Glyzel Anne B Sapla

2018020567
PA291

Armed Forces of the Philippines as a First Responder to Earthquakes

The Philippines, by virtue of its geographic location, is highly prone to natural

disasters such as volcanic eruptions, tropical cyclones, earthquakes and the likes, making it
one of the most disaster prone countries in the world. Disasters have destroyed human, social,
and physical capital, and have derailed social and economic development. More importantly,
while the documented losses caused by disasters are formidable, their full impact are now
know and are probably much more significant (Natural Disaster Coordinating Council
Republic of the Philippines). As such, the Philippines government has devoted significant
resources to build disaster capacity and reduce population exposure and vulnerability.

The Government, as stated in Section 4, Article II of the 1987 Philippine Constitution,

has a prime duty to serve and protect the people. Related to this, it is stated in Section 3,
Article II, that the Armed Forces of the Philippines (AFP) is the protector of the people and
the state. Per Section 2 or the Declaration of Policy of Republic Act No 10129 or the An Act
Strengthening the Philippine Disaster Risk Reduction and Management System, Providing
for the National Risk Reduction and Management Framework and Institutionalizing the
National Disaster Risk Reduction and Management Plan, Appropriating Funds therefore and
for other purposes, it shall be the policy of the state to: “…(e) Develop, promote, and
implement a comprehensive National Disaster Risk Reduction and Management Plan
(NDRMP) that aims to strengthen the capacity of the national government and the Local
Government Units (LGUs), together with partner stakeholders, to build the disaster
resilience of communities, and to institutionalize arrangements and measures for reducing
disaster risks, including projected climate risks, and enhancing disaster preparedness and
response capabilities at all levels.” Also, under Section 11 of RA10121, it is stated that the
existing Provincial, City and Municipal Disaster Coordinating Councils shall have their own
local government level of Disaster Risk Reduction and Management Councils (DRRMC),
and that the highest-ranking officer of AFP assigned in the area will be a member. The
Armed Forces of the Philippines (AFP) as first responders has a built-in organizational
structure that is tasked to do HADR in the event of calamities or disasters. It does not act

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independently but works in unison with the rest of government under the National Disaster
Response Plan (NDRP).

It is lamentable however, that given the organization and structure emplaced, disaster
trainings conducted and resources of the government intended for disaster management,
results have not been commendable. In addition, despite these policies and laws emplaced to
assure collaboration during the onslaught of natural disasters, the administration is frequently
questioned by the media for apparently being disorganized during disasters. This experiences
exposed the local government’s inability to efficiently and effectively respond and provide
government services and deliver massive volumes of personnel, Humanitarian Assistance
Disaster Relief (HADR) goods, light and heavy equipment, and temporary facilities to a wide
coverage area due to several alibi (Salazar, 2016).

In relation to this, in the recent years, the intervention of other actors has been
highlighted to serve as a solution to long-overdue problems in disaster management. The AFP
also recognizes that in order to save more lives in times of crisis, coordination among the
different actors is critical for sharing information, planning, and dividing tasks. In February
of 1994, President Fidel V Ramos met with Major Service commanders of the AFP and
directed the military to become the country’s leading disaster relief agency ant to take an
active part in environmental protection (Harkey, 2014). With the nature of the geographical
deployment of the armed forces, including the manpower and resources of the reservists, the
AFP can immediately respond in a short notice on any emergency anywhere around the
country.
Towards this endeavor, scholars have made an emphasis in the consolidation of sound
practices in the field of disaster management. For the purpose of this paper, sound practice is
any proven idea, project, activity, method, mechanism, procedure or technique for assessing,
managing, and/or reducing disaster risks in complex urban areas. This may be in the form of
legislation, land use, education, advocacy, and building of infrastructure, regulatory
enforcement, practices in disaster response, post-event recovery and rehabilitation, or any
combination of these similar actions. Overall, a sound practice, when adopted and followed in
another setting, is expected to yield similar results of reducing natural hazard vulnerability
and/or risk (EMI, 2007, Urban and Megacities Disaster Risk Reduction:Manual of Sound
Practices). In addition, sound practices should have a high potential for universal application,
is institutionalized or integrated in existing systems, deemed effective and is sustainable.
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 As such, the paper will describe and analyze the role of the Armed Forces of the
Philippines in disaster response (as a sound practice), specifically during earthquakes, by
analyzing the 2013 Bohol and Cebu Earthquake, 2019 Luzon Earthquake (Porac, Pampanga),
and the recent 2019 Mindanao Earthquake.

The United Nations International Strategy for Disaster Reduction (UNISDR) defines
disaster risk management as the systematic process of using administrative directives,
organizations, and operational skills and capacities to implement strategies, policies and
improved coping capacities in order to lessen the adverse impacts of hazards and the
possibility of disaster. According to Introduction to Disaster Risk Reduction (2011) published
by the USAID, disaster management aims to avoid and reduce the negative effects of hazards
through prevention, mitigation and preparedness. Thereafter, in 2005, members of the UN
adopted the Hyogo Framework for Action (HFA), which set an overarching goal to achieve
substantive reduction of disaster losses by 2015 by building communities resilient to
disasters. “Disaster Management is the coordination and integration of all activities necessary
to build, sustain and improve the capability to prepare for, protect against, respond to and
recover from threatening or actual natural or human-induced disasters” (Harkey, 2014). It is a
multijurisdictional, multi-sectoral, multi-disciplinary and multi-resource initiative. Therefore,
it is vital that the State and Local Governments, Other Government Agencies, Civil Society
Organizations and the Private Sector discharge their respective roles and responsibilities and
complement each other in achieving shared goals of disaster management.

Most often, due to lack of personnel and resources, the local Government and other
supporting agencies and relief communities, cannot provide the required services or lack of
resources to conduct disaster response and relief operations especially in far-flung areas. As
such, the military unit stationed near the affected area is always tasked to assist. The AFP
with its personnel deployed strategically all over the country ad with its organic resources,
their contribution to disaster management cannot be dismissed (Cinco, 2004). The Military’s
involvement in security and disaster operations will only be effective, however, with the
proper support extended by local leaders in the province or locality.

Based on the Philippine Army Manual (PAM) 7-04 or otherwise known as the
Disaster Risk Reduction and Management Manual, at the impact of disaster, and when
situation permits, Army units shall initiate immediate response during the critical moments to
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those affected primarily to save lives. However, when there is no preparation is possible like
earthquakes, Army unit shall initiate the most immediate and appropriate response
(Philippine Army, 2012).

Based on the Republic Act No 7077, The AFP Reservist Act of 1991, accordingly, the
mission of the Citizen Armed Force, alternately referred to as the Reserve Force, is to provide
the base for the expansion of the AFP in the event of war, invasion or rebellion; assist in the
relief and rescue during disasters or calamities; to assist in economic development; and to
assist in the operation and maintenance of essential government or private utilities in the
furtherance of overall mission. According to the national Disaster Risk Reduction and
Management plan (NDRRMP) 2011-20128, the goal of the NDRRMP in its third thematic
area which is disaster response, is to provide life preservation and meet the basic subsistence
needs of affected population based on acceptable standards during or immediately after a
disaster. Specifically, the cluster for Search, Rescue, and Retrieval was designated to the
AFP. In addition, logistics with Sub-Clusters on: Warehousing, Transportation, & Services
Studies on Inter-Agency Collaboration; as well as the cluster on Emergency
Telecommunications were also assigned to the Office of Civil Defense (OCD).

In a research study by Lachica (1978), he stated that the involvement of the AFP in
disaster control is premised on three (3) conditions: first, the AFP assistance as requested by
local civil authorities; secondly, as directed by Higher Headquarters (AFP); and lastly, the
presence of the AFP in the affected area, requiring the immediate assistance of which will
prevent loss of lives and nay delay thereafter will tend to result in the loss of more lives and
properties (Lachica, 1978). In the first type of involvement, the AFP waits for the local
government to ask the necessary request since the participation of the AFP n the disaster
control is only supportive to other civil government agencies. This is also in line to instill the
spirit of holistic approach among government agencies and the visibility of the AFP to pro-
people activities countrywide. Notably, Ver (1999) stated in his study on Join Military
Operation on Disaster Relief and Rescue Operations, that to effectively and rapidly intervene
during disaster, local and military officials must coordinate and collaborate down to the
lowest level from preparation of the plan to its implementation.

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2013 Bohol Earthquake Response

On 15 October 2013, the island of Bohol and adjacent provinces in the Visayas was
strucked by devastating 7.2 magnitude earthquake recorded as one of the deadliest that hit the
country, claiming an estimated 222 lives and injuring more than 900 others. Hundreds of
structures including centuries-old churches and residential buildings were reduced to rubble.
The earthquake also shattered roads, knocked down bridges, cut off power and
communication lines, caused landslides and sinkholes and isolated several towns from the
provincial capital and commercial center (Official Gazette, 2013).

In response, the provincial government of Bohol as well as the national government in

coordination with the Central Command, Armed Forces of the Philippines immediately
orchestrated relief efforts along with rescue operations. The badly hit municipalities of
Maribojoc, Loon, Tubigon, Clarin, Inabanga and Sagbayan were prioritized for the
humanitarian assistance and disaster response efforts. Philippine Air Force (PAF) helicopters
were used for air reconnaissance and possible casualty evacuation. Initial volumes of relief
goods were flown by PAF helicopters to mountainous barangays which were cut off from
municipal centers where many residents did not have easy access to said goods due to critical
and unpassable roadways and bridges. The Naval Task Group also coordinated for the
availability of naval assets for the arrival of Navy boats loaded with relief goods and
equipment. Water Infiltration Systems were also transferred to evacuation centers for safe
and potable water use of displaced citizens. Meanwhile, the elements of the Land Task Group
were immediately dispatched to assist in the rescue operations and to assess the extent of
damages. Communication was also immediately established and maintained with the
provincial as well as the municipal disaster risk reduction and management councils through
the communication equipment provided by the AFP (After Disaster Response Operation
Report, Philippine Army dated 11 November 2019).

The immediate action of the AFP Disaster Response Task Force in the affected areas
in the province helped saved lives, alleviated the hardship and pain felt by the victims, and
assisted the Provincial Government. Likewise, it effectively assisted over Government
Agencies such as the local Philippine National Police (PNP) in maintaining order and
security.

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2019 Luzon Earthquake (Porac, Pampanga) Response

In April 22, 2019, a 6.1 Magnitude earthquake struck Central Luzon with its epicenter
at Zambales. However, most of the damage was felt in Porac, Pampanga where over 344
structurea suffered severe damage. It also resulted to the death of 17 citizens, 241 were
injured, while four (4) were reported missing (Mosing, 2019).

According to the After Disaster Operations Report of the Headquarters Philippine

Army (2019) on the incident, the Local DRRM Units of Porac admitted that they lacked
heavy equipment for rescue and retrieval operations especially in urban setting and also, they
lack volunteers to secure the large affected area. During said disaster, the elements of the
Armed Forces of the Philippines composing 403 military personnel, in addition to 247
rescuers from the Bureau of Fire Protection, 157 PNP personnel and 23 from the Metro
Manila Development Authority (MMDA) response team, collaborated for the search and
retrieval of all who were trapped. Their efforts resulted to the recovery of all civilians who
were trapped inside the Chuzon Supermarket Complex which collapsed in Porac, Pampanga
within 48 hours after the quake. K9 Units, ambulances, Medical Teams and Fire trucks were
likewise provided. Uniformed Personnel also assisted in the evacuation of affected towns and
barangays, as well the packaging and distribution of relief goods and management of
evacuation centers. The AFP also contributed in the maintenance of peace and order, to avoid
looting, distress and panic among citizens.

2019 Mindanao Earthquake Response

Central Mindanao and its adjacent areas were hit by three (3) earthquakes within two
(2) weeks: The 1st earthquake with 6.3 magnitude transpired on 16 October 2019 (epi-center
at Makilala, Cotabato); The 2nd earthquake with 6.6 magnitude transpired on 29 October
2019 (epi-center at Tulunan, Cotabato); and the 3rd earthquake with 6.5 magnitude transpired
on 31 October 2019 (epi-center at Tulunan Cotabato). There are also several aftershocks
ranging from Magnitude 2 to Magnitude 5 in the succeeding few weeks. The earthquakes
resulted in over 20 deaths during the initial shock and several others injured. More than
319,000 people were affected in Regions XI and XII. Out of this, a total of 56,648 people are
staying in 105 evacuation centres (ECs) while 126,104 people are served outside ECs. More
than 41,200 houses were also reported to be damaged.
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 Units of the Armed Forces of the Philippines, including the Army, have been assisting
and facilitating humanitarian aid and disaster relief efforts for people affected by the
earthquakes. In response, a total of 1,239 AFP personnel were deployed in the disaster
response operations, transfer of patients from hospitals and rescue operations in affected
isolated barangays, Securing of heavily damaged building and construction of temporary
shelters with about 50 Military Mobility Assets provided. The PAF also worked around the
clock in providing air transportation of relief goods and other essential items to thousands of
families affected. PAF also immediately conducted Rapid Damage Assessment & Needs
Analysis (RDANA) over Tulunan, Cotabato and aerial reconnaissance in heavily affected
areas to assess the extent of the damages through the sophisticated technology of the AFP
(APAO, 2019). Likewise, over a hundred personnel were deployed in Evacuation Centers to
assist in the packaging and distribution of relief goods. Notably, soldiers of the Philippine
Army (PA) also gave up their allowances for two meals in order to fund the purchase of a 4.9
hectare lot and the construction of “Kobe-Type” temporary shelters for people displaced. The
donation amounts to a total of PhP9,226,600.00 (Gotinga, 2019).

AFP Involvement in Disasters as a Sound Practice

The adherence to the NDRRMC Manual in relation to the AFP being a first responder
is a proven procedure in managing and responding to risks in complex areas during
earthquakes. Disaster risk is increasingly recognized as a major development challenge over
the past decade more than ever. Challenges in disaster management have brought upon a call
for new partnerships, inter-agency coordination and collaboration to proactively engage in
disaster risk reduction. Involvement of other major actors as a way to solve complex
societal problems is gaining interest across many scientific fields and disciplines. In
public management and administration, public actors working together to solve common and
often complex problems through inter-organizational collaborations have received significant
attention in research and practice (Stokke,2007). Nonetheless, empirical evidence within the
broad field of environmental management and governance is building up and demonstrates
that collaborative approaches can be effective in solving complex problems, but it is also
shown that there is no guarantee that this will happen automatically, and again, the
effectiveness in problem solving depends on the specific tasks at hand (Barnes et al., 2016)
These insights are corroborated by the growing literature on collaborative responses to crises
and disasters, which sheds light on the challenges involved in managing collaboration within
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multi-organizational networks under conditions of threat, urgency, and uncertainty (Kapucu,
Arslan and Demiroz, 2010). These literature generally acknowledges the role of
interdependency between the AFP and local communities as a key driver for collaboration.

While the first responders to any disaster are always the local communities directly
affected by the disaster, these communities are often overwhelmed by large disasters and
require the support of neighboring communities and other organizations. Yet, the Local
Government themselves are often unable to provide immediate relief. It takes these
organizations time to get on the ground, gain access to heavily damaged areas and vulnerable
populations, conduct assessments to identify needs, and bring in or locally hire the resources
needed to provide relief to those impacted by the disaster. In relation to this, in many
instances it is the military that provide lifesaving aid in the immediate aftermath of a disaster.
Militaries have the unique capability to move thousands of people and critical supplies and
equipment needed, for example, to clear and open airports, sea ports and roads, and to restore
essential infrastructure that would otherwise take weeks or months for other agencies to
organize.

As can be gleaned from the three (3) cases discussed above, the Armed Forces of the
Philippines is a primary responder in disasters and have been deployed frequently to several
disaster relief operations in the country. The Philippines has endured disasters that involve
national and international assistance. Among their primary participation, but is not limited to,
includes: Helped maintain peace and order; Provided necessary heavy equipment; Additional
Manpower; K9 capability to locate victims; Provided relief goods for other far-flung towns;
Provided heavy engineering and communication equipment; Assisted in the evacuation and
surveying of buildings; Provided Clear Command and Control; Search, Rescue and Retrieval
Operation was more efficient; Provision of heavy eequipment. The prompt response of the
AFP contingent with the collaborative efforts of other government agencies and rescue units
in responding natural induce disaster greatly contributed in the Response operations

However, while known to be important and essential for improved effectiveness and
efficiency, cross-sector coordination different actors engaged in post-disaster recovery is also
fraught with complications. Among the challenges are: who leads, and how; the capacity and
roles of the government; governance structures within organizations; assumptions of power;
the trade-off between valuing relationships and getting the job done; and, the varying
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constraints and opportunities of accountability (Sherwood, Bradley, Rossi, Guiam and
Mellicker,2015). Like most human-related processes, collaboration cannot be successfully
forced on the participants or achieved in a short period. Coordination in crisis situations is
also difficult due to incompatibilities in infrastructure and difficulty in filtering and validating
the typical flood of information generated during disaster events (Queensland Floods
Commission of Enquiry, 2011). According to Vernadat (1996), Successful disaster
management cooperation involves the will and capability of the participating organizations to
work together in an optimal way. The concept of interoperability is often used as a measure
of cooperation capability. Note that interoperability is understood here as enabling the use
and exchange of information but also as ability to perform a function on behalf of another
entity. The analysis of interoperability in the disaster management domain must include some
important aspects to include: what is the required interoperability extent? what components
or aspects need to interoperate? how can it be ensured that all necessary aspects are covered ?
how can it be ensured that the interoperability achieved is sustainable in time? (Reed 2008).
Still, considering all these gaps, the value of the military is apparent – they can mobilize
quickly, they have the organization, the manpower, and the equipment. In national disaster
situations they can provide security, often a concern in desperate situations.

To improve the current set-up, and to replicate this sound practice, the local
(provincial, municipal and even barangay) Disaster Risk Reduction and Management
Councils should be encouraged to come up with an effective mechanism to communicate and
establish a good relationship with the Armed Forces before, during and after disasters. LGUs
should also consider having corresponding trainings together with the Armed Forces for swift
integration during times of need. LGUs should likewise have an existing system or
mechanism to identify and coordinate with the AFP in calling for Reservists to aid during the
calamity in the area. Generally, the military and civil defense assets should be seen as a tool
complementing existing relief mechanisms in order to provide specific support to specific
requirements, in response to the acknowledged disaster needs.

It is clear however, that these military assets must be selectively and properly
employed to supplement, but not replace the local and provincial/state civilian
emergency/disaster management authorities. Furthermore, military commanders must have an
ongoing involvement in liaison, coordination and planning with civilian local disaster
agencies to ensure that if and when their assistance is required, the integration will be as
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seamless, quick and effective as possible, and under civilian authority. Furthermore, they
must maintain sensitivity to different cultures, in order to determine the most appropriate fit
and most effective supplemental uses of the military in emergency and disaster situations.
The fast, effective and decentralized response of the Armed Forces of the Philippines in
numerous disaster situation, as discussed before, speaks to their ability to function in many
emergency and disaster environments.

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