to the Socio-economic Development Processes in the Philippines eta le development. if thereis no disaster risk ter Risk Reduction Is sustainable only if communities are involved," - Zenaida Delica-Prepared by: ‘OFFICE OF CIVIL DEFENSE ~ DEPARTMENT OF NATIONAL DEFENSE Funded by: EUROPEAN COMMISSION'S HUMANITARIAN AID DEPARTMENT: With technical support of: ASIAN DISASTER PREPAREDNESS CENTER UNITED NATIONS ECONOMIC AND SOCIAL COMMISSION FOR ASIA AND THE PACIFIC In consultation with: Member-agencies of the NATIONAL DISASTER COORDINATING COUNCIL Deparement of Agriculture Department of Education Department of Environment and Natural Resources Department of Finance Department of Health Department of Interior and Local Government Department of Social Welfare and Development Philippine National Red Cross and ‘Accion Contra El Hambre CARE Philippines Center for Community Journalism and Development Cencer for Disaster Preparedness Christian Aid Foundation Earthquakes and Megecites initiatives GTZ-Piilippines International Inscicute of Rural Reconstruction National Economic Development Authority National Defense College of the Philippines Oxfam Great Britain Plan International Prelauure of Infanta Provincial Disaster Coordinating Council— Albay Save the Children Foundation Southeast Asia News Safety Network United Nations Development Programme Uniced Nations International Children’s Fund World Health Organization World VisiontM. VI vil. a VIL Appendix A. Appendix B. Appendix E. Appendix C. Appendix D. TABLE OF CONTENTS Setting the Context: Disasters and Development Nexus Disaster Management System in the Philippines Community-Based Disaster Risk Management (CBDRM) Elements of Good Practice in CBDRM Emerging CBDRM Initiatives Vision, Mission, and Goal Statements Strategic Roadmap Implementation Strategy Institutional Arrangements Plan Update Acronyms Definitions PDR-SEA 4 Philippines Concept Note and Action Plan Learning from Good Practices: Case Studies on Community- Based Disaster Risk Management inthe Philippines References 20 21 2 25 28 31Strategic Plan to Integrate Community-Based Disaster Risk Management (CBDRM) to the Socio-economic Development Processes in the Philippines L, Setting the Context: Disasters.and Development Nexus The Philippines, due to its geographical location and physical environment, has had its share of earthquakes, volcanic eruptions, tropical cyclones, and floods. The country is constantly beset by these hazards with a high frequency of occurrence, broad distribution areas, and severe consequences in losses. These natural calamities cost the government an average of PHP15 billion annually in direct damages, approximately 4% of the country’s Gross Domestic Product (GDP). Such regular events have enormous, though rarely quantified, impacts on the socio-cultural, economic and natural environment of the Philippines. Distribution ‘of Active Faults and Trenches the Philippines 67 oJ FielteeDisasters continually undermine development. Recurrent losses hamper efforts at greater expansion and progress. At the same time, poor urban development planning can exacerbate risks oF create New ones. The Millennium Development Goals (MDGs) are commonly used as yardstick for assessing development, but the attainment of these goals is also hindered by disasters. Diversion of development funds for disaster response and rehabilitation results to major setbacks to social investments for poverty reduction and alleviation. [Se nenII. “Disaster Management System in the Philippines Presidential Decree 1566 was promulgated in 1978 to strengthen the country’s disaster control capability and to establish the national program on'community disaster preparedness By Virtue of said legislation, the National Disaster Coordinating Council (NDCC) was created as the highest policy-making and coordinating body in disaster management. The Secretary of National Defense sits as the Chairman of the Council, with the fourteen (14) Department Secretaries, the Chief of Staff of the Armed Forces of the Philippines (AFP), the Secretary-General of the Philippine National Red Cross (PNRC), the Director-General of the Philippine Information Agency (PIA] as members, and the Administrator of the Office of Civil Defense (OCD) as the Executive Officer. The Office of Civil Defefise (OCD) servesBocuse ‘World Conference on Disaster Reduction 14-22 January 2005, Kobe, Fyogo, Jepun Words Into Action: A Guide for implementing Hyogo Framework for Action 2005-2015: wwwunisdron as the Secretariat and the Executive Arm of the Council. Local Disaster Coordinating Councils (DCCs) are also established at the regionel, provincial, municipal, city, end barangay jevels. These local councils are tasked to provide services in the three pheses of disaster management: pre-disaster, disaster phase, and post-disaster. In 2002, a Comprehensive Emergency Management Framework was developed by the NDCC to serve as 2 guide to local DCCs in pursuing disaster management activities. This framework identified the phases of Mitigation and Preperedness in the pre-cisaster stage, and Response and Recovery and Rehabilitation phases in the post disaster stage. This was a deliberate attempt to cover the entire disaster management spectrum into a formidable, in-depth, and all-inclusive national strategy. The Philippines, represented by OCD, participated in the January 2005 ~ World Conference on Disaster Reduction (WCDR) in Kobe, Japan where the ten-year action plan Hyogo Framework for Action (HFA) 2005-2015: Building the Resilience of Nations and Communities to Disasters was unanimously adopted by 168 Governments. The HFA specifies guiding principles and priority activities for Disaster Risk Reduction (DRR): Among others, the framework advocates for community participation through the adoption of specific policies, the promotion of networking, and the strategic management of volunteer resources. ItBeen also promotes community-based training initiatives that enhance local capacities to mitigate and cope with disasters. The HFA also encourages the development of specific DRR mechanisms to engage the active participation and ownership of relevant stakeholders including community members, in particular building on the spirit of volunteerism. It Is widely recognized that the government has the prime responsibility for managing disasters. With the top-down and command and control approaches oftentimes used in disaster management, decisions'are made by higher authorities based on their perception of the needs of the community. The communities are not given the chance to participate in the process of decision-making and implementation of activities. They serve as mere “Victims” or receivers of aid, Lack of community participation results to failure in meeting appropriate and vital needs, unnecessary increase in requirement for external resources; and general public dissatisfaction towards the government,Benes Being at the forefront of disasters, the community as the first responders can play a significant role in reducing human losses and property damagés. Whether a disaster is major or minor, of national or local proportion, it is the people at the community level who directly sliffer its adverse effects. They use coping and survival strategies to face and respond to the situation long before outside help from the government or NGOs arrives In 1984, when there were political unrest and disasters, NGOs and People's Organizations saw the need of organizing a center that would help address hazards and condition of vulnerability, At that time, they-used citizenry-based development oriented disaster response, which is now known as CBDRM. The Community-Based Disaster Risk Management (CBDRM) approach provides opportunities for the local community to evaluate’ their situations based on their own experiences and promotes participation and partnership. In the process, the community becomes a major player and stakeholder. CBDRM can be defined asa process of disaster risk management in which at tisk communities are actively engaged in the’ identification, analysis, treatment, monitoring and evaluation of disaster risks in,order to reduce their vulnerabilities ‘and enhance their capacities (ADPC-CBDRM-11, 2003). This means that the people are at the heart of decision making and-implementation of disaster risk management. The involvement of the most vulnerable is paramount and the support of the least vulnerable is necessary. In CBDRM, local and national governments are involved and supportive. The local people are the prime movers in reducing disaster risks in their community. ee. a ss 8In order to be truly éffective in protecting the lives and livelihoods of the poor, strategies for reducing risks need to be community-centered and require the application of tools that people can easily understand to allaw them to make informed decisions. DRR strategies have to recognize and respect cultural practices and diversity, embrace collaborative action and local knowledge, and build mutual trust and long-term goodwill with the community. An engaged community involved in'the decision-making processes is more likely to be responsive and self-managing when emergencies do arise.Giese ore IV. Elements of Good:Practice in CBDRM In collaboration with the NDCC and’as part of the collaborative project entitled Learning from Good Practices: Case Studies on Community-Based Disaster Risk Management in the Philippines, Oxfam GB spearheaded the “Workshop on the Selection Criteria for Community- Based Disaster Risk Management Case Studies” held last August 10, 2007. During the workshop, representatives from NGOs and national government agencies identified the following as elements of CBDRM: ty Community Ownership - The cémmunity Manages the implementation of disaster risk reduction measures though CBDRM process may have been facilitated By outsiders, be It NGO of government agencies; community solves the disaster risk problem and decides for the isk reduction project/program; community takes control of future plans and actions in tisk reduction and disaster management. 2, Use of Local Knowledge About Hazards ~ Recognition of existing coping mechanisms and capacitiés of community/people as well as local know-how and resources. 3, Communities as Ultimate Beneficiaries ~ community as key resource/frontliner in BDRM implementation; priority Is given to the most vulnerable groups, families, and people in the community. 4. multicatakeholder Participation - Uccal people are the main actors and prime TOVEHE in reducing disaster risks in their community; wider stakeholder participation and involvement on vulnerability assessment, planning to implementation, identification of disaster mitigation and preparedness measures, decision-making, responbe, rehabilitation, monitoring and evaluation. In the process ‘of sustaining CBDRM efforts, the community also directly shares in the benefits of disaster preparedness, mitigation, and development. wi Edueation and Capacity bullding ~ capability building activities that result to inereas"¢ community's skills, resources; readiness so that they are able to assess the risk identity Soicreduetion messures, plan and implement risk reduction measures (Include those activities that will prevent disasters, mitigate hazards; and prepare the ‘community fo respond to crisié and’emergencies. Capability building activities result to reducing communities’ vulnerabilities. 6. Gender Sensitive - Recognizes that men and women heve different needs, different activities, different perception of risks and different priorities. 7. culturally Appropriate — Community culture; traditions, and customs are recognized and respected EE10. 11. 12. 135 14. Sensitivity to Local Structures - Recognition of community/people’s organizations, resources, and coping strategies Harmonizes Local, Indigenous, and Scientific Knowledge - risk assessment and disaster management incorporates people's:perception on vulnerability and capacity with expert's knowledge on hazard’s assessment Complements Top-down Approach - While it is recognized that community participation and empowerment is the fundamental ofinciple in CBDRM, involvement and all out support of local and national government is essential for a successful CBDRM as well as role of civil society. Directive approach from top (government) may also be necessary to enforce laws and regulations. Demonstrate Potential for Building Economic Resilience ~ CBDRM initiatives primarily is geared towards building upon and strengthening community's coping strategies and capacities towards reducing complex rélation of conditions, factors, and processes of vulnerabilities present in the community, including poverty, social inequity, etc. and promoting a safer environment for the community with reduced loses in the lives, propetties, resources, and environment due to hazards. Demonstrates Transparency in Procedures and Processes - CBDRM initiatives in the community should lead to or result to enabling communities to become resilient during disaster times, more so, enabling them to finally resist disasters. Commitment and Accountability of Stakeholders - Accountability to the people / community first and foremost; demonstration of individual and collective actions in disaster preparedness and mitigation or community cohesion to address consequences of disasters during pré and post disaster phase, Communication Design ~ Observable capacity in using early warning information and disseminating such information to the community and/or self-help actionsin prevention, mitigation measures, emergency response and recovery; sustained public awareness. Exit Strategy (sustainability mechanisms) - CBDRM initiatives can be sustained even beyond project funding support and termination; mechanisms for sustaining gains are potentially in place or have been set-up.Sica So-etonomic Devslopm Vv. Emerging CBDRM Ini Within the last decade, there has been a growing evidence of that people’s organizations and NGOs, government agencies, and local government units which have taken on CBDRM. The PNRC has adopted and implemented Integrated Community Disaster Planning Programme (1994), Community-Based Disaster Management Programme (2001-2004), and the Barangay Disaster Action Teams (2005 - present). Other NGOS such as the Center for Disaster Preparedness, World Vision, and Caritas-Manila have integrated CBDRM into their existing emergency services. International-affiliated NGOs such as OXFAM Great Britain, Save the Children, and Catholic Relief Services have supported CBDRM programs in the country. In the government sector, the OCD as well as the Department of Social Welfare and Development (DSWD) and the National Anti-Poverty Commission — Victims of Disasters and Calamities (NAPC-VDG) have promoted community disaster preparedness programs. In 2005, the NDCC came up with the Four-Point Plan of Action for Disaster Preparedness. The plan aims to a) upgrade the forecasting capability of the warning agencies; b) promote an integrated and coherent strategic public information on disaster preparedness c) enhance capacities of Local Chief Executives (LCEs) and their respective DCCs; and d) strengthen mechanisms for government and private sector partnerships. Ultimately, this plan endeavors to invest on disaster preparedness to ensure effective disaster response. Another significant ongoing CBDRM-related activity that NDCC is currently implementing is the “Hazards Mapping Assessment for Effective Community-Based Disaster Risk Management,” dubbed as the READY Project. This undertaking aims to empower the most vulnerable communities of at least twenty thousand villages in twenty-seven (27) provinces through the development of multi-hazard maps, installation of community-based early warning systems, and integration of DRR in the local planning processes. Moreoyer, the NDCC is undertaking a project entitled “Partnership for Disaster Reduction- Southeast Asia Phase 4” in collaboration with Asian Disaster Preparedness Center (ADPC) and with the auspices of the United Nations Economic and Social Commission for Asia and the Pacific (UNESCAP) and the European Commission Humanitarian Aid Department through its Disaster Preparedness of the European Commission (EC-DIPECHO). The project aims oy ay, to promote Community-based “ka Vie DisasterRiskManagement(CBDRM) ~ good practices and enhance the role of local authorities in integrating CBDRM into local planning and programming Considering the foregoing, it can then be concluded that over the years the NDCC has recognized the need fer a paradigm. shift from responseefforts towards DRRandthe significant role of local communities. This proactive stance demands the development of appropriate policiesBa and strategic plans; mobilization of adequate resources; and building of partnerships to solicit the sustained support of key actors at all levels of society including the community. The implementation of the priority actions of the HFA are hoped to be advanced in the process. Application of strategic planning and management for the promotion of CBDRM is an effective-approach to maintain commitment and support of Government and international communities and to mobilize effective participation of key stakeholders. With this end in view, the concerted effort of ADPC, UNESCAP, and the NDCC member-agencies led by the OCD and in consultation with other stakeholders involved in DRR, underwent two (2) workshops last 21 July and 10 September 2007 wherein which a document was crafted to articulate a Strategic Plan on CBDRM for 2007-2011 in order to incorporate CDBRM into national policy and implementing procedures as part of the overall program on DRR. The foregoing pages will lay down the intent, strategic implementation, and timelines of said plan. This paper will also serve as a critical input to the formulation of the Strategic National Action Plan (SNAP) on Disaster Risk Reduction which the OCD is pursuing at Present in collaboration with the United Nations Development Programme (UNDP), United Nations International Strategy’ on Disaster Reduction’ (UNISDR), and European Commission's Humanitarian Aid Department.Soars VI. Vision, Mission and Goal Statements Vision The OCD is recognized nationally and regionally as the main driver of CBDRM to contribute in building resilience of communities to disasters in the Philippines. Mission The OCD mobilizes support and participation of NDCC mémberagentcies and other stakeholdérsito build an effective system far integrating CBDRM into the socio-ecop6mic development processes, as part of the implementation of the HFA. Overall Goal Imprové strategie planning and management process at the national leval'to effectively integrate CBDRM into the socio-economic development processes throughout the country Specifi¢|Goals Goal 1: Build an effective"mechanism to promote CBDRM for building resilience’ of communitiés. to disasters Goal 2: Establish an effective system to integrate CBDRM into develobmert planning through replication ofipilet projects Goal 3: - Mobilize commitment of stakeholders and institutionalize partnerships to obtain technical and financial support for CBDRM in order to strengthen its foundation, improve operational framework and approaches, and sustain initiativesFr A 9 Et & i dN aa. “SaDUIAOI YSLI-UBI4 XO ‘eIpaul ‘SOON ‘vaIN ‘9110 wutu0394 AdIJ0d {290} Jo UaUN}DeUy *Z Uno> anae|si6a7 40 UeIUNBBUeS e207 2912 54 YBIY UI SONINIDE WedAD Jo dn-6ul/e95 °T SuaNiuvd WesL-wardaW POOADE pue sioyew ArIjod SON ‘09 ‘pIy weRsUYD ‘SODNI OW SuORePUBLIWIOD® AdIjod nim douystion Aae0Apy ‘900d ‘Pade 'va3N ‘SON ‘Deav |dolsnep 03 volssnasip aiqey punoi e pjOH |_ ue [2007 Jo UaNIeZ|UEBIO “s “a30U yds0u09 2 eiedaid 0} G90 = d-ZL9 OV eo ‘DON 'VaAN ‘padag “pry ueAsiyD. “WYAGD 40) uBisop Buruje Jo he Siepjoyexe3s DIG 45 'WWIXO ‘Aegiy-I9G¢ ‘Dea UOReIEdald ay] 10) doysyiom jo yNpuoD — J S2QUOYINE [290] Jo SuIUIEs, “> (Qs0d-Gurinp-oid) oseyd soise5ip i au) 0) bulpione pue (saniyedisiunu /KeBueieg) syuediaijied jo jana 3) 84 Bure S397 UUM UeId Old ‘Aegiy-D3dd ‘Dudy [24703 Bujpsozoe senanoe yobse} Ys'qeysy = Weq@p 24} Jo UOHeUEWaduy “¢ ry spaloid d9QN ‘911a ‘Nd "WOT “(40D uonenys jo sisoubelq 189 YNsuD 0 saib=y2W75 UoRdy |2D9$) GON 'Seaie yoiid |/uonPayda: yoafoud 104 salaiiqesoujna weiboid 4101 poyieyap 841 40 SIIGW ‘Aeai¥-39Gd ‘Jada |SH 03 Bulploa2e@ «= seaye = A\nuapy = idojanap 10) suojeynsucy *z “Buyuueyd Jo} dajsnjp yee jo sOuyeew Jo pMpuoD = fi 1242] Jeo9| pue j2uoneU sty 3e sidysnj> Uy 40 UOReUIWESSIP UOReUUOJW vatABUANS — (*pea] 243 93/3 09 Aeqiy Jo D9ad) “wosiad |e305 ANUOPT 40W “UNSIG-29W “VINWYN “vSVOVe "SOIOAIHd ‘Ply eAsuLD * Aeqhy DDdd | ‘Aegiy 30 e2uIAoud aya UIyzM 4aysn|9 ¥SLL suaysnio, 21ydei6006 Ajnuapioy doyssiomeauenuoy = je150a5 Jo sueswystIgesa “T sueuied sanuanoy solsajens W4a1-1YOHS EOE BPM he) eco Ce ee ee Ps eee eee ea ey Ea as I kIT EE I IEEE TT ae Be) |‘4, Integration or mainstreaming of DRR and land-use plan to local development plan 5. Active engagement of other players 6. Based on the READY Project, activities will be extended to 27 plus 11 provinces. do- -do- LONG-TERM STRATEGIES and ACTIVITIES PARTNERS - i, DRR policies integrated into the projects of government agencies. 2. CBDRM shall be integrated in the functions of the LGUs. DILG, NEDA sas Wyte nl eeu eeu LMLe ele enue ieee Short-term Strategies and Activities Siew e en en deel Br es ate ou ean ree a an eae ee ae ee Re De Coe | Partners | 1. Identify the emerging needs of CBDRM in the context of DRM in the Pl ADPC, UNESCAP, UNDP sh the importance of CBDRM in socio-economic development of the Phi ADPC, UNESCAP, UNDP 3. Develop a report to highlight the relationship between CBDRM & poverty reduction; ADPC, UNESCAP ‘4, Build consensus for action on CBDRM in the Philippines for socio-economic development through consultative discussions ADPC, UNESCAP, UNDP Medium-term Strategies and Activities Partners. 1. Formalize institutional linkages (international, national & local) through MOA signing, donors’ meeting, and regular fora ‘ADPC, UNESCAP 2. Develop a Capacity Development Framework on CBDRM which includes TNA, TOT, pilot testing and training program implementation CDP, TIRR, LGUs’ and INGOs 3. Creation of a CDBRM database ‘ADPC, UNESCAP, OCD Long-term Strategies and Activities Partners: 1. Link national efforts of CBDRM in the Philippines to international cooperation ADPC, UNESCAP . Formulate policies for sustaining CBDRM ( financial, manpower, ahd organizational). NGAS- 3. Develop monitoring and evaluation tools, scorecards, and benchmarking system NGA’s USES a errs e Le q A tI 505 271 RC Saudis axp ur sosson01g 1SLadOpANG SHUERICN-OFBice one eee nes VIII. Implementation Strategy The OCD will take the lead in implementing the activities outline herein. It is also assume that in the process of implementing the plan, OCD will mobilize the participation ang support of NDCC member agencies, local government units, NGOs, private sector, media academe, international organizations, and donor agencies. Under’the PDR-SEA 4, the ADPC and UNESCAP have Committed to work with OCD it the implementation of most of the short-term activities embodied in this plan (Appendi: B). The OXFAM GB has also been collaborating with OCD particularly in promoting goo practices in CBDRM- Implementation of medium and long term activities is dependent on the availability 0 resources and commitment of partner organizations, Towards this end, OCD will seek th ‘support of collaborative partners to effectively and efficiently ensure sustainability of tht CBDRM institutionalization process. IX. Institutional Arrangements A Project Management Committee (PMC) composed of representatives from Nationa Economic Development Authority (NEDA), Department of Interior and Local Governmen (DILG), Department of Finance (DOF), Department of Education (DepEd), PNRC and wit the support of OXFAM Great Britainyand Center for Disaster Preparedness (CDP), wa’ created by the NDCC to oversee the implementation of the key activities of PDR-SEA 4 The Committee is tasked to perform the following: a. Provide policy directions in project implementation; b. Monitor and evaluate project implementation; ¢ Recommend measures for institutionalization of CBDRM in national and local governance; dd... Resolve issues related to the project and fe. Serve as a venue for sharing updates on similar CBDRM initiatives and identification of areas for collaboration, In the long run,,a Sub-committee on CBDRM may be instituted by the NDCC to identify an design activities that promote CBDRM; oversee the implementation of the other CBDRN activitiés enumerated in the Strategic Plan for 2007-2011, and recommend policies o1 CBDRM. VIII. Plan Update In consultation with other stakeholders, the OCD will initiate the annual revision of thi plan.‘STRATEGIC PLAN to literate Community-Based Disister Risk Management (CBDRM) to the Socio-economic Developmare Processes nthe Philippines Appendix A.Acronyms ADPC AFP CBDRM CDP DCC EC- DIPECHO DRR DepEd DILG DSWD GDP. HFA LCE MDG NAPC-VDC NDCC NEDA NGO ocD PIA PMC PNRC SNAP UNDP UNESCAP WCDR Asian Disaster Preparedness Center Armed Forces of the Philippines Community-Based Disaster Risk Management Center for Disaster Preparedness Disaster Coordinating Council European Commission’s Humanitarian Aid Department through its Disaster Preparedness Programme Disaster Risk Reduction Department of Education Department of Interior and Local Government Department of Social Welfare and Development Gross Domestic Product Hyogo Framework for Action Local Chief Executive Medium Development Goals National Anti-Poverty Commission — Victims of Disasters and Calamities National Disaster Coordinating Council National Economic Development Authority Non-government Organization Office of Civil Defense Philippine Information Agency Project’ Management Committee Philippine National Red Cross Strategic National Action Pian United Nations Development Programme United Nations Economic and Social Commission for the Asia Pacific World Conference on Disaster ReductionNe On a Cor Ceeuoeee aay Peco NP ocouy ces BINT) Ro rad Bede) eo Recah bond Ber ee)