Emergency Plan of Action

Philippines: Typhoons and Floods

Emergency Appeal n° MDRPH020 Glide n° TC-2015-000168-PHL and TC-2015-000170-PHL

Date of issue: 22 December 2015 Date of initial disaster: 14 December 2015
Point of contact in IFRC Philippine Office: Point of contact in Philippine Red Cross:
Kari Isomaa Gwendolyn Pang
Head of Country Office Secretary General
kari.isomaa@ifrc.org Email: secgen@redcross.org.ph
IFRC manager responsible for this operation: Philippine Red Cross operational contact:
Patrick Elliott Roderic Salve
Operations Manager Senior Manager for Disaster Management Services
Email: patrick.elliott@ifrc.org Email: roderic.salve@redcross.org.ph
Operation start date: 21 December 2015 Expected end date: 30 November 2016 (12 months)
Operation budget: CHF 3,740,793 DREF allocation: CHF 450,000
Number of people affected: Approximately 1 million Number of people to be assisted: 45,000 (9,000 families)
(200,000 families) with damaged homes
Host National Society presence (n° of volunteers, staff and branches): Philippine Red Cross (PRC) is the
nation’s largest humanitarian organization and works through 100 chapters covering all administrative districts and
major cities in the country. It has at least 1,000 staff at national headquarters and chapter levels, and approximately
one million volunteers and supporters, of whom some 500,000 are active volunteers.
Red Cross Red Crescent Movement partners actively involved in the operation (if available and relevant):
PRC is working with the International Federation of Red Cross and Red Crescent Societies (IFRC) and the
International Committee of the Red Cross (ICRC) in this operation. The National Society also works with a number of
Partner National Societies (PNS) who are mainly supporting Typhoon Haiyan recovery programmes. Some of the PNS
may potentially support PRC’s response to Typhoon Melor, Tropical Depression Twenty Three and monsoon rains.
Other partner organizations actively involved in the operation:
A number of government, non-governmental and UN actors are responding or preparing to respond. These include:
 Government ministries and agencies including the National Disaster Risk Reduction and Management
Council (NDRRMC), Department of Social Welfare and Development (DSWD), the Philippine Armed Forces,
the Philippine National Police Force and Local Government Units
 UN agencies: Including OCHA, UNICEF and WFP
 International organizations & NGOs: Including ACF, IOM, Oxfam, Plan and Save the Children.

A. Situation analysis
Description of the disaster
The Philippines are reeling from the combined effects of Typhoon Melor (local name Nona), Tropical Depression
Twenty Three (local name Onyok) and monsoon rains enhanced by the two tropical systems. As a result of the
weather disturbances, which followed back-to-back within a week, there are significant humanitarian needs spanning
the three main islands; Luzon, Visayas and Mindanao.

Typhoon Melor made an initial landfall in Batag Island, Northern Samar in the morning of Monday 14 December 2015
and then tracked across southern Luzon, making five other landfalls – the second in Bulusan (Sorsogon), the third in
Burias Island (Masbate), the fourth in Banton Island (Romblon), the fifth in Pinamalayan (Oriental Mindoro) and the
sixth in Lubang Island (Occidental Mindoro) – prior to exiting to the sea west of Philippines on Wednesday 16
December. At its peak, Melor packed maximum sustained winds of 150 kilometres per hour (kph) and gusts of up to
185 kph, and brought heavy to intense rainfall within its 300 km diameter. As it moved away from landmass on
Wednesday 16 December, it weakened into a tropical storm, and on 17 December it weakened further into a tropical
depression.
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In anticipation of Typhoon Melor, a total of 165,554 families (742,991 people) were pre-emptively evacuated across
five regions, according to the National Disaster Risk Reduction and Management Council (NDRRMC). Pre-emptive
evacuations contributed immensely to preventing mass casualty. In its updated issued on 21 December evening, the
NDRRMC has reported 41 confirmed deaths as a result of Typhoon Melor with over 199,850 houses damaged –
55,400 of them totally. Most damage to houses has been in the provinces of Oriental Mindoro Northern Samar and
Sorsogon. In addition, 99 classrooms were damaged, 46 of them totally, and 35 health facilities damaged. The
estimated cost of damage to agriculture and infrastructure amounts PHP 4.9 billion (USD 105 million), with loses in
agriculture estimated at PHP 2.8 billion (USD 59 million), meaning that livelihoods have been heavily impacted.

On Friday, 17 December, the President of the Philippines declared a state of national calamity following the
devastation caused by Typhoon Melor. The proclamation is meant to hasten the rescue, recovery, relief and
rehabilitation efforts of the government, the private sector and humanitarian partners as well as enable public
authorities to control the prices of basic goods and commodities in the typhoon-affected areas. It is also meant to give
the government ample latitude in using funds for the rescue, relief and rehabilitation in the affected areas. The
proclamation came as the northeast monsoon induced by the typhoon continued to bring heavy rains and submerged
several provinces in central Luzon and inundated areas as far as northern Luzon. As of Monday 21 December, at least
17,100 families (around 79,000 people) remain in 283 evacuation centres.

As Melor dissipated, a new tropical system – Tropical Depression Twenty Three – entered the Philippine area of
responsibility (PAR). According to the Philippine Atmospheric, Geophysical and Astronomical Services Administration
(PAGASA), Tropical Depression Twenty Three made landfall over the municipality of Manay in Davao Oriental
province, eastern Mindanao, on Friday 18 December evening. It weakened into a low pressure area (LPA) after
landfall but continued to bring rains, including in areas that were recovering from the effects of Typhoon Melor. The
authorities had undertaken pre-emptive evacuation of 3,894 families (18,402 people) in three regions of Mindanao.
The NDRRMC has reported that as of Monday 21 December, As of Monday 21 December, all evacuation centres
were closed as evacuees had returned to their homes. There has been no casualty reported.

On Saturday 19 December, PAGASA reported that almost the entire of Philippines was experiencing rains, with
flooding and landslides – some of them deadly – reported in some provinces. The rains came at a time when a large
number of farming communities have been submerged by floods wrought by Typhoon Melor, with some of the areas
also having barely recovered from floods brought by Typhoon Koppu in October. Several reservoirs located in Bulacan
and Isabela were forced to release water after the incessant rains breached maximum water levels. Bulacan,
Cagayan, Isabela, Nueva Ecija and Quezon are among the provinces that have been impacted by the rains. The
authorities had undertaken pre-emptive evacuation of 1,080 families (4,792 people) in four provinces. NDRRMC has
reported that four people were killed in a landslide which buried four houses in the province of Quezon.

While there has not been a formal request for international assistance from the Government of Philippines, members
of the Humanitarian Country Team (HCT), along with local humanitarian partners, are responding to bilateral requests
from national and local levels, mainly using in-country resources. As a leading humanitarian actor, and in pursuit of its
mandate outlined in Republic Act No. 10072 [Philippine Red Cross Act of 2009], the Philippine Red Cross is mounting
an operation to deliver humanitarian assistance to people affected by the three weather-related events. This
emergency appeal is being launched to enable the IFRC and member National Societies to support PRC in providing
immediate relief and early recovery in affected areas.

Summary of the current response

Overview of Philippine Red Cross (PRC) response

PRC has been on the ground responding to the immediate needs, initially supporting pre-evacuation efforts of the
local authorities, conducting rescue operations that brought more than 16 persons to safety and assisted 24 people to
restore links with their family. As well as serving ready-to-eat meals to some 6,220 persons in evacuation centres,
PRC has distributed food packs to 1,800 families while Red Cross social workers have provided psychosocial support
to 122 people and referral services to persons in evacuation centres through 31 welfare desks.

A total of 55 Red Cross staff members and 188 volunteers have been mobilized for the response so far and are
providing a range of services, including organizing disease prevention, health and hygiene education sessions. The
National Society is now releasing relief items – blankets, hygiene kits, jerry cans, mosquito nets, sleeping mats and
tarpaulins – from its preparedness stocks for immediate distribution in affected areas. Among the items being
released, complete sets of relief supplies for 5,000 families are from IFRC-provided stocks while 2,000 blankets and
2,000 tarpaulins have been released by the ICRC.

Meanwhile, PRC has deployed five assessment teams, comprising of technical persons and generalists from national
headquarters and chapter, in areas hit hardest by Typhoon Melor – one team each for Mindoro, Sorsogon, and
Romblon and two teams to Northern Samar – to assess the extent of the damage. Assessments will inform the
formulation of an extensive plan of action.
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Overview of Red Cross Red Crescent Movement in country

The PRC works with the IFRC and the ICRC as well as American Red Cross, Australian Red Cross, British Red
Cross, Canadian Red Cross, Finnish Red Cross, French Red Cross, German Red Cross, Japanese Red Cross
Society, The Netherlands Red Cross, Norwegian Red Cross, Qatar Red Crescent Society, Spanish Red Cross, and
Swiss Red Cross, in-country. Although a majority of these partners are only supporting Typhoon Haiyan recovery
programmes, some may potentially support this new response through multilateral or bilateral arrangements.

Movement Coordination
As some of the areas affected by the latest weather-related events are security sensitive, close coordination is being
maintained between PRC, IFRC and ICRC. On 16 December, PRC organized a coordination meeting which brought
together all Movement partners with in-country presence; this response was among the topics discussed.

On Saturday 19 December, PRC, IFRC and ICRC (represented by the Chairman, Acting Head of Delegation and
Cooperation Coordinator respectively) visited Northern Samar, which is the province hardest hit by Typhoon Melor.
They witnessed the devastation that has been caused in the province.

Furthermore, PRC, IFRC and ICRC have drafted a Joint Statement which details how Movement partners will work in
a joined up approach. PRC is responsible for the overall coordination and implementation of the response with the
support of ICRC, IFRC and PNS.

Shelter Cluster Coordination

IFRC is usually the co-convenor of IASC shelter cluster in the Philippines, whenever IASC clusters are activated.
Given the scale of the response by the humanitarian sector, IFRC is ready to deploy a shelter coordination team
(SCT). If deployed, the team will be exclusively dedicated to the task of Cluster coordination, independent of
IFRC/PRC operations.

Overview of other actors in country

As auxiliary to the public authorities, PRC maintains a strong relationship with government bodies through participation
or collaboration with (i) the NDRRMC; (ii) the provincial, municipal and barangay (village) disaster risk reduction and
management councils; and (iii) the local government units defined in the Disaster Risk Reduction and Management
Act from 2010. PRC participates in NDRRMC meetings and coordinates with DSWD), and Department of Health, and
the DRRMCs at provincial, municipal and barangay levels.

Further to coordinating with the public authorities, PRC and IFRC participate in Humanitarian Country Team (HCT)
forums held both during disasters and non-emergency times. PRC and IFRC are involved in relevant cluster
information sharing, planning, and analysis at all levels while IFRC supports PRC coordination efforts through
representation in other relevant clusters as required.

Needs analysis, beneficiary selection, risk assessment and scenario planning

Needs analysis
To get a clearer picture of the needs on the ground, PRC has deployed multi-sectoral teams to undertake rapid
assessments in Mindoro, Northern Samar, Romblon and Sorsogon. Once the teams complete the necessary
groundwork, this plan of action will be revised to align the overall response to assessment recommendations.

Secondary data and initial assessments

The impact of the triple events is emerging but according to initial reports – including NDRRMC updates and PRC
chapter reports – Typhoon Melor caused significant damage to Northern Samar and other provinces where it tracked,
leaving affected people in need of assistance, including food and non-food relief, hygienic supplies, emergency shelter
items and cash for meeting immediate needs. Early recovery will follow quickly, with priority on restoring shelter and
livelihoods, along with integrated health and WatSan programmes.

Relief: Due to the flooding and shelter damage, some families are held up in evacuation centres. As floodwater
recedes people can get back to their homes and evacuation centres will empty. However, due to the flood mud, debris
and damage, some families cannot sleep in their homes yet, so they return to the evacuation centres at night. Many of
these are the most vulnerable who are also reliant on support for the first weeks after the disaster.

As such, there is an urgent need for support that will enable the families to meet immediate food and non-food needs.
Since the floods have washed away many of the personnel items, essential non-food item are needed. In this regard,
PRC will distribute essential non-food items to the most vulnerable.

Furthermore, it is expected that markets will reopen soon and as such PRC will quickly move to provide unconditional
cash grants to cover the immediate needs of the most vulnerable families. This will be based on the minimum daily
wage in the area and the market costs to feed an average family size for up to 15 days.
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Health and hygiene promotion: Floods can potentially increase the transmission of water and vector borne
diseases. Other concerns will be leptospirosis and psychosocial support. Disease prevention and health promotion
activities at community level need to be scaled up immediately in order to prevent acute respiratory infections (ARI),
diarrhoea and other diseases with outbreak potential. While local health units have adequate capacity and continue
the delivery of health services, PRC will reinforce health education efforts, focusing on disease prevention.
Psychosocial support interventions will also be undertaken, targeting people who have been displaced.

Water and sanitation: Water sources that were inundated have been contaminated, causing issues related to access
to safe water in affected communities. Contamination of water sources and damage to latrines bring with concerns
relating to waterborne diseases. There is also considerable debris and mud left behind by floodwater, which will
require removal. Environmental sanitation activities, particularly cleaning campaigns are necessary as are efforts to
improve access to sanitation facilities in schools that are often used as evacuation centres. Hygiene promotion
activities aimed at improving hygiene behaviour and bridging knowledge and practice of safe water, food handling and
hand-washing will also be required.

Shelter: The impact on the housing stock is still evolving as information comes in. NDRRMC latest report notes that
168,400 houses have been damaged – 44,000 of them totally. To meet the emergency shelter needs, tarpaulins will
be provided. To support early recovery, the hardest hit vulnerable populations will be provided with a combination of
conditional cash grants and roofing material for them to undertake shelter repairs. Orientation and guidance on safer
shelter construction techniques will be provided to complement the cash and roofing materials while awareness
sessions to promote building back better and safer principles will be organized for community members.

Livelihoods: The typhoon and floods have washed away livelihoods, leaving many families with no means to
meet basic needs. Food reserves have been depleted and small businesses disrupted. Many small markets/shops
are still closed due to the continued floods in some areas and the time it take to clean up after the floods. Some of the
same areas are still not recovered from the previous Typhoon Koppu. Floods will have had a negative impact on the
rice harvest. As such, there will be a considerable shock to the local economy. Many tenant farmers, sharecroppers
and casual labourers who depend on agriculture and fishing will have lost a good percentage of their future income.
PRC will provide livelihoods support to the most vulnerable household to get back on their feet. Given that markets
should reopen quickly, such support will be provided through cash transfers. Beneficiaries can then use their cash
grants to replace livestock, replant or restart small business enterprises.

Community preparedness and disaster risk reduction: Philippines are a vulnerable to various disasters, including
typhoons and floods. When relief needs are covered, and the conditions are established, there will be the need to
undertake an analysis to identify specific needs for integrated community preparedness and risk reduction. Taking into
account existing capacities and needs for improvement, the analysis will be translated into an action plan for
engagement over the longer period in integrated programming aimed at enhancing community resilience.

National Society institutional preparedness and capacity building: The response to the floods will put pressure
on the capacity of PRC and demand scaling up of staffing and other organizational components. There is, therefore,
the need to allocate resources in mitigating a potential negative impact on the long-term development of the National
Society by putting deliberate efforts to strengthen the institutional preparedness capacity of the National Society’s
headquarters and branches involved in the response. Specific actions will be developed in the coming months.

Beneficiary selection
In its responses, PRC will ensure that programmes are aligned with its own as well as IFRC’s commitment to take into
account gender and diversity, for example by targeting women-headed households, pregnant or lactating women, and
men and boys made vulnerable by the disaster, who have been forced to migrate. These groups will be considered
according to the level of impact and more priority will be given to those who have lost their houses.

The main criteria for validation will prioritize most vulnerable households among the populations directly affected by
the disaster and who have not received any or sufficient assistance from the government or other organizations. Other
considerations will be people staying in evacuation centres; those who lack relevant resources to cope with basic
humanitarian needs on their own; those belonging to the socially vulnerable households, including women-headed
households and those with many dependent children; persons with disabilities and of low economic resources, and;
the sick and elderly with low economic base.

Risk assessment
The risk of new floods or another disaster impacting the same areas affected by Typhoon Melor, and/or different
areas, remains and is high. A new disaster – if of a larger scale – has the potential of distracting resources and
implementation schedules of this response. Bad weather conditions have the potential of hampering access and
logistics for delivery of materials, especially to remote locations. To mitigate the impact of these risks on this operation,
disaster preparedness and logistics planning will take into account measures to ensure than planned activities are
implemented as per schedule.
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B. Operational strategy and plan

This operational plan is fully in line with current PRC and IFRC policies, procedures, and commitments, and seeks to
provide immediate and early recovery support to vulnerable households in the most affected provinces across Luzon,
Visayas and Mindanao. This plan of action has been developed jointly by PRC and IFRC, with ICRC and PNS with in-
country presence fully updated about the interventions and their rationale. The plan may be adjusted in the coming
weeks if assessments recommend such and to clearly articulate the recovery interventions to be undertaken. An
allocation of CHF 450,000 has been released from the IFRC’s Disaster Relief Emergency Fund (DREF) to kick-
start the response.

In addition to interventions outlined in this IFRC-PRC plan, in Northern Samar ICRC will provide support PRC in
implementation of interventions which are not detailed in this plan. The joint PRC-ICRC in Northern Samar is using
ICRC’s 2015 annual plan and budget. Where required, IFRC-PRC will provide complementary support in Northern
Samar.

Overall objective
The overall objective of this operation is to ensure that people affected by the typhoon and floods receive appropriate
assistance in a timely, effective, and efficient manner and are supported to recover with increased disaster resilience.

Proposed strategy
The operation consists of closely integrated sectors aiming to provide:
1. Immediate household needs assistance, including distribution of essential household non-food items and
unconditional cash grants;
2. Shelter and settlements support initially by delivering emergency shelter materials (tarpaulins) and later by
cash transfers and roofing materials for target households to prioritize self-recovery;
3. Livelihoods support for families to restart their income earning activities and small enterprise revival,
through cash transfers;
4. Water, sanitation and hygiene promotion interventions focusing on improving access to safe water,
access to improved sanitation, and the sustainable reduction in risk of diseases (water-borne, water-
related and vector-borne) in affected communities;
5. Health interventions focusing on disease prevention, health promotion and psychosocial support;
6. School and community preparedness and disaster risk reduction, including preparedness to the risks of
flooding during the typhoon and monsoon seasons;
7. PRC institutional preparedness and disaster response capacity development interventions to build
capacity of the national headquarters and branches involved in the response to scale up capacity to
deliver in the response and later scale down to the ‘normal’ activities in a sustainable manner while at same
time bolstering first-responder capacity of PRC through training and equipping of Red Cross Action Teams
(RCAT) as well as water search and rescue (WASAR) teams.

Geographically, this IFRC-supported operation will cover affected areas across the islands of Luzon, Visayas and
Mindanao. The joint ICRC-PRC response will cover Northern Samar while interventions supported by PNS working
with PRC bilaterally will cover locations where the supporting PNS have ongoing programmes. PRC will also
undertake interventions using resources it has mobilized locally and/or from non-Movement sources, including the
governments of Australia and New Zealand. IFRC will provide technical support to PRC in all operational areas within
the context of existing technical working groups.

There are four key aspects that are factored in the strategy for this operation:
 A Movement-wide approach: PRC is responsible for the overall coordination and implementation of the
disaster response operation, supported by all components of the Movement. ICRC is the primary operational
partner of PRC in Northern Samar while IFRC is supporting PRC operations in all other affected areas as well
as providing complementary support in Northern Samar.
 Cash transfers: It is deemed that cash transfers will contribute to empowering the affected populations, giving
them the flexibility to prioritize their own recovery and to cater for diverse needs. As well as unconditional cash
grants, cash-for-work interventions will be supported.
 Integrated programming and resilience-building: Early recovery interventions will aim to address a broad
range of sectors, spanning from shelter to livelihoods thereby addressing multiple needs of communities and
contributing to their resilience.
 Factoring lessons from previous operations: PRC has recently gained experience in a large scale
operation in response to Typhoon Haiyan, from which this response will draw.

Crosscutting matters

Gender, diversity and protection

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All programmes will align with PRC’s commitment to take into account gender and diversity, including targeting
women-headed households, pregnant or lactating women, and men and boys made vulnerable by the disaster.
The following considerations apply:
 prevention of sexual and gender-based violence, such as by taking into account the needs of boys and girls in
planning/rehabilitating water and sanitation facilities;
 protecting children in all aspects of the recovery (for example, ensuring that children are not exploited during
the training, construction/rehabilitation of water and sanitation facilities in schools);
 disability inclusion (which recognizes that people with disabilities have the same fundamental rights as other
members of the community);
 involving the most vulnerable groups within community engagement and local decision-making processes;
 adapting infrastructure for people living with disabilities or who are aged/frail and require access points,
latrines with handrails etc.

Community engagement and accountability

PRC has a long history of working and communicating with affected communities, including during the responses to
Typhoon Haiyan. Community accountability and feedback/response mechanisms will be integrated into recovery
programmes to ensure that affected populations have direct access to information on the nature and scope of services
provided by PRC, along with processes that will enable community participation and feedback. Because only a fraction
of affected populations will be targeted with cash transfers, the selection criteria will need to be communicated clearly
to beneficiaries and wider communities, so that people will understand the rationale behind targeting. This will help to
prevent any potential tensions/frustrations by those people who do not meet the beneficiary selection criteria.

Community engagement and accountability services will be implemented through context-specific channels, aimed at
facilitating beneficiary feedback, including mass communication (such as mainstream media and print media),
telephone, Q&A print-outs, flyers, posters and face to face options through social mobilization.

Operational support services

Human resources
The relief phase of the response will rely mainly on the existing capacity of PRC. However, recovery programmes will
require the National Society to hire additional project technical assistants who will receive technical support and
guidance from IFRC. The additional staff members will complement existing teams – at the headquarters and chapter
levels – which are also playing a role in the operation.

Based on an increased demand for technical and coordination support required to deliver on this response plan, the
IFRC in-country structure will strengthened with a field delegate, two field officers and one engineer to guarantee
effective technical support to PRC so as to deliver the commitments under this operation. Where required, additional
support by IFRC will be provided via short technical support by personnel engaged for ongoing Haiyan recovery
interventions.

Logistics and supply chain

All the necessary NFIs needed for distribution are already in country as part of preparedness stocks. The support
being sought via this appeal is for replenishment to ensure that the National Society has adequate stocks in-country to
respond to the next potential disaster. The strategy adopted is procurement of all standard items (jerry cans, hygiene
kits, mosquito nets and tarpaulins) with the support of the IFRC Regional Logistics Unit (RLU) in Kuala Lumpur while
blankets will be procured locally in the Philippines.

Logistics support to this operation will be provided by the in-country team led by a logistics coordinator in Manila.
Logistics activities aim to effectively manage the supply chain, including procurement, clearance, storage and
forwarding to distributions sites following IFRC logistics procedures in full audit trail requirement. They also effectively
support a fleet to facilitate the movement of operational staff and supplies.

The activities include:

 Coordinating within PRC/IFRC programme managers and IFRC RLU in Kuala Lumpur for timely and cost-
efficient sourcing options for the goods and services required in the operation;
 Setting up distribution points in various provinces to support operations;
 Supporting PRC in securing adequate storage solutions with necessary equipment and facilities;
 Supporting and coordinating with PRC in monitoring the reception of incoming shipments, warehousing and
dispatch of goods to distribution points;
 Supporting PRC with local and international procurement of goods and services for the operation, with
international supplies mobilized through IFRC RLU in Kuala Lumpur;
 Supporting PRC on the management of logistical technical information, to ensure quality of information on
fleet, supply chain, and warehousing, and production of relevant/accurate reports;
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 Coordinating with IFRC global fleet base in Dubai in providing adequate vehicles to support the operation as
well as to set up and monitor transport management systems and procedures as per IFRC fleet standards.
Information technologies (IT)
As the implementation teams will be augmented with new staff, there is a need for standard items such as phones and
personal computers. IFRC supports sustainable skills training and equipment maintenance knowledge of PRC staff
and volunteers. The delegation’s Information Management delegate is also supporting the PRC in producing
risk/hazard maps to support readiness and planning. Support in elevating staff/volunteer skills in new technologies,
including efficient electronic data collection tools such as the Open Data Kit (ODK) and electronic reporting is also
being implemented, and is aligned with PRC’s strategic objectives.

Communications
IFRC, ICRC and PRC communications teams will work closely together to develop a common approach towards
communicating as a Movement in order to build public awareness around the humanitarian needs. IFRC, ICRC and
PRC will continue to agree on key messages and talking points. Key messages, talking points, reactive press lines
and infographics will be produced on a regular basis with particular emphasis placed on communicating around key
milestones and timelines in the operation. Regular news stories and blogs together with interactive maps and
infographics will be posted on the IFRC public website and other relevant online media sites. Ensuring that the
operation is well documented through audio-visual coverage will be an important element of the communications plan.
High quality photographic and video material will be produced over the duration of the emergency appeal, designed to
support the resource mobilization and visibility efforts of National Societies.

Security
The IFRC security framework will be applicable for this operation. As regards PRC staff and volunteers, the National
Society’s security framework will apply. Coordination will also be observed with the ICRC through regular information-
sharing and on occasions where staff members are required to be present in security-sensitive areas. All security
matters pertaining to the Philippines are shared with partners as and when these are available.

Planning, monitoring, evaluation, and reporting (PMER)

Monitoring of relief and cash distributions will be carried out through the use of beneficiary distribution lists and
feedback from beneficiary households via a post-distribution survey.

Rehabilitation of water and sanitation facilities in schools will be undertaken by third-party, independent contractors
with proven capacity to perform significant construction projects. While the contractors will be required to have site
engineers to supervise construction works, PRC and IFRC engineers will continuously monitor the progress and the
quality of construction works.

As regards to behaviour change elements of the programme, the participatory hygiene and sanitation transformation
(PHAST) monitoring tools, baseline and end-line survey questionnaires, community maps, written reports from PRC
and IFRC staff, and photographs as documentation will be used for monitoring.

In accordance with the IFRC framework for evaluations, an end-line evaluation will be conducted for this operation.
The Asia Pacific PMER unit in Kuala Lumpur will support in the planning and guiding of the evaluation.

The minimum standards of IFRC emergency appeal reporting will be followed to the letter. Future reports will include a
revised appeal/revised plan of action, standard operations updates and the final report.

Finance and Administration

The IFRC, through the department of finance, provides the necessary operational support for review, validation of
budgets, bank transfers, and technical assistance to the National Societies on procedures for justification of
expenditures, including the review and validation of invoices. PRC – which is on the working advance system – has
been supported for many years by the IFRC and is accustomed to these financial procedures.

The IFRC finance and administration team in Manila comprises one finance coordinator, one finance manager, and
three finance officers as well as two administration officers and five drivers who may also provide transport support in
the field when required..
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D. DETAILED OPERATIONAL PLAN

Quality programming
Needs analysis: PRC has deployed teams to undertake assessments – to determine the needs of affected people. Assessments will inform the revision of this plan.

Outcome 1: Continuous and detailed assessment and analysis is used to inform the design and implementation of the operation
Output 1.1: Needs assessments are conducted and response plans updated according to findings
Activities planned Month 1 2 3 4 5 6 7 8 9 10 11 12

1.1.1 Mobilize staff and volunteers for assessments x x

1.1.2 Undertake assessments to determine specific needs of beneficiaries x x x x
1.1.3 Develop detailed response plans with activities that will meet identified beneficiary needs x x x x
Output 1.2: Additional assistance is considered where appropriate and incorporated into the plan
Activities planned Month 1 2 3 4 5 6 7 8 9 10 11 12

1.2.1 Ensure that any adjustments to initial plans are informed by continuous assessment of needs x x x x x x x x x
1.2.2 Conduct post-action surveys to determine the level of satisfaction among beneficiaries x x x x
Output 1.3: Mechanisms are in place to facilitate two-way communication with and ensure transparency and accountability to disaster-affected people
Activities planned Month 1 2 3 4 5 6 7 8 9 10 11 12

1.3.1 Provide appropriate information, including on the scope and content of projects, to disaster-affected people x x x x x x x x x
1.3.2 Ensure that affected people can deliver feedback on the programmes and report any complaints, in confidence, and that x x x x x x x x x x x
such are actioned by PRC and its partners
Output 1.4: Management and delivery of the operation is informed by an appropriate monitoring and evaluation system
Activities planned Month 1 2 3 4 5 6 7 8 9 10 11 12

1.4.1 Develop and utilize an appropriate M&E system to support monitoring of the operation progress, including the final x x x x x x x x x x x
evaluation and lessons learnt activities.
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Immediate household needs, shelter and settlements

Needs analysis: With damage to housing widespread, affected families need support for meeting emergency shelter needs and subsequently to undertake repairs or to
rebuild their damaged homes. Furthermore, some families had their essential household items lost to, or damaged by, the floods and will need to replace the items.

Population to be assisted: PRC is dispatching prepositioned stocks to ensure that affected families are provided with blankets, hygiene kits, jerry cans, mosquito nets,
sleeping mats and tarpaulins. A total of 6,000 families are targeted with NFI and tarpaulins. As well as distributing NFI, PRC will provide 3,000 families with unconditional cash
grants for multi-purpose needs; not all would necessarily be the same who received NFI.

To support families whose houses have been damaged in undertaking repairs, PRC will provide shelter repair assistance to 3,000 families. Shelter repair assistance will
comprise cash grants worth PHP 10,000 (for exchange with shelter materials and tools) and 10 pieces of corrugated galvanized iron (CGI) sheets per family. Not all would
necessarily be the same who received NFI or unconditional cash. Families receiving shelter repair assistance will also be provided with orientation on the programme and
guidance on safer shelter construction techniques. Awareness sessions to promote building back better and safer principles will also be organized for community members.

Outcome 2: The immediate household, shelter and settlement needs of the target population are met.
Output 2.1: Target populations are provided with essential household (non-food) items
Activities planned Month 1 2 3 4 5 6 7 8 9 10 11 12

2.1.1 Dispatch essential household items from warehouses to affected areas x x

2.1.2 Select 6,000 households according to set criteria and prepare beneficiary lists x x x x
2.1.3 Distribute essential household items to 6,000 households x x x x
Output 2.2: Target populations are provided with emergency shelter materials (tarpaulins)
Activities planned Month 1 2 3 4 5 6 7 8 9 10 11 12

2.2.1 Dispatch emergency shelter items from warehouses to affected areas x x x

2.2.2 Select 6,000 households according to set criteria and prepare beneficiary lists x x x x
2.2.3 Distribute emergency shelter items (tarpaulins) to 6,000 households x x x x
Outcome 3: Remaining urgent needs of targeted populations are met
Output 3.1: Target populations are provided with unconditional cash grants for meeting priority household needs
Activities planned Month 1 2 3 4 5 6 7 8 9 10 11 12

3.1.2 Select target households according to set criteria and prepare beneficiary lists x x
3.1.3 Engage a suitable cash remittance service provider with a network in affected areas x x
3.1.4 Disburse unconditional cash grants to 3,000 households through the service provider engaged x x x x
3.1.5 Conduct post-distribution monitoring on the usage of cash transfers (covering at least 10% of target households) x x
Outcome 4: Affected households have recovered safer shelter and gained awareness and skills on safer shelter
Output 4.1: Affected households whose houses were damaged have repaired or retrofitted back better
Activities planned Month 1 2 3 4 5 6 7 8 9 10 11 12

4.1.2 Identify 3,000 households that will receive shelter repair assistance and register them as beneficiaries x x x x x
4.1.3 Provide the selected households with orientation on the programme and guidance on safer shelter construction techniques x x x x x
4.1.4 Provide the selected households with CGI sheets and conditional cash grants worth PHP 10,000 x x x x x
4.1.5 Undertake monitoring to ensure that target households have repaired using building back better and safer principles x x x x
4.1.6 Organize awareness sessions for community members to promote building back better and safer principles x x x x
 P a g e | 10

Livelihoods

Needs analysis: The estimated cost of damage to agriculture and infrastructure amounts PHP 4.9 billion (USD 105 million), with loses in agriculture estimated at PHP 2.8
billion (USD 59 million), meaning that livelihoods have been heavily impacted. Damage to crops will have had a negative impact on the rice harvest. Many tenant farmers,
sharecroppers and casual labourers who depend on agriculture and fishing will have lost a good percentage of their future income.

Population to be assisted: Under this operation, PRC will support the most vulnerable household to get back on their feet. The support will be provided through
conditional cash grants worth PHP 10,000 each. Beneficiaries can then use their cash grants to replace livestock, replant or restart small business enterprises.

Outcome 5: Economic security of the target worst-affected households is restored

Output 5.1: Affected households have restored livelihoods after receiving working capital sufficient to resume income generating activities
Activities planned Month 1 2 3 4 5 6 7 8 9 10 11 12

5.1.1 Through community-based targeting led by barangay recovery committees, select 3,000 households that will receive PHP x x x x x x x
10,000 conditional early livelihood recovery grants
5.1.2 Provide the selected households with orientation on the programme, distribution process, and guidance to generate x x x x x x x
proposals
5.1.3 Provide the selected households with conditional early livelihood recovery grants in line with their proposals x x x x x x x
5.1.4 Undertake monitoring to ensure that households that receive conditional early livelihood recovery grants have resumed x x x x x x
livelihood activities outlined in their proposals
 P a g e | 11

Health & care

Needs analysis: Disease prevention and health promotion activities at community level need to be scaled up immediately in order to prevent acute respiratory infections
(ARI), diarrhoea and other diseases with outbreak potential. PRC will reinforce health education efforts, focusing on disease prevention. Psychosocial support interventions
will also be undertaken, targeting people who have been displaced.

Population to be assisted: Health promotion activities will be carried out in affected areas, complemented with provision of enabling items such as mosquito nets. PRC
will also conduct psychosocial support activities in target communities, including specific activities for children, and ‘caring for carers’ interventions for staff and volunteers
involved in the response. Health promotion activities will be done in an integrated manner with hygiene promotion and will target same beneficiaries.

Outcome 6: The immediate and medium-term risks to the health of floods affected population are reduced
Output 6.1 Community-based disease prevention and health promotion is provided to the target population
Activities planned Month 1 2 3 4 5 6 7 8 9 10 11 12

6.1.1 Mobilize community health volunteers (CHVs) and organized refresher trainings for them x x x x x
6.1.2 Organize health education sessions in communities (through the CHVs) x x x x x x
6.1.3 Reprint and distribute health promotion materials x x x x x x
Output 6.2: Psychosocial needs of the affected populations are met
Activities planned Month 1 2 3 4 5 6 7 8 9 10 11 12

6.2.1 Organize refresher PSS trainings for volunteers in affected provinces x x x x x x

6.2.2 Provide PSS kits to the trained volunteers upon completion of PSS refresher trainings x x x x x x
6.2.3 Organize psychosocial activities in evacuation centres and affected communities x x x x x x
6.2.4 Conduct peer support sessions and organize ‘rest and recreation’ days and team building activities for staff and volunteers x x x x x x x x x x x x
 P a g e | 12

Water, sanitation and hygiene promotion

Needs analysis: Contamination of water sources and damage to latrines bring with concerns relating to waterborne diseases. Environmental sanitation activities,
particularly cleaning campaigns are necessary as are efforts to improve access to sanitation facilities in schools that are often used as evacuation centres. Hygiene
promotion activities aimed at improving hygiene behaviour and bridging knowledge and practice of safe water, food handling and hand-washing will also be required

Population to be assisted: WASH interventions will include linking closely with the relief sector in providing jerry cans (for safe water storage) and hygiene kits to 6,000
households. Hygiene promotion activities will be done in an integrated manner with health education and will also target beneficiaries receiving relief items. Furthermore, the
3,000 families targeted with early recovery programmes will also be reached with health and hygiene promotion. Cleaning campaigns will be organized in communities
through the cash-for-work approach. They will be complemented with health and hygiene promotion. Since schools and their facilities also suffered a considerable blow, five
schools – which also serve as evacuation centres – will be supported to rehabilitation their water and sanitation facilities. To complement the hardware interventions, the
schools will be reached with promotion of safe hygiene practices and correct maintenance of water and sanitation facilities.

Outcome 7: The immediate reduction in risk of waterborne and water related diseases in targeted communities
Output 7.1: Daily access to safe water which meets Sphere and WHO standards in terms of quantity and quality is provided to target population
Activities planned Month 1 2 3 4 5 6 7 8 9 10 11 12

7.1.1 Distribute jerry cans (two per family) and water purification tablets to affected households x x x
7.1.2 Conduct sessions on household water treatment alongside hygiene promotion x x x
Output 7.2 Hygiene promotion activities which meet Sphere standards in terms of the identification and use of hygiene items provided to target population
Activities planned Month 1 2 3 4 5 6 7 8 9 10 11 12

7.2.1 Mobilize and (re)train CHVs volunteers who will conduct hygiene promotion x x x x x
7.2.2 Reproduce information, education and communication (IEC) materials for hygiene promotion x x x x x
7.2.3 Conduct hygiene promotion activities in communities and schools x x x x x
7.2.4 Distribute hygiene kits to affected populations to reinforce safe hygiene practices x x x x x x
Outcome 8: Sustainable reduction in risk of waterborne and water related diseases in targeted communities
Output 8.2: Adequate sanitation which meets Sphere standards in terms of quantity and quality is provided to target population
Activities planned Month 1 2 3 4 5 6 7 8 9 10 11 12

8.2.1 Undertake detailed assessments to identify schools whose latrines have been damaged x x x x
8.2.2 Coordinate with the Department of Education (DepEd), local authorities and principals in identifying five schools x x x x x x x x
8.2.3 Engage suitable construction firm to undertake rehabilitation of water and sanitation facilities in five schools x x x x x x x x
8.2.4 Monitor the rehabilitation of water and sanitation in the target schools x x x x x x x x
8.2.5 Mobilize community members for clean-up campaigns in communities x x x x x
Output 8.3: Knowledge, attitude and practice on safe water, sanitation and hygiene by target population increased
Activities planned Month 1 2 3 4 5 6 7 8 9 10 11 12

8.2.1 Conduct baseline surveys to determine the levels of awareness and practice on WASH in affected communities x x x x x
8.2.2 Mobilize and (re)train CHVs volunteers who will conduct PHAST sessions in target communities x x x x x
8.2.3 Reproduce IEC materials for PHAST sessions in target communities x x x x x
8.2.4 Conduct PHAST sessions in target communities x x x x x x x x
8.2.5 Undertake end line surveys to determine the change in awareness and practice in communities reached x x x
 P a g e | 13

Institutional disaster response capacity

Needs analysis: The response put pressure on the capacity of PRC and demand scaling up of staffing and other organizational components. There is, therefore, the need
to allocate resources in mitigating a potential negative impact on the long-term development of the National Society by putting deliberate efforts to strengthen the institutional
preparedness capacity of the National Society’s headquarters and branches involved in the response. Specific actions will be developed in the coming months, in line with
chapter plans and PRC’s annual plan, but will likely include provision of essential equipment and training of Red Cross Action Teams (RCAT) as well as water search and
rescue (WASAR) teams.

Outcome 9: National Society capacity to deliver on programmes and services in future disasters strengthened
Output 9.1: PRC headquarters and chapters in affected provinces have improved office facilities
Activities planned Month 1 2 3 4 5 6 7 8 9 10 11 12

9.1.1 Provide office equipment/facilities to target chapters and NHQ departments x x x x x x x x x x x

Output 9.2 Capacity of PRC headquarters and chapters to respond to disasters is strengthened
Activities planned Month 1 2 3 4 5 6 7 8 9 10 11 12

9.2.1 Conduct RCAT and WASAR trainings and/or refresher trainings for national headquarters and target chapters x x x x x x x
9.2.2 Equip RCAT and WASAR teams at national headquarters and target chapter levels x x x x x x x

Disaster preparedness and risk reduction

Needs analysis: Philippines are a vulnerable to various disasters, including typhoons and floods. When relief needs are covered, and the conditions are established, there
will be the need to undertake an analysis to identify specific needs for integrated community preparedness and risk reduction. Taking into account existing capacities and
needs for improvement, the analysis will be translated into an action plan for engagement over the longer period in integrated programming aimed at enhancing community
resilience.

Population to be assisted: CBRR activities will be outlined in the revised plan of action.

Outcome 10: Communities’ resilience to disasters is protected and restored

Output 10.1: Target communities have improved knowledge and skills to assess risk, plan and implement disaster risks management measures
Activities planned Month 1 2 3 4 5 6 7 8 9 10 11 12

10.1.1 Conduct awareness raising sessions on preventable risks in target schools and communities x x x x x x x x x x
10.1.2 Facilitate CBRR planning process in target schools and communities x x x x x x x
10.1.3 Support schools and communities to organize and mobilize for CBRR action x x x x x x x
10.1.4 Support implementation of climate-smart disaster mitigation measures at school and community levels x x x x x x x
Budget

EMERGENCY APPEAL 21/12/2015

MDRPH020 Typhoons and Floods

Appeal Budget CHF
Budget Group

Shelter - Relief 78,000

Shelter - Transitional 924,123
Clothing & Textiles 130,867
Water, Sanitation & Hygiene 156,031
Utensils & Tools 36,000
Other Supplies & Services 392,080
Cash Disbursements 918,501
Total RELIEF ITEMS, CONSTRUCTION AND SUPPLIES 2,635,602

Storage, Warehousing 33,703

Distribution & Monitoring 41,703
Transport & Vehicle Costs 105,884
Logistics Services 16,000
Total LOGISTICS, TRANSPORT AND STORAGE 197,290

International Staff 209,000

National Staff 35,461
National Society Staff 38,523
Volunteers 50,928
Total PERSONNEL 333,912

Consultants 15,000
Total CONSULTANTS & PROFESSIONAL FEES 15,000

Workshops & Training 110,922

Total WORKSHOP & TRAINING 110,922

Travel 45,769
Information & Public Relations 20,000
Office Costs 10,298
Communications 8,010
Financial Charges 4,500
Other General Expenses 26,716
Shared Support Services 104,463
Total GENERAL EXPENDITURES 219,756

Programme and Supplementary Services Recovery 228,311

Total INDIRECT COSTS 228,311

TOTAL BUDGET 3,740,793

ANNEX 2: ASSUMPTIONS AND RISKS

Assumptions and risks table

LIST IF

Likelihood
SPECIFIC

Impact
ASSUMPTIONS & CAN CONTROL; MITIGATE /
AFFECTED
RISKS INFLUENCE; OR ONLY FACTOR-IN
SECTORS OR
STATE ‘ALL’
Future disasters do not impact
upon the same areas affected
by the typhoons and floods Factor into NS Institutional Preparedness and
All L M
and/or different areas, Disaster Risk Reduction
distracting resources and
implementation schedules
Access and logistics for
delivery of materials, including
to remote locations, is not All M M Factor into logistics planning
hampered by bad weather
conditions
Contact information
For further information specifically related to this plan of action, please contact:
In Philippine Red Cross:
 Gwendolyn Pang, Secretary General; email: secgen@redcross.org.ph

In IFRC Philippine Country Office:

 Kari Isomaa, head of delegation, email: kari.isomaa@ifrc.org
 Patrick Elliott, operations manager, email: patrick.elliott@ifrc.org

In IFRC Country Cluster Support Team (CCST) - Bangkok:

 Anne Leclerc, Head of CCST; email: anne.leclerc@ifrc.org

In IFRC Asia Pacific Regional Office, Kuala Lumpur:

 Martin Faller, Head of Operations; email: martin.faller@ifrc.org
 Necephor Mghendi, Operations Coordinator; email: necephor.mghendi@ifrc.org

For resource mobilization and pledges:

 Hwa En Ning, Senior Relationship Officer, email: enning.hwa@ifrc.org
 Please send all pledges for funding to zonerm.asiapacific@ifrc.org

For in-kind donations:

 Riku Assamaki, Logistics Coordinator, Regional Logistics Unit, email: riku.assamaki@ifrc.org

For communications enquiries:

 Patrick Fuller, Communications Manager; email: patrick.fuller@ifrc.org

For planning, monitoring, evaluation and reporting (PMER) enquiries

 Peter Ophoff, Head of PMER, email: peter.ophoff@ifrc.org

In IFRC Geneva:
 Christine South, Operations Quality Assurance Senior Officer; email: christine.south@ifrc.org

Click here
1. Emergency Appeal budget above
2. Map below
3. Click here to return to the title page

How we work
All IFRC assistance seeks to adhere to the Code of Conduct for the International Red Cross and Red Crescent
Movement and Non-Governmental Organizations (NGO’s) in Disaster Relief and the Humanitarian Charter and
Minimum Standards in Disaster Response (Sphere) in delivering assistance to the most vulnerable.

The IFRC’s vision is to inspire, encourage, facilitate and promote at all times all forms of humanitarian activities
by National Societies, with a view to preventing and alleviating human suffering, and thereby contributing to the
maintenance and promotion of human dignity and peace in the world.
 MDRPH020
TC-2015-000168/170-PHL
21 December 2015

Philippines: Typhoons and Floods

Cagayan

Isabela

Nueva Vizcaya

☔
Nueva Ecija

☔
Bulacan
Quezon
\ Manila
!
☔
☔ ☔ Quezon

☔
☔ ☔
☔ ☔
☔
☔ ☔ ☔ ☔ ☔
Affected areas
Melor

☔ SUPER TYPHOON-4

☔ TYPHOON-4

☔ TYPHOON-3

☔ TYPHOON-2

☔ TYPHOON-1

☔ TROP ICAL STORM

☔ TROP ICAL DEPRES SION

The maps used do not imply the expression of any opinion on the part of the International Federation of Red Cross and Red Crescent Societies or
National Societies concerning the legal status of a territory or of its authorities. Map data sources: ESRI, DEVINFO, International Federation,
UNISYS, MDRPH020.mxd - Map created by DCM/GVA
I
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