The NDMC, upon receipt of the warning bulletin or disaster reports, shall:
33
1. Process and evaluate the same.
2. Disseminate the alert notice to the OCDRC/RDCC likely to be affected by the disaster, and to the cooperating agencies for possible activation of their
implementing plans as members of the NDCC.
3. Deploy rapid needs and damage assessment team ,and establish any Incident Command Post in the calamity area.
4. Activate the Emergency Broadcast System, if and when necessary.
5. Monitor and coordinate preparedness and actions taken by cooperating/implementing agencies, RDCCs and LDCCs to ensure that requirements in the
affected areas are effectively addressed and acted upon.
6. Recommend to the President calamity area declaration and/or calamity fund release, if necessary.
7. Mobilize NDCC Response Team to augment regional and local DCCs disaster operations activities.
8. Prepare and submit progress reports to the DND Secretary/Chairman, NDCC; President of the Philippines, NDCC Member-Agencies and other authorities
concerned
http://www.ndcc.gov.ph/ocd_home.html
ANNEX B
THE OFFICE OF CIVIL DEFENSE
MISSION
The OCD has the primary mission of coordinating, on the national level, the activities and functions of various agencies and instrumentality of the National
Government, private institutions and civic organizations devoted to public welfare so that the facilities and resources of the entire nation may be utilized to the
maximum extent for the protection and preservation of the civilian populace and property during time of war and other national emergencies of equally grave
character.
FUNCTIONAL STRUCTURE
FUNCTIONS
It's broad functions are:

 To establish and administer a comprehensive national civil defense and civil assistance program;
 To formulate plans and policies for the protection and welfare of the civilian population in time of war directly involving the Philippines or other
national emergencies of equally grave character;
To estimate the total materials, manpower and fiscal requirements of carrying out the civil defense program, and allocate to the provinces, cities and
municipalities such aid in facilities, materials and funds as may be made available from the National Government.
http://www.ndcc.gov.ph/ocd_structure.html
34
ANNEX C
THE EMERGENCY MANAGEMENT INFORMATION SYSTEM (EMIS)
Background
The Office of Civil Defense, operating arm of the country's National Disaster Coordinating Council, has embarked on a modest modernization of its
Management Information Systems (MIS) with the objective of optimizing the use and application of information and communications technology (ICD) in the
management of emergencies. Hence, the Emergency Management Information System (EMIS) was developed to generate critical information for decision-
making in disaster management. Specifically it comprises the four phases of emergency management namely: mitigation, preparedness, response and
recovery. It provides information on areas most prone to certain types of disasters ,inventory of evacuation centers, emergency responders and their
respective resources (5 M's: Manpower, Method, Materials, Machines, and Money). The EMIS end-users will be tasked to build and update data for analysis
and decision-making. The vast information offered by this system will ensure that the right people are sent to the right place at the right time and that planning
is optimized according to the exact need of the people.
Four Modules of EMIS
(1) MITIGATION - provides information on the most vulnerable areas in the Philippines to certain types of disasters (man-made or natural)
(2) PREPAREDNESS - provides information on various resources and techniques reflective of the standards of competence of the NDCC-OCD and all
organized groups devoted to disaster management (e.g. list of emergency responders, hospitals, schools, their contact numbers, location and available
resources (5 M's))
(3) REPORT GENERATION - provides a situational account on the effects of the disaster event to the area affected and gives an update on the response
taken by concerned agencies/organizations devoted to disaster management;
(4) CALAMITY FUND MONITORING - provides information concerning calamity funds and other special funds devoted to emergency preparedness,
mitigation, recovery and rehabilitation. It also assists in the efficient evaluation of requests for fund assistance and analysis in fund distribution and utilization.
http://www.ndcc.gov.ph/emis_detail.html
ANNEX D
Republic of the Philippines

Department of National Defense
NATIONAL DISASTER COORDINATING COUNCIL
OFFICE OF CIVIL DEFENSE
Camp General Emilio Aguinldo
Quezon City
Summary of Natural and Manmade Disasters from 1990 to 2001
YEAR Disaster Occurrences No. of Casualties Affected Population Houses Damaged Damage to Properties
Occurrenc
e Dead Injured Missing Families Persons Totally Partially in Millions
2,60 13,312,2 65,335,5 1,042,4 3,054,6

GRAND TOTAL 7 16,632 18,756 3,997 30 49 76 19 P 165,200.464 M
1990 Natural Disasters 36 723 1,506 312 1,490,036 7,561,893 223,593 637,494 P 16,117.360 M
Man made Disasters 64
July 16, Earthquake 1 1,283 2,786 321 227,918 1,255,248 25,207 77,249 P 12,225.037 M
1,717,95 8,817,14 248,8 714,7
SUB-TOTAL 101 2,006 4,292 633 4 1 00 43 P 28,342.397 M
1991 Natural Disasters 18 5,271 551 1,284 200,255 1,020,515 15,517 84,062 P 6,255.259 M
Man made Disasters 37 54 27 10 1,015 4,858
Mt Pinatubo Eruption 1 850 184 23 249,371 1,180,132 40,867 67,862 P 10,624.000 M
450,64 2,205,50 56,38 151,9
SUB-TOTAL 56 6,175 762 1,317 1 5 4 24 P 16,879.259 M
1992 Natural Disasters 16 155 162 56 377,566 1,891,040 3,416 8,084 P 9,302.105 M
Man made Disasters 35 23 133 867 4,887 590 1,543 P 13.000 M
378,43 1,895,92 4,00 9,62
SUB-TOTAL 51 178 295 56 3 7 6 7 P 9,315.105 M
1993 Natural Disaster 57 878 1,746 247 1,884,428 9,337,911 164,623 445,423 P 21,097.747 M
5
Manmade Disasters 115 285 105 6 1,696 234,893
Mt Mayon Eruption 1 3,614 17,883 P 72.723 M
1,939,73 9,590,68 164,6 445,4
SUB-TOTAL 173 1,163 1,851 253 8 7 23 23 P 21,170.470 M
Manmade Disasters 174 101 29 1 12,248 56,097 1,914 58,490 P 750.516 M
Mindoro Earthquake 1 83 420 8 22,454 134,712 1,530 6,030 P 515.000 M
SUB-TOTAL 240 477 704 65 720,95 3,576,00 62,49 288,4 P 4,836.323 M
35
6 2 5 31
1995 Natural Disasters 87 1,353 3,040 683 1,781,439 8,971,363 294,517 719,779 P 16,658.341 M
Manmade Disasters 302 397 582 108 31,175 150,906 1,202 297 P 2,157.325 M
1,812,61 9,122,26 295,7 720,0
SUB-TOTAL 389 1,750 3,622 791 4 9 19 76 P 18,815.666 M
Manmade Disasters 148 346 407 118 21,783 99,623 1,975 5,044 P 697.841 M
312,59 1,527,02 4,97 23,96
SUB-TOTAL 210 504 582 182 9 8 0 2 P 3,811.639 M

Manmade Disasters 181 361 662 1 40,739 227,453 2,198 272 P 11,289.605 M
509,20 2,569,54 3,48 7,88
SUB-TOTAL 235 498 708 11 1 8 1 6 P 12,993.720 M
1998 Natural Disasters 40 518 896 122 1,670,237 7,450,107 137,203 406,517 P 25,430.956 M
Manmade Disasters 228 296 488 89 326 1,457 633 36 P 2.778 M
1,670,56 7,451,56 137,8 406,5
SUB-TOTAL 268 814 1,384 211 3 4 36 53 P 25,433.734 M
Manmade Disasters 161 249 329 59 40,417 133,339 986 104 P 1,092.630 M
Dec 12-Earthquake 1 5 40 87 356 P 3.985 M
1,037,68 4,988,53 6,78 26,81
SUB-TOTAL 235 654 519 107 4 6 3 7 P 5,130.966 M
2000 Natural Disasters 89 641 538 135 1,628,881 8,093,821 25,122 198,419 P 9,158.178 M
Manmade Disasters 240 916 1,145 12 165,837 865,304 11,507 2,307 P 0.477 M
Mt Mayon Eruption 1 14,114 68,426 P 89.864 M
1,808,83 9,027,55 36,62 200,7
SUB-TOTAL 330 1,557 1,683 147 2 1 9 26 P 9,248.519 M
2001 Natural Disasters 71 511 1,472 160

887,884 4,212,132 16,393 58,302 P 8,369.712 M
(Mt Mayon included ) 2 11,529 56,853 P 48.820 M
Manmade Disasters 246 345 882 64 53,602 294,806 4,357 149 P 804.134 M
953,01 4,563,79 20,75 58,45
SUB-TOTAL 319 856 2,354 224 5 1 0 1 P 9,222.666 M
www.ndcc.gov.ph
ANNEX E
Republic of the Philippines

Department of National Defense
NATIONAL DISASTER COORDINATING COUNCIL
DESTRUCTIVE TROPICAL CYCLONES (TC) 1970 TO 2002
CASUALTIES AFFECTED POPULATION DAMAGED PROPERTIES
YEA
R NAMES OF DESTRUCTIVE TC AFFECTED DISPLACED HOUSES PROPERTIES
P
A
R
T
I
PERSON FAMILIE PERSO A (agri, infra and
DEAD INJ MIS FAMILIES S S NS TOTAL L private)
(Millions)
1970 TY ATANG, TS OYANG, TY PITANG, 1,328 1,917 494 18,370 109,980 P 82.274M
TY SENING,TS TITANG AND TY
YOLING
1971 TYPHOONS DIDING, HERMING, 59 72 110 4,225 17,245 P 40.3M

MAMENG, TROPICAL STORMS
KRISING, DADING AND GOYING
36
TS ASIANG, TY KONSING,TY
1972 TOYANG 298 33 5 15,602 62,408 P 178.258M
TY UNDANG
1973 TYPHOONS LUMING, AND BIDANG 74 24 89 2,024 12,144 P 251.0M

, TS OPENG
1974 TY BISING, TY ILIANG, TY SUSANG 153 118 89 97,085 444,330 1,441 7,2051,441 4,589 P 365.0M
TY TERING, TY WENING, TY YANING,
TY ANING AND TY BIDANG
1975 TYPHOON AURING AND TYPHOON 39 8 8 4,518 26,523 698 3,490698 1,547 P 36.0M
MAMENG
TY DIDANG, TY HUANING, TY
1976 NITANG, 313 37 185 504,510 2,744,379 3,917 19,5853,917 4,912 P 742.0M
TY TOYANG, TS ARING AND TD
KAYANG
1977 TD DALING, TY ELANG, TY GORING, 99 118 23 137,411 821,638 15,679 78,39515,679 16,115 P 335.0M
TS IBIANG, TD LUMING, TY OPENG,
TY UNDANG
1978 TY ATANG, TS HILING, TS MIDING, 663 834 395 520,405 2,853,104 68,376 68,376 94,147 P 6,079.0M
TY WELING, TY YANING, TY
KADING,
TD DELANG AND TS GARDING
TYBEBENG, TY ETANG, TS
1979 HERMING, 69 79 68 155,919 924,328 54,283 54,283 58,649 P 415.0M
TY ISING, TY MAMENG, TY PEPANG,
TD SISANG, TY URING AND TY
YAYANG
1980 TS BIRING, TY DITANG, T GLORING, 143 55 29 306,895 1,666,498 16,510 82,55016,510 47,573 P 1,465.0M
TY LUSING, TY NITANG /OSANG
TS YONING, TY ARING AND TD
BASIANG
1981 TS DALING, TS ELANG, TY RUBING, 484 1,922 264 250,965 1,472,417 93,965 469,82593,965 159,251 P 1,275.0M
TD UNSING, TY YEYENG, TY
ANDING,
TY DINANG
1982 AKANG, BISING, EMANG, NORMING, 337 347 223 266,477 1,569,022 84,042 420,210 84,042 97,485 P 1,659.0M
RUPING, WELING, ANING AND
BIDANG
TY AURING, TY BEBENG, TY
1983 HERMING, 126 168 28 140,604 747,155 29,682 148,410 29,682 87,072 P 522.0M
TY WARLING
TS MARING, TY NITANG, TY 1,242,58

1984 REMING, 1,979 4,426 732 741,510 4,048,805 310,646 4 310,646 313,391 P 5,689.0M
TY UNDANG
1985 TY KURING, TY DALING, TY MILING, 211 300 17 318,106 1,643,142 65,204 326,020 65,204 211,151 P 2,725.0M
TY SALING
1986 TY GADING, TY MIDING, TD OYANG, 171 151 43 287,140 1,414,188 7,106 35,530 7,106 36,357 P 1,776.0M
TY PASING, TS RUPING AND TY
ANING
TY HERMING, TY ISING, TY
1987 NENENG, 1,020 1,455 213 668,628 3,882,534 242,336 969,344 242,336 345,370 P 4,083.0M
TY PEPANG, TY SISANG AND TY
TRINING
TY BIRING, TY HUANING, TY
1988 UNSANG, 429 468 195 1,173,994 6,081,566 134,344 671,720 134,344 355,459 P 8,766.0M
37
TS WELFRING AND TY YONING
1989 TS BINING, TY GORING, TY OPING, 382 1,087 89 502,600 2,582,822 56,473 282,365 56,473 184,584 P 4,494.0M
TY RUBING, TS. SALING, TY TASING,
AND TS UNSING
1,117,67
1990 AKANG , BISING, EMANG, NORMING, 670 1,392 262 1,265,652 6,661,474 223,535 5 223,535 636,742 P 12,678.0M
RUPING, WELING, ANING AND
BIDANG
1991 TS. AURING, TY DIDING, TY ETANG, 5,199 355 1,281 150,894 759,335 15,468 77,340 15,468 83,664 P 4,584.0M
TY TRINING, TS URING, TY YAYANG
TY KONSING,TD DITANG, TS
1992 GLORING, 117 95 53 352,944 1,755,811 3,314 16,570 3,314 8,006 P 5,072.0M
TS ISANGM TY LUSING, TS MARING,
TY PARING
TY GORING, TS HULING, TY
1993 OPENG, 794 1,634 200 1,446,031 7,465,711 164,174 820,870 164,174 444,909 P 19,987.0M
TS RUBING, TS SALING, TS
WALDING,
TS YEYENG, TY KADIANG, TY
HUSING,
TS LURING
1994 TY AKANG, TS BIBING, TD DELING, 242 246 48 617,228 3,056,232 58,567 292,835 58,567 223,359 P 3,198.0M
TD GADING, TY ILIANG, TD LOLENG,
TD NORMING, TS OYANG, TD
PASING,
TY RITANG, TS WELING, TY
KATRING,
TY GARDING
1,470,73
1995 TY AURING, TS KARING, TY GENING, 1,204 3,025 642 1,561,334 7,693,526 294,147 5 294,147 719,124 P 15,256.0M
TY HELMING, TY ISING, TY LUDING,
TS MAMENG, TS PEPANG, TY
ROSING,
TY BENDANG AND TY TRINING
TY ASIANG, TY BIRING, TY
1996 KONSING, 124 134 50 260,581 1,255,289 2,690 13,450 2,690 17,559 P 2,834.0M
TY GLORING, TY HUANING, TY
LUSING,
TY MARING, TY NINGNING, TY
SENIANG,
AND TY TOYANG
1997 TY BINING, TY ELANG, TY HULING, 77 36 6 391,250 1,965,867 546 2,730 546 6,775 P 596.0M
TY IBIANG, TY MILING AND TY
NARSING
1998 TY EMANG & GADING, TY ILIANG, TY 490 866 104 1,590,905 7,322,133 137,020 685,100 137,020 406,347 P 17,017.0M
LOLENG, TY NORMING,
1999 TD GENING, TS HELMING, TY ISING, 100 56 15 381,546 1,789,013 2,788 22,982 16,087 57,566 P 2,577.52M
TS LUDING, TD NENENG, TY
PEPANG,
TS RENING AND TS SENDANG
2000 TD BIRING, TS EDENG, TD ISANG, 345 386 106 1,450,773 7,284,946 24,295 121,475 24,295 196,465 P 7,469.41M
TD MARING, TD NINGNING AND
OSANG,
TY REMING, TY SENIANG,TS
TOYANG,
TD ULPIANG
2001 TY FERIA, TD JOLINA, TS LABUYO, 431 418 134 756,938 3,629,295 16,393 54,422 P 6,923.53M
38
TS NANANG, TS QUEDAN
2002 TD CALOY, TY FLORITA, TY GLORIA, 169 71 33 538,600 2,546.47 1,O55 4,159 P 829.55M
TD HAMBALOS, TY INDAY, TD JUAN,
TD MILENYO
18,33 22,33 16,881,66 83,765,4 2,111,24 9,398,9 2,140,9 4,876,74 139,999.

GRAND TOTAL 9 36,233 4 06 6 95 38 9 P 84 M
www.ndcc.gov.ph
TD "CALOY" SW MONSOON RAINS TD "JUAN" TD "MILENYO"

SPECIFICS INDUCED BY TY 'FLORITA",
TY "GLORIA",TD 'HAMBALOS",
AND TY "INDAY"
DATE OF
OCCURRENCE MARCH 20,2002 JUNE 28-JULY 14, 2002 JULY 19-23, 2002 11-14 AUGUST 2002
AFFECTED AREAS
REGIONS VI,VII, VIII, CARAGA NCR, CAR, 1, III, IV, VI, XI, XII NCR, VI, IV III, IV, V, VI, VII, VIII, X,
NCR, CARAGA
PROVINCES 6 18 3 9
MUNICIPALITIES 16 184 22 35
CITIES 1 14 4 8
BARANGAYS 96 2,356 45 250
AFFECTED
POPULATION
FAMILIES 12,679 483,595 3,692 38,634
PERSONS 54,629 2,278,341 19,048 194,451
EVACUATED
POPULATION
FAMILIES 262 13,216 722 2,180
PERSONS 1,310 61,874 3,449 10,998
EVACUATION
CTRS 8 310 4 15
CASUALTIES
DEAD 35 85 14 35
INJURED 2 45 2 22
MISSING 7 5 21
DAMAGE TO
HOUSES
TOTALLY 262 404 181 208
PARTIALLY 1,046 2,059 402 652
EST'D COST OF
DAMAGE:
AGRICULTURE (P) 51,008,610.00 344,331,000.00 2,124,000.00 83,040,000.00
CROPS &
LIVESTOCK 37,073,610.00 253,948,000.00 (NO BREAKDOWN) 82,310,000.00
FISHERIES 5,650,000.00 90,383,000.00 0 730,000.00
IRRIGATION
FACILITIES 8,285,000.00 - 0 0
INFRASTRUCTURE
(P) 64,538,746.00 176,849,000.00 10,000,000.00 87,918,000.00
PVT PROPERTY (P) 8,400,000.00 710,000.00 631,000.00

TOTAL COST OF
DAMAGE (P) 123,947,356.00 521,890,000.00 12,124,000.00 171,589,000.00
39
REVITALIZING OCD
PROGRAM THRUST FOR CY 2002
In line with the operational and organizational thrusts of Defense Secretary Angelo T. Reyes for excellence in disaster prevention and control, the OCD
shall implement developmental and impact programs in four effectiveness areas:
 Emergency Preparedness and Response
Development of emergency management standards and protocols
 Formation of special emergency response and action groups, including emergency medical detective (forensic medicine)
 Strengthening of emergency support and networking systems including logistics and communications
 Harnessing private sector power: Networking for disaster response and relief operations
Vulnerability Reduction and Risk Control
 Development of public safety and risk management standards and policies

 Formulation of National Mitigation Strategy Plan
 Community-based hazard identification and risk assessment
 Applied research and technology transfer on mitigation and risk control
 Impact activities on mitigation and risk control.
Human Resource Development
 Development of standard training modules for emergency management

 Development of accreditation system for professional training in emergency management
 Enhancement of training programs for Reservist and CMT cadets to include skills development in life preservation and emergency management
 Medium term development plan for HRD
 Establishment of Emergency Management Institute
 Community-based and sectoral trainings, including media
Public Information and Advocacy for Civil Protection
 Public information and education drives

 Advocacy for emergency preparedness and public safety
 Advocacy for injury prevention and life preservation (basic life support)
 Advocacy for protection and cultural resources
 Advocacy for protection of environment
http://www.ndcc.gov.ph/ocd_program%20thrust.html

INITIAL ANNUAL ACCOMPLISHMENT REPORT
JANUARY-OCTOBER 2002
HIGHLIGHTS OF ACCOMPLISHMENT
A. DISASTER PREPAREDNESS
 Organization of one thousand two hundred forty five (1,245) Disaster Coordinating Councils (DCCs) to include 14 Provincial Disaster Coordinating
Councils (PDCCs), 58 City Disaster Coordinating Councils (CDDCs), 389 Municipal Disaster Coordinating Councils (MDCCs) and 784 Barangay
Disaster Coordinating Councils (BDCCs) and 151 Disaster Control Groups (DCGs)
 One hundred fifty four (154) response mechanisms and Eighteen (18) Rapid Assessment Teams (RATs) were organized in the different provinces,
cities and municipalities nationwide
 Seven hundred nine (709) Deputized Civil Defense Coordinators designated/identified
 Conducted two hundred fifty three (253) disaster drills/simulation exercises participated in by 24,668 DCC , DCG members and volunteer members
 Conducted two hundred six (206) symposia/fora/briefings dialogues with Local Chief Executives (LCEs), DCC and DCG members participated in
by 8,575 persons. Forty-six thousand three hundred seventy five (46,375) Information Education Campaign (IEC) materials were distributed for this
purpose.
 This Office, in coordination with AFP and US-PACOM, conducted a series of meetings in preparation for the conduct of SAGIP 2002. The SAGIP
2002 aimed at enhancing regional relationships by promoting common understanding for cooperative multilateral response to disasters.
 Conducted eight (8) NDCC-Technical Working Group (TWG) Regular meetings; one (1) Joint NDCC-TWG and National Relief and Rehabilitation
Service Committee (NRRSC) Meeting; one (1) NDCC Consultative Meeting with Focal Persons of Auxillary/Affiliate Volunteers; and (8) Sub-
Committee Meetings of the NDCC wherein the following were agreed upon:
1. Auxillary Groups to organize themselves and update/resubmit their inventory of equipment and resources to OCD/NDCC; classify
themselves according to their forte/expertise and or specialized skills/service under the building blocks of effective response; and auxillary
groups to avail of and maximize benefits of the Information and Communication Technology (ICT) through the website and e-mail.
2. NDCC-TWG members to submit their comments and recommendations using the previous NDCC Memoranda for them to come up with
the proposed selection guidelines and criteria for the selection of Best Prepared DCCs
3. NDCC to issue a Memorandum Circular to various agencies reiterating the implementation of EO 137 (Declaring the Month of July of Every
Year as National Disaster Consciousness Month and Institutionalizing the Civil Defense Deputation program.)
B. DISASTER RISK REDUCTION

 Inventoried 36 reseaches/studies on disaster management.
C. DISASTER RESPONSE AND RECOVERY
 Monitored 307 incidents both natural and manmade. Of this number of incidents, 13 major disaster operations were closely monitored and
coordinated the required response actions. These major disaster were: flooding in Mindanao; earthquake in South Cotabato; destructive weather
disturbances namely TD Caloy, Typhoons Florita, Gloria, Hambalos and Inday which induced the southwest monsoon rains, TD Juan and Melinvo;
Fire incidents invloving Manor Hotel in Quezon Cityand M/V Carmela in Quezon Province, fire in Pio Duran, Albay; Baseco fire in Manila; Bombing
40
Incidents in Kidapawan City and Zamboanga City; Vehicular Accidents in Upi, Maguindanao, Buguias, Benguet and Cordon, Isabela; and the
clashes between the Abu Sayyaf Group/lawless elements and the military groups.
 Effects were the following:
Casualties 531 dead; 1,592 injured; 105 missing
Affected Population 836,180 families or 3,936,962 persons
Damages to Houses 5,526 totally and 10,074 partially
Damage to properties P 3,809.005 M or P 3.8 B
NDCC-OCD EMERGENCY MANAGEMENT ACTIVITIES:
 Under the NDCC rice assistance program, facilitated the release of 19,336 sacks of rice worth P 15,468,800.00 procured P 717,032.00 worth of
medicine as augmentation support to the local government units affected by 13 major disasters.
 Coordinated with the different implementing agencies for immediate response in terms of search and rescue (SAR), evacuation, relief, medical,
recovery and rehabilitation operations and conduct of medical missions
 Medical missions were conducted in collaboration with CRS-AFP, ABS-CBN foundation, DSWD, PNRC, NGOs, DOLE, TESDA and DENR.
 Coordinated with AFP-JOC and NCR-DRTG for the availability of SAR assets and transportation facility to airlift and transport relief goods of
various relief agencies to disaster stricken area.
 The following sorties of transportations were made: 10 c-130, 12 Helicopter, 119 M35 trucks, 55 rubber boats, 8 coasters, 9 amphibian trucks, 4
ambulances, 9 dump trucks, 2 fire trucks and 2 Isuzu elf and provided 4 tents and 2 portalets.
 Airlifted assorted relief goods, medicines and rice to Sulu, Basilan, Zamboanga City and Tawi-Tawi intended for the deportees from Sabah,
Malaysia.
 Coordinated with SOLCOM for the medical team counterpart during the conduct OCD'smedical mission in Orani; Bataan; Socorro, Oriental
Mindoro; and Tagaytay City with 2,569 patients treated in three (3) areas.
 Provided augmentation support to OCD Region IX and ARMM in terms of financial assistance, rice, medicines and relief supplies intended for the
Sabah, Malaysia deportees. As part of the NDCC's initiatives intended for the deportees, conducted the tri-network Telethon Fund Campaign in
coordination with IBC 13, Broadcast City, NBN 4, KBP Radio stations nationwide, DSWD, SGV and AMA Computer College on September 14,
2002.
 Institutionalized the alert code and declared the red alert status during the occurrence of 7 destructive tropical cyclones Mitag, Caloy, Dagul,
southwest monsoon induced by typhoon Florita, Gloria, Hambalos and Inday, tropical depressions Milenyo, Juan and Kaka, earthquake, and
flooding in Mindanao.
 Evaluated 315 requests for calamity fund intended for the repair of infrastructure damaged by typhoons and other major disasters in 2001 and
2002 and endorsed same to the Calamity fund Unit for approval and appropriate recommendations. As a result a total amount of P439,260,000.00
has been released to Government Agencies (GAs) and LGUs. Breakdown of which are the following:
GAs 342,509,000
DECS 1,000,000
DILG 500,000
DND 56,250,000
AFP 3,000,000
OCD 87,385,000
DPWH 77,000,000
DSWD 104,374,000
NFA 10,000,000
OP 1,000,000
Executive office 2,000,000
LGU's 96,751,000.00
EMIS DATA-BASE PROGRAM:

 Updated directories of 16 Regional Centers- to include contact numbers, names and addresses of officials from the chairrmen of local DCCs )
provinces, cities and municipalities) down to the offices of the local implementing agencies of the regions. Ninety (92%) of the data are available.
 Updated 210 SAR units (AFP) 561 evacuation centers of NCR of various agencies, encoded government and private hospitals (70%) and schools
(30%) in the EMIS Data-base.
 Communicated with Presidents of the League of Cities, Municipalities and Provinces concerning the preparation of SMS directory for PDCCs,
CDCCs, and MDCCs.
 Coordinated with GLOBE re installation of SMS Data Suite Program
D. HUMAN RESOURCE DEVELOPMENT

 Assisted the Municipality of Sta. Rosa in organizing a half-day briefing on "Crisis-Management" with thirty (30) participants from the Sta. Rosa
Municipal DCC, LGU department heads and Sta. Rosa Emergency Preparedness Movement, a private partner in emergency management
attended the briefing. Its objective was to prepare the people for any untoward incident that may happen as a result of former Governor Nur
Misuari's detention in Fort Sto. Domingo, Sta Rosa, Laguna.
 Facilitated the Writeshop on the Finalization of Training Manuals for the conduct of the Orientation, Training of Facilitators, and Formulation
Workshop on Contingency Planning on January 26-27, 2002 at the Horizon EDSA Hotel sponsored by the UNHCR. This is a follow-through activity
after the "Training of Facilitators on Contingency Planning held last October 18-20, 2001 at the Jonel Spring Resort in Calamba, Laguna. Said
activity was participated in by selected graduates of the TOF from OCD, DSWD, DILG and Tabang Maguindanao.
 Had series of meeting with United Nations High Commisioner for Refugees (UNHCR) regarding the follow-up activities on the NDCC-UNHCR
collaborative project the "Regional Emergency Management and Contingency Planning." UNHCR provided counterpart sharing of funds in the
conduct of "Contingency Planning Workshop in Visayas and Mindanao.
 Twenty six (26) OCD personnel attended the conduct of Emergency Management Information System (EMIS) User's Training Course on Feb 18-
21, 2002 at the NDCP Computer Laboratory.
41
 Participated in the "Focused Group Discussion" (FGD) initiated by Local Government Academy (LGA) and the National Barangay Operations
Office (NBO), aimed to develope a Government administrative and training program for Barangay Officials, to include disaster management to be
implemented in July 2002, after the Barangay elections.
 Participated in a two-day reflection workshop on Community Based Disaster Management (CBDM) on February 18-19, 2002 at the Aberdeen
Court, Quezon City, sponsored by Asian Disaster Preparedness Center (ADPC) with the Center for Disaster Preparedness Foundation as the
Workshop Secretariat. A, OCD was the Guest of Honor during the Closing Program.
 Coordinated with the City Mayors of Cebu and Davao on the proposed conduct of CSSR in said cities.
 Updated/Reviewed and developed the following modules:
1. Three (3) manuals for the conduct of "Contingency Planning Formulation Workshop."
2. Training design for a proposed conduct of Emergency Management Seminar for Avon Philippines personnel.
3. Program of Instruction on Emergency Management Seminar with Training of Trainers for CARAGA.
4. Program of Instruction on CSSR Course for the provinces of Cebu and Davao Province.
 Thirty-Five (35) newly-hired and promoted OCD officials and employees attended the Civil Defense Officers (CDOs) Basic Course at the NDMC
Building, Camp Aguinaldo, Quezon City.
 Together with other agencies, 20 OCD staff attended the disaster management training course conducted by Emergency Management Institute of
the Philippine (EMIP) at the NDCP.
 Other capability building activities undertaken/conducted by the Office of Civil Defense in coordination with other agencies and local government
units include the following:
(1) Seminar on Crisis Management - Sta Rosa, Laguna , (a) 35 participants, Writeshop on the Drafting of Contingency Planning Manuals
for Local Government, Horizon Hotel, Mandaluyong City ; (b) 15 participants, Reflection Workshop on CBDM, Aberdeen Court, Quezon
City ; (c) 28 participants, Joint Contingency Planning Workshop for Regionas VI and VII, Bacolod Convention Plaza, Bacolod City ; (c)
38 participants, Emergency Management with First Aid and Basic Life Support for PCRG Federation of PNP Accredited NGOs, PCRG-
PNP, Conference Room. Camp Crame, Quezon City ; (d) 69 participants, Participation to the Coaches Workshop on the Strengthening
of Barangay Peace and Order Committees (BPOCs),
LGA Training Center, UP Los Banos, Laguna , (e) 20 participants, Emergency Managament Training (EMT) for CDDCs of Region IV,
Jonel Spring Resort, Laguna ; (f) 41 participants - Disaster Quick Response Program (DQRO) Seminar Workhsop,
NIA Complex, EDSA, Quezon City ; (g) 162 partcipants
Collapsed Structure Search and Rescue Course (CSSR)
51st EBDE, Libis, Quezon City - 34 participants
E. INTERNATIONAL COOPERATION AND PARTNERSHIP

The Administrator, OCD and other OCD officials and employees in coordination with the international organizations like Asian Disaster Reduction
Center (ADRC), United Nations High Commissioner for Refugees (UNHCR), Asian Disaster Preparedness Center (ADPC), International Civil Defense
Organization (ICDO), National Center for Emergency on Earthquake Engineering (NCREE), Taiwan, International Search and Rescue Advisory Group
(INSARAG) Asia Pacific Regional Group, Government of India and Japan participated in the following:
(a) 4th ADRC International Meeting , Delhi, India January 22-24, 2002; (b) UN International Strategy for Disaster Reduction (Asia Meeting),
Delhi, India January 24, 2002; (c) Disaster Management Conference, Bali, Indonesia February 24-26, 2002, (d) Urban Search and Rescue Exercise
Singapore March 6-10, 2002; (e) Workshop on Development of ASEAN Regional Program on Disaster Management, Bangkok, Thailand March 24-27, 2002
(f) Seminar on Institutional Arrangements for Total Risk Management, Bangkok, Thailand April 3-4, 2002 ; (g) Partnership for Peace: Civil
Protection in Switzerland, Int'l Civil Defense Organization (ICDO) April 8-12, 2002; (h) IAEA Workshop on Emergency and Response for Research
Daijon, Korea; (i) Collapsed Structure Search and Rescue Course (CSSR), Jakarta, Indonesia May 26-June 5, 2002 (j) Regional Cooperatives Mechanism in
Space Technology, Application for Natural Disaster , Management, China , Singapore Expo, Singapore Sept. 01,2002 ;(k) UN Civil Militatry Coordinators
Course, UN-OCHA, Santo-Sweden Sept. 1-6, 2002; (l) Regional Workshop on Cooperative , Mechanism in Space Technology
Beijing, China Jan. 5-6, 2002.
BIBLIOGRAPHY
AFP Approved RDF Program

AFP Circular Nr 06 dated 3 Jun 95.
AFP FRAGORD 01 to LOI 07/98 (PAGHAHANDA).
AFP Standing Operating Procedure Nr 15 dated 11 Dec 95 pp. 1-5.
HPN LOI Nr 27-97 dated 30 May 97, PN Disaster Response Task Group 90.5.
Implementing Rules and Regulations to RA 7077.
National Disaster Coordinating Center, “Calamities and Disaster Preparedness Plan” dated 24 Aug 88 pp. 18-19.
National Disaster Coordinating Center, Statistical Report.
Pilar, Nestor Dr. “An Assessment of the Disaster Management in the NCR/Metro Manila” (Quezon City: 1999) pp. 1-2.
Presidential Decree No. 1566 dated 11 June 78, “Strengthening the Philippine Disaster Control Capability and Establishing the National Program on
Community Disaster Preparedness” pp. 41-43.
Republic Act No. 7077 (AFP Reservist Act)
Republic Act No. 7898 (AFP Modernization Act)
Rules and Regulations Implementing the National Defense Act as Amended by RA 7077 or the AFP Reservist Act pp. 1-2.
Rules and Regulations Implementing the Provisions on PD 1566 pp. 44-48.
The Facts of Civil Defense: What You Should Know and Do to Help and Get Help, Department of National Defense.
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NAVAL COMMAND AND GENERAL STAFF COLLEGE

NAVAL EDUCATION AND TRAINING COMMAND

DISASTER MANAGEMENT IN THE PHILIPPINES

CDR VICENTE L. CEJOCO PN

Naval Command and General Staff Course

DISASTER MANAGEMENT IN THE PHILIPPINES

CDR VICENTE L. CEJOCO PN

Naval Command and General Staff Course

NAVAL COMMAND AND GENERAL STAFF COLLEGE

II. Definition of Terms - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 3

III. Principles of Civil Defense and Disaster Management - - - - - - - - 12

CHAPTER IV – Disaster Legislation - - - - - - - - - - - - - - - - - - - - - - - - 53

CHAPTER V – The AFP Calamities Response Task Force - - - - - - - - 68.

CHAPTER VI – Conclusions and Recommendations - - - - - - - - - - - 76

B. Purpose and Scope

C. Review of Related Studies

CHAPTER II -Definition of Terms

(b) Civil Defense is a public service .

(c ). Civil Defense is an instrument requiring multi-sectoral coordination

B. Introduction to Disaster Management

Figure 1 – Disaster Management Cycle

C. Impact of Disasters on National Development and The Filipino People

2.Effects of Contemporary Development

3. Effects on Long-Term Development

3. Impact of Disaster on People’s Lives

Breakdown of social order X X X

Loss of Industrial production X X X X #

Disruption of marketing systems X X X X #

LEGEND : X - Direct Consequences; # - Secondary Consequences

D. The Need for National Disaster Management Policy and Plans

E. Major Requirements for Coping With Disasters

1. Traditional Disaster Threats

3. Types of Natural Disasters

4. Geographic Dimension of Disasters

5. Disaster Characteristics, Countermeasures and Problem Areas

c. Tsunami or Seismic Sea waves

d. Tropical Cyclone / Typhoons

j. Selected Major Philippine Disasters

H. International Disaster Assistance

1. Guiding Principles in Mitigation

2. Requirements for Effective Mitigation

1. Some Problem Areas in Response

2. Requirements for Effective Response

3. Major Emergency Response Aspects

5. Period of Response Operations

6. Follow-on from Response Operation

8. Resources Relevant to Various Aspects of Response

A. The Need for Disaster Legislation

B. The National Disaster Coordinating Council (NDCC)

C. Basic Philippine Laws on Disaster Management

1. PRESIDENTIAL DECREE NO. 1566

(a) Salient Provisions:

(d) Post-Disaster Phase

(1) At the National Level

Secretary, Department of National Defense Chairman

(2) At the Regional Level

(3). At the Local Government Level

3. PD 1096, ( National Building Code of the Philippines)

3. PD 1185, (Fire Code of the Philippines) -

4. R.A. 7160, ( Local Government Code (LGC) of 1991, as amended)

5. RA 8185 – ( LOCAL CALAMITY FUND) )

(a) Requisites for the use of the 5% Local Calamity Fund:

AFP Calamities and Disaster Preparedness Plan