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DAVAO DEL NORTE STATE COLLEGE

Davao del Norte Learning Institute

Policy Brief

Towards Inclusive Disaster Governance at Sub-national Levels:

Tapping the Agency of the Vulnerable Sectors
Eliseo F. Huesca, Jr., Florie Ann L. Fermil, Sadie D. Law-ay
Jerome C. Llevado, and Boyeth C. Peolone

“Sadly, the people at greater risk from climate hazards are the poor,
the vulnerable and the marginalized who, in many cases, have been
excluded from socioeconomic progress.” UN Secretary-General Ban Ki-
moon
World Economic and Social Survey 2016
Climate Change Resilience: An Opportunity for Reducing Inequalities

Overview the agency of vulnerable sectors in Disaster Risk

In recent years, the devastating impact of climate hazards
and natural disasters has been particularly pronounced
which, in turn, inherently and unevenly impacted
vulnerable populations, including the poor, marginalized
communities, women, children, elderly, persons with
disabilities, and indigenous groups. These communities
are often excluded from socioeconomic progress, making
them disproportionately distressed during extreme
climatic events and natural hazards. The United Nations'
World Economic and Social Survey 2016 aptly highlighted
this disparity, underscoring the need to address issues of
inequality and invisibility in disaster governance1. In this
policy brief, we emphasize the importance of recognizing
1For Whom the Bell Tolls: Climate Change and Inequality, IMF
Working Papers, Issue 103 (2022)
Reduction and Management (DRRM) processes and
policies at sub-national levels. By engaging these
communities in decision-making, risk assessments, and
policy reforms, we can develop contextually appropriate
and effective disaster management strategies that lead to
greater resilience and equitable outcomes for all.
The Vulnerable Sectors and the Sendai
Framework for Disaster Risk Reduction
The Sendai Framework for Disaster Risk Reduction is a
comprehensive international framework aimed at
reducing disaster risk and building resilience worldwide. A
core principle of the Sendai Framework is the recognition
of the agency and needs of vulnerable sectors in disaster

risk reduction efforts2. Vulnerable communities are
disproportionately affected by disasters due to underlying
social, economic, and political factors. As such, the
framework stresses the importance of inclusivity in
disaster risk management, calling for the active
engagement of vulnerable sectors in decision-making
processes, risk assessments, and policy formulation. By
involving these communities, disaster management
strategies can be shaped to align with their unique
knowledge of local risks and coping mechanisms, ensuring
that these approaches are contextually relevant and
effective.
Building an Inclusive Disaster Governance
at Sub-national Levels
Disasters have become an unfortunate reality today,
impacting communities across the globe with increasing
frequency and intensity. While governments and agencies
often play a crucial role in disaster response and
management, the focus on vulnerable sectors within
society remains major challenge3. To create truly effective
disaster governance at sub-national levels, it is essential to
address the threats faced by vulnerable groups, empower
relevant agencies, and recognize the invaluable
contributions they can make.
Vulnerable sectors, such as the female-headed households,
elderly, children, persons with disabilities, and
marginalized communities, are inherently insecure and
disproportionately impacted by natural calamities. In
times of crisis, they face challenges in accessing resources,
transportation, and essential services, exacerbating their
vulnerability. Disasters can disrupt livelihoods, displace
communities, and strain social support structures, leaving
these groups further marginalized. Neglecting their
22
https://www.undrr.org/inclusion#vulnerability
3 4
https://www.worldbank.org/en/topic/social-dimensions-of-climate-
change
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unique needs during disaster planning can lead to severe
consequences, hindering overall resilience.
To foster an inclusive disaster governance system, it is
vital to strengthen agencies and organizations that directly
engage with vulnerable sectors. Local community-based
organizations, NGOs, and grassroots initiatives have
firsthand knowledge of the challenges faced by vulnerable
groups and possess invaluable insights into their specific
needs. By providing these agencies with adequate
resources, training, and authority, they can effectively
advocate for and protect the interests of the vulnerable,
ensuring no one is left behind in disaster preparedness
and response efforts.
Contrary to common perceptions, vulnerable sectors are
not passive recipients of aid but can also be active
contributors to disaster governance. They possess
inherent resilience, traditional knowledge, and adaptive
strategies that can significantly enhance disaster response
and recovery. Involving them in decision-making
processes allows for the integration of diverse
perspectives, enabling authorities to formulate more
comprehensive and context-sensitive disaster
management plans.
Policy Recommendations
Reducing Vulnerability, Mainstreaming Inclusivity
Direct engagement with vulnerable populations is a
cornerstone of effective disaster governance and
resilience. When disasters strike, vulnerable communities
often bear the brunt of the impact due to limited
resources, poor infrastructure, and social marginalization.
Engaging these communities in disaster preparedness,
response, and recovery efforts is paramount4. By involving
them in decision-making processes, risk assessments, and
planning, we can tap into their local knowledge and
experiences. This active participation empowers
See Rehabilitation of Vulnerable Groups in Emergencies and
Disasters: A Systematic Review, Sheikhbardsiri, et al. (2017)

vulnerable populations, making them more resilient and
better prepared to face future disasters5.
In disaster governance, prioritizing vulnerable groups'
interests is essential to ensure equitable and effective
responses. Vulnerable communities have distinct needs
that must be addressed to reduce their susceptibility to
disasters. By making their interests a priority,
policymakers can tailor disaster management strategies to
cater to specific vulnerabilities. This approach leads to
targeted interventions that provide critical support and
resources where they are most needed, fostering a more
inclusive and protective disaster governance framework.
Disaster management must also focus on breaking down
barriers and combatting disability-based exclusion and
discrimination. Persons with disabilities often face
multiple challenges during disasters, from inaccessible
evacuation routes to communication barriers. To achieve
inclusivity, it is essential to create disaster plans that
consider the needs of people with disabilities6. This
includes ensuring evacuation centers are fully accessible,
providing information in accessible formats, and training
responders on disability-inclusive practices. By promoting
disability rights and mainstreaming inclusivity, we can
remove obstacles that prevent full participation and
ensure that no one is left behind in times of crisis7.
Tap Agencies of the Vulnerable Sectors
In disaster governance, it is imperative to recognize and
tap into the agencies of vulnerable sectors, as they possess
unique strengths and contributions that can significantly
enhance preparedness and response efforts. Integrating
Indigenous Knowledge Systems (IKS) into disaster
preparedness is an invaluable approach8. Indigenous
5 10
https://blogs.worldbank.org/climatechange/building-disaster-
resilience-among-vulnerable
6 https://www.un.org/development/desa/disabilities/issues/disability-
inclusive-disaster-risk-reduction-and-emergency-situations.html
7
https://blogs.worldbank.org/sustainablecities/five-actions-disability-
inclusive-disaster-risk-management
8 https://www.unisdr.org/files/3646_IndigenousKnowledgeDRR.pdf
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communities have accumulated knowledge over
generations, deeply rooted in their close connection to the
land and natural environment. This traditional wisdom
encompasses early warning signs, sustainable resource
management, and adaptation strategies that can offer a
holistic perspective on disaster risk reduction9. By
embracing IKS, disaster governance gains access to a
wealth of insights that complement modern scientific
approaches, creating a more comprehensive and culturally
sensitive approach to disaster preparedness.
Aged and elderly groups also face heightened vulnerability
in times of disasters10. Their physical limitations, age-
related health issues, and limited mobility hinder swift
responses during emergencies. Social isolation further
deprives them of crucial information and support
networks. Additionally, pre-existing health conditions and
economic constraints make their post-disaster recovery
challenging. Emergency plans often overlook their specific
needs, worsening the disparities they encounter11. To
address these challenges, tailored disaster management
strategies are crucial. Acknowledging their vulnerabilities
and empowering them with inclusive preparedness
measures can enhance the resilience 0f aging
communities12. Active involvement in disaster governance
allows seniors and the aged population to contribute as
leaders, mediators, brokers, and interlocutors. Their
professional experiences and life’s wisdom become
valuable assets in decision-making processes and
community engagement. Recognizing and addressing the
unique challenges faced by the elderly is vital to creating a
more equitable and compassionate approach to disaster
9
See, for example, The Role of Indigenous Knowledge in Integrating
Scientific and Indigenous Knowledge for Community-based Disaster
Risk Reduction: A Case of Haikou Village in Ningxia, China, Wang, et al.
(2019)
See, Disasters are Ageist, is DRRM too?, Guanio, n.d.
11 Social stigma and age-based discriminations must be addressed
through education and training. Duty bearers must be capacitated to
handle the salient needs of elderly populations in emergency and
humanitarian settings.
12
https://unece.org/fileadmin/DAM/pau/age/Policy_briefs/ECE_WG1_
36_PB25.pdf

risk reduction. Empowering this demographic in disaster
governance and response will lead to more resilient
communities and better outcomes during crises.
Although challenged by invisibility in policies and
practices, youth, too, represent a massive resource in
disaster recovery and emergency response13. Their energy,
adaptability, and tech-savviness make them highly
effective in swiftly mobilizing and coordinating relief
efforts. With their enthusiasm and fresh perspectives, they
bring innovation and creativity to the table, introducing
new ideas and solutions in disaster governance. Moreover,
engaging the youth in disaster preparedness and response
fosters a sense of community ownership and
empowerment. By involving young people in decision-
making processes, they become active stakeholders in
shaping their community's resilience and future, thus
creating a more sustainable and resilient society14.
Generation and Dissemination of Localized DRRM
Knowledge Products
The production and deployment of strategic
communication of localized Disaster Risk Reduction and
Management (DRRM) knowledge products play a pivotal
role in building resilient and disaster-ready communities.
One significant challenge in achieving inclusivity in DRRM
efforts is not merely due to a lack of logical understanding
but rather a scarcity of data and studies specific to local
contexts15. Many communities, especially in remote or
13 https://www.undrr.org/words-into-action/engaging-children-and-
youth-disaster-risk-reduction-and-resilience-building
14
The massive numbers of students in local Senior High Schools,
Colleges, and Universities are untapped resources of manpower
needed, for instance, in preparation and distribution of humanitarian
assistance. NSTP students may be engaged in public and community
education using the locally-developed DRRM knowledge products. See,
also, Education for Disaster Risk Reduction (DRR): Linking Theory with
Practice in Ghana’s Basic Schools, Apronti, et al., (2015).
15
LGUs, in partnerships with local higher education institutions, may
jointly fund and pursue projects to develop researches which could be
translated to learning modules and extension programs tailored to the
needs of target populations. For example, developing EIC materials
intended for Ata-Manobo areas frequently hit by rain-induced
landslides and flooding.
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marginalized areas, face exclusion from mainstream
DRRM practices because their unique vulnerabilities and
needs remain undocumented.
By prioritizing the generation of localized knowledge
products, we can bridge this information gap and ensure
that disaster preparedness strategies are custom-tailored
to the intricacies of each community16. These localized
knowledge products encompass valuable insights into
local hazards, vulnerabilities, coping mechanisms, and
indigenous practices, making them more effective in
addressing community-specific challenges17.
Strategic dissemination18 of these knowledge products is
equally crucial. Communicating this information through
accessible and culturally appropriate channels fosters
awareness and understanding among community
members and stakeholders. It empowers individuals with
essential information, enabling them to actively participate
in DRRM initiatives and make informed decisions during
emergencies. Additionally, strategic communication
encourages collaboration and cooperation between
different sectors, promoting a cohesive approach to
disaster preparedness and response.
Note
This Policy Brief draws its findings from the Research
Grant funded by the Provincial Government of Davao del
Norte through the Provincial Disaster Risk Reduction
Management Office (PDRRMO) and the Davao del Norte
Learning Institute (DNLI) and implemented by DNSC-
ILEGG by virtue of BOT Resolution No. 39, s. 2022.
16
See, for example, Engaging Local Knowledge for Disaster Risk
Reduction, Dalisay (2014); The Contribution of Indigenous Knowledge
to Disaster Risk Reduction Activities in Zimbabwe: A Big Call to
Practitioners, Dude & Munsaka (2018); Indigenous Knowledge in
Disaster Risk Reduction: The Tales of Three Islands (San Miguel,
Camotes and Alabat) in the Philippines, Reyes, et al. (2019).
17 https://www.unisdr.org/files/3646_IndigenousKnowledgeDRR.pdf;
https://unesdoc.unesco.org/ark:/48223/pf0000228711.
18 Studies shall be conducted how to better expand the coverage of
DRRM EIC materials. Also, mechanisms shall be developed to
incentivize efforts and institution- and community-based investments
towards public education for disaster-resilient villages/communities.