Jacky
Jacky
Jacky
Introduction
Disasters have devastating consequences. They cause death, injury, disease, the
destruction of property and other assets, mass displacement, social and economic disruption,
loss of infrastructure and other services, and damage to the environment. This module has
been designed to provide an in-depth about DRRM to its relationship to climate change, DRR
and the likes in the Philippine Setting.
Learning Objectives
At the end of this module, you should be able to:
• Understand the salient features of DRRM (Disaster Risk Reduction
Management) Law and Climate Change Act
• Identify institutions working towards disaster risk reduction and management
and climate change adaptation and mitigation;
• Analyze financing options for DRRM and CCA&M; and
• Examine the submitted NDCs of the Philippines
Disaster risk management is the application of disaster risk reduction policies and
strategies to prevent new disaster risk, reduce existing disaster risk and manage residual
risk, contributing to the strengthening of resilience and reduction of disaster losses (UNISDR
GAR 2015). Disaster risk management actions can be distinguished between prospective
disaster risk management, corrective disaster risk management and compensatory disaster
risk management, also called residual risk management.
a. Prospective disaster risk management activities address and seek to avoid the
development of new or increased disaster risks. They focus on addressing disaster
risks that may develop in future if disaster risk reduction policies are not put in
place. Examples are better land-use planning or disaster-resistant water supply
systems.
b. Corrective disaster risk management activities address and seek to remove or
reduce disaster risks which are already present and which need to be managed and
reduced now. Examples are the retrofitting of critical infrastructure or the relocation
of exposed populations or assets.
c. Compensatory disaster risk management activities strengthen the social and
economic resilience of individuals and societies in the face of residual risk that
cannot be effectively reduced. They include preparedness, response and recovery
activities, but also a mix of different financing instruments, such as national
contingency funds, contingent credit, insurance and reinsurance and social safety
nets.
d. Community-based disaster risk management promotes the involvement of
potentially affected communities in disaster risk management at the local level. This
includes community assessments of hazards, vulnerabilities and capacities, and
their involvement in planning, implementation, monitoring and evaluation of local
action for disaster risk reduction.
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Local and indigenous peoples’ approach to disaster risk management is the
recognition and use of traditional, indigenous and local knowledge and practices to
complement scientific knowledge in disaster risk assessments and for the planning and
implementation of local disaster risk management. Disaster risk management plans set out
the goals and specific objectives for reducing disaster risks together with related actions to
accomplish these objectives. They should be guided by the Sendai Framework for Disaster
Risk Reduction 2015-2030 and considered and coordinated within relevant development
plans, resource allocations and programme activities. National-level plans need to be specific
to each level of administrative responsibility and adapted to the different social and
geographical circumstances that are present. The time frame and responsibilities for
implementation and the sources of funding should be specified in the plan. Linkages to
sustainable development and climate change adaptation plans should be made where
possible.
A. Phases of DRRM
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disasters can be prevented. The risk of loss of life and injury can be limited with
good evacuation plans, environmental planning and design standards.
Recovery consists of those activities that continue beyond the emergency period
to restore critical community functions and begin to manage stabilization efforts.
The recovery phase begins immediately after the threat to human life has subsided.
The goal of the recovery phase is to bring the affected area back to some degree of
normalcy.
Mitigation is the effort to reduce loss of life and property by lessening the impact
of disasters and emergencies. Mitigation involves structural and non-structural
measures taken to limit the impact of disasters and emergencies. Structural
mitigation actions change the characteristics of buildings or the environment;
examples include flood control projects, raising building elevations, and clearing
areas around structures. Non-structural mitigation most often entails adopting or
changing building codes.
The Sendai Framework is the successor instrument to the Hyogo Framework for
Action (HFA) 2005-2015: Building the Resilience of Nations and Communities to Disasters. It
is the outcome of stakeholder consultations initiated in March 2012 and inter-governmental
negotiations held from July 2014 to March 2015, which were supported by the UNDRR upon
the request of the UN General Assembly. UNDRR is tasked to support the implementation,
follow-up and review of the Sendai Framework.
In January 2005, 168 Governments adopted a 10-year plan to make the world safer
from natural hazards at the World Conference on Disaster Reduction, held in Kobe, Hyogo,
Japan. The Hyogo Framework is a global blueprint for disaster risk reduction efforts during
the next decade. Its goal is to substantially reduce disaster losses by 2015 - in lives, and in
the social, economic, and environmental assets of communities and countries. The
Framework offers guiding principles, priorities for action, and practical means for achieving
disaster resilience for vulnerable communities. See figure 2.
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Figure 2. Hyogo Framework for Action the overall goal/s.
1. Ensure that disaster risk reduction is a national and a local priority with a
strong institutional basis for implementation.
Strong national and local commitment is required to save lives and livelihoods threatened by
natural hazards. Natural hazards must be taken into account in public and private sector
decision-making in the same way that environmental and social impact assessments are
currently required. Countries must therefore develop or modify policies, laws, and
organizational arrangements, as well as plans, programmes, and projects, to integrate
disaster risk reduction. They must also allocate sufficient resources to support and maintain
them. This includes: Creating effective, multi-sector national platforms to provide policy
guidance and to coordinate activities; Integrating disaster risk reduction into development
policies and planning, such as Poverty Reduction Strategies; and, Ensuring community
participation, so that local needs are met.
2. Identify, assess, and monitor disaster risks - and enhance early warning. To
reduce their vulnerability to natural hazards, countries and communities must know the
risks that they face, and take actions based on that knowledge. Understanding risk
requires investment in scientific, technical, and institutional capabilities to observe, record,
research, analyse, forecast, model and map natural hazards. Tools need to be developed
and disseminated: statistical information about disaster events, risk maps, disaster
vulnerability and risk indicators are essential. Most importantly, countries need to use this
knowledge to develop effective early warning systems, appropriately adapted to the
unique circumstances of the people at risk. Early warning is widely accepted as a crucial
component of disaster risk reduction. When effective early warning systems provide
information about a hazard to a vulnerable population, and plans are in place to take
action, thousands of lives can be saved.
Who is responsible for implementing disaster risk reduction and the Hyogo
Framework?
Collaboration and cooperation are crucial to disaster risk reduction: states, regional
organizations and institutions, and international organizations all have a role to play. Civil
society, including volunteers and community-based organizations, the scientific
community,the media, and the private sector, are all vital stakeholders. Following is an
indication of the variety and diversity of actors and their core responsibilities.
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Reviewing national progress towards achieving the objectives and priorities of the Hyogo
Framework.
Sendai Framework
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Figure 3. The Sendai Framework outlines seven global targets to achieved by 2030.
The Sendai Framework covers technological hazards, in addition to natural hazards,
which represent an evolution compared to its predecessor, the Hyogo Framework for Action.
These technological hazards include chemical/industrial hazards further to radiological,
nuclear, biological, and others.
The UNECE Industrial Accidents Convention helps its Parties and committed countries
to follow up on the priorities for action set out in the Sendai Framework. Effective
implementation of the Convention contributes to achieving the Sendai objectives, while the
priorities for action under the Sendai Framework directly support prevention, preparedness
and response to industrial and chemical accidents. This mutual relevance translates into
concrete activities of the Industrial Accidents Convention, in particular:
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arising from hazardous activities which can cause a trans-boundary effect in case of
accident.
The Convention can be regarded as a mechanism for regional and sub-regional cooperation,
as it addresses local and trans-boundary disaster risk reduction in case the consequences of
an accident travel across borders and supports capacity development.
3. Investing in disaster risk reduction for resilience
The Convention promotes the prevention of technological disaster risks through
institutional, legislative and practical measures adopted by authorities and operators. This
comes with an obligation to adopt legislation for disaster risk reduction, requiring operators
of hazardous installations to ensure and demonstrate the safe performance of their
activities. To ensure implementation of these measures, Parties need to include financial
means as well. The Convention therefore also promotes coherence across sectors by
stipulating cooperation among national authorities, which includes the private sector. Proper
investments in all elements of DRR and industrial accident prevention are critical in order to
strengthen resilience.
4. Enhancing disaster preparedness for effective response and to “Build Back
Better” in recovery, rehabilitation and reconstruction
The Convention promotes the organization of transboundary exercises to train
relevant authorities and the population on preparedness and response. More specifically, in
line with the Sendai Framework, the Convention contains obligations to:
(a) Prepare, review and periodically update disaster preparedness and
contingency policies, plans and programmes, ensuring the participation of all sectors and
stakeholders, in particular when preparing on- and off-site contingency plans as required by
the Convention
(b) Promote regular disaster preparedness, response and recovery exercises
(c) Develop and strengthen, as appropriate, coordinated regional approaches and
operational mechanisms to prepare for and ensure rapid and effective disaster response, for
example, through the use of the UNECE Industrial Accident Notification System to request
and render mutual assistance in a cross-border context.
For the chart of Sendai Framework, visit the link given where you can download the file
https://www.preventionweb.net/files/44983_sendaiframeworkchart.pdf
For more updates about this framework, you can visit https://www.undrr.org/
The National Disaster Risk Reduction and Management Plan (NDRRMP) fulfills the
requirement of RA No. 10121 of 2010, which provides the legal basis for policies, plans and
programs to deal with disasters. The NDRRMP covers four thematic areas, namely, (1)
Disaster Prevention and Mitigation; (2) Disaster Preparedness; (3) Disaster Response; and
(4) Disaster Rehabilitation and Recovery, which correspond to the structure of the National
Disaster Risk Reduction and Management Council (NDRRMC). By law, the Office of Civil
Defense formulates and implements the NDRRMP and ensures that the physical framework,
social, economic and environmental plans of communities, cities, municipalities and
provinces are consistent with such plan.
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The NDRRMP is consistent with the National Disaster Risk Reduction and
Management Framework (NDRRMF), which serves as “the principal guide to disaster risk
reduction and management (DRRM) efforts to the country….” The Framework envisions a
country of “safer, adaptive and disaster resilient Filipino communities toward sustainable
development.” It conveys a paradigm shift from reactive to proactive DRRM wherein men
and women have increased their awareness and understanding of DRRM, with the end in
view of increasing people’s resilience and decreasing their vulnerabilities.
National Disaster Risk Reduction and Management Plan 2011-2028. The NDRRMP
sets down the expected outcomes, outputs, key activities, indicators, lead agencies,
implementing partners and timelines under each of the four distinct yet mutually reinforcing
thematic areas. The goals of each thematic area lead to the attainment of the country’s
overall DRRM vision, as graphically shown in figure 4.
Figure 4. Goals of each thematic area lead to the country’s overall DRRM vision.
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1. Thematic Area 1: Disaster Prevention and Mitigation Overall responsible agency: Department
of Science and Technology (DOST)
Table.
Tab
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Table 3. Thematic Area 3: Disaster Response Overall responsible agency: Department of
Social Welfare and Development (DSWD).
Table 4. Thematic Area 4: Disaster Rehabilitation and Recovery Overall responsible agency:
National Economic and Development Authority (NEDA)
The NDRRMP is a road map on how DRRM shall contribute to gender-responsive and
rights-based sustainable development. Highlights include:
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disaster resilience of communities and institutionalize arrangements and measures for
reducing disaster risks, including climate risks.
The importance of mainstreaming DRRM and CCA in the development processes such
as policy formulation, socio-econoimc development planning, budgeting and governance,
particularly in the area of environment, agriculture, water, energy, health, education,
poverty reduction, land-use and urban planning and public infrastructure and housing,
among others. This is achieved through activities such as development of common tools to
analyze the various hazards and vulnerability factors which put communities and people in
harms way.
The Climate Change Act of 2009, or Republic Act 9729, established the Climate
Change Commission (CCC) under the Office of the President. The CCC is the principal
climate policymaking authority tasked to coordinate, monitor, and evaluate the programs
and action plans of the government related to climate change. The CCC led the development
of the National Framework Strategy on Climate Change and the National Climate Change
Action Plan to guide the government in managing climate risk and vulnerability, and
determining appropriate adaptation and mitigation measures for the country. In 2012, the
Climate Change Act was amended by Republic Act 10174, establishing the People’s Survival
Fund (PSF) to provide long-term climate financing for local government units and people’s
organizations’ climate adaptation initiatives. The PSF was given Php1 billion, to be
replenished annually (Retrieved from
https://www.gov.ph/web/green-climate-fund/climatelaws-and-policies.html).
For more information regarding the climate laws and policies, kindly visit
https://www.gov.ph/web/green-climate-fund/climate-laws-and-policies.html
Climate change and environmental degradation are some of the greatest challenges
facing humanity. Beyond direct environmental impacts, climate change has serious
development, economic and humanitarian implications. But climate change is also increasing
societal vulnerabilities, for example, from stresses on water availability, agriculture and
ecosystems. The IPCC predicts that climate change is likely to slow economic growth, erode
food security and exacerbate poverty in most developing countries.
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On the other hand, climate change and disaster risk reduction are closely linked.
More extreme weather events in future are likely to increase the number and scale of
disasters, while at the same time, the existing methods and tools of disaster risk reduction
provide powerful capacities for adaptation to climate change (Geneva 2008). Disasters and
climate change both have similar consequences for people’s lives. There is significant
overlap between the problems that disaster risk reduction and climate change adaptation
seek to address. Disaster risk reduction covers non-climate related disasters such as
earthquakes. But it also addresses climate-related disasters such as floods, droughts,
cyclones and storm surges.
With climate change predicted to increase the frequency and/or intensity of
climaterelated hazards and effects, populations already exposed to those hazards and effects
will be at greater risk. Populations exposed to hazards may also experience stresses due to
longterm changes in climate. For example, changes in seasonality, unpredictable rainfall and
sea level rise can affect livelihoods and health, making people more vulnerable to all types of
shocks, events and further change (see figure 5).
Figure 5. Referenced from: Turnbull, M. Sterrett, C.; Hilleboe, A. (2013) Toward Resilience:
A Guide to Disaster Risk Reduction and Climate Change Adaptation. Practical Action
Publishing: Warwickshire. pp7.
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Figure 6. Climate Change and Disaster Risk Management
The government and public can take a combination of regulatory, structural, and
protective measures to reduce risk, decrease a country’s vulnerability to natural hazards, and
adapt to climatic changes.
The Philippine national government created the People’s Survival Fund (PSF) through
a law signed in 2012, which recognizes that the adaptation needs and local capacities of
each community are unique. The vulnerability of local communities to climate change varies
greatly; thus, determining the cost of protecting one’s community from the impacts of
climate change is a challenge.
PSF will fund adaptation projects such as, but not limited to the following:
Adaptation activities in areas of water resources management, land management,agriculture
and fisheries, health, infrastructure development, natural ecosystems including mountainous
and coastal ecosystems. Monitoring, control, and prevention of vector-borne diseases
triggered by climate change. Forecasting and early warning systems. Supporting institutional
development, for local governments, in partnership with local communities and civil society
groups. Strengthening existing, and where needed, establish regional centers and
information networks. Serving as a guarantee for risk insurance needs for farmers,
agricultural workers and other stakeholders. Community adaptation support programs by
local organizations accredited by the Commission (Retrieved from
https://climate.gov.ph/files/3-PSF.pdf).
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Note that these indicative projects and activities are general. For a wide range of
specific adaptation activities, one reference that can be used is the typologies under the
Climate Change Expenditure Tagging (Refer to DBM-CCCDILG Joint Memorandum Circular,
Revised Guidelines for Tagging/Tracking Climate Change Expenditures in the Local Budget).
However, the identification of adaptation projects and activities shall be supported and
determined by science and evidence-based vulnerability and risk assessments, or
development plans which have mainstreamed climate change in the planning process.
The annual National Disaster Risk Reduction and Management Fund (NDRRMF) also
known as calamity fund was established for the purpose of supporting disaster risk reduction
and management (DRRM) activities focused on prevention and mitigation, preparedness,
response and recovery and rehabilitation. These include training of personnel, improvement
construction of evacuation centers, reconstruction or rehabilitation of infrastructure, aid and
relief services, including pre-disaster activities connected to the occurrence of disasters
(natural or man-made), epidemics, other crises resulting from armed conflicts, terrorism and
other catastrophes in the current year or two (2) preceding years.
The National DRRM Fund has been utilized and is still being used for DRRM and the
emergencies that the country has faced including COVID-19.
The projects and activities supported by the 2020 National DRRM Fund include
reconstruction, rehabilitation and repair of various infrastructure and vital facilities damaged
by disasters in various localities in 2018, 2019 and 2020, financial assistance for Local
Government Units affected by Typhoons Quinta, Rolly and Ulysses, as well as the operations
for COVID-19 Response in 2020 in the form of augmentation to the Quick Response Funds
of attending agencies. PHP 9.4B or 68% of the approved items under the Regular NDRRM
Fund was utilized for COVID-19.
For the update report in relation to allocation and utilization of local disaster risk
reduction and management like the Covid 19 no. of cases/ status you may visit
https://ndrrmc.gov.ph/2-uncategorised/2383-ndrrmc-dbm-and-dilg-re-allocation-
andutilization-of-local-disaster-risk-reduction-and-management-fund-ldrrmf
For the allocation and utilization of local disaster risk reduction and management
fund you may visit
https://ndrrmc.gov.ph/attachments/article/1320/JMC_No_20131_re_Allocation_and_Utilizati
on_of_LDRRMF.pdf
Nationally determined contributions (NDCs) are at the heart of the Paris Agreement
and the achievement of these long-term goals. NDCs embody efforts by each country to
reduce national emissions and adapt to the impacts of climate change. The Paris Agreement
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(Article 4, paragraph 2) requires each Party to prepare, communicate and maintain
successive nationally determined contributions (NDCs) that it intends to achieve. Parties shall
pursue domestic mitigation measures, with the aim of achieving the objectives of such
contributions.
The Paris Agreement requests each country to outline and communicate their
post2020 climate actions, known as their NDCs.
Together, these climate actions determine whether the world achieves the long-term goals
of the Paris Agreement and to reach global peaking of greenhouse gas (GHG) emissions as
soon as possible and to undertake rapid reductions thereafter in accordance with best
available science, so as to achieve a balance between anthropogenic emissions by sources
and removals by sinks of GHGs in the second half of this century. It is understood that the
peaking of emissions will take longer for developing country Parties, and that emission
reductions are undertaken on the basis of equity, and in the context of sustainable
development and efforts to eradicate poverty, which are critical development priorities for
many developing countries (Retrieved from:
https://unfccc.int/process-and-meetings/theparis-agreement/nationally-determined-
contributions-ndcs/nationally-determinedcontributions-ndcs)
Discuss how Disaster Risk Reduction Management (DRRM) in the Philippines’ works
and its improvements. Your answers will be evaluated based on this rubric:
CRITERIA Weight
Present ideas in an original manner 20%
Strong and organized 30%
Writing shows understanding 30%
Sentence structure enhances meaning; flows throughout the piece 20%
Total: 100%
References
BCEM. THE FIVE PHASES OF EMERGENCY MANAGEMENT. Retrieve on May 31, 2021 from
https://www.bexar.org/694/Five-Phases
Communities for Resilience or CORE Program. 2017. Accessing the People’s Survival Fund
(PSF). Retrived on December 9, 2021 from https://climate.gov.ph/files/3-PSF.pdf
ISDR. 2008. Climate Change and Disaster Risk Reduction. Retrieve on May 31, 2021 from
https://eird.org/publicaciones/Climate-Change-DRR.pdf
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NDRRMC. 2121. NDRRMC Alert Status . Retrived on December 9, 2021 from
https://ndrrmc.gov.ph/2-uncategorised/2383-ndrrmc-dbm-and-dilg-re-allocation-
andutilization-of-local-disaster-risk-reduction-and-management-fund-ldrrmf
NDRRMCC. 2013. NDRRMC Department of Budget and Management and Department of the
Interior and Local Government. Retrived on December 9, 2021 from
https://ndrrmc.gov.ph/attachments/article/1320/JMC_No_2013-
1_re_Allocation_and_Utilization_of_LDRRMF.pdf
NDRRMP. National Disaster Risk Reduction and Management Plan (NDRRMP) 2011 2028.
Retrieve on May 31, 2021 from
https://ndrrmc.gov.ph/attachments/article/41/NDRRM_Plan_2011-2028.pdf
OCD. Explainer: 2020 and 2021 NDRRM fund Utilization. Retrived on December 9, 2021 from
https://www.ocd.gov.ph/index.php/news/743-explainer-2020-and-2021-ndrrm-fundutilization
Poller, J., Kryspin-Watson, J., & Sonja Nieuwejaar. Disaster Risk Management and Climate
Change Adaptation in Europe and Central Asia. Retrieved on June 2, 2021 from
https://www.preventionweb.net/files/15518_gfdrrdrmandccaeca1.pdf
Turnbull, M. Sterrett, C.; Hilleboe, A. (2013) Toward Resilience: A Guide to Disaster Risk
Reduction and Climate Change Adaptation. Practical Action Publishing: Warwickshire. pp7
Retrieved on June 2, 2021 from
https://www.worldvision.com.au/global-issues/work-wedo/climate-change/climate-change-
adaptation-and-disaster-risk-reduction )
UNCCS. 2017. Opportunities and options for integrating climate change adaptation with the
Sustainable Development Goals and the Sendai Framework for Disaster Risk Reduction
2015–2030. Retrieve on May 31, 2021 from
https://unfccc.int/sites/default/files/resource/techpaper_adaptation.pdf
UNDRR. About Sendai Framework. Retrieved on June 2, 2021 from https://www.undrr.org/
UNDRR. Climate change. Retrieve on May 31, 2021 from
https://www.preventionweb.net/disaster-risk/risk-drivers/climate-change/ (references letter
D)
UNDRR. What is the Sendai Framework for Disaster Risk Reduction?.
https://www.undrr.org/implementing-sendai-framework/what-sendai-framework
UNECE. Sendai Framework. Retrieved on June 2, 2021 from
https://unece.org/sendaiframework
UNFCC. 2021. Nationally Determined Contributions (NDCs). Retrived on December 9, 2021
from https://unfccc.int/process-and-meetings/the-paris-agreement/nationally-
determinedcontributions-ndcs/nationally-determined-contributions-ndcs
UNISDR GAR 2015. Disaster risk reduction & disaster risk management. Retrieve on May 31,
2021 from https://www.preventionweb.net/disaster-risk/concepts/drr-drm/
UNISDR. Chart of Sendai Framework for Disaster Risk Reduction. Retrieved on June 2, 2021
from https://www.preventionweb.net/files/44983_sendaiframeworkchart.pdf
UNISDR. What is the Hyogo Framework for Action?. Retrieved on June 2, 2021 from
https://eird.org/regional/hyogo-framework.html
World Vision. Climate change adaptation and disaster risk reduction. Retrieved on June 2,
2021 from https://www.worldvision.com.au/global-issues/work-we-do/climatechange/
climate-change-adaptation-and-disaster-risk-reduction
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