Professional Documents
Culture Documents
Commission on Audit
2014
Table of Contents
List of Abbreviations.... 2
Introduction.. 4
Recommendations 22
Conclusion.. 28
Assessment of Disaster Risk Reduction and Management (DRRM) at the Local Level 1
List of Abbreviations
AFP Armed Forces of the Philippines
CCA Climate Change Adaptation
CCAC Climate Change Advisory Committee
CDP Comprehensive Development Plan
CHED Commission on Higher Education
CLUP Comprehensive Land Use Plan
DA Department of Agriculture
DBM Department of Budget and Management
DENR Department of Environment and Natural Resources
DepEd Department of Education
DFA Department of Foreign Affairs
DG Director General
DILG Department of Interior and Local Government
DND Department of National Defense
DOE Department of Energy
DOF Department of Finance
DOH Department of Health
DOJ Department of Justice
DOLE Department of Labor and Employment
DOST Department of Science and Technology
DOT Department of Tourism
DOTC Department of Transportation and Communications
DPWH Department of Public Works and Highways
DRRM Disaster risk reduction and management
DSWD Department of Social Welfare and Development
DTI Department of Trade and Industry
EWS Early warning system
GDP Gross domestic product
GSIS Government Service and Insurance System
IEC Instructional, education and communication
JMC Joint Memorandum Circular
LDCC Local Disaster Coordinating Council
LDRRMC Local Disaster Risk Reduction and Management Council
LDRRMF Local Disaster Risk Reduction and Management Fund
LDRRMFIP Local Disaster Risk Reduction and Management Fund Investment Plan
LDRRMO Local Disaster Risk Reduction and Management Office
LGU Local government unit
MDRRMC Municipal Disaster Risk Reduction and Management Council
NAPC National Anti-Poverty Commission
NDCC National Disaster Coordinating Council
NDRRMC National Disaster Risk Reduction and Management Council
NEDA National Economic and Development Authority
NGO Nongovernmental organization
OCD Office of the Civil Defense
Assessment of Disaster Risk Reduction and Management (DRRM) at the Local Level 2
PCW Philippine Commission on Women
PDRRM-2010 Philippine Disaster Risk Reduction and Management Act of 2010
PHIC Philippine Health Insurance Company
PNP Philippine National Police
PRC Philippine Red Cross
QRF Quick Response Fund
RA Republic Act
RD Regional Director
RDCC Regional Disaster Coordinating Council
RDRRMC Regional Disaster Risk Reduction and Management Council
SSS Social Security System
VC Vice Chairperson
Assessment of Disaster Risk Reduction and Management (DRRM) at the Local Level 3
Introduction
The recent spate of events has shown that the frequent occurrence of disasters
in the country has prevented the Philippine Government to reduce the incidence
of poverty and reduce the number of people and assets vulnerable to natural
disasters.
Disasters can strike anytime, anywhere. It can cause irrevocable damage to life
and property if the right measures are not put in place to avoid the same. This
can also bring out the best and worst of human nature. The manner in which
action is taken goes a long way to determine how people fair from the
experience. Hence, there is need for disaster risk reduction and management
(DRRM).
1
Section 3(h), RA No. 10121
2
Section 3(o), RA No.10121
Assessment of Disaster Risk Reduction and Management (DRRM) at the Local Level 4
Philippine Disaster Profile
The Philippines is an archipelagic nation comprised of 7,107
islands, spanning 1,850 kilometers from north to south. Its total
land area measures around 299,764 square kilometers and its
coastline is about 36,000 kilometers, the longest coastline in the
world. It is bounded by three large bodies of water: on the west
and north by the South China Sea; on the east by the Pacific
Ocean; and on the south by the Celebes Sea and the coastal
waters of Borneo.3
3
Carmelita A. Laverinto. The Philippine Disaster Management System.(2010) 3
Assessment of Disaster Risk Reduction and Management (DRRM) at the Local Level 5
B. Disaster Impact
Super typhoon Yolanda (international name: Haiyan) is the
most powerful and devastating tropical cyclone that struck the
Philippines in recent memory. The Category 5 typhoon made its
first landfall over Guiuan, Eastern Samar in the early morning of
November 8, 2013 and wreaked havoc, primarily on the Visayas
region, until its exit from the Philippine area of responsibility the
following day.
Assessment of Disaster Risk Reduction and Management (DRRM) at the Local Level 6
Table 2
Sector Amount (in peso) Yolanda might be the strongest tropical cyclone to ever make
Infrastructure 9,584,596,305.69 landfall in recorded history but many catastrophic storms and
other natural and man-made disasters have already battered the
Productive 21,833,622,975.09
Philippines since time immemorial. Disasters have always
Social 55,110,825,740.69 been a perennial problem for the country, causing mass
Cross-Sectoral 3,069,023,613.41 casualties and destruction of millions of properties as can be
Total 89,598,068,634.88 gleaned from the following graph and table:
350 Occurrence
314
300
250
200
150 136
100
50 28
8 18 30
25
2 3
0 1
Table 3
No. of events 565
Source: "EM-DAT: The OFDA/CRED International
No. of people killed 69,724 Disaster Database www.em-dat.net Universit
No. of people affected 185,749,697 Catholique de Louvain - Brussels - Belgium"
Economic damage (000 US$) 22,971,533
Assessment of Disaster Risk Reduction and Management (DRRM) at the Local Level 7
Governance Structure
on Disaster Management
Fig. 2
Assessment of Disaster Risk Reduction and Management (DRRM) at the Local Level 8
A. National Organizations
Working on DRRM Given below is the table on DRRM national institutions:
Disaster Management Coordination The OCD is entrusted to ensure the protection and public
Office of the Civil Defense (OCD) welfare during disasters or emergencies. The OCD serves as
the operating arm of the National Disaster Risk Reduction and
Management Council (NDRRMC), supporting discharge of its
functions.
NDRRMC; Regional Disaster Risk The highest policy-making body on matters of disasters in the
Reduction and Management Council country. NDRRMC advises the President on efforts in disaster
(RDRRMC); and Local Disaster Risk management undertaken by the government and the private
Reduction and Management Office sector, thereby serving as the highest policy-making body on
(LDRRMO) disaster management. The NDRRMC is replicated at the
regional and local levels, and these bodies function
substantially like the NDRRMC, operating and utilizing
resources at their respective levels.
Assessment of Disaster Risk Reduction and Management (DRRM) at the Local Level 9
Fig. 3
B. National Strategies on Disaster
Management
Fig. 4
As shown, agencies are clustered under the different phases of
Disaster Management in order to ensure a more coherent and
effective response across all key sectors or areas of activity.
National cluster leads like DENR, Department of Education
(DepEd) and DPWH are lending support to regional Disaster
Coordinating Council to institutionalize the standards and
dimensions of the cluster approach. Local government Units
still continue to play a critical role in disaster response but
capabilities at the local level and coordination between the
latter and national government agencies still face a big
challenge.
Assessment of Disaster Risk Reduction and Management (DRRM) at the Local Level 10
Disaster risk reduction is also being integrated in national and
local policy development and planning processes. This
commitment resulted towards the drafting of Strengthening
Disaster Risk Reduction in the Philippines: Strategic National
Action Plan 2009-2019 as well as the Strategic Plan on
Community Based Disaster Risk Management 2007-2011.
Some series of dialogues and consultations among
stakeholders, international and local NGOs, the academe and
government facilitated the planning process. The field
experience of NGOs complements the scientific knowledge of
the science and technology institutions and the academe, and
the NDCCs practical skills and knowledge on post-disaster
activities. The DRRM field has grown to be inclusive of
several other players, from development planning, housing,
environment, and disaster fields and thus broadened the work
of NDCC.
Assessment of Disaster Risk Reduction and Management (DRRM) at the Local Level 11
Fig. 5
Table 5
Chairman Regional Director
(RD),OCD
Vice RD, DILG
Chairperson
(VC) for
Disaster
Preparedness
VC for Disaster RD, DSWD
Response
VC for Disaster RD, DOST
Prevention &
Mitigation
VC for Disaster RD, National Economic and
Rehabilitation Development Authority
& Recovery (NEDA)
Members Executives of regional
Source: http://brgy9apoblacion.wordpress.com
offices and field stations at
the regional level of
government agencies
Secretariat OCD Regional Office
Assessment of Disaster Risk Reduction and Management (DRRM) at the Local Level 12
Fig. 6
Fig. 7
Assessment of Disaster Risk Reduction and Management (DRRM) at the Local Level 13
C. Related Regulations
The Department of the Interior and Local Government (DILG)
issued Memorandum Circular No. 2012-79 dated April 25,
2012, entitled, Seal of Disaster Preparedness. The circular,
C.1. DILG Memorandum Circular which became effective in 2012, covers a high-risk province,
No. 2012-79 dated April 25, city or municipality, and has for its objectives the following:
2012
1. To recognize and incentivize local government
performance in institutionalizing disaster
preparedness.
Level 1:
Minimum Criteria:
Assessment of Disaster Risk Reduction and Management (DRRM) at the Local Level 14
organized volunteers, innovation
Level 2:
Minimum Criteria:
C.2. COA Circular No. 2012-002 COA Circular No. 2012-002 dated September 12, 2012
dated September 12, 2012 provides the guidelines on accounting and reporting the
allocation and utilization of the LDRRM Fund (LDRRMF), the
NDRRM Fund given to LGUs, and Receipts from Other
Sources. LGUs are already complying with these guidelines.
Assessment of Disaster Risk Reduction and Management (DRRM) at the Local Level 15
Local Disaster Risk Reduction
Management Fund (LDRRMF)
95%
Assessment of Disaster Risk Reduction and Management (DRRM) at the Local Level 16
Issues Identified in Previous
and Recent Audit Results
Previous and more recent program assessments and
financial audits on DRRM implementation at the local level
reveal the following cross-cutting issues:
Lack of Capacity and Technical
The mismatch between institutional responsibilities and
Expertise capacities at the local level has been identified as a major
impediment to effective DRRM implementation. This has
been determined as a major constraint even before the
enactment of RA 10121.
Assessment of Disaster Risk Reduction and Management (DRRM) at the Local Level 17
Lack of preventive technical DRRM mechanisms. LGUs
which were found to have a 52% level of disaster
preparedness still lacked mechanisms on communication and
warning, search and rescue, evacuation, relief operations,
transportation and medical health services. A warning and
evacuation alert system is still not in place in most of the
respondent LGUs although only 27% of the respondents
have yet to enact an ordinance on forced or preemptive
evacuation. Moreover, most LGUs do not have stockpiles
and equipage due to lack of baseline or standards.
Lack of awareness of RA 10121 and Lack of public awareness or the threats and impacts of
non-compliance to its provisions all types of hazards. Instructional, educational and
communication (IEC) materials and guides on DRRM were
found to be insufficient in substance and form.
Assessment of Disaster Risk Reduction and Management (DRRM) at the Local Level 18
Table 8
Non-implementation of LDRRMF programs, projects
Region Amount and activities. LGUs in three regions, were either not able
CAR 3,145,000 to maximize the utilization of their LDRRMF or have not
V 1,503,479,219 implemented the programs/projects/activities under the
ARMM 3,871,778,289
LDRRMF in the total amount of P5, 378,402,508.
Total 5,378,402,508
Assessment of Disaster Risk Reduction and Management (DRRM) at the Local Level 19
Table 12
Region No. of LGUs without
LDRRMF Utilization
Report
I 1
II 3
IV-B 1
V 24
IX 11
X 1
XII 1
Total 42
Table 13
Amount of Non-transfer of unexpended LDRRMF balance to a
LDRRMF balance Trust Fund. The unexpended balance of the LDRRMF in
Region six regions with a consolidated amount of P26,
not transferred to
323,431,553.00 was not transferred from the General Fund
a Trust Fund
to the Trust Fund under the Trust Liability-DRRM account
I 4,338,600,035 as required under COA Circular No. 2012-002, or the
II 2,254,273,302 account used was erroneous. One LGU (Region IV-B, Abra
IV-B 857,161,705 de Ilog, Occidental Mindoro) was noted to have reverted
V 13,156,983,733 back the unexpended LDRRMF amount to the
X 1,865,238,742 unappropriated surplus and another LGU (Region II Nueva
XII 3,851,174,036 Vizcaya) did not have adequate disclosure in the Notes to the
Total 26,323,431,553 Financial Statements.
Table 14
LGUs Amount
Province of Samar Php19,106,925.95
Mun. of Sta. Rita 1,366,665.46
Calbayog City 114,974.365.26
Mun. of Sta. Margarita 1,424,218.65
Mun. of Sto. Nio 950,204.20
Mun. of Matuguinao 706,568.55
Assessment of Disaster Risk Reduction and Management (DRRM) at the Local Level 20
national government agencies, civil society organizations,
volunteers and the private sector left much to be desired.
Assessment of Disaster Risk Reduction and Management (DRRM) at the Local Level 21
Recommendations
In view of the assessment results, audit findings and observations,
we are offering the following recommendations for the optimal
implementation of the countrys DRRM system in accordance with
RA 10121, especially at the local level:
Assessment of Disaster Risk Reduction and Management (DRRM) at the Local Level 22
Audit Results of Selected LGUs
Affected by Typhoon Yolanda
Presented below is a summary of the highlights of the results of
COAs assessment of the implementation of disaster prevention,
mitigation and preparedness in selected cities and municipalities in
Regions VI, VII and VIII, the three regions that were adversely
affected by supertyphoon Yolanda.
For its part, Negros Oriental in Region VII is still updating its
Provincial DRRM Plan to conform to the National DRRM and CCA
plans and policies, while Region VIII has yet to incorporate disaster
prevention and preparedness in its regional development policy.
Assessment of Disaster Risk Reduction and Management (DRRM) at the Local Level 23
classified under Other Maintenance and Operating Expenses
consisting of salaries and wages, overtime pay, etc., which are not
intended to support the LDRRM focused-Program Project Activity,
contrary to Sec. 21 of RA 10121 and Sec. 5.5 of the JMC No. 2013-
1, dated March 25, 2013 of the NDRRMC-DBM-DILG.
Enhancing Capacities of
Communities to Reduce Their
Own Risks and Cope with the
Impacts of All Hazards
In both Sibalom and San Jose de Buenavista in Antique, mapping
and risk assessment of barangays have already been undertaken. In
Sibalom, barangays are required to include hazard maps and seasonal
calendars in their plans. Vulnerability assessment, hazard mapping
and capacity building research activities have also been undertaken
in Escalante City, Negros Occidental in Region VI.
Some gadgets and EWS were in place in the province of Antique, but
the distribution and installation of a Tsunami Warning System, Flood
Level Water Monitoring System and Landslide Early Detection
System was still ongoing. The municipality of Sibalom, Antique has
set up a weather station and three (3) automatic rain gauge systems.
The DOST had also planned to install water level and rain gauge
system in March 2014 and advisories are disseminated through text
messaging. There is also a weather station and automatic rain gauge
system in Barangays Aningalan and San Remegio in San Jose de
Assessment of Disaster Risk Reduction and Management (DRRM) at the Local Level 24
Buenavista, Antique. Flood, earthquake advisory and regular weather
updates are also disseminated through text messaging.
Disaster Preparedness
Assessment of Disaster Risk Reduction and Management (DRRM) at the Local Level 25
and barangay awareness campaign programs, production of reference
materials and coordination with different agencies and sectors to
increase the understanding and application of risk reduction
measures and better prepare communities.
Necessary Skills to Cope
with the Impacts of Disaster
To equip the communities with the necessary skills to cope with the
negative impacts of disaster, regular simulation exercises on how to
deal with earthquakes, flood and fire have been conducted in the
provinces of Antique, Negros Oriental and Negros Occidental. In
Sibalom, Antique, trainings have been conducted for DRRMO staff,
schools, barangays and 4Ps beneficiaries. Search and rescue groups
have been organized, training modules for schools and communities
have been developed and risk assessments and drills and trainers
training have also been conducted in communities to increase the
capacity of local institutions.
In Negros Oriental, Red Cross and other rescue NGOs have been
accredited and the inventory, stockpiling and prepositioning of
resources, and establishment of the DRRM Operations Center have
also been implemented. Risk assessments, contingency planning,
knowledge management and training activities have also been
partially implemented.
Assessment of Disaster Risk Reduction and Management (DRRM) at the Local Level 26
Sibalom and San Jose de Buenavista in Antique have fully functional
DRRMOs. In fact, Sibalom was adjudged as the Best DRRMO,
Regional level in 2013, while San Jose de Buenavista won as 1st
runner-up, Best DRRMO. Both municipalities have created their
own Operations Manual and Protocols of Response.
Strengthen Partnership
Among All Key Players
and Stakeholders
To strengthen partnership among all key players and stakeholders,
the towns of Sibalom and San Jose de Buenavista in Antique and the
Province of Negros Oriental maintain a directory or database of key
players and stakeholders, which are disseminated in the barangays
and posted in conspicuous public places.
Assessment of Disaster Risk Reduction and Management (DRRM) at the Local Level 27
Conclusion
In general, the national and some local DRRM Plans, grounded on
sound legislative framework, are already operational. But there is no
doubt that challenges still abound and there is a pressing need for
government offices to get their acts together, fine-tune their DRRM
plans and optimize their implementation. Given that typhoons,
floods, landslides, drought, volcanic eruptions, earthquakes, tsunamis
and the like will continue to strike the country, the government and
the general public have no other recourse but to intensify their
disaster prevention, mitigation and preparedness. Climate change
will only bring about more, recurrent and fiercer calamities that is
why DRRM should be at the forefront of national and local
development plans and policies.
Assessment of Disaster Risk Reduction and Management (DRRM) at the Local Level 28
properties and livelihood as a consequence of a disaster. This clearly
creates a situation where disasters drastically reduce revenues but at
the same time increase expenditure for immediate disaster response
and recovery.
LGUs can access the National DRRM Funds to fill in their budget
shortage for disaster response and recovery, but this process entails
considerable time and delay. On the part of the DBM, they disclosed
that they are not getting requests for supplemental funds from some
LGUs.
Moreover, some LGUs were not able to fully utilize their LDRRMF
or have not implemented the programs/projects/activities stipulated
in their plans, as reported in the Annual Financial Report for
calendar year 2012. Some LGUs also charged expenditures against
the LDRRMF that were not related to disaster risk management.
Assessment of Disaster Risk Reduction and Management (DRRM) at the Local Level 29
urbanization, environmental degradation and pollution not only
increase disaster risk but also aggravate its impact.
Monitor Accomplishments
and Document Community
Experiences
Monitoring and evaluation, and documentation are also areas for
improvement that can contribute to optimal DRRM implementation
at the local level. Audit results show that except for policy
development activities, many local governments have no reports on
communities, teams and managers trained on disaster preparedness
and response, and no information on the training institutions that
were established for DRRM.
Assessment of Disaster Risk Reduction and Management (DRRM) at the Local Level 30
Areas for Improvement
on Disaster Preparedness
In the aspect of preparedness, the areas that need more effort are the
following:
Assessment of Disaster Risk Reduction and Management (DRRM) at the Local Level 31