Professional Documents
Culture Documents
PRACTICES IN THE
PHILIPPINES: AN ASSESSMENT
COMMISSION ON AUDIT
TABLE OF CONTENTS
List of Abbreviations
Executive Summary
History of DRRM in the Philippines
Current State of Disaster Management
Assessment of Existing Governance Framework
The National Disaster Risk Reduction and Management Plan
Financial Resources for DRRM
Calamity Fund
Quick Response Fund
Overall Assessment of Budget Allocation/Utilization
Department of National Defense(DND) and Office of Civil Defense
(OCD)
Department of Social Welfare and Development(DSWD)
Department of Interior and Local Government (DILG)
Department of Education (DepEd)
Department of Health (DoH)
Department of Environment and Natural Resources (DENR)
Bureau of Fisheries and Aquatic Resources (BFAR)
Office of the Presidential Assistant for Rehabilitation and Recovery
(OPARR)
Metropolitan Manila Development Authority (MMDA)
Department of Science and Technology (DOST)
Financial Constraints and Other Operational Limitations
Inadequate but Underutilized Calamity Funds of LGUs
Assessment of Preparedness
Coordination and Collaboration among Stakeholders
Gaps in Accountability
Low Compliance to Reporting Requirement
Inability to Track Down Donations to and from Private Sources
Disaster Information and Management
Insufficient Information on the Governance Aspect of DRRM
Lack of a Comprehensive Analysis on Public Spending for DRRM
Challenges and Recommendations
2
4
6
8
10
11
12
16
21
22
23
24
25
26
27
27
28
29
30
32
33
34
35
36
37
37
38
38
39
LIST OF ABBREVIATIONS
CCA
CCAC
CF
CSO
CY
DA
DBM
DENR
DepEd
DILG
DND
DOE
DOH
DOST
DPWH
DRRM
DRRMC
DRRMO
DSWD
EO
FFP
FY
GAA
LCF
LDRRMC
LDRRMF
LDRRMFIP
LDRRMO
LGU
MMDCC
MMDA
MOOE
NAMRIA
NCDA
NCR
NDCC
NDRRMC
NDRRMF
NDRRMP
NEDA
NGO
NIA
NOAH
OCD
OPARR
OSEC
PAGASA
PD
PDP
PDRRMC
PDRRM
Phivolcs
PIDS
PS
QRF
RA
RDRRMC
Executive Summary
Super typhoon Yolanda (international name: Haiyan) is the most powerful and devastating
tropical cyclone that struck the Philippines in recent memory. The Category 5 typhoon made its
first landfall over Guiuan, Eastern Samar in the early morning of November 8, 2013 and wreaked
havoc, primarily on the Visayas region, until its exit from the Philippine area of responsibility the
following day.
Weather officials said Yolanda had sustained wind speeds exceeding 185 kph when it made
landfall. The strong winds ripped off the roofs of thousands of homes and knocked down
shanties, trees, power and telephone lines and cell towers. Storm surge waves as high as 6 to 7
meters or a two-storey high building, were also seen, claiming thousands of lives and destroying
millions worth of properties.
The Philippines has been battered by many catastrophic storms and other natural and man-made
disasters since time immemorial due to its geographic location both at the typhoon belt and the
Ring of Fire. The country is prone to multiple recurring hazards such as cyclones, floods,
earthquakes and landslides.1 In truth, the 2012 World Risk Report ranked the Philippines third
out of 173 countries in terms of disaster risk.2
But in the wake of Yolandas catastrophic destruction, the weaknesses and significant gaps in the
countrys disaster response and management system were exposed once more. Despite a solid
and functioning disaster risk reduction and management (DRRM) structure, the governments
response still came across as reactive and not proactive, insufficient, inefficient and for the most
part, too slow.
This report will attempt to paint an analysis of the countrys disaster management system in the
context of the Yolanda devastation. This is intended to help guide national agencies and local
government units (LGUs) in the allocation and utilization of precious and scarce resources to
adequately mitigate risks for calamities that regularly strike the countrys most vulnerable
communities with such ferocity and enormity, year in and year out.
In this report, the effectiveness of the governments efforts on disaster management are assessed
based on the following themes:
1.
2.
3.
4.
5.
1Disaster-induced
internal displacement in the Philippines: The case of Tropical Storm Washi/Sendong (Internal
Displacement Monitoring Centre, 2013), p. 3.
2 Ibid
3 RA
Through the years, the Philippines has adopted various approaches from disaster preparedness
and response in the 1970s, to disaster management in the 1980s, to disaster risk management in
the 1990s and eventually disaster risk reduction in the years 2005 and beyond.
The NDRRMC is supported by the DRRM Council (DRRMC) Networks (Fig. 2).
The council is replicated in the regional down to the barangay level, thus linking all disasterrelated offices and LGUs which have specific roles to play in disaster management.
The RDRRMC3 is tasked to coordinate, integrate, supervise and evaluate the activities of the
Local DRRM Council (LDRRMC). It is responsible in ensuring disaster-sensitive regional
development plans and, in case of emergencies, shall convene the different regional line agencies
and concerned institutions and authorities.
The LDRRMC is primarily tasked to take the lead in preparing for response and recovery from
any disaster and its effects based on the following criteria:
The NDRRMC and intermediary LDRRMCs support the LGUs who are in the frontline and have
the primary responsibility of responding to disaster. The NDRRMC and LDRRMCs set the
coordination mechanisms and policies for the private sector and civil society groups.
The present structure under a cluster approach is a National Coordinating Council, headed by the
DND Secretary, where heads of the various DRRM agencies sit as board members. Our recent
experience with typhoon Yolanda led us to take a serious look at the limitations of the ad hoc
NDRRMC, its networks and secretariat, the OCD, in dealing with the vast and critical issues
brought about by disasters.
A basic institutional and legislative framework is in place and there are existing policies
that support an effective disaster risk management. There is a marked improvement in
terms of developing a regulatory framework that promotes and supports dialogue,
exchange of information and coordination. However, the complexity of large scale
disasters usually undermines existing policies and structures. An organizational structure
with a multi-sectoral, multi-agency and multi-level approach renders it difficult to come
up with an appropriate and immediate response, thus delaying critical disaster response
and recovery. RA 10121 and other laws passed by the government have provided solid
plans, but there have been significant question marks about its implementation, both in
terms of the funding made available to support implementation and the consistency in
approach throughout all levels of government.
The PDRRM Act of 2010 seeks the reduction and better management
of disaster risk. It is shaped by two key assumptions: 1) that disaster
risk is something that is endemic rather than a concern only when a
cyclone, flood, drought, or earthquake occurs; and 2) that it is within
the power of the state to reduce disaster risk even though it is unable
to prevent cyclones, earthquakes or other natural hazards.
Under this Act, the NDRRMCs functions include the
development of a national disaster risk reduction and
management framework, which shall provide for a
comprehensive,
multi-sectoral,
inter-agency
and
community-based approach to disaster risk reduction and
management.4
The
National DRRM Framework (NDRRMF)
emphasizes that in time, resources invested in disaster
prevention, mitigation, preparedness and climate change
adaptation will be more effective in attaining the goal of
adaptive, disaster-resilient communities and sustainable
development. The Framework shows that mitigating the
Fig. 3. NDRRM Framework
potential impacts of existing disaster and climate risks,
preventing hazards and small emergencies from becoming disasters, and being prepared for
disasters, will substantially reduce loss of life and damage to social, economic and environmental
assets. It also highlights the need for effective and coordinated humanitarian assistance and
disaster response to save lives and protect the more vulnerable groups during and immediately
after a disaster. This Framework serves as the principal guide to DRRM efforts in the country.
4Ibid, sec 6 (a)
The NDRRMF was approved on June 16, 2011 by the executive committee of the National
Council and based on this Framework, the OCD prepared the National DRRM Plan (NDRRMP).
The plan is cognizant of the development context of disasters and seeks to leverage on the
Philippine Development Plan (PDP) 2011-2016 which is the national development roadmap of
the country. The PDP has identified DRRM and Climate Change Adaptation (CCA) as major
crosscutting concerns.
The NDRRMP covers four thematic areas, namely: 1) Disaster
Prevention and Mitigation; 2) Disaster Preparedness; 3)
Disaster Response; and 4) Disaster Rehabilitation and
Recovery. It contains the priority projects of NDRRMP and
sets down the expected outcomes, outputs, key activities,
indicators, lead agencies, implementing partners and timelines
under each of the four areas.
The present setup is a multi-sectoral, multi-agency council
assisted by a secretariat with multi-level approach. While RA
10121 provides for vertical coordination between the regional,
Fig. 4. The NDRRM Plan
national and local levels, it is difficult to ensure smooth
coordination among these government agencies given the complexity of large scale disasters
when following regular disaster response procedures do not always work. Maintaining effective
interaction with various government officials within and outside of the council (national and
local) and ensuring uniform goals and strategies given an extremely limited communication
system and damaged infrastructures, are indeed huge challenges.
There are mechanisms for
coordination within the existing
disaster governance structure;
however, the complexity of
large-scale disasters usually
undermines these existing
policies and structures.
has been accomplished with regard to the projects under Disaster Preparedness of which it is the
lead agency. There were no reported accomplishments in the calendar year (CY) 2012
Performance Review and Assessment of the NDRRMP. This may be attributed to the frequent
disasters (natural and man-made) which took place in previous years which kept the agency and
other members of the National Council preoccupied, attending to these various emergencies.
The Department of Budget and Management (DBM) is responsible for the formulation and
implementation of the national budget with the goal of attaining the national socio-economic
plans and objectives. It is likewise responsible for the efficient and sound utilization of
government funds and revenues to effectively achieve our country's development objectives. Its
general function includes the preparation of the national budget, issuance of budget authority and
maintenance of accounting systems, essential to the budgetary process, promotion of greater
economy and efficiency in the management of government operations, assessment of
organizational effectiveness, and review and evaluation of executive proposals having budgetary
and organizational implications.
To bolster the resilience of communities to climate change, the proposed budget in 2013 included
the following projects implemented by various government agencies:
Table 1
Programs/Projects
Implementing Agency
2
3
Forest Protection
Geohazard Assessment
and Mapping Program
Unified Mapping
Department of Environment
and Natural Resources
(DENR)
DENR
Mines and Geosciences
Bureau (MGB)
National Mapping and
Resource Information
Authority (NAMRIA)
DOST
6
7
National Operational
Assessment Hazards
(NOAH)
Rehabilitation and
Development of Esteros
Flood Control Systems
Market Transformation
through the Introduction of
Energy Efficient E-Trike
Amount
(Php)
5.9 billion
1 billion
299.7 million
1.5 billion
Output
300,000 hectares planted with forest trees
and fruit trees
4.7 million untenured forest protected
Coastal Geohazard and Climate Change
impact (548 municipalities assessed)
5.4 hectares covered by aerial
photography and satellite images
500 million
Pasig River Rehabilitation
Commission (PRRC)
Metropolitan Manila
Development Authority
(MMDA)
Department of Energy (DOE)
360 million
554 million
20,000 e-trikes
3.1 billion
Calamity Fund
The national governments approved budget for fiscal year (FY) 2013 included a Calamity Fund
(CF), a special purpose fund intended for aid relief and rehabilitation services to
communities/areas affected by man-made and natural calamities, and repair and reconstruction of
permanent structures, including capital expenditures for disaster operation, and rehabilitation
activities. For CY 2013, the appropriated amount for the Calamity Fund was P7.5 billion, broken
down as follows:
Table 2
Purpose
1.
0.00
Maintenance and
Other Operating
Expenses
(MOOE)
P2,650,000,000
0.00
0.00
Personal
Services
Capital Outlay
TOTAL
0.00
P2,650,000,000
P800,000,000
4,050,000,000
P4,850,000,000
P3,450,000,000
P4,050,000,000
P7,500,000,000
The Special Provisions of the 2013 General Appropriations Act (GAA) provide the following
guide in the release of the Calamity Fund:
1. Use and Release of Fund. The amounts appropriated herein may be made available for
the relief, rehabilitation, reconstruction and other works or services, including predisaster activities in connection with natural calamities, epidemics as declared by the
Department of Health (DOH), crises resulting from conflicts, insurgency, terrorism, and
other catastrophes, which may occur during the budget year or those that occurred in the
immediately preceding year: PROVIDED, That the beneficiaries of relief, rehabilitation,
reconstruction and other works or services in connection with the occurrence of
calamities, epidemics, crises, and catastrophes already covered by donations or grants
received by all agencies of the government shall not be entitled to support or assistance
from this Fund until the donation or grant has been fully expended or used. The
NDRRMC shall be responsible for consolidating the donations and grants given to
agencies of the government in support of calamities.
2. Releases from this Fund shall be made by the DBM directly to the implementing agencies
in accordance with the approval of the President of the Philippines, which shall consider
the recommendation of the NDRRMC for local disasters or the appropriate agency for
12 DISASTER MANAGEMENT PRACTICES IN THE PHILIPPINES: AN ASSESSMENT
international crises: PROVIDED, That the NDRRMC shall take note of the donations or
grants received by agencies of the government in support of calamities in making the
foregoing recommendation to the President of the Philippines.
3. The NDRRMC shall submit, either in printed form or by way of electronic document, to
the DBM, the House Committee on Appropriations and the Senate Committee on Finance
a consolidated quarterly accountability report on the utilization of the donations or grants
given to government agencies. The Chairperson of the NDRRMC and the Council's web
administrator or his/her equivalent shall be responsible for ensuring that said reports are
posted on the official website of NDRRMC.
The detailed processes and the requirements in the release of Calamity Fund are as follows:
1. National
government
agencies/
government-owned
or
-controlled
corporations (GOCCs) submit their
request to NDRRMC through the OCD.
The required documents are as follows:
1.1
1.2
1.3
1.4
Complete description/justification of
the project
Work and Financial Plan/Plan of the
Agency
Endorsement of the head of the
agency requesting for assistance
Pertinent documents may be
required on a case to case basis
2. OCD
evaluates
and
makes
recommendation to NDRRMC
3. The Chairman of the NDRRMC
Fig. 5. Calamity Fund Process Flow
recommends to the President
4. The Office of the President advises the
DBM to release Funds
Note that the request has to pass through the NDRRMC and OCD before it is submitted to DBM
where another series of steps still has to take place.
Data gathered from the DBM show the comparative amounts appropriated for Calamity Fund
from year 2009 to 2013 as follows:
FY 2011
6,000,000,000
5,000,000,000
1,000,000,000
5,920,906,910
FY 2010
3,750,000,000
2,000,000,000
1,750,000,000
2,989,709,460
FY 2009
4,303,516,293
2,000,000,000
2,303,516,293
4,303,516,293
79,093,090
1,787,986,466
760,290,540
645,000,000
597,500,000
An analysis of the data shows that in the past five years, from 2009 to 2013, the original
appropriations for the Calamity Fund have increased by 275% or P5.5 billion. The increasing trend
proves that the government has shifted its fiscal priority in response to the immediate need brought
about by man-made and natural calamities that hit the country.
Fig. 6 shows a decline in the amount appropriated for the
year 2010 as compared to year 2009. However, Table 4
shows that a total of P2 billion was originally appropriated
for each year. The difference is due to a larger calamity fund
augmentation given for year 2009 to provide assistance and
defray the costs incurred when typhoons Ondoy and Pepeng
struck the country.
Fig. 6. Historical Trend:
Calamity Fund (2009-2013)
AGENCIES
DND
% share of CF
DOTC
% share of CF
DSWD
% share of CF
DOH
% share of CF
DA
% share of CF
DPWH
% share of CF
DILG
2009
285,970,000.00
6.65%
2,171,003.00
0.05%
387,500,000.00
9.00%
243,500,000.00
5.66%
8,000,000.00
0.19%
1,004,300,000.00
23.34%
1,706,793,900.00
2010
557,900,000.00
18.66%
0.00%
1,247,500,000.00
41.73%
0.00%
0.00%
716,060,990.00
23.95%
-
2011
825,486,466.00
13.94%
0.00%
1,611,800,000.00
27.22%
0.00%
1,610,911,000.00
27.21%
1,361,357,139.00
22.99%
-
2012
0.00%
0.00%
876,971,739.00
13.41%
0.00%
0.00%
4,715,500,651.00
72.12%
-
2013
8,000,000.00
0.11%
0.00%
3,466,166169.00
46.52%
500,000,000.00
6.71%
0.00%
2,976,576,027.00
39.95%
467,732,486.00
% share of CF
SUCs
% share of CF
LGU
% share of CF
GOCC
% share of CF
DepEd
% share of CF
DOST
% share of CF
39.66%
20,800,000.00
0.48%
644,481,390.00
14.98%
0.00%
0.00%
0.00%
0.00%
0.00%
272,408,470.00
9.11%
195,840,000.00
6.55%
0.00%
0.00%
0.00%
0.00%
144,352,305.00
2.44%
0.00%
217,000,000.00
3.66%
150,000,000.00
2.53%
0.00%
0.00%
649,826,990.00
9.94%
0.00%
296,150,620.00
4.53%
0.00%
6.28%
0.00%
31,950,000.00
0.43%
0.00%
0.00%
0.00%
4,303,516,293.21
2,989,709,460.00
5,920,906,910.00
6,538,450,000.00
TOTAL
7,450,424,702.00
% increase/
decrease from 2009
Source: www.dbm.gov.ph
-30.53%
37.58%
51.93%
73.12%
The figures above show noticeable increases and decreases in Calamity Fund releases from year
2009 onwards.
In 2009, the DILG received 39.66%, the largest share of the total Calamity Fund released. The
Department of Public Works and Highways (DPWH) received the next biggest share at 23.34%.
DILG and DPWH are lead agencies for disaster preparedness and disaster recovery and
rehabilitation, respectively. It should also be noted that in 2009, two of the most destructive
typhoons, Ondoy and Pepeng, struck the country.
Using the year 2009 as the baseline, it can be observed that there has been a 30.53% decrease in
Calamity Fund releases for the following year, from P4,303,516,293 in 2009 to only
P2,989,709,460 in 2010. In that year, there was a change in the distribution of released CF, with
the DSWD getting the largest share of 41.73%, followed by DPWH with 23.95%. DSWD and
15 DISASTER MANAGEMENT PRACTICES IN THE PHILIPPINES: AN ASSESSMENT
DPWH are lead agencies for disaster response and disaster recovery and rehabilitation,
respectively. It can be noted that one destructive typhoon (Juan) had hit the country in 2010, thus
the flow of Calamity Funds toward response and rehabilitation.
In 2011, a 37.58% increase in the total Calamity Fund releases was seen. Again, DSWD got the
largest share with 27.22%, followed by the DPWH with 27.21%. The 2011 budget basically
addressed the requirements for response and rehabilitation/reconstruction as a result of the major
typhoons that hit the country, two in 2010 and typhoon Pedring in 2011.
In 2012, there had been a significant 51.93% increase, amounting to P6,538,450,000, in the
annual total CF releases. In that year, the DPWH got the bulk of CF releases with 72.12%,
followed by DSWD with only a 13.41% share. The strong and destructive typhoon Pablo also hit
the country in 2012.
An even more significant increase of 73.12% in CF releases was observed in 2013. The DSWD
received a significant share (46.52%) of the released funds, followed by DPWH with 39.95%. It
was in 2013 when typhoon Yolanda, one of the most destructive typhoons in recorded history not
only in the Philippines but in the world, struck the country.
It should be noted that for the succeeding years after 2009, there has been no Calamity Fund
released to DILG, a department responsible for disaster preparedness, and the government has
shifted its priority in its distribution by giving the largest share to DSWD, an agency responsible
for disaster response.
In the distribution of the Calamity Fund, it is indispensable to consider the role of DILG because
of its close coordination with LGUs for disaster preparedness. While the government has been
giving too much priority to disaster response, recovery and rehabilitation, it would even be more
effective to distribute a bulk of the funds for disaster prevention, mitigation, and preparedness.
The QRF allocation is lodged under the budgets of the agencies enumerated below:
Table 5
1.
2
3
4.
5.
6.
7.
Agency
DSWD-Office of the Secretary (OSEC)
DND - OCD
DND - OSEC
DPWH - OSEC
Department of Education (DepEd) - OSEC
Department of Agriculture (DA)- OSEC
DA - National Irrigation Administration (NIA)
TOTAL
Amount
P 662,500,000.00
530,000,000.00
352,500,000.00
600,000,000.00
550,000,000.00
500,000,000.00
500,000,000.00
P3,695,000,000.00
It was observed, however, that the QRF provision in RA 10121 has not been consistently
followed as shown in the following tables:
Table 6
FY 2013
FY 2012
FY 2011
Calamity Fund
(CF)
P7,500,000,000.00
P7,500,000,000.00
P6,000,000,000.00
QRF releases
P3,695,000,000.00
P2,645,000,000.00
P1,787,986,466.00
30% of CF
P2,250,000,000.00
P2,250,000,000.00
P1,800,000,000.00
Difference
P1,445,000,000.00
P395,000,000.00
P(12,013,534.00)
Table 7
FY 2010
FY 2009
P3,750,000,000.00
P4,303,516,293.00
P645,000,000.00
P597,500,000.00
30% of CF
P1,125,000,000.00
P1,291,054,887.90
Difference
P(480,000,000.00)
P(693,554,887.90)
The tables above show that for the years 2009-2011, there were deviations in the allocation of the
QRF, resulting to an under allocation of P693,554,887.90, P480,000,000 and P12,013,534,
respectively.
We also noted that while the purpose of the QRF is to normalize the living conditions of the
affected communities as quickly as possible, the process involved in its release is also marked by
delays. In fact, during the early days after Yolanda, DSWD, the agency in charge of disaster
17 DISASTER MANAGEMENT PRACTICES IN THE PHILIPPINES: AN ASSESSMENT
response, had to tap its unutilized disaster funds intended for the victims of typhoon Pablo instead
of waiting for the QRFs release.
Although it can be noted that QRF allocations increased in
the past five years (see Fig. 7), by 518% or P3,097,000,000
(2009 as the baseline), the requirement of the law was not
followed for the years 2009-2011. It was only starting in
2012 when the government had started releasing more than
30%, realizing the need for a standby emergency fund,
given the frequency of typhoons that struck the country in
the last few years.
An analysis of the QRF distribution for the same years
would show that the biggest share of QRF went consistently
to DSWD and DND, the lead agency for disaster response and the head of DRRMC, respectively.
DPWH, the lead agency for rehabilitation, got a small percentage of 20.79% in 2012 or P550
million, the highest in five years. (DPWH did not receive QRF for two years within that five-year
period.) The share of DPWH was even reduced to 16.24% in 2013 although it amounted to P600
million.
Fig. 7
Table 8 shows the QRF releases for the years 2009 to 2013 and how it was distributed to their
respective implementing agencies.
Table 8. Quick Response Fund Distribution for 2009 To 2013
YEAR
AGENCIES
DPWH
% share of QRF
DSWD
% share of QRF
DND
% share of QRF
DepEd
% share of QRF
DA
% share of QRF
TOTAL
2009
80,000,000.00
13.39%
287,500,000.00
48.12%
230,000,000.00
38.49%
0.00%
0.00%
597,500,000.00
2010
0.00%
287,500,000.00
44.57%
357,500,000.00
55.43%
0.00%
0.00%
645,000,000.00
2011
0.00%
962,500,000.00
53.83%
825,486,466.00
46.17%
0.00%
0.00%
1,787,986,466.00
2012
550,000,000.00
20.79%
662,500,000.00
25.05%
882,500,000.00
33.36%
550,000,000.00
20.79%
0.00%
2,645,000,000.00
2013
600,000,000.00
16.24%
662,500,000.00
17.93%
882,500,000.00
23.88%
550,000,000.00
14.88%
1,000,000,000.00
27.06%
3,695,000,000.00
% Increase/
Decrease from
2009
7.95%
199.24%
342.68%
Source:
www.dbm.gov.ph
518.41%
DND has a total QRF appropriation of P352.5 million for CY 2013. However, only 1.89% or
P6,650,000 were actually utilized out of this fund for the relief goods that were distributed to the
Yolanda calamity victims. DND has transferred a total of P294,212,571.82 or 83.46% of the fund
to its major services and bureaus for the following projects:
Table 9
Purpose of Transfers
Acquisition of Equipment
Petroleum, oil and lubricant (POL)
Training
Construction/Repairs, Improvement
Total
Transferee
Philippine Air Force (PAF), Philippine
Army (PA), Philippine Navy (PN)
AFP-Finance Center
PAF, PA, PN
PA, AFP-Finance Center, OCD
Amount
P153,768,193.00
17,258,805.25
16,167,160.00
107,018,413.57
P294,212,571.82
The QRF was also used in the installation, testing and commissioning of Internet Protocol (IP)
radios, switch and transceivers for Defense Situation Monitoring Center (DSMC) in the amount of
P600,257.23 which do not directly benefit the community/victims of calamities as provided for in
the GAA while the repairs and improvement done on the facilities of the Philippine Army totaling
P63,604,139.50 is not a disaster-related project and should not have been charged against this
fund. Although a huge portion of the QRF was also spent for disaster-related projects, these were
not completed within the year and thus have not been used for the benefit of calamity victims.
In the case of OCD, only 17% or 121,182,550.00 of its total available QRF of 692,766,612.00
for CY 2013 went to typhoon Yolanda victims. Prior to Yolanda, the OCDs QRF had an
available balance of 538,559,913.27, the utilization of which is shown in the following table:
Table 10
CA for operational requirements of NDRRM Operation
Center
CA for Operational Req. of Reg. VIII Operation Center
Office Supplies
FT to AFP for POL reserve for disaster operations
Various groceries/medicines for daily subsistence of duty
personnel at Command Center and Regional Operation
Center, Reg. VIII
Total
P1,600,000.00
P200,000.00
P56,445.00
P118,645,912.00
P680,193.00
P121,182,550.00
It can be observed from Table 8, that the DA only received its QRF share in 2013 while DepEd
started receiving its share only in 2012. Given the extent of damages that both the education and
agricultural sectors suffer after every calamity, both should receive a significant portion of the
QRF. Our audit, however, showed that out of the P41,268,120 QRF received by the DA Regional
Field Office in the Cordillera Administrative Region (CAR) for assistance to typhoon, flood or
drought victims in the CAR, P9 million or 21.80% was not used immediately, hence, withdrawn
by DBM.
Tracking of public expenditures on DRRM will influence better understanding and behavior
toward a more comprehensive strategy to address the impacts of disasters. The following
discussion is an initial attempt towards this objective.
Preparedness
Mitigation
Recovery and
Rehabilitation
Response
DSWD
10,081,684,000**
MMDA
5,283,393.01
DOST
14,565,356.00
1,967,416,447.97
13,231,757.00
DND/OCD
294,212,571.82
DILG
33,071,955.88
BFAR
475,867,280.00
DENR
6,827,992,470.34*
OPARR
1,953,000.00
DOH
232,591,416.39
TOTAL
7,169,842,354.04
1,967,416,447.97
483,103,673.01
10,455,339,723.39
127,832,550
*National Greening Mapping Program,National Geohazards Assessment and Mapping Program,Unified Mapping Program,Phil.
Climate Change Adaptation Project,Rehabilitation of Esteros and Waterways
**P4,996,422,299.24 of which was obligated for typhoon Yolanda relief operations
An analysis of the 2013 Budget shows that 54% or more than half of the utilized fund for disaster risk
management went to response and rehabilitation, a post-event, while 46% of the fund utilized were
allocated for mitigation and preparedness, a pre-event.
Although there are significant achievements in DRRM, a complete paradigm shift from disaster as an
immediate product of hazards to disaster as a function of peoples vulnerability has not fully happened
yet as spending is still largely in the area of response. The reactive type of disaster spending leaves the
country more vulnerable and less prepared to handle disasters.
Fig. 8
In addition to the functions enumerated above, OCDs main responsibility is ensuring the implementation
and monitoring of the NDRRMP. One of the common audit observations among DRRM agencies is the
inadequate monitoring of the implementation of DRRM activities that would have allowed timely
adjustments as necessary, replication of good DRRM practices or fast-tracking of project implementation
in areas where they are most needed. We noted a decline in OCD budget for 2013 from 1 billion to 650
million due to the deletion of the usual yearly allocation for DRRM operations. Although the QRF was
retained, it must be noted that relief and rehabilitation activities where QRF are supposedly spent, are not
included among the functions of OCD.
21 DISASTER MANAGEMENT PRACTICES IN THE PHILIPPINES: AN ASSESSMENT
Fig. 10
Table 12
APPROPRIATIONS/
(A)
1,045,266,612
DISBURSEMENT
(B)
127,832,550*
BALANCE
(A-B)
917,434,062
*In addition,P294, 212,571.82 were utilized by DND coming from the general fund of the department.
Of the total disbursement, 30.29% or P127,832,550.00 came from the QRF of both agencies. This amount
was fully utilized for disaster response, while the DND utilized 69.71% or P294,212,571.82 of the total
disbursement for disaster preparedness. The said amount came from the DNDs general fund.
OBLIGATED (B)
10,081,684,000
UNUTILIZED BALANCE
(A-B)
3,665,987,000.00
Fig. 13
Strengthen partnership and coordination among all key players and stakeholders.
The Department has a total fund allocation for DRRM activities amounting to P76 million. Of this
23 DISASTER MANAGEMENT PRACTICES IN THE PHILIPPINES: AN ASSESSMENT
amount, only P37,590,130.30 were released to different Regional Offices as training expenses for
disaster preparedness. Of the released funds, P33,071,955.88 were utilized, thereby affecting the
implementation of the project on Building capacities of the local government units in addressing the
impacts of disasters using tools in multi-hazard and vulnerability.
Table 14
APPROPRIATIONS
(A)
76,000,000.00
OBLIGATIONS
(B)
33,071,955.88
BALANCE
(A-B)
42,928,044.12
Fig. 14
The span and nature of coordination, complementation and interoperability of work in DRRM operations
is that complex that resource allocation cannot be confined to a single phase of disaster management
system.
The DepEd created the DRRM Office (DRRMO) to institutionalize the culture of safety at all levels, to
systematize the protection of education investments and to ensure continued delivery of quality education
services. It shall serve as the focal and coordinative unit for DRRM-related activities. The DRRMO shall
24 DISASTER MANAGEMENT PRACTICES IN THE PHILIPPINES: AN ASSESSMENT
PREPAREDNESS
RESPONSE
1,141,116,913.27
As observed, the department has allocated 100% of the sub-allotment to regional offices for rehabilitation
and recovery. DepEd should take into consideration that it has been mandated to recommend policy
actions, and propose programs/projects, which will mitigate and reduce the impact of disasters to DepEd
teaching/non/teaching personnel/staff, learners and properties.
Table 16
APPROPRIATIONS
(A)(A)
425,640,450.28
DISBURSEMENT
(B)
232,591,416.39
BALANCE (A-B)
193,049,033.89
Fig. 17
UTILIZATION
(B)
BALANCE
(A-B)
7,929,995,683.48
6,827,992,470.34
1,102,003,213.14
Fig. 19
Fig. 20
DISBURSEMENT
(B)
UNUTILIZED BALANCE
(A-B)
1,705,720,000.00
475,867,280.00
1,229,852,720.00
Fig. 21
DISBURSEMENT
(B)
BALANCE
(A-B)
P40,286,000.00
P1,953,000.00
P38,333,000.00
DISBURSEMENT
(B)
P5,283,393.01
UNUTILIZED BALANCE
(A-B)
P716,606.99
As observed, the Department has fully utilized its resources to fulfill its Flagship DRRM
Program through Project NOAH.
Table 21
APPROPRIATIONS
(A)
P1,995,213,560.97
DISBURSEMENT
(B)
P1,995,213,560.97
UNUTILIZED BALANCE
(A-B)
-
Based on the trends on the occurrences of disasters, it is evident that Calamity Funds and QRF
were not sufficient, thus it is necessary that these resources be applied where they can create the
biggest impact. Because in the final analysis, it is the quality of public spending and the
timeliness by which interventions are carried out that matter.
Fig. 26
All local governments are not equally prone to disasters. Some local governments are in areas
highly prone to disasters, which have a serious impact on their finances. However, the national
policy for devolution of finances does not recognize these differential vulnerabilities.
It is true that LGUs can access DRRM funds but the delays involved in accessing the funds must
be resolved. According to a recent study by the Philippine Institute for Development Studies
(PIDS), the usual programming practice for regular accounts is not appropriate for QRF where
31 DISASTER MANAGEMENT PRACTICES IN THE PHILIPPINES: AN ASSESSMENT
the timing and magnitude of disaster/emergency occurrence cannot be ascertained.5 Thus, the
study is proposing a simpler process flow for QRF availment and a two-year window for the use
of QRF and other DRRM funds so that government agencies and local governments will have
enough room for resource maneuvering and fiscal adjustments to better address requirements in
the field before, during, and after times of disaster.6
Fig. 28
It is interesting to note that despite the inadequate resources of some LGUs due to their small
budget, LDRRMFs are usually unutilized or underutilized. This affirmed our earlier observation
5
Quick Response Funds and DRRM Resources in the Department of National Defense OSEC and OCD) and Various
Departments (DSWD, DPWH, DA and DepEd) (Philippine Institute for Development Studies, 2013)
6 Ibid
regarding reactive type of disaster spending. We also noted that some LGUs cut back on
spending the LDRRMF for they are too afraid that such expense may not be allowed by DBM or
disallowed by COA. This makes it imperative to revisit the existing laws, rules and regulations on
fund utilization to better adapt to the LGUs needs given their different experiences in disaster
response and mitigation. Thus the challenge to find ways to increase investment in disaster
preparedness and risk mitigation remains.
Assessment of Preparedness
In times of disaster, impacts and losses can be substantially reduced if authorities, individuals and
communities in hazard-prone areas are well prepared, ready to act and equipped with the
knowledge and capacities for effective disaster management.
Disaster preparedness is described as the knowledge and capacities developed by governments,
professional response and recovery organizations, communities and individuals to effectively
anticipate, respond to, and recover from the impacts of likely, imminent or current hazard events
or conditions.
The overall vision is safer, adaptive, and disaster resilient Filipino communities toward
sustainable development. It conveys a paradigm shift from reactive to proactive DRRM wherein
men and women have increased their awareness and understanding on DRRM with the intention
to increase peoples resilience and decrease their vulnerabilities as contained in the national
framework.
While it cannot be denied that there have been significant innovations in the area of disaster
preparedness and considerable amount of funds spent for the said phase, its various elements are
continuously being challenged. We noted that roles and responsibilities have been decentralized
without resolving existing limitations in financial resources and operational capacities.
Community participation and decentralization is ensured through the delegation of authority and
resources to local levels, but existing financial constraints continue to affect the capacity of
certain LGUs for effective disaster preparedness and response. While the law encourages LGUs
investment in disaster risk management, the current system, however, puts LGUs in poorer and
island provinces (usually hazard-prone) at a disadvantage as they have lower revenues and thus,
have fewer funds available. The situation is further aggravated by the fact that since the calamity
fund is based on estimated revenues, there is no actual cash backup to fund the 5% budget for
calamity funds as poor LGUs cannot fully collect the estimated revenues which is the basis of the
budget.
To strengthen the LGUs disaster preparedness for effective response at all levels, relevant
knowledge and information on hazards, vulnerabilities, actual losses and capacities must be
collected, compiled and disseminated. Unfortunately, this is hardly implemented in the majority
of LGUs, especially among low-income class municipalities. Majority of the LGUs have no
capacity to establish database/databank which is useful in both disaster preparedness and
33 DISASTER MANAGEMENT PRACTICES IN THE PHILIPPINES: AN ASSESSMENT
response. The political will to implement existing laws on DRRM such as the Building Code and
land use and zoning ordinances is another factor to consider. Mainstreaming disaster mitigation
and preparedness in the LGU development plan still remains a huge challenge. The human
resource and technical complement of disaster preparedness is still wanting in terms of a
systematic approach.
Typhoon Yolanda will likely serve as a new benchmark for planning, but LGUs need to do a
better job in risk identification and scenario planning.
Even at the level of the national government agencies, we also observed some lapses in the area
of disaster preparedness. Consider the following:
OCD
We noted that not much have been accomplished by OCD with regard to Disaster Preparedness
under the NDRRMP of which it is the lead agency. No accomplishments were reported per the
CY 2012 Performance Review and Assessment of the NDRRMP as the agency still do not have a
relevant, DBM-approved staffing pattern as required under Rule 7, Section 4 of the Implementing
Rules and Regulations of RA 10121. The frequent disasters (natural and man-made) which took
place in previous years have kept the agency and other members of the National Council
preoccupied attending to various emergencies.
DILG
We noted that the DILG integrated disaster preparedness in delivering basic services and
strengthened capacities of communities to anticipate, cope and recover from the negative impacts
of calamities through Enhancing LGU Capacity on Climate Change Adaptation and Disaster
Risk Reduction Management. However, the results of LGU Disaster Preparedness Profiles
assessment showed that LGUs are only 23% prepared to counter the effects of calamities.
Despite its scaled up Seal of Good Local Governance campaign that recognizes good
performance, the DILG has not successfully achieved full preparedness of LGUs, with only 23%
of LGUs in flood-prone areas prepared in terms of awareness, institutional capacities and
coordination based on the agencys own assessment.
Developing the capabilities needed to counteract large-scale disasters should be part of an overall
national preparedness effort that should integrate and define what needs to be done, where it
needs to be done, based on what standards, how it should be done and how well it should be done.
Personnel training on disaster preparedness as well as equipment buildup should also be a
continuous process and appropriate and flexible funding should be allotted for this as
recommended in a recent PIDS study.
Gaps in Accountability
Even in times of catastrophic disaster, one cannot discount the significance of controls and other
accountability mechanisms for they ensure the proper use of much needed resources. However,
decision makers often find themselves trapped in a struggle between implementing controls and
accountability mechanisms and the demand for rapid response and recovery assistance. On one
hand, our audit documented many examples wherein quick action was not possible due to
35 DISASTER MANAGEMENT PRACTICES IN THE PHILIPPINES: AN ASSESSMENT
Under COA Circular No. 2012-002 dated September 12, 2012, specifically paragraph 5.1.5, the
Accountant and the LDRRM Officer are required to prepare a report on the sources and
utilization of the DRRM Fund and submit it on or before the 15th day of the end of each month to
COA, copy furnished to the OCD.
During this study, we found out that this provision is not being implemented and the auditors
hardly ever receive such reports. This makes it difficult to conduct a thorough analysis of disaster
management funds. Even tracking the flow of disaster funds is challenging due to the lack of
information on what has been delivered to whom and the lack of a feedback loop that enables the
people affected by crises to say what they have received and when they received it. It is therefore
difficult to measure the efficiency and effectiveness of government response to disasters. The lack
of a system that tracks what commodities and services have been delivered to the people also
makes it hard to draw the lines of accountability.
Management of information is critical to any disaster management system. The information need
of disaster managers can be categorized into pre-disaster and post-disaster, which are both crucial
in guiding decision-makers. The need for information, however, is not only limited to baseline
and real-time data on the nature, effect and impact of disasters but also includes financial
information. The ability of leaders and administrators to make sound decisions on disaster
management, to analyze and strategize the appropriate response or disaster risk mitigation
techniques also depends, to a large extent, on the availability, reliability and quality of financial
information.
Catastrophic Disasters: Enhanced Leadership, Capabilities and Accountability Controls Will Improve the
Effectiveness of the Nations Preparedness, Response, and Recovery System (GAO-06-618, United States
Government Accountability Office, 2006).
Ibid
As for developing capabilities, the same U.S. GAO publication said that it should be part of an
overall national effort designed to integrate and define what needs to be done, where, by whom,
and how well.9 Our public spending on disaster management is still largely reactive as shown by
the huge balances of calamity funds before the occurence of a disaster and the corresponding
increase in expenditures during disaster response and recovery. This kind of spending is not in
line with a culture of preparedness that is needed if we are to suceed in disaster risk management.
The government has progressed in raising the peoples awareness on the adverse impact of
disasters on the population and the economy by integrating natural hazard risks in its plans,
strengthening institutions, and implementing projects like early warning systems, improving
weather forecasting and strengthening disaster response. Little has been done, however, in
determining if there are sufficient levels of disaster risk financing, considering that disaster
damage and losses continue to be significantly high, and recovery and rehabilitation in affected
areas move quite slow. Tracking public expenditures for DRRM might lead to a better
understanding and behavior toward a more comprehensive strategy to address the impacts of
disasters. This has not yet been done and to date there is still no comprehensive analysis of public
spending on DRRM.
With regard to accountability, greater transparency and better information dissemination are
needed for a more effective disaster aid. Government agencies are mandated to report on the
sourcing and utilization of disaster funds, but the majority hardly comply with this rule. This
makes it difficult to conduct a thorough analysis of disaster management funds. Even tracking the
flow of disaster funds is challenging due to the lack of information on what has been delivered to
whom and the lack of a feedback loop for people affected by crises to report whatever they have
received and when they received it.
In this regard, COA has issued a new accounting guide that requires government agencies to
submit a report to the OCD and the OCD auditor to consolidate the same. These reports, however,
only cover funds and relief goods channeled through government agencies. At present, COA has
no means to capture the aggregate amount of funds and resources donated, allocated and utilized
for disaster management.
It must be emphasized that private entities which received extensive funding from international
and local donors must be asked to account for monies received for the rehabilitation of disaster
victims/survivors. They should be required to maintain stand-alone accounts for disaster-related
donations to ensure transparency and ease of audit. It is therefore imperative to develop a guide
for voluntary reporting on disaster-related aid channeled through private companies or
organizations.
All in all, the government as led by the NDRRMC must plug the holes and bridge the gaps in its
DRRM plan and implementation to address the many critical issues and problems that were
Ibid
highlighted and magnified in the aftermath of the Yolanda disaster. We need to look into the
problematic areas and aspects where the government came up short or had no response at all,
especially in the fundamental elements of leadership, capabilities and accountability. We need to
learn from the small victories, the bright spots as well as the fatal mistakes and everything in
between that were made not only from the Yolanda perspective but also from the many natural
and man-made disasters that have struck our country in the last two decades. Otherwise,
calamities will continue to exact a heavy toll not only on our economy but also on our population.