Guidance Note for Post-Disaster Assessment of the Education Sector

Government Agencies Responsible for the Education Sector

The government agencies that should be responsible in the post-disaster assessment of the
education sector are the:
 Department of Education (DEPED) for elementary and high school;
 Commission on Higher Education (CHED) for colleges and universities; and
 Technical Education and Skills Development Authority (TESDA) for technical and vocational
schools/institutes.

Since it makes estimations of destruction of physical assets and of changes in the flow of socio-
economic activities, the team should include architects and engineers, sociologists and economists.
It should also include other professionals that are well acquainted with the assessment methodology
and with the socio-economic conditions of the affected areas.

The assessment report by CHED and TESDA should be submitted to the DEPED for consolidation and
integration in the final PDA for the sector. Upon completion of the PDA for the sector, the DEPED
should submit the said report to OCD for consolidation and printing. The final PDA, consisting of the
damages and losses of all sectors, the potential impacts and the framework and identified programs
and projects for recovery and reconstruction, will be presented by the OCD to the NDRRMC,
international development partners and other stakeholders.

Damages and Losses in the Education Sector

Damages. Damages are generally the cost of repair of partially damaged assets or the cost of
replacement of totally destroyed assets like structures, equipment, machineries, supplies, etc. The
following are the assets that can be damaged in the education sector:

 Structures or buildings. School buildings, research laboratories, gymnasiums and other

structures which are part of a school or university can be damaged by a disaster. They
should be assessed in coordination with the school authorities.
 Equipment, furniture and other machinery. There are various instruments used for
educational purposes like laboratory and workshop equipment, computers, etc. Additionally,
there is equipment like installations that are part of the building itself, such as elevators,
security equipment, air conditioning, internal communication systems, vehicles, and others.
Depending on the level of the facilities, the types of equipment and other assets may also
vary from facility to facility, which may have direct implication in estimating the cost of
damage in the sector. Therefore, the types of equipment, machinery, furniture and other
important assets possessed and damaged in each facility should be considered.
 Educational materials and supplies. Buildings used for education normally have stocks such
as paper, books, chemicals, etc. Their value can be sufficiently high to warrant individual
assessment. Inventories of research, art works and other collections deposited in a given
institution must also be included under this heading.

Losses
Losses are generally the foregone revenues and additional expenses due to the disaster expressed in

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PDA Guidance Notes – Education Sector Deltares/NUS/PDRF
current (pre-disaster) prices. Losses in the education sector will include the following:
 Cost of temporary school buildings. The cost of temporary school buildings is a loss that
must be estimated. When temporary schools are built, it will be necessary to estimate the
cost of construction and related services, such as the provision of water, latrines and electric
power and the duration for which these temporary schools would function. When using
rented buildings as temporary schools, the total value of rent will be part of the loss.
 Cost of urgent repairs of schools used as emergency shelter. Some schools may need
urgent repair, water installations, latrines, etc. if they were used as temporary shelters. This
should be included in the loss since this will require unexpected expenses on the part of the
government.
 Higher costs of education. Government facilities may incur additional expenses (over and
above the regular budget of the sector) to assist the population for any of the following
reasons:
o Extension of classes over a period of time to compensate for the delays due to the
disaster which will require additional expenses like cost of training if new teachers will
be hired, overtime payment, etc.
o Supplemental feeding and subsidy on transportation costs of students and teachers, if
applicable.
o Higher electricity costs from the use of generator sets; higher cost of water supply; etc.
 Losses due to lower revenues. Revenue losses may arise from interruption of classes while
school buildings are being repaired or reconstructed. The values of losses in revenues will be
the pre-disaster revenues minus the estimated post-disaster revenues.
 Other losses such as demolition and cleanup costs. Aside from repair or reconstruction, a
school building may require partial or total demolition and the resulting debris removed.

Losses can extend beyond the year that the disaster occurred and these should be reflected in the
loss assessment for the coming year/s. The results of the damage assessment in relation to the
available financial resources and the capacity of the construction sector to undertake reconstruction
works will estimate of duration where losses will be incurred.

Steps in Conducting a PDA in the Education Sector

In conducting a PDA in the education sector, the following steps should be followed.

Step 1. Collect and/or validate the baseline data for each of the disaster-affected district

Baseline information must be compiled prior to the occurrence of disaster. If and when a PDA will be
conducted, the baseline data should be validated which will be the bases for the estimation of
damages and losses for each of the disaster-affected area/s. This data can be compiled at the central
or regional offices with necessary inputs from the provincial departments and municipal or district
offices of the DEPED, CHED and TESDA.

The baseline information should be collected at the municipal level. The tables below can be used
for the baseline information.

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PDA Guidance Notes – Education Sector Deltares/NUS/PDRF
Table 1. Baseline information of educational facilities in municipalities
Name of Municipality:
Type of facilities Number Total Average number of students
Educational facilities Public Private Public Private
Male Female Male Female
Kindergarten/ pre-school
Primary School
Secondary School
University
Colleges
Technical/vocational schools
Others
Total

The average replacement and repair costs of the assets in education can be enumerated in the
following table.

Table 2. Baseline information of unit cost of educational facilities in a district

Name of Municipality:
Particulars Values (in PhP)
Pre- Primary School Secondary School University Technical Others
school Single Multi- Single Multi- Institutes
Floor floor Floor floor
Average replacement cost of:
1. Structures
2. Roof per square meter
3. Wall per square meter
4. Floor per square meter
5. Desks
6. Computers
7. Books
8. Chalk boards
9. Other educational materials,
equipment and furnishings
Average repair cost of:
1. Structures
2. Roof per square meter
3. Wall per square meter
4. Floor per square meter
5. Desks
6. Computers
7. Books
8. Chalk boards
9. Other educational materials,
equipment and furnishings
Average fee/s per student
per month
Aver.revenue / day or month
Average construction period
Average repair period

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PDA Guidance Notes – Education Sector Deltares/NUS/PDRF
Notes in filling out Tables 1 and 2
 Other types of educational facilities like public libraries should be included.
 The replacement and repair costs of structure/s, values of books, equipment and furnishing/s should be
per unit or per type in each educational facility.
 Replacement costs can be estimated by the considering the acquisition or construction costs less the
depreciation of the asset/s.
 The average construction period refers to the number of months for a new building to be erected.
 The average repair period refers to the number of months required for the repair of the
structures/buildings. This can be based on past experiences.

Step 2. Estimate damages and losses

With the baseline information in hand, field assessment should be undertaken by the assessment
team to estimate the damages and losses suffered by the education sector, both public and private,
from the particular disaster event. Direct interviews with private contractors or government officials
involved in the construction and repair of educational facilities can be conducted during the field trip
in order to validate unit costs of repair and reconstruction (which is already contained in the
baseline data).

Step 2.1. Estimate the damages to government educational facilities

The post disaster assessments of government-owned educational facilities are the primary concerns
of the DEPED, CHED and TESDA. Assessment can be done on a municipality basis which can be
totaled to create a provincial assessment.

The assessment team can use the following table in assessing the damages and losses incurred by
the disaster-affected public educational facility in a given municipality.

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PDA Guidance Notes – Education Sector Deltares/NUS/PDRF
Table 3. Damage and loss assessment of a government educational facility in a city or municipality
Name of City or Municipality
Type of educational facility:
Estimated Damages
Damaged Assets Totally Destroyed Partially Damaged Total Average Time
to Repair
Quantity Total Quantity Total (PhP) Days
(PhP) (PhP
A B C D E F
Buildings/structures
Desks
Books
Boards
Computers
Furniture
Appliances
Others
TOTAL
Estimated Losses
Disaster Year 1 Year 2 Year 3 Total (PhP)
Year
a. Foregone income

b. Cleaning up of debris

c. Higher operating costs

d. Other unexpected expenses

TOTAL
Notes in filling out Table 3.
 There is a possibility that totally destroyed and partially damaged structures may occur in a certain school.
 The values in the baseline information should be used in estimating damages. For example, if 20 square
meters of the roof are damaged, the repair cost will be the cost of roofing per square meter multiplied by
20 square meters. On the other hand, if the whole classroom is totally destroyed, the value of damage will
be its replacement cost at post-disaster prices.
 The total for the totally destroyed (or partially damaged) assets will be the total number multiplied by the
replacement cost (or average repair cost). The average replacement and repair costs are in the baseline
information.
o Column B = (Column A) x replacement cost
o Column D = (Column C) x repair cost
 In formula, ‘Total damages’ Column E will be: = (Column B) + (Column D)
 The average time to repair refers to the time to restore the affected structures to their pre-disaster levels.
This will give an indication on the number of days before normal services will be restored.
 Years 1 to 3 are the years after the disaster.

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PDA Guidance Notes – Education Sector Deltares/NUS/PDRF
Step 2.2 Estimate the damages and losses to private educational facilities

Since it will be difficult for government agencies to assess the disaster damages to all private
schools, a similar survey questionnaire can be distributed to be filled out by private school owners.
(Private schools may not allow outside people to enter their premises after a disaster). Table 4 below
can be used as a questionnaire for private schools, colleges and universities.

Table 4. Damage and loss assessment of a private educational facility (Questionnaire)

Name of City or Municipality
Type of educational facility:
Estimated Damages
Damaged Assets Totally Destroyed Partially Damaged Total Average Time
to Repair
Quantity Total Quantity Total
Estimated Estimated
Replacement Repair
Cost Cost
(PhP) (PhP (PhP) Days
A B C D E F
Buildings/structures
Desks
Books
Boards
Computers
Furniture
Appliances
Others
TOTAL
Estimated Losses
Disaster Year Year 1 Year 2 Year 3 Total (PhP)
a. Foregone income

b. Cleaning up of debris

c. Higher operating costs

d. Other unexpected
expenses

TOTAL

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PDA Guidance Notes – Education Sector Deltares/NUS/PDRF
Step 2.3. Summarize the damages and losses in a city or municipality

Based on the assessment of the government assets and the survey of the private education sector,
the damages and losses can be summarized in the following table.
Table 5. Summary of damages and losses in the education sector in a municipality or city
Name of Municipality or City:
Types of Assets Types of Damages Total
Totally destroyed Partially damaged Damages
Public Private Total Public Privat Total
(PhP) e (PhP) (PhP)

A B C D E F G
Structures
a. Primary schools
b. Secondary schools
c. Vocational schools
d. Colleges
e. Universities
f. Others (enumerate)
Total
Equipment
a. Desks
b. Books
c. Computers
d. Furniture
e. Supplies
a. Furniture
b. Others (enumerate)
Total

Losses
Type of Losses Losses (in PhP)
Within disaster Year 1 Year 2 Year 3 Total
year
Public Private Public Private Public Private Public Private
Foregone
income
Cleaning up of
debris
Higher
operating
costs
Other
unexpected
expenses
TOTAL LOSSES

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PDA Guidance Notes – Education Sector Deltares/NUS/PDRF
Step 2.4. Summarize the damages and losses in the province

Based on the summary for the areas affected, a similar summary can show the magnitude and scope
of damages and losses province-wide, as shown in the following table.

Table 6. Summary of damages and losses in the province

Name of Province:
Municipalities Within the Disaster Year Losses Beyond Disaster Year
Damages Losses Year 1 Year 2 Year 3
Public Private Public Private Public Private Public Private Public Private
Municipality
1
a. Primary
schools
b. Secondary
schools
c. Vocational
schools
d. Colleges
e. Universities
f. Others
Municipality
2
a. Primary
schools
b. Secondary
schools
c. Vocational
schools
d. Colleges
e. Universities
f. Others
TOTAL

Step 2.5. Summarize Damages and Losses in a Region

Once the summary table for each affected provinces have been filled out, the table below should be
used in summarizing information at the regional level.

Table 7. Summary of Damages and Losses at the Regional Level

Name of Region:
Provinces Within the Disaster Year Losses Beyond Disaster Year
Damages Losses Year 1 Year 2 Year 3
Public Private Public Private Public Private Public Private Public Private
Province 1
Province 2
Province n
TOTAL

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PDA Guidance Notes – Education Sector Deltares/NUS/PDRF
Step 2.6. Summarize Damages and Losses of Firms Nationwide

The table below summarizes the information at the national level. This is to be filled out after the
field assessment is over.

Table 8. Summary of Damages and Losses Nationwide

Nationwide:
Regions Within the Disaster Year Losses Beyond Disaster Year
Damages Losses Year 1 Year 2 Year 3
Public Private Public Private Public Private Public Private Public Private
Region 1
Region 2
Region n
TOTAL

Step 3. Validate the information on damages and losses

In order to ensure the integrity of the data collected and that there is no double counting across the
sectors, a meeting among the various sectoral assessment teams should be conducted. The meeting
or workshop can be a one-day event where all the assessment teams can share their collected data,
issues and experiences in the field, among others. At the end of this meeting/workshop, all
assessments teams must have validated and reconciled their data collected from the field.

Step 4. Analyze the impacts of the damages and losses to affected population.

The assessment team of the education sector must be able to analyze potential impacts of the
damages and losses to school buildings and educational materials in relation to, among others:
 The future education of the youth especially the girls. This will provide an indication on the
potential vulnerability of the youth, especially girls, who may end up uneducated and/or be
forced to seek lower levels of employment outside their own villages.
 The additional costs to families if classes will be extended beyond the normal school year.
 The potential increase in school drop outs.
 Possible losses of teaching jobs (in the private sector) if school buildings are totally
destroyed.
The national targets on the millennium development goals (MDGs) can be used as indicators for
analysis of impacts in the education sector.

Step 5. Forward the impact assessment to the appropriate agency for aggregate analysis

The impact assessment of the education sector will be part of an aggregate social impact assessment
(SIA) which should be consolidated by the DSWD. As such, the assessment team must provide DSWD
with their impact assessment of the education sector. Gender impacts (such as double burden on
women, increased vulnerability in evacuation centers, health and nutrition of lactating mothers, etc.)
should be included in the SIA.

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PDA Guidance Notes – Education Sector Deltares/NUS/PDRF
On the other hand, if there are DRR-related concerns that were caused by the disaster like increased
vulnerability from future natural hazards, the assessment team must include such concerns in their
report and inform the OCD for inclusion in OCD’s assessment. Environmental related impacts must
be communicated with the DENR while macroeconomic effects or impacts should be relayed to
NEDA.

Step 6. Estimate recovery and reconstruction needs

The post-disaster needs must be based on a framework where policies and strategies are likewise
integrated. After identifying such parameters, the aggregate needs of the education sector must be
estimated at the regional and national levels. However, the DEPED, CHED and TESDA must have the
long list of programs and projects where the specific needs of individual schools are detailed.

Step 6.1. Identify recovery and reconstruction strategies

Ideally, while the damage and loss assessment is being undertaken, the concerned agencies (DEPED,
CHED and TESDA) in consultation with their local counterparts, should develop the strategy to be
followed for recovery and reconstruction of education sector for further consideration in the
RDRRMC. Some of the broad content of the strategy could include the following:
 Specific factors which will contribute to ‘build back better’ of education sector like
enhancing and strengthening medium to long-term disaster risk reduction related issues in
education sector such as integrating hazard resilience standards in design and construction
of all new school buildings, retrofitting of school buildings situated in high risk areas,
integrating disaster risk reduction in national school curricula, training of teachers on
disaster preparedness measures etc.;
 Sets of criteria for the prioritization of reconstruction programs and projects;
 Possibilities of relocation of education facilities situated in high risk areas; and
 Possible incentives to private schools owners for reconstruction of damaged schools with
higher standards of resilience. Among them are:
o Tax breaks for private educational facilities;
o Exemption from payment of building permits and other related fees;
o Duty-free importation of construction materials and equipment during the recovery and
reconstruction phase; and
o If needed, direct subsidy may be extended by the government to enable private
educational facilities to recover immediately.

Step 6.2. Estimate recovery needs

Recovery needs are intended to bring back normalcy in the sector as quick as possible. In the
education sector, quick recovery efforts must be undertaken since a great number of students may
encounter delay in continuing their studies. The government must ensure that its education services
will be normalized as soon as possible. Generally, the value of losses is used to estimate the amount
required to achieve recovery, while the value of damage is used to estimate the financial
requirements for reconstruction.

Some of the possible recovery related activities are:

 Reactivation of education activities under special conditions such as:

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PDA Guidance Notes – Education Sector Deltares/NUS/PDRF
 o More intensive utilization of undamaged education facilities, by establishing several
daily “shifts” instead of normal ones;
o Rental of alternative premises which can be used as school buildings; and
o Setting up temporary classrooms, by using tents, containers or other similar facilities.
 Repair of schools used as temporary shelter and that may have sustained damage due to
overuse.
 Replacement of education materials and minimum vital equipment which cannot wait until
reconstruction begins
 Accelerated training of teachers if a large number of teachers died in the disaster.

The cost of each of the above mentioned activities would have been estimated as part of loss
assessment.

Step 6.3. Estimate reconstruction needs

Reconstruction needs are generally long-term in nature (3 years and more) and are intended to
‘build back better’ from the ruins of a disaster. It is to be noted that reconstruction activities should
include both public as well as private educational facilities and may require different types of
financing strategy. Some possible reconstruction related activities in the education sector can
include the following.
 Reconstruction of public schools under a building-back-better strategy to ensure future
disaster resilience through the adoption and enforcement of improved construction
standards;
 Soft-term credit for reconstruction of private schools. Such schemes can be accompanied by
technical assistance for improved disaster resilient standards of construction;
 Cost of replacing furniture and equipment that were destroyed may be included within the
needs for reconstruction, unless they have been covered under the recovery needs to
provide temporary education services for the affected area;
 Structural retro-fitting of undamaged or partially damaged schools so that they are not
affected by disaster event in the future; and
 Relocation of schools to safe and the additional costs involved like land acquisition, and
basic services provision (water, sanitation, electricity, etc)

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PDA Guidance Notes – Education Sector Deltares/NUS/PDRF
Step 6.4. Summarize the estimate recovery and reconstruction needs

Based on the estimated recovery and reconstruction needs, a summary can be created using the
following table.

Table 9. Summary of recovery and reconstruction needs in the education sector.

Needs Type and amount of assistance Total
needed (PhP) Needs
Grant Credit
Public Private Public Private (PhP)
Recovery Needs
1. Cost of increasing number of shifts in schools
2. Rental of alternative premises
3. Setting up of temporary classrooms
4. Urgent repair of schools used as temporary shelters
5. Replacement of education materials and equipment
6. Accelerated training of teachers
7. Others
Total
Reconstruction Needs
1. Reconstruction and repair of public schools
2. Credit scheme for reconstruction and repair of
private schools
3. Replacement of totally damaged furniture and
equipment
4. Structural retrofitting of damaged schools
5. Relocation of schools to safer area
6. Others
Total
Grand Total
Notes in filling out Table 9:
 The reconstruction needs under the ‘credit’ column normally refer to the assistance that will be extended
to damaged educational facilities owned by the private sector and is expected to be repaid over time. If
the government will extend assistance to the private sector without repayment required, the amount of
assistance should be under the ‘grant’ column.

 Government-owned facilities are assumed to be financed by the government without repayment. As such
the amount should be under the ‘grant’ column. However, if the government will finance the needs of
profit-earning educational and research institutions through credit, the amount should be placed in the
credit column.

Step 7. Provide NEDA with the list of identified programs and projects for recovery and
reconstruction

The programs and projects for recovery and reconstruction will have impacts on the macroeconomy,
such GDP, budget deficit, balance of payments, among others. These proposed post-disaster
activities must be provided to NEDA to enable it to perform macroeconomic impact analysis for the
current and future years as well as prepare a strategic action plan for recovery and reconstruction in
consideration of the Philippine Development Plan (PDP).

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PDA Guidance Notes – Education Sector Deltares/NUS/PDRF
Step 8. Analyze financing options

The assessment must be able to initially suggest the possible sources of financing for the post-
disaster needs, especially the recovery needs. This assessment can include such possible sources as
the quick response fund (QRF); National DRRM Fund; existing funds which can be re-directed to the
present needs; grants from international development partners; the private sector; etc. The final
determination for financing options will be done at the NDRRMC level with substantial inputs from
NEDA and DBM, among other agencies.

Step 9. Draft the implementation plan of the identified programs and projects

The identified needs should have a rough schedule of implementation outlining at the very least the
activities, timing and budget required for all the programs and projects. The following techniques
can be considered:
1. Identify the specific projects according to their relative urgency or priority in relation to
recovery.
2. Plot the timeline of activities of all the projects, with the urgent ones on top, in a Gantt chart
with the corresponding funding requirement on an annual basis. This will assist the NEDA in
programming the necessary funds over a certain time period, like on a quarterly or annual
basis.
3. Identify and include in the list of projects that need further feasibility studies which may be
funded by foreign grants.
4. To the extent possible, a logical framework (logframe) should be created for each of the
project proposed for inclusion in the recovery plan. Logframes are normally enough for
foreign donors to consider project proposals.
The recovery and reconstruction needs of the sector can be summarized in the table below showing
the financing requirements over the years. Reconstruction needs mostly require long-term
implementation periods. They normally require three or more years to complete.

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PDA Guidance Notes – Education Sector Deltares/NUS/PDRF
Table 10. Summary of recovery and reconstruction needs in the education sector.
Needs Total Needs Proposed
Annual Needed Amount of Assistance
Source of
(PhP)
Funds
Disaster Year 1 Year 2 Year 3 (PhP)
Year
Recovery Needs
1. Cost of increasing number
of shifts in schools
2. Rental of alternative
premises
3. Setting up of temporary
classrooms
4. Urgent repair of schools
used as temporary
shelters
5. Replacement of education
materials and equipment
6. Accelerated training of
teachers
7. Others
Total
Reconstruction Needs
1. Reconstruction and repair
of public schools
2. Credit scheme for
reconstruction and repair
of private schools
3. Replacement of totally
damaged furniture and
equipment
4. Structural retrofitting of
damaged schools
5. Relocation of schools to
safer area
6. Others
Total
Grand Total
Notes in filling out Table 10.
 Project titles can be inserted under the column on recovery and reconstruction needs.
 The proposed sources of fund can be the ones mentioned earlier - the quick response fund (QRF);
National DRRM fund; existing funds which can be re-directed to the present needs; grants from
international development partners; private sector donations; and additional government budgets
and/or foreign loans.

It should be noted that all projects that will need official development assistance (ODA) should be
drafted by the project proponent agency (DEPED, CHED or TESDA) in accordance with the required
format of the Investment Coordination Committee of NEDA (ICC-NEDA). The project proposal/s or
feasibility studies of the agency/ies will need ICC-NEDA approval to avail of ODA financing.

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PDA Guidance Notes – Education Sector Deltares/NUS/PDRF
Step 10. Draft the post-disaster damages, losses and needs (DaLA/PDA) of the sector

With all the information gathered using the previous steps, a PDA for the education sector should be
drafted by DEPED integrating the reports of CHED and TESDA. This PDA can be considered as the
recovery plan for the education sector. The PDA report should highlight the contents enumerated in
this guidance notes with emphasis on the justifications for inclusion of the identified needs as
priorities in the national recovery plan. The following format may be considered:
1. Brief description of the education sector in the disaster-affected areas.
2. Damages in the education sector by areas and by types of educational facility (pre-school,
primary school, colleges, university, technical schools and others).
3. Losses in the education sector emphasizing the losses in income, increase in expenditures,
estimated period before normalcy will be attained, etc.
4. Impact on the economy, individual households and the consequences to the greater
community if no assistance will be provided.
5. Proposed strategies for recovery and reconstruction of education sector.
6. Needs of the sector, by priority, and the draft schedule of implementation with the
estimated funds required for each project.

The draft report of the education sector should be submitted to the OCD for consolidation and
inclusion in the overall PDA and the disaster recovery plan.

Annex 1.

Technical Note:
According to the GFDRR Guidelines, the amount of reconstruction needs of the education sector can
be estimated by the following formula:

Education Reconstruction Needs = E * Education facility Damage value,

Wherein
 E is a disaster-resilience coefficient whose value may usually range from 1.10 to 1.50. The
actual value to be adopted would depend on the improved degree of construction standards
or norms required. Civil engineers or architects familiar with disaster-resilient construction
standards would be able to define those coefficients.
 The formula must be applied separately to each type of school that may have been
destroyed, and the corresponding disaster-resilience coefficient may vary from school type
to school type.

It should be noted that the above formula is not to be used directly as stated but as a guide in the
estimation of reconstruction needs. The coefficient E should be based on the evaluation of qualified
engineers and other professionals.

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PDA Guidance Notes – Education Sector Deltares/NUS/PDRF