draft philippines report_institutions and policies on drm and cca_30june2010

Institutional and Policy Landscapes of Disaster

Risk Reduction and Climate Change

AdaptationIn Asia and the Pacific

PHILIPPINES

Rodel D. Lasco and Rafaela Jane P. Delfino

A Joint Project of the World Agroforestry Centre (ICRAF) Philippines and United Nations International Strategy for

Disaster Reduction Secretariat (UNISDR)Asia and Pacific Regional Office

June 2010(DRAFT)

Institutional and Policy Landscapes of Disaster Risk Reduction and Climate Change AdaptationPHILIPPINES

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PHILIPPINES

INSTITUTIONAL AND POLICY LANDSCAPES OF DISASTER RISK REDUCTION AND CLIMATE CHANGE ADAPTATION IN ASIA AND PACIFIC

SUMMARY

Development faces a growing threat from a changing climate – particularly through the impact of more extreme events. The Philippines has been considered as highly vulnerable to current (i.e. natural disasters), as well as future climate-related risks. The development goals of the country can be severely affected and a great number of population and livelihoods can be at risk. Managing risks to development requires the systematic integration of disaster risk management (DRM) and climate change adaptation (CCA) in terms of project activities, coordination and financing mechanisms. However, until now these agendas have evolved independently in terms of institutions and policies.

Over the years, there have been several planning and development projects that have addressed these issues. The outputs of these projects although substantial, have not found their way into the scientific literature. As a result they have not been cited in assessments such as those by the IPCC and thus failed to inform policy making. This UN ISDR-ICRAF project tries to address those gaps in knowledge transfer. This paper reviewed the initiatives of the Philippines on DRM and CCA and assesses the progress of its integration to development planning.

Significant program and strategy advances have been gained in strengthening DRM; and pioneering steps, including key national policies and institutions for promoting CCA. The recently approved policies on both DRM and CCA, and other adaptation projects feature clear overlaps, including efforts to harmonize coordination structures. From the review of the DRM and CCA institutional and policy landscapes of the country, the study provides recommendations and immediate priorities for the Philippines to facilitate effective integration of DRM and CCA into policies and programs.


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PROJECT BACKGROUND

It is being increasingly recognized that mainstreaming of an integrated approach to CCA and DRR into key sectoral policies, such as agriculture and natural resource management and urban development, is essential. Indeed, it is crucial for climate change and disaster risk reduction initiatives to work in tandem and that synergies between the two are further articulated. The need exists for a better exchange of knowledge that will benefit of both disciplines’ experiences, in order to avoid inappropriate adaptation practices and unsustainable policies.

In many Southeast Asian countries, poor and highly vulnerable sectors of the population depend on natural resources for livelihoods. This is has given rise to attempts to develop an ecosystems-based approach to CCA and DRR. Over the years, there have been several planning and development projects that have addressed these issues. The outputs of these projects although substantial, have not found their way into the scientific literature. In many cases they have very limited circulation. As a result they have not been cited in assessments such as those by the IPCC and thus failed to inform policy making.This project will address those gaps in knowledge transfer. Results will be available to the concurrent investigations that are synthesizing national and regional CCA-DRR efforts and to IPCC as peer reviewed resource documents.

The project generally aims to provide research; writing and literature review to compile a thorough review of relevant documentation, published and unpublished, on the subject of climate change adaptation and the relationship to disaster risk reduction in the Philippines. Specifically:

Review existing documentary sources, projects and programmes on climate change adaptation and disaster risk reduction;

Investigate all relevant projects that have been undertaken over the last two years by key stakeholders, and prepare a list of those projects and programmed with a means of reviewing their status, replicability, area of focus (sector, hazard etc.).Compile and categorise such documents in a way that they can be accessible in electronic form, with the information necessary to access those documents from the database. And contribute to the updating of these templates and the overall organizational approach for the documentary review;

Prepare a shortlist of key topic areas by sector (if appropriate) that can be the basis of the two stage reviews and lessons learned (practical examples of where good climate change adaptation practices has reduced disaster risk in a sustainable manner);

Undertake a documentary review through a review all collected documents of possible relevance and prepare a brief annotation on those documents and provide a brief review of the possible use and value of that publication; and select key documents from which a synthesis can be derived that is topic specific, that will contribute to two audiences: i) the IPCC review, and ii) the ongoing Regional Synthesis project. The result will be either publishable material on the selected topics or complete background documentary evidence upon which specific publications can be derived.


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ACRONYMS

ADB Asian Development BankADPC Asian Disaster Preparedness CenterAPSEMO Albay Public Safety and Emergency Management OfficeAusAid Australia Agency for International DevelopmentBSWM Bureau of Soils and ManagementCAS Country Assistance StrategyCBDRM Community-based Disaster Risk ManagementCCA Climate Change AdaptationCIRCA Center for Initiatives and Research on Climate AdaptationCLUP Comprehensive Land Use PlaneDA Department of AgricultureDENR Department of Environment and Natural ResourcesDepEd Department of EducationDFID Department for International DevelopmentDILG Department of Interior and Local GovernmentDIPECHO European Commission Humanitarian Aid Department Disaster Preparedness ProgramDOE Department of EnergyDOH Department of HealthDPWH Department of Public Works and HighwaysDRR/M Disaster Risk Reduction/ManagementEC European CommissionEU European UnionEIA Environmental Impact AssessmentEMB Environmental Management BureauENSO El Nino Southern OscillationEWS Early Warning SystemGCM Global Circulation ModelGEF Global Environment FacilityGFDRR Global Facility for Disaster Reduction and RecoveryGIS Geographic Information SystemGSIS Government Service Insurance SystemGTZ German Technical CooperationHFA Hyogo Framework of ActionIEC Information, Education and CommunicationIFRC International Federation for Red Cross and Red Crescent SocietiesINGO International Non-government OrganizationIPCC Inter-governmental Panel on Climate Change IRA Internal Revenue AllotmentITCZ Inter-tropical Convergence ZoneIWRM Integrated Water Resources ManagementJICA Japan International Cooperation AgencyLCF Local Calamity FundLGU Local Government UnitMDG Millennium Development GoalMGB Mines and Geosciences Bureau


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MO Manila ObservatoryMTPDP Medium-Term Philippine Development PlanNAMRIA National Mapping and Resource Information AuthorityNCF National Calamity FundNDCC National Disaster Coordinating CouncilNDRRMC National Disaster Risk Reduction and Management Council NEDA National Economic and Development AuthorityNGA National Government AgencyNGO Non-government OrganizationNPC National Power CorporationNWRB National Water Resources BoardMDG Millennium Development GoalMTPDP Medium Term Philippine Development PlanOCD Office of Civil DefenseODA Official Development AssistancePAGASA Philippine Atmospheric, Geophysical and Astronomical AgencyPCCA Philippine Climate Change ActPCIC Philippine Crop Insurance CorporationPDIP Provincial Development Investment PlanPDRRMA Philippine Disaster Risk Reduction and Management ActPGA Provincial Government of AlbayPHIVOLCS Philippine Institute of Volcanology and Seismology PIA Philippine Information AgencyPNRC Philippine National Red CrossREADY Hazards Mapping and Assessment for Effective Community-Based Disaster Risk

Management ProjectSNAP Strategic National Action PlanUNDP United Nations Development ProgrammeUNESCAP United Nations Economic and Social Commission for Asia and the PacificUNCHR United Nations High Commissioner for RefugeesUNFCCC United Nations Framework Convention on Climate ChangeUNISDR United Nations International Strategy for Disaster Reduction


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TABLE OF CONTENTS

SummaryProject BackgroundAcronyms

1. INTRODUCTION2. DISASTER RISK MANAGEMENT IN THE PHILIPPINES

2.1 Policy Framework 2.2 Institutions working in DRR2.3 Disaster management strategies 2.4 Key areas of progress and challenges2.5 Good examples of DRR

3. CLIMATE CHANGE ADAPTATION INITIATIVES 3.1 Policy and Strategy Framework 3.2 Regional organizations working in CCA3.3 Climate change adaptation activities in AP 3.4 The capacity of CCA in AP3.5 Good examples of CCA

4. PROGRESS IN INTEGRATION OF CCA AND DRR 4.1 Overall gaps and needs 4.2 Current mechanisms and incentives 4.3 Current barriers to integration

5. CONCLUSIONS AND RECOMMENDATIONS5.1 Conclusions 5.2 Recommendations

ReferencesAppendices

A. Disaster Risk Management InstitutionsB. DRM ProjectsC. Climate Change Adaptation InstitutionsD. CCA ProjectsE. Sectoral Initiatives and Key IssuesF. Annotated Bibliography


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List of Boxes

Box 1 Disaster-proofing development in Albay, PhilippinesBox 2 Climate change-related initiatives of the Philippine governmentBox 3 Lessons learned: initiatives of the Provincial Government of Albay on CCABox 4 Recommended adaptation priorities of key sectors in Southeast AsiaBox 5 DRR as a key result area in the NFSCC

List of Figures

Figure 1 Overlap between Climate Change Adaptation and Disaster Risk ReductionFigure 2 Number of people affected by natural disasters in the Philippines, 1972-2009Figure 3 Total economic damages from natural disasters in Southeast Asia, 1970-2008Figure 4 National government agencies working on DRR/M based on NDCC FrameworkFigure 5 National Framework Strategy on Climate Change

List of Tables

Table 1 Key stakeholders and institutions on DRR/M in the PhilippinesTable 2 Internationally supported projects on DRR/M, 2007 to presentTable 3 Summary report: disaster occurrences in the Province of Albay, 1994-2004Table 4 Key stakeholders and institutions on CCA and mitigation in the PhilippinesTable 5 General characterization of DRR/M and CCA communities in the countryTable 6 Progress toward integration (incentives and barriers) of DRR/M and CCA in the country


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1. INTRODUCTION

Climate change has been dubbed the most serious threat facing humanity and the last four decades have witnessed increased effort to understand the scientific processes behind it, as well as identify the most sustainable measures for reversing trends and adjusting to their consequences (Schipper, 2006). There is now a broad consensus in the scientific community on the reality of human-induced climate change. The Intergovernmental Panel on Climate Change (IPCC) concluded in its fourth assessment report (AR4) that it is 90 - 99 percent likely that the rise in global atmospheric temperature since the mid-19 th century has been caused by human activities (IPCC, 2007). Among the predicted impacts associated with these rise in temperature is the more frequent and powerful extreme climatic events, such as storms, heat waves and hurricanes.

The Asia Pacific region suffers the most from extreme weather events and these will likely increase with climate change. The Philippines, being an archipelagic country, is highly vulnerable to climate-related hazards. Farmers have to cope with an average of 20 tropical cyclones a year as well as recurring El Niño Southern Oscillation (ENSO) events. Especially vulnerable are upland farmers who rely on rainfall for water supply. The country is also characterized by several mountains / hilly lands and is dominated by problem soils characterized by steep slopes and fertility limitations.

It is increasingly being recognized that adaptation to climate change must be considered as an integral element of development and poverty reduction efforts (Burton et. al., 2006). The achievement of development goals is already jeopardized by current and still intensifying level of disaster risks while vulnerability to these hazards is also increasing due to poverty, urbanization, environmental degradation and population growth (Oslo Policy Forum, 2008; DFID, 2003). At the World Conference on Disaster Reduction, held in Kobe, Japan in 2005, climate change was acknowledged as an underlying threat in relation to disasters in its outcome strategy: the “Hyogo Framework for Action (HFA) 2005-2015” (UNISDR, 2007). The Philippine government adopted the HFA with the goal of substantially reducing disaster losses by 2015 in terms of lives and social, economic and environmental costs (GFDRR, undated).

Climate change and disaster risk management

In the past decade, weather-related natural hazards have been the cause of 90 percent of natural disasters and 60 percent of related deaths (IFRC, 2005). Worldwide, the destructiveness of tropical cyclones has increased over the past 30 years, due to an increase in their intensity and extent (Emmanuel, 2005). Indeed, the number of intense tropical cyclones has nearly doubled since 1970 (Webster, et.al., 2005).

The growing concerns about climate change come against the backdrop of a worrying rise in the vulnerability to natural disasters. While the past few decades saw a reduction in the number of people killed by natural disasters, there is a dramatic increase in the number of people affected and socio-economic losses (International Federation of Red Cross and Red Crescent Societies, 2003). This rise in losses and people affected reflects a growing vulnerability to natural hazards and in particular to weather- and climate-related hazards. While climate change may already be playing a role, the key origin of rising disaster losses is increasing vulnerability. The projected trends in extreme events and additional uncertainties associated with climate change will compound these risks and make the challenge of reducing them more urgent yet at the same time more difficult.


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Although it is acknowledged that climate change may significantly affect the weather patterns of the earth, the extent of this influence cannot be accurately determined because of the uncertainty about the role played by climate change in determining extremes in climate variability (Schipper and Pelling, 2006; van Aalst, 2001). It is therefore important to promote early and cost-effective adaptation to climate change risks using current adaptation measures to existing climate variability and extremes as a starting point (Stern, 2006; Sperling and Szekely, 2005). Improving the capacity of local communities, regions and governments in dealing with current climate vulnerability is likely improving also their capacity in dealing with future climate changes, especially if such measures are dynamic and can be adjusted to further changes in risks and vulnerabilities.

Integrating CCA and DRM in development policies

Natural disasters and climate change present considerable challenges for poverty reduction and sustainable development affecting a range of socio-economic systems (IPCC, 2001 as cited by Thomalla, et.al., 2006). Since the late 1990s, there has been increasing recognition of the need to mainstream disaster risk reduction into development - that is to consider and address risks emanating from natural hazards in medium-term strategic frameworks and institutional structures. Increasing appreciation of the need to mainstream DRR into development was formalized in January 2005 when the HFA 2005-2015 was adopted by the World Conference on Disaster Reduction. Thus, a number of development organizations have begun efforts to mainstream DRR into their work, undertaking various institutional, policy and program changes (Benson and Twigg, 2007).

In the same line, adaptation to climate change has risen on the agendas of researchers, practitioners, and decision-makers in a variety of fields (Mc Gray et.al., 2007). This emerging consensus is driving the recognition that adaptation to climate change must be considered as an integral element of development and poverty reduction efforts (Burton et. al., 2006) and, more particularly, will need to facilitate adaptation to the effects of climate change (Mc Gray et.al. 2007). The achievement of development goals is already jeopardized by current and still intensifying level of disaster risks while vulnerability to these hazards is also increasing due to poverty, urbanization, environmental degradation and population growth (Oslo Policy Forum, 2008; DFID, 2003).

Adaptation to climate change is considered especially relevant for developing countries, where societies are already struggling to meet the challenges posed by existing climate variability (Yamin et al. 2005; Adger et al., 2003), and are therefore expected to be the most adversely affected by climate change (McCarthy et al., 2001). The recent IPCC AR4 makes clear that “adaptation will be necessary to address impacts resulting from the warming which is already unavoidable due to past emissions” (IPCC, 2007).

Among the first to react on this wake up call are the development agencies as evidenced by efforts to “mainstream” adaptation into aid programs and projects. Individually and collectively, international multilateral and bilateral organizations have responded to the increasing challenge of climate change with an agenda for action to integrate climate concerns into the mainstream of developmental policy making and poverty-reduction initiatives (World Bank, 2008).

CCA and DRR have much in common. Both aim to reduce the impacts of shocks by anticipating risks and addressing vulnerabilities. Certainly, the majority of climate change impacts will materialize through climate variability (e.g. prolonged wet and dry season) and extreme weather events (e.g. heavy rainfall


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events). Climate change is shifting the frequency and intensity of hazards, such as heavy rainfall, droughts, high sea levels, and possibly cyclones, with direct implications for disaster risk.

Figure 1. Overlap between CCA and DRR (Mitchell and van Aalst, 2008)

However, while reducing the risk of weather extremes is a substantial component of managing climate risk and of the overlap between DRR and adaptation (Figure 1), DRR does not equal adaptation, and effective disaster risk management in a changing climate is more than business as usual (Mitchell and van Aalst, 2008).


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2. DISASTER RISK MANAGEMENT IN THE PHILIPPINES

The Philippines is considered one of the most disaster-prone countries in the world (Bildan, 2003; World Bank, 2005). The country’s exposure to disasters is to a significant extent due to its geographical location and physical characteristics. It lies along the Western Pacific Basin (a generator of climatic conditions such as monsoons, thunderstorms, inter-tropical convergence zone (ITCZ), typhoons, among others) making it a path of an average of 20 tropical cyclones annually, nine of which makes a landfall. Climate risk includes exposure to super typhoons, and other extreme weather, El Niño-related droughts, projected rainfall change and projected temperature increase. The country is also vulnerable to the El Niño Southern Oscillation (ENSO). ENSO-droughts have become much more frequent in the 1990s (2-year average recurrence interval) compared to the 1970s and 1980s (approximately 4-year interval). This year, the country is experiencing another ENSO event. The Department of Agriculture (DA) estimates that the total agricultural production losses under a mild El Niño scenario could reach P8.09 billion, and P20.46 billion under a severe dry spell (Martin, 2010). Flooding is another hazard facing the country due to rains brought about by typhoons and the monsoon.

The risk to human life from natural disasters in the Philippines has increased dramatically over the past generation (PRB, 2006). From 1971 to 2000, natural disasters killed about 34,000 people in the country, but from 1990 to 2000, natural disasters killed or disrupted the lives of 35 million people (Figure 2). It is expected that climate change will exacerbate existing stresses in the country (The Philippines Initial National Communication, 1999). Recent studies in the Philippines showed that water resources, natural ecosystems and local communities are vulnerable to climate change (Lasco, et.al. 2008; Villamor and Boquiren 2008; Perez 2002a and b).

Figure 2. Number of people affected by natural disasters in the Philippines, 1972-2009 (Source: UN ESCAP)

Along with Southeast Asian countries such as Thailand and Indonesia, the Philippines is among the lower middle income countries (GFDRR, undated). The high risk due to the hazards above can affect long-term economic development and foreign investments. Figure 3 shows the total amount of economic damages of natural disasters in Southeast Asia from 1970 to 2008. Natural hazards are part and parcel of the Philippine environment, but disasters happen because human settlements, infrastructure, people and their economic activities are placed where hazards happen. Costs of disaster impacts are borne by


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government, communities, and individual households, thus threatening socio-economic development gains. Thus, consideration of natural hazards and related risks in institutional programming and policies may be critical in securing sustainable development in the longer term and ensuring the effectiveness of organization’s individual country strategies (Benson and Twigg, 2007).

Figure 3. Total economic damages from natural disasters in Southeast Asia, 1970-2008 (Source: UN ESCAP)

2.1 Policy Framework

Being vulnerable to various hazards, the Philippines have a long history of and a rich experience in disaster management. It has developed an extensive institutional structure for preparing for and responding to disasters.

2.1.1 Legal Basis and Organization

The National Disaster Coordinating Council (NDCC) is the highest policy making body and the focal organization for disaster management in the country. It was established through the Presidential Decree (PD) 1566 in 1978. Its establishment led to disaster coordination from the national to regional to the lowest government unit (“barangay”). The basic function of NDCC is to advice the President on the status of national disaster preparedness and management plans, and recommends the declaration of state of calamity and the release of the national calamity fund, together with the Regional Disaster Coordinating Councils and Local Disaster Coordinating Council. The NDCC establishes the priorities in the allocation of funds, services, and relief supplied and plays an advisory role to lower DCCs through the Office of Civil Defense by issuing guidelines. The disaster coordinating councils is an inter-institutional arrangement or “collegial body” consisting of 17 national government agencies and one non-governmental organization, the Philippine National Red Cross (PNRC). The NDCC utilizes the facilities and services of the Office of Civil Defense (OCD) as its secretariat and executive arm. The NDCC issues guidelines on emergency preparedness and disaster operations.


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The national calamities and disaster preparedness plan, prepared by the NDCC in 1988 following the issuance of PD 1566, specifies that disaster coordinating councils be established for national, regional, Metro Manila, provincial, city or municipal, and barangay level. It detailed the composition and respective functions of all key member agencies. The council is chaired by the Secretary of National Defense with 14 Department Secretaries, Chief of Staff of the Armed Forces of the Philippines (AFP), Executive Director of the Philippine Red Cross, Chairman of the National Economic and Development Authority (NEDA), and the Director-General of the Philippine Information Agency (PIA) as members. All implementing plans shall be documented and copies furnished to NDCC through the OCD. The OCD was given a vital role in executing and monitoring the implementation of policies and programs – making its Administrator the NDCC Executive Officer, and in providing a secretariat support to the NDCC. NDCC member agencies are responsible for carrying out respective tasks and responsibilities, which include preparedness, mitigation, response and rehabilitation. The NDCC is replicated at the sub-national local levels referred to as the local DCCs with 17 regional, 80 provincial, 117 city and 1496 municipal councils. The local DCCs function substantially like their national counterpart except that they operate and utilize their own resources at their respective levels. Each disaster coordinating council shall maintain a disaster operations center. However, until this time, not all local government units have a working DCC.

2.1.2 Disaster Fund

The NDCC does not have an annual budget allocation; it operates through member agencies, regional and local DCCs. One basic source of funding that can be utilized in the occurrence of disasters is the National Calamity Fund (NCF). This is a lump-sum amount which consists of five percent of the annual budget of the national government that is tied to aid, relief, rehabilitation and reconstruction. Releases from the fund are made directly to the appropriate implementing departments or agencies and/or local government units in accordance with the recommendation of the NDCC and upon approval of the president of the Philippines. This is contained in Republic Act No. 8185 (1996) amending Republic Act No. 474 (1974) that created the calamity fund. The current operating expenditures of NCF is PHP2 billion (US$ 42.5 million). No funds are provided by law for mitigation and preparedness per se. This was to strengthen the capabilities of local government in disaster management.

To respond immediately to an emergency or disaster, 25 percent of the NCF is released to lead departments such as the social welfare and development, public works and highways and national defense departments as a Quick Response Fund. The amount is a stand-by fund which shall be utilized in times of calamities and is intended primarily to provide relief and rehabilitation to calamity-affected communities and areas and to normalize as quickly as possible the situation and living conditions of the people in such communities and areas.

Another source of funding is the local government calamity fund set aside by local government units (LGUs) from their annual local budgets. LGUs are mandated by R.A. 8185 since 1996 to allocate five percent (5%) of its Internal Revenue Allotment (IRA) as Local Calamity Fund (LCF) and can only be used upon declaration of a “state of calamity” is the local legislative body. In 2003, a Joint Memorandum Circular issued by the Department of Budget and Management (DBM) and the Department of Interior and Local Government (DILG) permits the use of the LCF for disaster preparedness and other pre-disaster activities. A 2004 World Bank-NDCC study reports that an estimated 50 percent of the LCF go unused each year. The current system, however, puts LGUs in poorer and island provinces (usually


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hazard-prone) at a disadvantage as they have lower revenues and thus less available for LCF. LGUs faced with disaster impacts will depend on external sources for additional funds. Rehabilitation funds promised by the national government cannot be met occasionally as planned setting back coordination agreements reached by stakeholders in the affected LGUs.

2.1.3 Paradigm Shift

The country, through the NDCC, is putting greater attention from reactive disaster management to a more proactive approach in line with international frameworks on DRM (Jose, 2006). Since the OCD and NDCC’s creation, PD 1566 has been the basic law that guides the disaster management programs, projects and strategies implementation in the country. However, it has been observed and noted from past experiences, combined with lessons learned and gaps examination, that the law that creates the Council is more leaning and gives more emphasis on response action, thus, making the implementers reactive to possible disasters rather than taking a proactive stance in disaster risk management. DRM is used in the sense of dealing with risks prior to a hazard event, and therefore increasingly the NDCC has added more activities focusing on mitigation and preparedness. In 2005, the President approved the implementation of the NDCC Four Point Plan of Action for Preparedness (4PPAP) which aims to increase public awareness and involvement in measures put in place by the government to minimize the impact of disasters in the future. Since then, the government through NDCC continued improving the forecasting capability of the warning agencies, engaging LDCCs holding the annual disaster consciousness month in July, and formalizing partnerships with different stakeholders through memoranda of agreement. Nationwide promotion and institutionalization of DRR has been taking place in terms of instilling awareness, crafting plans and policies, establishing mobilization procedures and coordination mechanisms for response, improving skills and technical know-how; and recognizing good practices.

The government also pursues a comprehensive disaster management framework that encompasses disaster risk reduction, mitigation and preparedness in the pre-event; and disaster response, rehabilitation and recovery in the post-event. The Philippine DRM conforms with the Hyogo Framework of Action 2005-2015 that highlight “the need to reduce disaster risks more deliberately and systematically through their integration into policies, plans and programs for sustainable development and poverty reduction, supported by bilateral, regional and international cooperation” (WB, 2009 ). This framework also aims to contribute to the attainment of the United Nations (UN) Millennium Development Goals (MDGs), such as poverty eradication and environmental sustainability.

Further to this paradigm shift is the inclusiveness of DRM that is evolving in the country. The past two years were marked with multi-stakeholder consultations, which were conducted as integral part of two projects that provide direction to future DRR in the Philippines, namely the national assessment on the state of DRM and Strategic National Action Plan (SNAP) (NDCC, 2009. Aside from providing ideas on what needs to be done, stakeholders were able to exchange information in forums that had not existed before. This watershed in DRR also potentially leads to actually forming a national platform that the country needs. National multi-stakeholders held three times during the period, among others all point to the necessity to continue the discussion and nurture experience. This augurs well in consolidating ideas and opinions from various sectors in formulating future strategies and charting the direction such as formulating a DRM law and adopting steps to set up implementing rules and regulations.


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2.1.4 Philippine Disaster Risk Reduction and Management Act of 2010 (RA 10121)

The law acknowledged that there is a need to “adopt a disaster risk reduction and management approach that is holistic, comprehensive, integrated, and proactive in lessening the socio-economic and environmental impacts of disasters including climate change, and promote the involvement and participation of all sectors and all stakeholders concerned, at all levels, especially the local community.”

The Act provides for the development of policies and plans and the implementation of actions and measures pertaining to all aspects of disaster risk reduction and management, including good governance, risk assessment and early warning, knowledge building and awareness raising, reducing underlying risk factors, and preparedness for effective response and early recovery.

The NDCC will now be called the National Disaster Risk Reduction and Management Council (NDRMC), empowered with policy-making, coordination, integration, supervision, monitoring and evaluation. Among the functions of the NDRMC are 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.

The framework would be reviewed every five years or whenever necessary in order to ensure its relevance to the times. A P1-billion revolving fund will be allocated to the OCD to support its functions. The OCD would remain, headed by an administrator who shall also be executive director of the NDRMC.

At the local government level, the barangay disaster coordinating councils are now abolished and its functions would be assumed by existing barangay development councils, which shall serve as local disaster risk reduction and management councils (LDRRMC). The LDRRMC would ensure the integration of disaster risk reduction and climate change adaptation into local development plans, programs and budgets as a strategy in sustainable development and poverty reduction.

While the NDRMC would still be recommending the declaration and lifting of a state of calamity, the LDRRMC may also make its own recommendation to the local Sanggunian for immediate implementation. Once a state of calamity is declared, various remedial measures to be undertaken by the member agencies have also been defined by the law, such as the automatic imposition of price ceilings on basic necessities and prime commodities by the president as provided in the Price Act.

The present calamity fund appropriated under the annual General Appropriations Act would now be known as the National Disaster Risk Reduction and Management Fund and it shall be used for disaster risk reduction or mitigation, prevention and preparedness activities such as but not limited to training of personnel, procurement of equipment, and capital expenditures.

It can also be utilized for relief, recovery, reconstruction and other work or services in connection with natural or human-induced calamities, which may occur during the budget year or those that occurred in the past two years from the budget year. Of the amount appropriated for NDRRM Fund, thirty percent shall be allocated as Quick Response Fund or standby fund for relief and recovery programs in order that living conditions of people in communities or areas stricken by disasters, calamities, epidemics, or complex emergencies, may be normalized as quickly as possible. The law also provides for the integration of disaster risk reduction education into the school curricula and Sangguniang Kabataan program and mandatory training for public sector employees.


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2.2 Institutions working on DRM

2.2.1 National Organizations working on DRRM (Appendix A)

Table 1. Key stakeholders and institutions on DRRM in the Philippines

Key Institution/s Roles with respect to DRRM

a. Disaster Management Coordination

Office of the Civil Defense (OCD) The OCD is entrusted toensure the protection and public welfare during disasters or emergencies. The OCD serves as the operating arm of NDCC, supporting discharge of its functions.

National Disaster Coordinating Council (NDCC); Regional Disaster Coordinating Council (RDCC); and Local Disaster Coordinating Council (LDCC)

The highest policy-making body on matters of disasters in the country. NDCC advises the President on efforts in disaster management undertaken by the government and the private sector, thereby serving as the highest policy-making body on disaster management. The NDCC is replicated at the regional and local levels, and these bodies function substantially like the NDCC, operating and utilizing resources at their respective levels.

Sectoral Government Agencies (e.g. DPWH, DOTC, DOST, DA, DOE, DENR, etc.)

Responsible for carrying out their respective tasks and responsibilities in disaster management including preparedness, mitigation, responseand rehabilitation.

b. Research Institutions

Philippine Institute for Development Studies; Klima/Manila Observatory; Bicol University; Economy and Environment Program for Southeast Asia (EEPSEA)

Research (basic and applied) on disaster – related issues.


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c. Multilateral and bilateral organizations and International NGOs

World Bank, UNDP, ADB, USAID, AusAID, GTZ, DFID, JICA

Philippine National Red Cross, Christian Aid , DFID, DRRnet, CDP, etc.

Funding various development and conservation programs in the country, including most of the above-mentioned projects and institutions.

d. Local partners, CSOs, and private sector

LGUs (e.g. Provincial Government of Albay, Iloilo, Marinduque, etc.); Centre for Initiatives and Research on Climate Change Adaptation (CIRCA); various community organizations, corporations and their foundations

Implement disaster risk reduction and management projects at the ground

Figure 4. National government agencies working on DRR/M based on NDCC Disaster Framework

This shows that the NDCC adopted the UN cluster approach as a coordination tool to ensure a more coherent and effective response by mobilizing groups of agencies, organizations and NGOs to respond in a strategic manner across all key sectors or areas of activity. In the last three years, the disaster response capabilities at the local level and coordination through the cluster approach were given more attention.


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National cluster leads (national government agencies like DENR, DEPED and DPWH as shown above) are lending support to regional DCCs to institutionalize the standards and dimensions of the cluster approach, which aids particularly in the last two phases of disaster framework (response and rehabilitation).

2.2.2 Mainstreaming DRR in national and international organizations

This section provides a background on what national government agencies are tasked to do in the current existing system, prior to the HFA. Relevant legal instruments and planning tools are mentioned where applicable.

Development Planning

The government started a process to integrate disaster mitigation and sustainable development issues within the Medium Term Philippine Development Plan (MTPDP), under Development Sector Administration. Within this framework, local governments are required to integrate the disaster management plan into the local development plan. The MTPDP has integrated DRR issues and investment projects. The MTPDP 2004-2010 has chapters devoted to the environment, infrastructure and national defense sectors with relevant disaster preparedness and mitigation measures. In the Philippine Agenda 21 and Philippine Millennium Development Goal (MDG) there is a lot of emphasis on adaptation to risks associated with current climate variability and extremes.

Local government

Among the DRR functions of the Department of Interior and Local Government (DILG) is to oversee the organization and activation of the LDCCs in coordination with the OCD. It organizes the Police Auxiliary Services and Auxiliary Fire Services in the LGUs. Since 2002, the DILG chairs the NDCC committee tasked to give the award called “Gawad Kalasag” to LDCCs, humanitarian organizations, NGOs, auxiliary/volunteer groups, and international and local organizations to recognize exemplary deeds and achievements in the field of disaster management.

National agencies

Education. The DepEd has put DRR topics as part of the curricula for primary and secondary public schools.

Science and technology. PAGASA and PHIVOLCS are the country’s warning agencies under the DOST. Both are service institutes, as differentiated from purely research and development institutes. PHIVOLCS operates and maintains a system of monitoring for earthquake occurrences, tsunami detection, volcanic eruption while PAGASA has one for weather, hydrological phenomena, and climate variability. The Philippine Nuclear Research Institute (PNRI) looks after the issuance of advisories on radioactive fallouts, contamination and radiation accidents to the public, as well as decontamination of areas impacted by radiation.

Land Use Planning. With respect to siting and land use, the Housing and Land Use Regulatory Board (HLURB) and National Housing Authority (NHA) provide guidelines for LGUs and real estate developers.


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HLURB develops the Geographic Information System (GIS) Cookbook, which promotes GIS as a tool in spatial planning. Diffusion of needed tools and techniques has proven to be a challenge. Some LGUs have been using GIS in the preparation of their respective Comprehensive Land Use Planning (CLUP). The HLURB Resolution, Series of 1992 has a provision against constructing buildings within 5m of an active fault.

Environment. The country’s environmental impact assessment (EIA) system has been in place since 1970s. The Department of Environmental and Natural Resources (DENR) oversees its implementation to ensure that hazards and risks are taken into account in siting development projects. These require sufficient data and information from PHIVOLCS regarding geological risks, and land use plans from HLURB, as well as the identification of mitigating actions in order to address risk management issues. Through its Mines and Geosciences Bureau (MGB), technical assistance on geohazard mapping and assessment studies of major urban areas and critical areas is provided in order to reduce disaster risks. The DENR promulgates rules and regulations for the control of forest fires and forest pest and diseases. It also undertakes reforestation and establishes control measures in areas prone to flooding, landslide, mudflows, and ground subsidence.

Poverty alleviation. The country’s Social Reform and Poverty Alleviation Act (RA No. 8425) counts victims of calamities and disasters among “the disadvantaged sectors of Philippine society.” The implementation of the Social Reform Policy is done by the National Anti-Poverty Commission. A coordinating body under the Office of the President, NAPC focuses on programs on poverty alleviation and resource mobilization for the poor.

Public works and infrastructure. The Department of Public Works and Highways (DPWH) prepares and identifies evacuation sites during emergencies; provides warning on impending water releases from dams within its control; provides transportation and communication facilities for disaster operations, and heavy and light equipment for rescue and recovery operations. It also restores destroyed public works, offices and other buildings. The relevant instruments are: (1) R.A. 6541 National Building Code of the Philippines (1972); (2) R.A. 1185 Fire Code of the Philippines; and (3) the National Structural Code of the Philippines. The fifth edition of the Structural Code (2001) introduces two important improvements: the near-fault criteria which gives “a higher base shear for a building near a known active fault compared to the same building at a remote location. And […] rewards structures with more redundancy and alternative load paths.”

Social welfare. The Department of Social Welfare and Development (DSWD) has several functions that pertain mainly to relief and rehabilitation. Its pre-event functions include the updating of the national relief and rehabilitation master plan in coordination with other partner NGAs; technical assistance for capability building preparedness, mitigation, relief and rehabilitation; linking and coordinating with local, foreign and multi-donors for disaster management programs. It also charged to provide technical guidance in the conduct of post-disaster evaluation to identify strengths and gaps in disaster management.

Health. The Department of Health has an organized Health Emergency System (HEMS) for more responsive and integrated health response to disasters and emergencies. It also assists LGUs during emergencies in the areas of sanitation, public health concerns, prevention of epidemics, and other health hazards.


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Finance and budget. The Department of Finance issues rules and regulations jointly with the Department of Budget and Management on the preparation of local government budget and the utilization of the 5% reserve for disaster operations. In line with the government’s program of strengthening the country’s disaster control capability the Disaster Management Assistance Fund (DMAF) was created by virtue of Municipal Development Fund – Policy Governing Board Resolution No. 06-10-21-2007. It aims to provide financing, support to mitigation and prevention, response and relief, and recovery and rehabilitation initiatives of LGUs.

Agriculture. The Department of Agriculture undertakes post-event agricultural surveys and maintains data on agricultural crops, livestock, and fisheries in disaster-prone areas to facilitate damage assessment.

Trade and Industry. The Department of Trade and Industry (DTI) ensures that prices of basic and prime commodities are stabilized, and that basic necessities are affordable and complying with fair trade laws.

Transportation and communication. The Department of Transportation and Communication (DOTC) coordinates the deployment of transport services during and after disaster occurrence from the national to the local DCC, mobilizes staff, transport and communication facilities of the DOTC Action Center in the disaster area, and initiates immediate restoration of destroyed infrastructure facilities for transportation and communication. Through its offices, the DOTC mobilizes transport means to facilitate evaluation of people, undertakes aerial for search and rescue operations in coordination with the Armed Forces of the Philippines, and mobilizes regional telecommunication facilities in coordination with the National Telecommunications Center and private providers.

National defense. The Department of National Defense (DND) provides the budget for activities to be undertaken by the NDCC Technical Working Group. The Armed Forces of the Philippines (AFP) organizes reaction teams in all military installations and establishes communication linkages and makes these available in disaster operations. The AFP also provides assistance to Philippine National Police in providing security coverage, in reconstructing public infrastructure, and providing transportation for movement of relief supplies and evacuation of disaster victims.

Tourism. The Department of Tourism (DoT) is obliged to organize and train disaster coordinating groups and reaction teams in hotels, restaurants and other facilities.

International Organizations

Consideration of natural hazards and related risks in country programming of international organizations is critical in securing sustainable long-term development and ensuring the effectiveness of organizations’ individual country strategies. The importance of DRR has been increasingly recognized in development organization policies since the late 1990s. This shift has been driven by increasing understanding of disasters as unresolved problems to development and by increasing losses from disasters. Attention is now turning to the integration of disaster risk concerns into country programming and mainstreaming disaster risk management within development initiatives.

The scope, level and emphasis of country strategies differ between development organizations depending on their areas of specialism, their developmental approach and the scale of assistance provided. To assess how far DRM has been integrated in the portfolio of development organizations in the country, we assessed whether and in what way disaster risk reduction and management has been


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considered in their country programming through Country Strategy Papers, Country Assistance Programmes or Country Assistance strategies in the last or next two to five years. The documents reviewed includes: World Bank’s Country Assistance Strategy (FY 2010-12), AusAID’s Australia-Philippines Development Assistance Strategy (2007-11), European Commission’s Philippine Strategy Paper (2007-13), USAID’s Country Assistance Strategy (2009-13), United Nations Development Assistance Framework (2005-09), and JICA and ADB’s Annual Report (2009). First, we reviewed whether disaster risk was included as a fundamental component in describing and analyzing the country’s current situation and medium- and long-term development outlook. AusAID, JICA, UN, ADB and the WB considered disaster risk and related hazards and vulnerabilities as major development challenges. For instance, the Australian government recognizes that the poor are particularly vulnerable to the effects of natural disasters, among others. Natural disasters are considered as one of the major risks to the implementation and effectiveness of AusAIDs country strategies. JICA also emphasized that frequent disasters, such as recent spell of floods and earthquakes, are critical impediments to sustained economic growth. In addition, the UN believes that “improving the environment and strengthening the national response to natural disasters will contribute to better health, education and social protection as well as lessen vulnerabilities”. This shows that most of the development organizations consider natural disasters and related hazards and vulnerability are themselves a major development challenge and are a contributory factor underlying other development challenges such as poverty and weak governance.

Next, we tried to identify whether the country programme objectives and strategies include DRR/M. Our review revealed that most of the country programmes, as outlined below, have direct and prominent treatment to weather-related hazards, disasters and vulnerabilities. Most development organizations considered disaster risk management as a key area of cooperation and a cross-cutting theme.

AusAIDOne of AusAID’s objectives is to help the population better prepared for and protected from natural disasters and avian influenza pandemic. This is in response to the government’s goal on effective emergency and disaster management. The strategies include: providing technical advice, equipment and training for disaster management agencies, local governments and communities; supplying early warning equipments and initiatives to improve avian influenza preparedness.

JICAUnder the ODA loan-supported environmental development project which begun in 2008 and executed through the Development Bank of the Philippines (DBP), JICA provided mid- to long-term financing to both the private sector and LGUs to help in preserving and improving the nation’s fragile environment.

ADBADB continued to align its strategies and programs in 2009 through providing a US $ 3 million grant under the Asia Pacific Disaster Response Fund to assist people affected by Typhoon Ondoy (Ketsana) and participated with partner agencies in a post-disaster needs assessment to determine the extent of losses caused by Typhoon Ondoy and Pepeng (Parma) and to identify recovery and reconstruction measures. The loan program expanded significantly due to ADBs support to assist the government in dealing with difficult economic situation and natural disasters.

UNThe UN Development Assistance Framework (UNDAF) is focused on the achievement of MDGs and


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provides for a common strategic framework for the operational activities of the UN system, setting out collective priorities and linking these outputs and outcomes to individual UN agency country programs. One of the major outcomes included in the current UNDAF is that by 2009, the capacity of stakeholders shall be increased in order to protect and enhance the quality of the environment and sustainably manage natural resources. Under this outcomes are outputs to be delivered by UNICEF, UNDP, UNFDA, FAO, and WTTO such that the environmental disaster management framework and disaster preparedness and response plans, and natural disaster management team is better able to provide emergency response services.

World BankThe WB CAS provides the most comprehensive framework for disaster management assistance for the country. Over the CAS period (2010-2012), the WB group will aim to contribute to achieving more inclusive growth by supporting the Philippines to reduce vulnerabilities by expanding and rationalizing the country’s social safety net, improving DRM, piloting CCA measures and expanding mitigation programs, among others. In addition to current commitments for development policy loans, the bank will use development policy operations in support of DRM and in the context of a strong reform program in government financial management. Under the strategic objectives is the reduction of vulnerabilities which aims to support government efforts top reduce vulnerabilities for a large part of the population.

In our review, it was apparent that development organization country programmes are mostly aligned with national development and poverty reduction strategies (MTPDP) and set out how they intend to contribute to the achievement of national goals, it is essential that the next administration prioritize disaster risk reduction as a critical development challenge. In addition, more participation from CSOs and NGOs and the vulnerable communities to ensure that their interests are adequately addressed.

2.3 Disaster Management Strategies

With the adoption of HFA in 2005, the Philippine Government (mainly members of NDCC, the country’s focal point for DRM took steps to shift from the focus on relief and response; various stakeholder groups are supporting this anticipatory move. Non-governmental organizations (NGOs) – international and national – saw an ally in government as it took on projects with a comprehensive approach to disasters. Foreign-assisted projects provided opportunities where government could take a proactive role in identifying hazards, assessing risks, mapping, informing, and communicating with community residents, working with LGUs and LDCCs devising early warning systems (EWS), and mainstreaming operations. Below is a list of internationally supported projects on DRR/M in the Philippines for the past three years.

Table 2: Internationally supported projects on DRR/M 2007 to present (Appendix B)

Past and current projects with donor and international financial institutions

Funding Agency/ Local and International Partners

HFA Activity Area(s)

Integrating Disaster Risk Reduction and Climate Change Adaptation in Local Development Planning and Decision-making processes

UNDP, AusAID1


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Strategic National Action Plan Project EU, UNISDR, UNDP 1

Learning from Good Practices: Case Study on the Institutionalization of Albay Provincial Safety and Emergency Management Office

OXFAM-GB, Development Academy of the Philippines (DAP) and PDCC-Albay

1,3

ASEAN Agreement on Disaster and Emergency Response (AADMER)

ASEAN 2

Mainstreaming Disaster Risk Reduction into the Education Sector and Development in the Philippines

ADPC/UNDP/ECHO 1,3

Hazard Mapping and Assessment for Effective Community-Based Disaster Risk Management (READY)

AusAID; UNDP; PHILVOLCS, PAGASA; MGB-DENR, NAMRIA and the OCD

2

Hazard Mapping and Assessment for Community-Based Disaster Risk Management (READY II)Multi Hazard Mapping, Community Based Disaster Preparedness, Mainstreaming DRR

OCD-NDCC2

National Assessment of the State of DRM in the Philippines ADB, UNDP 2

Improvement of Methodologies for Assessing the Socio-economic Impact of Hydro-meteorological Disasters

UN-ESCAP; UN-ECLAC; UNDP 2

Emergency Response Network (ERN)IBM International Foundation (ERN Sahana Philippines)

2

Web-based Event Database (CALAMIDAT.PH) ADRC 3

Simultaneous Nationwide Earthquake Drills and the Nationwide Water Search and Rescue (WASAR) Training and the Program for Enhancement of Emergency Response (PEER)

Miami Dade Fire Rescue Department; USAID, ADPC

3

Online Natural Disaster Risk Management ProgramWorld Bank Institute (WBI); Hazard Management Unit and ProVention Consortium

3

Disaster Risk Reduction City-to-city Sharing Initiative for developing countries WB 3

Mainstreaming DRR in Development Plans particularly on Land Use and Physical Framework Plans NEDA; DEPED 4

National Geohazards Mapping and Assessment DENR; PHILVOLCS, PAGASA 4

Construction of Hazard Resilient school Buildings DepED 4

Construction of Innovative Buildings

United Architects Philippines; Private Sector Disaster Management Network

4


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Community-based Disaster Preparedness: Development of Information and Education Campaign Materials (2nd Component of the READY Project)

AUSAID; UNDP; PHILVOLCS, PAGASA: MGB-DENR, NARMRIA and the OCD

5

Partnership for Disaster Reduction in Southeast Asia (PRDSEA) Phase 4 Project ECHO/ADPC 2

Search for Excellence in Disaster Management (Gawad KALASAG) 2007

NDCC 3

Strengthening the Disaster Preparedness Capacities of REINA Municipalities to Geologic and Meteorological Hazards (REINA Project)

UNDP 5

Upgrading the forecasting capability of PAGASA and PHILVOLCS

Japanese Grant Aid Program, JICA, MMDA

5

Disaster Preparedness and Emergency Response Facility

AusAID 5

Disaster Preparedness in the PhilippinesEuropean Commission Humanitarian Aid 5

Enhancing the capabilities of local chief executives and their DCCs

LGUs 5

Housing and Livelihood Support to Disaster Victims DSWD5

Programme on Sustainable Management of Natural Resources (Environmental sector programme) Component: Disaster Preparedness in the Eastern Visayas

EC, BMZ 5

The following discussion focuses on key cases from strategies, actions, programs (as enumerated above) and policies at the national, regional and provincial level to highlight the areas of progress in accordance with the five priorities of the Hyogo framework of Action (UN ISDR, 2007).

HFA Priority No. 1: Ensure that disaster risk reduction is a national and a local priority with a strong institutional basis for implementation

National institutional and legislative frameworks

The NDCC has been working towards decentralization of DRR in different levels of government. The current legislation on DRR, PD 1566, has been under review since amendments were proposed to the Philippine Congress ten years ago. PD 1566 does not reflect a comprehensive approach to DRM being more response-oriented. As DRM covers cross-cutting issues related to land use planning, gender, conflict, multi-hazard approach, indigenous practices, regional differences, poverty reduction, it is essential that coverage is comprehensive and specific articles in the draft bill are harmonized with existing laws. Interestingly, the recently signed PDRRMA adopts a DRR/M approach that is holistic,


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comprehensive, integrative and proactive in lessening the socioeconomic and environmental impacts of disasters including climate change, and promotes the involvement and participation of all sectors and all stakeholders concerned from the national to the local level.

Since the HFA, various stakeholders have been actively pursuing DRR activities. There is institutional commitment from various stakeholders towards recharging the legal basis of DRR actions. This is shown by active advocacy undertaken by NDCC and NGOs and the consensus is built as opportunities to dialogue increase. Related laws and regulations pertaining to safety, mining, the building code, land management, forestry, etc. are poorly enforced. These legal instruments have conventionally been dealt with without due attention to their function and contribution to reducing disaster risk and hazard vulnerability (Appendix E).

This country’s main instrument for socio-economic development, MTPDP 2004-2010 incorporates DRR issues and investment projects in different sectors – dealing with environment and natural resources, responding to the needs of the poor (disaster relief), peace and order, science and technology, defense against threat to national security. However, the plan has no specific policy statement about DRR and its role in sustainable development and attainment of the MDGs. It is essential that not only does the MTPDP acknowledge damage from natural resources but that vulnerability jeopardizes development gains due to socio-economic, environmental, and information losses. As a national planning document, the next MTPDP should explicitly and formally adopt DRM, with a section dedicated to it. A review of three major development plans and programs by Lasco and others (2009) revealed the MTPDP have direct and prominent treatment of adaptation to natural disasters, which in turn may be seen as an indirect manner of addressing climate change, climate-related vulnerabilities and extremes. In the same study, the review of two other major plans and programs of the Philippine government indicated the same results. In the MTPDP 2004-2010, at least four chapters discussed the government aim of addressing the needs of victims of disasters and calamities which at least four chapters discussed the government aim of addressing the needs of victims of disasters and calamities which mainly refer to climate extremes. The Philippine MDG progress report has a one-sentence reference on adapting to climate extremes by “improving flood control and drainage facilities to help urban settlements cope with damages caused by flooding and typhoons”. While climate change impact assessment was highlighted in the PA 21, the context implies the need to adapt to it.

DRR is integrated into the National Physical Framework Plan (NPFP). To mainstream DRR into local development plans such as the provincial physical framework plan, comprehensive land use plan (CLUP), and comprehensive development plan, the national planning body, NEDA, is developing guidelines for regions and provinces.

Disaster risk reduction is also being integrated in national and local policy development and planning processes. This commitment resulted towards the drafting of "Strengthening Disaster Risk Reduction in the Philippines: Strategic National Action Plan (SNAP) 2009-2019" as well as the "Strategic Plan on Community-Based Disaster Risk Management (SP-CBDRM) 2007-2011." A series of dialogues and consultations among stakeholders – INGOs, NGOs, academe, and government facilitated the planning process. Field experience of NGOs complements the scientific knowledge of the science and technology institutions and academe, and the practical skills and knowledge on post-disaster activities of NDCC. The DRM field has grown to be inclusive of several other players – from development planning, housing, environment and disaster fields and thus broadened the work of NDCC.


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Just recently, the SNAP and its 18 priority programs and projects were adopted as the government policy for DRR/M. The same Executive Order (888, approved 7 June 2010) enjoins the systematic institutionalization of DRR in all government agencies and government owned and controlled corporations through: (1) integrating DRR into policies and plans; (2) incorporation of DRR programs, projects and activities into their budgets through the explicit recognition of budget lines for these projects and activities that are appropriate for disaster mitigation and preparedness; (3) participation in the 18 priority projects and programs of the SNAP; and (4) cooperation with national/international NGOs and the private sector towards safer and more resilient communities. LGUs are likewise encouraged to integrate DRR in their day-to-day operations and planning.

Community Participation and Resource Mobilization

Prior to 2007, there has been minimal exchange of information and coordination among stakeholders. New fora for government and other stakeholders (private and civil society) were initiated. Only the NDCC has a Technical Working Group which offers a regular forum which is limited only to its members. However, the First National Conference in Mainstreaming Disaster Risk Reduction (NCDRR) in Local Governance was convened in 2007 by DILG in cooperation with donor organizations and academic institutions. Two consecutive National Multi-stakeholder Dialogues were held in 2007 and 2008 which provided for a platform for local, regional, national and international players in DRR to exchange information and experiences and move forward. There has been organized networks and federations formed to facilitate better communication and dialogue such as the Corporate Disaster Response Network (CDRN), and the Disaster Risk Reduction Network Philippines (DRR NetPhils).

The NDCC has adopted community-based disaster risk management (CBDRM) as a model to engage communities in DRR undertaking. The evidence for this is crafting of the Strategic Plan to Integrate Community-Based Disaster Risk Management (SP-CBDRM) for 2007-2011 as part of the Partnerships for Disaster Reduction in Southeast Asia (PDRSEA) Phase 4 Project supported by the Asian Disaster Preparedness Center (ADPC) and the European Commission. Projects after HFA adoption have championed community participation. While many NGOs possess the skills and resources to mobilize people, many LGUs do not have such capacity.

Mobilizing resources also led to linking non-governmental/private volunteer organizations, the government apparatus and communities altogether. Partnerships at national and local levels facilitated actions that were directed at all phases of the disaster cycle, and not just response or relief.

HFA Priority No. 2: Identify, assess and monitor disaster risks and enhance early warning

Risk assessments and early warning systems

There has been increasing institutional commitment among research and academic institutions as well as national agencies on science and technology towards developing practices to streamline risk assessment in the country and it is being attained through projects funded by international donors. The evolving practices come from experiences built on a previous post-disaster project, scientists, local government leaders, NGOs and community members are increasingly finding ways to collaborate in science-based monitoring and early warning in prioritized towns and cities.


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The NDCC is undertaking a multi-hazard mapping and assessment project in partnership with key government agencies such as PHILVOLCS, PAGASA, MGB, NAMRIA, and other government agencies. The project, which is considered significant in terms of DRR assistance which set a trend, is the READY project or Hazards Mapping and Assessment for Effective Community Based Disaster Risk Management (dubbed as such to connote disaster preparedness). It is built on existing structures and it provides the environment for stakeholders to work together with clear roles and responsibilities to perform. For instance, it utilized the multi-agency group called Collective Strengthening of Community Awareness for Natural Disasters (CSAND) that existed previously and supported by the UNDP. It also works with the PNRC project on “Strengthening the Disaster Capacities of Communities in the Philippines” (supported by AusAID). Risk assessment is supported by science-based information, technological know-how, tools and multi-hazard maps.

READY project focuses on high risk areas which were selected based on the size of the population and the number of hazards to which they are vulnerable. It marks the first attempt to approach disasters in a multi-hazard fashion. The goal of strengthening capacity of key stakeholders sits well in terms of creating an enabling environment in communities. The project encompasses the DRM process (including community-based early warning system and information, education, and communication (IEC) activities and provides invaluable input to creating a standard methodology that can be replicated to the rest of the country (Fernandez and Javier, 2010). The data and information generated are used for disaster risk management and planning by sectoral agencies and LGUs.

The government is also strengthening on early warning systems for all major hazards. PHIVOLCS and PAGASA are expanding facilities and equipment and training of personnel to enhance monitoring and forecasting capabilities. The early warning system had improved with the acquisition of new Doppler radars of PAGASA which enable it to give more accurate local weather forecasts in five regional centres in the country (WB, 2009).

Regional cooperation

Dialogue among NGOs and international donor agencies takes place through round table discussions. Recently, the Philippines' Senate ratified the Association of Southeast Asian Nations (ASEAN) Agreement on Disaster Management and Emergency Response (AADMER), and with that the agreement is expected to enter into force by the end of 2009. The ratification marks a significant highlight in ASEAN's collective efforts to build a disaster-resilient community by the year 2015. The agreement binds ASEAN member states into legal responsibilities to promote regional cooperation and collaboration in reducing disaster losses and intensifying joint emergency response to disasters in the ASEAN region. The Philippines actively participates in ASEAN regional cooperation on risk reduction. This is mainly through the joint disaster drill called ASEAN Regional Emergency Response Simulation Exercise (ARDEX) held annually in a host ASEAN country and each with a different disaster scenario. The exercise tests regional capacity to respond and render humanitarian assistance using a different disaster scenario every year. In 2009, ARDEX will be hosted by the Philippine Government. Also, the Philippines is a part of the Partnerships for Disaster Reduction South East Asia. Now in its fourth phase, the project aimed to enhance leadership, national capacity and regional knowledge in the institutionalisation of community-based disaster risk management (CBDRM) into the socio-economic development process in four countries (Cambodia, Indonesia, Philippines, and Viet Nam).


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HFA Priority No. 3: Use knowledge, innovation and education to build a culture of safety and resilience at all levels

In early 2005, the NDCC implemented the Four Point Plan of Action on Disaster Preparedness (4PPAP) which strengthens the DRM stance of the country and enhances its disaster prevention strategies. This aims to increase public awareness and involvement in measures put in place by the government to minimize the impact of disasters in the future. This plan of action also provides direction to all NDCC member-agencies in terms of the allocation of capacities, capabilities and resources. Among the activities contained in NDCC’s 4PPAP, notable is the designation of July as the National Disaster Consciousness Month in order to heighten public awareness on the importance of disaster prevention, mitigation and preparedness through simultaneous nationwide earthquake drills, search and rescue exercise, seminars, and the “Gawad Kalasag” award.

Public awareness and information campaigns on disaster risks are being conducted by NGOs, private and civic organizations and national and local government agencies. For example, a component of the READY project is the IEC campaign in which maps are disseminated to vulnerable communities. The Science and Technology Information Institute (STII) under DOST produces articles and press releases to the media. Film showings are also utilized by PHIVOLCS regularly and PAGASA also conducts annual seminars on themes like disasters, ENSO and climate change. The cyber world is starting to be utilized. Website such as CALAMIDAT.PH and online learning programs such as the Online Natural Disaster Risk Management program of the World Bank Institute and partners.

Schools are integrating DRR concepts in their curricula. The Department of Education (DepEd) is working on including DRR in elementary and secondary curricula. The teachers are also informed in DRR by including the concepts in Teacher’s Education Curriculum. At present, education in DRR is still limited in scope and education materials are still inadequate. NDCC and DepEd, in partnership with ADPC, undertook a project to develop DRM modules for integration into the secondary school curriculum. The module includes information on disaster preparedness, prevention and mitigation of hazards and risks of natural events to vulnerable communities and areas. Disaster awareness has formed part of the learning core competencies under the Science and Social studies subjects in public elementary and high schools.

Programs such as Hospital Preparedness for Emergencies (HOPE) under the Program of Emergency Response (PEER) has been organized by NDCC, along with concerned government agencies and supported by USAID.

HFA Priority No. 4: Reduction of the underlying risk factors

While environmental laws in mining, forestry, protected areas, agriculture and fisheries, wildlife resources, toxic substances, hazardous and nuclear wastes and pollution control exist, most of these do not explicitly include disaster risks plan and response. Furthermore, the enforcement of these laws is weak causing further decline and degradation of the natural resource base of the country. The degraded condition of forest, mangroves, river systems from which most of the communities depend on leads to severe disaster impacts.

NEDA is trying to sensitize local planning capacities with DRR. NEDA is actively building awareness and


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capacity to mainstream DRR in land use and physical framework plans. The National Land Use Committee prepared the National Framework for Physical Planning which indicated hazard prone areas for future land use and physical plans. Some progress is foreseen as capacities of the regional development councils and development councils of provinces, municipalities and cities built to implement risk-sensitive planning.

The government has implemented social development policies and plans such as housing for informal settlers, livelihood projects and health care to reduce the vulnerability of populations at risk. It is also currently working on the establishment of a conditional cash transfer system that will help to cushion shocks experienced by poor households. In the rural sector, crop insurance for palay and high value crops and livestock insurance through the Philippine Crop Insurance Corporation (PCIC) are available but many farmers do not subscribe or are not aware that such insurance exist. In accordance with RA 656 which mandates all heads of government office to secure from the General Insurance Fund all insurance covering propertied and other insurable risks of natural and manmade disasters, Government Service Insurance System (GSIS) called on all government agencies to insure government properties.

Since the NDCC institutionalized the cluster approach through a circular issued in 2007, some significant DRR actions have been initiated. The cluster approach is providing a forum for stakeholders sharing a specific concern called “cluster” (for example, education) to be proactive in terms of all phases of DRM. Regular meetings of a few clusters have thus created a continuum, increasing prospects for DRR integration in the disaster cycle, including rehabilitation and recovery. The Building Safe Learning Environments (BSLE) Project (June 2007-June 2008) implemented by DepEd with funding support from UNICEF, Swedish and Dutch governments, covers both structural and non-structural mitigation measures in disaster-affected schools and daycare centers in four provinces.

Mainstreaming DRR in the infrastructure sector is being addressed by an ADPC-NDCC project that incorporates risk impact assessment procedures before construction of new roads and bridges. The DPWH has provided a venue for other government agencies, professional organizations of civil engineers, and other interest groups through a national workshop on MDRR in the infrastructure sector. The DepEd also started a program on school building resistant to hazards, for learning and public use, serving as evacuation centers in post-disaster situations. NDCC has also partnered with My Shelter Foundation, United Architects of the Philippines, and the Private Sector Disaster Management Network in planning and organizing for the construction of innovative school buildings. Under a partnership with other civic and media organizations, the Millennium School Design Competition, an international search for a durable and environmentally-friendly design was held.

HFA Priority # 5: Strengthen disaster preparedness for effective response at all levels

The government is intensifying efforts to institutionalize DRR at the national, regional and local levels through memoranda of agreement (MOAs) and programs for institutional capacity building. Steps had been undertaken in the form of preparation and contingency plans crafted by DCC. OCD has assisted more than 50 priority provinces (total: 81 provinces) in preparing contingency plans. Other provinces will be assisted as funds become available. Based on insights from LGUs experiences, the manual on “Contingency Planning for Emergencies” for LGUs has gone through its 3rd edition in 2007. UN Commissioner for Refugees (UNCHR) continues its support to the manual’s production, and the conduct of contingency planning and training activities. A few communities though showed outstanding


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performance in many areas of DRR. It is also noteworthy that in September 2008, the DILG through its regional offices is conducting an “audit” to assess the disaster preparedness of LGUs and to generate benchmark information on whether provinces, cities and municipalities are prepared or not. In relation to disaster preparedness training, the OCD has initiated the crafting of a DRM Capability Plan of the DND. Towards this end, key officers of the Armed Forces of the Philippines and DND are invited to participate in the Strategic Planning Workshop on September 2008.

During hazard events, relevant information is exchanged among the key stakeholders on response and relief. The OCD operates and maintains the NDCC Operations Center (NDCC OPCEN), a 24/7 facility with continuously trained staff backed up by equipment, stable systems, and sound procedures. The NDCC OPCEN is activated into an Emergency Operations Center in the event of a disaster. All NDCC member agencies with disaster response mandate are required to send focal persons to the facility during the activation period to speed up coordination and information management. The facility is linked with international response systems like the UNDAC, INSARAG, the virtual onsite operations and coordination center, and those within the ASEAN region. Post-event reviews that involve various stakeholders are starting to be regularly conducted. For example, a significant post-event review of the December 2006 typhoon disaster in Bicol region was undertaken through a “lessons learned” workshop five months later. This workshop was organized by the NDCC and the UNDP.


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Box 1. Disaster-proofing development in Albay, Philippines

The Province of Albay, under the leadership of its governor, recognizes disaster and climate change as major threats to social and economic development and to the attainment of the MDGs and to the improvement of Human Development Index and that it will make difficult to alleviate poverty in the developing world like the Philippines.

Albay along with the rest of Bicol Region is highly vulnerable to natural disasters because of its geographical location. Located at the eastern Pacific seaboard, Albay is especially vulnerable to tropical storms and cyclones, which bring destructive winds, heavy rainfall and storm surges several times a year. Typhoons affecting the province and the Philippines as a whole, form in the Pacific Ocean, and move in a west-northwest direction, many times the wind intensifying to speeds of 200 kph.

Table 3 shows the affected population and damages caused by tropical cyclones from 1994 to 2006 in Albay Province. Although there is no clear temporal trend on the number of people affected and cost of damages, it is important to recognize the high vulnerability of the province to typhoons. Human settlements living along the coastlines are vulnerable to storm surges. Similarly, houses located at mountainsides with steep and unstable slopes are prone to landslides and mudslides.

Table 3. Summary Report: Disaster Occurrences in the Province of Albay (1994 – 2006)

Typhoon Occurences Year Affected Population Total Damages(US$)Persons Dead Injured Missing

1 Typhoon Akang 1994 18,036 47 112 1 2,211,9042 Typhoon Gading 1994 6,799 1 2 1 1,546,6443 Typhoon Mameng 1995 10,126 0 0 0 1,588,8844 Typhoon Rosing 1995 440,372 44 20 2 11,991,1065 Typhoon Pining 1997 1,800 0 0 0 836,9566 Typhoon Loleng 1998 201,834 1 7 1 6,754,4487 Typhoon Sendang 1999 1,122 0 0 0 2,4448 Typhoon Reming 2000 27,547 12 1 2 7,188,9899 Typhoon Senyang 2000 22,882 0 0 0 91,11110 Typhoon Dindo 2004 33,892 0 6 1 5,038,04611 Typhoon Unding 2004 1,744 0 0 0 942,09412 Typhoon Yoyong 2004 18,372 0 10 1 1,124,22913 Active Low Pressure – ITCZ 2005 19,062 4 0 0 3,099,98314 Tropical Storm Caloy 2006 47,065 0 5 0 2,207,70815 Typhoon Milenyo 2006 698,460 14 176 37,007,02516 Typhoon Reming 2006 1,060,875 604 1465 419 71,787,460

TOTAL 153,419,031Source: APSEMO [2007]


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Box 1. continued

Albay is the only province in Bicol that has an operational management office that provides effective coordination of the various stakeholders towards promoting efficient intervention on disaster preparedness and emergency response. The successful implementation of sustainable disaster management programs is due to the presence of a permanent office overseeing disaster-management-related activities in the local level (Arguelles, 2007). The Provincial Disaster Operation Center (PDOC) was established in 1992 and was tasked to provide technical and administrative functions of emergency-related services. In July 1994, the Albay Public Safety and Emergency Management Office (APSEMO) was institutionalized by virtue of Sanguniang Panlalawigan Resolution (SPR) No. 155-94. It is an independent department that serves as the technical secretariat and administrative arm of the Provincial Government of Albay (PGA) in terms of DRM. It was created to empower the management of the PGA along public safety and disaster risk management.

It supports the Albay Provincial Disaster Coordinating Council (PDCC) in the implementation of organization’s objectives as mandated by the Presidential Decree No. 1566 and other related laws. It is tasked to administer effective and efficient interventions into distress areas in coordination with the different PDCC organic and regular members in the Province of Albay. APSEMO administers and supervises the systematic delivery of services to the public in terms of Disaster Risk Management and Public Safety coordination with the Local Disaster Coordinating Councils (LDCCs), PHIVOLCS, PAGASA, GAs and NGOs due to the effects of natural and man made calamities. It also facilitates the restoration and rehabilitation of disaster-stricken communities. Specifically it is tasked to: (1) delineate the functions of Provincial Disaster Coordinating Council members and volunteers before, during and after the calamity impact; (2) enhance communication linkages within the organization and between sectors involved in public safety anchored on disaster preparedness, mitigation, response and recovery; and (3) maintain active coordination between and among the LGUs, GOs, NGOs and PDCC member agencies to ensure timely and appropriate action on disaster-related activities.

Various indigenous local response mechanisms to landslides, floods, strong winds and heavy rainfall are apparent in some communities in the province. However, the APSEMO is still on the process of documenting and verifying the effectiveness of these mechanisms (Daep, 2007).

The institutionalization of the Provincial Disaster Management Office into APSEMO as one independent department has strengthened the disaster management capability of the provincial government of Albay. The establishment of this independent body has ensured the continuity of the province’s programs on disaster management and strengthened the effective coordination of the various institutions for more efficient management. It has also been chosen as a venue of disaster management seminars and trainings, and conduct of drills and exercise due to the availability of facilities and resources and competent staff. According to Salceda (2010), among the key features of Albay’s disaster risk management are outlined below:

Mitigation

Since 1994, the provincial government allocates 2% of its annual budget to the APSEMO aside from the 5% calamity fund. Another specialized unit has been created in 2009, the Albay Millenium Development Goals Office (AMDGO) so as to ensure that the current and future plans and programs are aligned with the MDGs. Risk assessments are also conducted with the help from national research institutions and


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Box 1. continued

foreign funders. Activities include risks and resource mapping, geostrategic (relocation) and engineering (flood control and alternative routes) interventions; and updating of the Comprehensive Land Use Plan (CLUP) with climate-related hazards and vulnerabilities. Another feature that the government has pioneered is that all provincial facilities and school buildings in the province are insured with the GSIS and provides for universal health coverage which provides all households with access even to private medical services during emergency situations.

Disaster Preparedness

The PGA maintains close coordination with warning agencies (e.g. PAGASA and PHIVOLCS) and some DRR NGOs. Community-based warning and evacuation planning is continuously being conducted. Institutional unit such as Albay Heath Emergency Management (AHEM) is being organized and strengthened. Safe Schools, Safe Hospitals and permanent safe evacuation centres are being built and prepared. Validation survey of all school buildings for structural safety (design), safety from hazards (location) and safety for health are conducted and water-sanitation facilities to 700 school building are being provided. Rescue equipments are being acquired and deployed as well as communication facilities. Education and training are continuously conducted.

Response and Relief

Information boards (infoboards) for alerts and announcements are being installed in areas most accessible to the public. Evacuation protocols are well-established encouraging village-initiated evacuation. The provincial government also provides funds for maintenance of evacuation centers and needs of evacuees. Pre-emptive evacuation is considered as key response mechanism to achieve zero-casualty goal. The province is declared as an open-city once a disaster strikes so as to facilitate the flow of disaster relief. Demand-side relief was introduced in the premise that cash is most flexible relief support and has pump priming effect.

Rehabilitation

Damage and Disaster Assessment System (DDAS) is well-established process refined over many cases of disasters. It is coordinated by APSEMO that leads an interdepartmental team who coordinates with their national counterparts. Damage assessment process uses Risk Mapping as its starting point, preparedness activities and the pre-disaster warning phase and the emergency phase. Data gathering is spread out and information analysis and dissemination is centralized.

Albay’s DRM initiatives essentially integrate risk reduction to its entire development goals- MDG. Thus, as part of the overall development strategy, DRM becomes an investment with huge economic returns in the long run. Like the PGA, local governments assume primary mandate in the DRM effort as they are in the frontline in confronting the escalating impacts of climate change on their constituents on the ground (Salceda, 2010). The PGA considers funding for risk reduction and its sustainability as one of the barriers to their DRM programs since internal revenues has remained to be limited.


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2.4 Challenges and recommendations to mainstreaming DRR

Governance

PD 1566 does not reflect a comprehensive approach to DRM. The new DRM bill proposed at the congress provides a more comprehensive coverage. However, it should also cover cross-cutting issues related to land-use planning, gender, multi-hazard approach, poverty reduction, among others. It should also be anchored on existing environmental laws and regulations, which are mostly poorly enforced. And environmental laws and regulations shall be dealt with due attention to the possible functions and contribution to reducing disaster risk and vulnerabilities.

Prior to 2007, there was minimal exchange of information and experiences among stakeholders. Since the HFA, various stakeholders have been actively pursuing DRR activities; however, multi-stakeholder fora should be intensified and needs more funding. The representation of other stakeholders should be more sufficient.

The capabilities of local government in disaster preparedness and response need to be strengthened. All LGUs, particularly the most vulnerable ones, should have a dedicated office to handle disaster management. This, however, entails cost. The coordination between municipal, provincial, regional, and national preparedness and response mechanisms should also be strengthened.

The use of the LCF is not known and often misunderstood by local officials, particularly; they are unaware that the LCF can be used for pre-disaster activities. There is a need to inform them about how to strategically make use of the fund for DRR activities.

Risk identification and early warning

Availability of data and information and a more coherent strategy towards putting up an ‘information system’ (e.g. database). Information exchange and knowledge sharing should also be encouraged and promoted among and between LGUs. Technical equipment and facilities also needs constant updating and maintenance.

Knowledge management and education

IEC should be progressive so there is a need to measure the degree of awareness and knowledge enhancement. Information dissemination programs should involve local communities, NGOs and other civil society orgs to promote ‘ownership’ to ensure sustainability.

Local officials can be ‘champions’ in raising public awareness about DRR. They have an important role to play in raising public awareness for DRR. Learning opportunities through seminars, workshops, fora, field trips, among others, can be utilized. Good practices on DRR can be shared so as to motivate and provide knowledge to make DRM a priority in the local governments. DRR training courses, seminars, and workshops (such as those that are organized by PAGASA and PHIVOLCS) should be conducted for specific target groups and localities based on the hazards and vulnerabilities. Training needs assessment for prioritized groups can also be conducted.


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Reducing underlying risk factors

Integrating DRR into natural and social support systems should be institutionalized. Coping with disasters should be an important part of poverty alleviation programs and environmental protection and conservation activities.

Although there have been actions on mainstreaming DRR in the construction of roads and bridges, it should be highlighted that the key for a more successful integration of DRR in construction is to include risk reduction measures in the planning phase. Also, in building safety of schools, it is important to make sure that the school building are resistant to hazards, particularly those that are serving as evacuation centers.

Insurance and risk transfer options (and incentives) should be put in place. There are very few financial institutions that provide emergency loans for poor and affected families. The key players in the insurance industry and government agencies should work on exploring risk transfer options. Micro-financing should be explored wherein savings and insurance instruments could protect poor community members who are most vulnerable to disasters through life insurance benefits, loan redemption fund, and burial benefits.

Disaster preparedness

More contingency planning and training activities should be conducted. Updating plans, particularly CLUPs and contingency plans, pose a challenge to most LGUs. Disaster and other climate-related hazards should be included in CLUPs.

As institutionalized by NDCC, the cluster approach has worked well in terms of coordinating stakeholders in rehabilitation and response process. This approach could also be used for preparedness and contingency planning.


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3. CLIMATE CHANGE ADAPTATION

3.1 Policy and Institutional Framework

The Philippine Climate Change Act of 2009 (RA 9729) was signed into law on 23 October 2009. The main content of RA 9729 is the creation of Climate Change Commission (see Appendix C) which will incorporate climate change concepts in policy and development plans, as well as receive funds and endowments to address this problem. The law also provides for the formulation of the Framework Program on Climate Change and National Climate Change Action Plan, aims that have already been mentioned in previous legislations. Three commissioners assumed office for a span of six years. A total of 23 government agencies, local government units and representatives from the academe, business sector, and non-government organizations (NGOs) will compose the body’s Advisory Board to ensure accountability. The final Implementing Rules and Regulation (IRR) of the Climate Change Act was signed by the President, and the new commissioners last January 18, 2010.

Since 2007, there is a significant rise in interest on climate change issues among policy makers and government agencies. However, the country’s attempt to address climate change begun in the early 1990s with the creation of the Inter-Agency Committee on Climate Change (IACCC). The IACCC is tasked to coordinate various climate change-related activities, propose climate change policies and prepare the Philippine position to the UNFCCC negotiations. Prior to that was the formulation of the Philippine Strategy for Sustainable Development (PSSD) which led to the official adoption of the Agenda 21 by formulating the Philippine Agenda 21 and the creation of the Philippine Council for Sustainable Development in 1992. The country signed in June 1992 the United Nations Framework Convention on Climate Change (UNFCCC) and ratified it on August 2, 1994. It also signed the Kyoto Protocol on April 15, 1998 and ratified it on November 20, 2003 in order to participate in the Clean Development Mechanism (CDM).

Prior to the creation of the PCCCA was the creation of the Presidential Task Force on Climate Change (PTFCC) on February 20, 2007. PTFCC is tasked to address the issue of climate change, mitigate its impact, and lead in adapting to these impacts. It is composed of the DENR Secretary as chair, with the secretaries of Department of Energy (DoE), DOST, DA and Department of Interiors and Local Government (DILG), with two representatives from the private sector/civil society, as members. Among its functions are: a) conducting rapid assessments on the impact of climate change, particularly on the most vulnerable sectors of water resources, agriculture, coastal areas, terrestrial and marine ecosystems, among others; b) ensure strict compliance to air emission standards and urgently combat deforestation and environmental degradation; c) undertake/initiate strategic approaches and measures to prevent or reduce GHG emissions, including fuel efficiency, energy conservation, use of renewable energy, waste management, etc.; d) conduct nationwide massive and comprehensive public information and awareness campaigns; e) design concrete risk reduction and mitigation measures and adaptation responses, especially to address short-term vulnerabilities on sectors/areas where climate change will have the greatest impact; and f) collaborate with international partners to support stabilizing GHG emissions, and institute mitigating and adaptive measures; and g) integrate and mainstream climate risk management into development policies, plans and programs of the government.


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Box 2. Climate change-related initiatives of the Philippine Government

The national government has in the last 20 years undertaken a number of milestones critical to addressing climate change in the Philippines:

Creation of the Philippine Climate Change Commission by virtue of the Republic Act 9729: Climate Change Act of 2009

Creation of the Presidential Task Force on Climate Change (PTFCC) on February 20, 2007 Designated the DENR as the National Authority for CDM by virtue of Executive Order No. 320

signed on June 25, 2004, and issued the Implementing Rules and Regulations last August 2005 through DENR Administrative Order 2005-17.

Signed the Kyoto Protocol on April 15, 1998 and ratified it on November 20, 2003 in order to participate in the Clean Development Mechanism (CDM). CDM is a flexibility mechanism established under the Kyoto Protocol that allows governments or private entities in developed countries to implement cost-effective emission reduction projects in developing countries as a supplement to domestic actions, and for which the developed countries receive carbon credit in the form of "certified emission reductions" (CERs). It in turn allows developing countries to achieve sustainable development by directing private sector investment into emission reduction projects.

Philippine Clear Air Act (1999) provides that the DENR together with concerned agencies and LGUs prepare and implement national plans that are in accordance with UNFCCC and other international agreements, conventions and protocols on reducing greenhouse emissions. In addition it establishes that meteorological factors affecting ozone depletion and GHGs should be monitored and standards set

Agriculture and Fisheries Modernization Act (1997) establishes that the Department of Agriculture together with other appropriate agencies, should into account climate change, weather disturbances and annual productivity cycles in order to forecast and formulate appropriate agricultural and fisheries programs.

Signed the United Nations Framework Convention on Climate Change (UNFCCC) on June 1992 and ratified it on August 2, 1994

Creation of the Inter-Agency Committee on Climate Change (IACCC) on May 8, 1991 by virtue of Presidential Administrative Order 220. Chaired by the DENR Secretary, co-chaired by the DOST Secretary and composed of 15 government agencies and NGOs, the IACCC is tasked to coordinate various climate change-related activities, propose climate change policies and prepare the Philippine position to the UNFCCC negotiations.

National Framework Strategy on Climate Change

One of the mandates of the CCC is to formulate a National Framework Strategy on Climate Change (NFSCC). With the vision of creating a climate risk-resilient Philippines with health, safe, prosperous and self-reliant communities, and thriving and productive ecosystems, the President signed the National Framework Strategy on Climate Change last April 28, 2010.

The NFSCC is committed towards ensuring and strengthening the adaptation of our natural ecosystems and human communities to climate change. In the process, the Framework aspires to chart a cleaner


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development path for the Philippines, highlighting the mutually beneficial relationship between climate change mitigation and adaptation. As a matter of principle, the Framework aggressively highlights the critical aspect of adaptation meant to be translated to all levels of governance alongside coordinating national efforts towards integrated ecosystem-based management which shall ultimately render sectors climate-resilient.

Figure 5: National Framework Strategy on Climate Change

The national framework is formulated within the context of the country’s sustainable development goals and governance/institutional factors that affect the country’s ability to respond to climate change. This Framework Strategy provides a basis for the national program on climate change. It identifies Key Result Areas to be pursued in key climate-sensitive sectors in addressing the adverse effects of climate change both under adaptation and mitigation. In order to achieve the key result areas, it is important to ensure that cross-cutting strategies are likewise given attention. As means of implementation, the framework puts forward multi-stakeholder partnerships, financing, valuation, and policy planning and mainstreaming.

Among the sectors which have taken climate change issues into their programs is the water resource sector. The National Water Resources Board (NWRB) formulated the Water Sector Adaptation Strategy on Climate Change (NWRB, 2009). It was developed to reduce the vulnerability of the water sector and increase the resilience of communities and ecosystems to climate change utilizing a broad based participatory process of key stakeholders of the sector. Four strategic outcomes to be achieved by 2050 are identified supported by 12 strategic objectives and several key actions for 2010 to 2022. The strategic outcomes for the sector include: effective, climate change response, and participative water governance; reduced water sector vulnerability and resilient communities and natural ecosystems; improved


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knowledge on water sector adaptation and climate change; and sustainable and reliable financing and investment for climate change adaptation in the water sector.

3.2 Organizations working in CCA

Climate change measures require coordinated efforts among the different sectors of society. This is recognized and demonstrated in current institutions created to oversee climate change measures in the country. Other key stakeholders and institutions are also identified and described in this section following Table 4.

Table 4. Key stakeholders and institutions on CC adaptation and mitigation in the Philippines

Key Institution/s Roles with respect to CCa. Climate Change Coordination and Advisory Bodies

Philippine Climate Change Commission (PCCC)

[IACCC; PTFCC; Advisory Council on Climate Change Mitigation, Adaptation and Communication; Presidential Adviser on Climate Change]

Primary agency for the formulation and implementation of plans for the country to better prepare for and respond to climate change and natural disasters

Coordinating bodies (created prior to PCCC) in charge for all climate change activities by the government

b. National Agencies

NEDA

NDCC – and its local version (regional, provincial, and municipal DCC)

Sectoral National Government Agencies (e.g. DENR, DOE, DA, DOST, DND, etc.)

PAGASA, NAMRIA

Preparation of blueprint of government programs (i.e. MTPDP)

Coordination of disaster management measures during emergency

Implementation of CC Adaptation projects based on their sectoral mandate, as stated in their names

Provision of weather information

c. Academic/ Research Institutions

UPLB; ICRAF; Klima/Manila Observatory (ADMU); Research (basic and applied) on CC Adaptation


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Bicol University; Economy and Environment Program for Southeast Asia (EEPSEA); CI; UP-MSI and NIGS; Silliman University

– related issues.

e. Multilateral and bilateral organizations and International/national NGOs

World Bank, UNDP, ADB, British Embasssy-Manila, USAID, AusAID, GTZ, DFID, JICA, WWF, CI, Oxfam, PLAN International, NTFP-EP, Christian Aid, Earth Savers Movement, CARE Netherlands, Philippine Network on Climate Change; Greenpeace; PRRM, EDC

Funding various development and conservation programs in the country, including most of the above-mentioned projects and institutions.

f. Local partners, CSOs, and private sector

LGUs (e.g. Provincial Government of Albay- CIRCA, Iloilo, and Palawan); various community organizations, corporations and their foundations

Implement CC adaptation projects at the ground

3.3 Climate Change Adaptation activities in the Philippines

Development Planning

A review of major development plans and policies (i.e the 2004-2010 Medium Term Philippine Development Plan (MTPDP), the Philippines Millennium Development Goal (MDG), and the Philippine Agenda 21 (PA 21) showed that (a) climate change adaptation has not been mainstreamed in the Philippines; (b) whenever climate change is recognized, the focus has been more of mitigation especially now with rising interest in the CDM; and (c) because of the geographical location, there is more emphasis on adaptation to risks associated with current climate-related variability and extremes (e.g., tropical cyclones, floods, and landslides) (Lasco et al., 2009). This showed that clearly, national decision makers do not yet see climate change (adaptation) as a high priority issue in the context of national development plans. This is primarily because national priorities are biased towards more pressing concerns and the pervasive lack of awareness on the impacts of climate change to sustainable development. However, there are massive investments on infrastructure projects designed to adapt to climate-related hazards such as floods. These projects could provide an entry point in integrating climate change adaptation.

The recent MTPDP, 2004-2010 mid-term updating exercise shows additional progress in the mainstreaming of climate change in decision-making. The latest draft shows more mention of climate change in the updated document. Climate change was mentioned in the Green Philippines chapter but also in the same manner as stated above. However, climate change was, for the first time, mentioned in the Agribusiness chapter; firstly, in the context of S&T-based innovations in the sector, especially for


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mitigation, and, secondly, in the call for the adoption of climate change adaptation models/technologies for agriculture.

In the energy sector, the major programs focus on energy efficiency as well as promotion and use of new and renewable energy (NRE) sources. Under the Philippine Energy Plan (PEP) – 2004 to 2013, the NRE sources are envisioned to contribute significantly to the country’s electricity requirements. The primary energy supply from NRE by 2013 is projected to increase to 53 percent of the total supply (400.91 MMBFOE ) from 51 percent of total supply (273.98 MMBFOE) in 2004. Furthermore, the Biofuels Act (2007), which was designed to pursue energy sufficiency and security, in a way helps reduce the emission of greenhouse gases.

Meanwhile, in the Philippines’ Midterm Progress Report on the Millennium Development Goals, it is suggested that climate change creates an opportunity for the Philippines’ to channel large-scale debit-for-equity programs to reforestation, clean water, irrigation and food production programs. In other words, climate change is seen to have a devastating impact on the attainment of the MDGs mostly through a series of natural disasters, and, therefore, the report highlights the importance of climate change adaptation and long-term disaster risk management (NEDA, 2007).

The national government through the Department of Interior and Local Government (DILG) has issued Memorandum Circulars (MCs) to alert LGUs about the need for awareness-raising and capacity-building and to empower LGUs in autonomously responding to climate change and preparing their adaptation plans. Among the national government issuances are:

• DILG-MC 2008-69 (Encouraging LCEs and Sanggunians to Implement Climate Change Adaptation and Disaster Risk Reduction Measures); • DILG-MC 2008-123 (Mobilizing Local Actions to Address the Impacts of Climate Change); • DILG-MC No. 2008-161 (November 3, 2008) (Trainer’s Training on Mobilizing Actions to Address the Impacts of Climate Change);• DILG-MC No. 2009-21 amending MC No. 2008-123 to include the National Movement of Young Legislators as one of the institutional partners in Mobilizing Local Actions to Address the Impacts of Climate Change; and • DILG-MC 2009-73 (National Conference on Empowering LGUs to Clean the Air and Address Climate Change Through Partnership).

Compliance with these memorandum circulars had been slow and limited. For instance, as of April 2009, only four out of 17 regions have complied with these circulars (APN-GCR, 2009).

In December 2009, the National Economic and Development Authority (NEDA) and three University of the Philippines (UP) units recently signed memoranda of agreement (MOA) to conduct programs and projects amounting to some P11 million for climate change adaptation. Through the agreement, NEDA will tap the academic expertise of various UP units to deliver three outputs – sectoral climate change vulnerability and impact assessments, a climate change monitoring and evaluation system, and a compendium of good and innovative climate change adaptation practices. The sectors that will be covered for climate change adaptation are agriculture, forestry (including biodiversity), health and water. There are other initiatives by government agencies on climate change, including those funded by international donors.

As a signatory to the UNFCCC, the Philippines is committed to submit the National Communication. The Initial National Communication that was submitted in 1999 outlined the plans and options for mitigating


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GHG emissions and climate change adaptation options (Philippines Initial National Communication, 1999). In preparation for the Second National Communication (SNC), technical studies on climate change vulnerability and adaptation and greenhouse gas inventory of the five sectors: agriculture, waste, energy, transportation and LULUCF are being undertaken. The SNC is expected to be completed soon.

Vulnerability and risk mapping

It is only recently that climate change adaptation interventions have been initiated. The focus of these interventions is the agriculture sector. This includes the Provention Consortium grant-funded “Agriculture Climate Risk Assessment Project” which focuses on crop modeling, insurance, and agricultural assets. The Coral Triangle Initiative, which is a new multilateral partnership to help safeguard the marine and coastal resources of the Eastern Pacific that has also been launched.

The Manila Observatory implemented a project entitled, Mapping Philippine Vulnerability to Environmental Disasters, which identified areas in the country that are at high vulnerability and risk to environmental disasters. It involved downscaling global climate models to sub-regional levels and an atlas which mapped and analyzed hazards and disasters via geographic information systems (GIS) and environmental modeling tools was produced. These national-scale vulnerability and risk maps point to where hotspots are likely to occur as well as their possible forms. Disaster preparedness strategies and plans may, thus, be pursued on the initiative of the concerned sectoral representatives as well as stakeholders within localities. The projections were based on shorter time frames to improve forecast changes and provide information on their agricultural implications at the local levels (Resurrrecion et al, 2008). In terms of access to information, MO’s Klima Climate Change Center serves as the national body to disseminate information on climate change, raise awareness and conduct relevant research, and support national capacity building.

The DENR with funding support from the World Bank is currently identifying and mapping vulnerable and hazard prone areas (Resurrecion et al, 2008). This project aims to guide policy makers in their decisions. For instance, vulnerability and hazard maps will help planners to appropriately identify the land use for such vulnerable areas.

The Adaptation on Climate Change and Conservation of Biodiversity (ACCBio) in the Philippines is a three year project (2009-2011) being implemented by the DENR with support from the German Technical Cooperation (GTZ). The project aims to develop and implement relevant adaptation strategies to compensate the impacts of climate change and loss of biodiversity in the country. The project is composed of four components: (1) institutional strengthening and capacity development; (2) adaptation of policies and strategies; (3) showcasing of best practices through provision of funding for climate change adaptation strategies and biodiversity conservation projects; and (4) awareness creation.

Aside from research organizations, the private sectors are also taking their share in the climate change adaptation efforts of the country. For instance, Smart, a telecommunication company, is working with MO on telemetric rain gauges in disaster-prone areas. Also, Unilever, a private company is working with Yes2Life Foundation to restore dead coral reefs (Resurrecion et al, 2008).

There are also a number of projects-based adaptation initiatives implemented and funded by bilateral and multilateral agencies. One such project is implemented by the International Labor Organization (ILO) in Jabonga, Agusan del Norte to build the adaptive capacity of the farming communities affected by severe flooding due to climate change (ILO, 2009).


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The World Bank’s Philippine Climate Change Adaptation Program (PHILCCAP) provides a window for sectoral initiatives to reduce climate change vulnerability of key productive sectors. The project aims to reduce the negative impacts of the increasing risks due to climate change on poverty alleviation and economic development, particularly in agriculture and natural resources management, and through enhanced interagency coordination with respect to climate change adaptation and natural hazard risk management. The project, which is envisaged as the first phase of a long-term adaptation program by the Government of the Philippines, is expected to have the following four building blocks: (i) improve coordination of adaptation policy by DENR; (ii) implement climate risk reduction in key productive sectors; (iii) strengthen proactive disaster management within the NDCC; and (iv) enhance provision of scientific information for climate risk management. The first phase, costing about $5 million, will focus on establishing the institutional set-up best suited for guiding country and sector responsive adaptation activities to reduce the country’s vulnerability to associated risks; develop country specific solutions to adaptation risk management; and develop reliable climate risk information. The second phase will focus on scaling up best practices and lessons learned in the first phase; and more generally cause climate change and disaster risk assessment and awareness in the key development sectors of the country; while expanding investments to all major sectors of the Philippines.

The joint UN programme on Strengthening the Philippines’ Institutional Capacity to Adapt to Climate Change seeks to assist the Philippines address the above key strategic issues directly affecting the achievement of the MDGs by pursuing the following three (3) outcomes: climate risk reduction (CRR) mainstreamed into key national & selected local development plans & processes; enhanced national and local capacity to develop, manage and administer plans, programmes & projects addressing climate change risks; and coping mechanisms improved through pilot demonstration adaptation projects.

Mainstreaming climate change adaptation

One of the first initiatives to integrate climate CCA and DRM in the country was the project by the Manila Observatory in 2006. The project was a pilot project for community-based, inter-disciplinary work which aimed to integrate existing disaster risk management concerns with long-term climate change response and overall sustainable development through capacity building and technical assistance. The community of the project was the Mag-asawang Tubig Watershed, which is composed of Calapan City and the municipalities of Naujan , Victoria , Baco, San Teodoro, and Puerto Galera. This area is particularly vulnerable to flooding, landslides and heavy siltation brought about by the frequent episodes of extreme rainfall, as well as to earthquakes and tsunamis.

The First National Conference on Climate Change Adaptation in Albay last October 2007 brought the concern of climate change and adaptation into the public’s consciousness. The First Conference aimed at exploring concrete adaptation options to address the potential impacts of climate change and discuss the policy implications for local government units. Graced by no less than Her Excellency President Gloria Macapagal-Arroyo and Vice President Noli De Castro and the secretaries of key executive agencies and public intellectuals, climate change adaptation soon gained momentum and has become a priority agenda in the national policy arena.

The Albay Declaration on Climate Change Adaptation (Albay Declaration 2007) is the embodiment of a convergence of interdisciplinary and multidisciplinary efforts to arrest the imminent threats and dangers posed by radical ecological shifts occurring to our beloved planet earth. Both Congressional houses


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recognized the Albay Declaration as the national framework for the mainstreaming of global warming leading to climate change adaptation.

Following the initiative of the Provincial Government of Albay, other local governments are looking into mainstreaming climate change adaptation into their local policy and developmental planning process. A Policy Dialogue with main actors convened by the DENR Secretary and the Presidential Advisor on Climate Change in May 2009, has paved the way towards developing a National Strategic Framework on Climate Change Adaptation with Technical Working Groups from various sectors now developing the key inputs for a Philippine Climate Change Adaptation Strategy. However, there is a need to examine the current initiatives on adaptation at the national, regional and local level to ensure harmonized and concerted efforts in line with local requirements and taking into account recent scientific knowledge and the actual discussion in the international policy dialogue on climate protection under the UNFCCC.

Among the pioneering initiatives to mainstream climate change adaptation in the country is the project implemented by the NEDA with support from UNDP and AusAID in 2009. The project was entitled Integrating Disaster Risk Reduction and Climate Change Adaptation in Local Development Planning and Decision-making processes which aimed to mainstream the integrated concerns of DRR and CCA into local decision making and planning processes. DRR is conceived as a defense against the hazardous impacts of climate change and variability such as extended droughts and floods. The project aimed to bring awareness and understanding of DRR/CCA to the community level, incorporating it into local level land-use and development plans. The project also included the enhancement of multi-stakeholder cooperation by creating mechanisms for their participation. The project is very timely as it will promote a medium- to long-term strategy to rebuild the disaster affected areas into stronger and more resilient communities, while frontline agencies and local government units currently focus on the quick recovery of these areas.

The project built on the DRR methodologies and tools developed under the recently concluded NEDA-EC-UNDP Project on Mainstreaming Disaster Risk Management into Subnational Planning which are embodied in the Guidelines on Mainstreaming DRR in Subnational Development and Land Use/Physical Planning.

The National Conference on Climate Change Adaptation + 2 (NCCCA+2) was conducted two years after the first conference. It looked back at the gains of the First Conference after two years of concerted efforts and how national and local policies have been translated into actions in the light of international developments. Participants from national agencies, local governments, academe, NGOs and other interest groups was informed of the developments in international policy discussions on climate change, particularly adaptation as it relates to disaster risk reduction and mitigation. Discussions in plenary was structured around the Philippine climate scenario (from the Second National Communication to UNFCCC) and the advances made in national and local policies as in the National Strategic Framework on Climate Change Adaptation. The participants discussed further issues and actions towards adaptation. The Second Conference served as a venue to validate the relevance of the National Strategic Framework on Climate Change Adaptation to local governance.


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Box 3. Lessons learned: Initiatives of the Provincial Government of Albay on Climate Change Adaptation

The Province of Albay was among the hardest hit during the 2006 typhoon season, with deadly mudslides that descended the slopes of Mt. Mayon volcano, which looms high over Legazpi City, burying homes and farmland, killing almost a thousand people and displacing almost half a million. During typhoon Reming alone, according to the NDCC, more than a thousand people lost their lives, three thousand were injured, 891 missing and 300,000 displaced, countrywide.

The devastation brought by the string of typhoons in 2006 and the pressure being put on the province by the unpredictability generated by climate change served as wake-up call to local authorities. The PGA immediately came up with activities and measures that would increase the resilience of the community to existing risks and events at the same time develop sufficient room to allow for uncertain future climate events.

From a local government perspective, the extent to which an issue such as climate change becomes successfully institutionalized in its day-to-day operations, planning and decision-making can be evaluated, the PGA follows a four-step-principle in its initiatives:

1. Making it a goal

At the initiative of the Governor, the province has a strong drive to address climate change. Also, several of his staff has an understanding on climate change and the vulnerability of the province to present and future climate risks.

The interest of decision makers in climate change has been enhanced in Albay as the result of a series of extreme weather events in 2006 (i.e. a series of storms and high tides), which resulted in loss of thousand of lives and extensive infrastructural and agricultural damage. Although not directly attributable to climate change, these events have raised general awareness of the kind of impacts that may be experienced in a climatically changed future. As a result, there has been increased political and administrative support for climate change-related work in the province.

The creation of these actions is reflective that the present political leadership considers disaster management and climate change adaptation as top priorities of the province. One should not, however, be naïve and imagine that the integration of climate proofing considerations into political and administrative decision-making is likely to be a smooth process. Based on past experience, anything that affects budget lines and the province’s current desired development path is likely to result in contestation between the various parties involved.

It is also important to note that climate change is ostensibly a global concern, the implications of which are focused on global levels, and that very little has been done to fully understand its local impacts. It requires a move to the understanding and communicating the impacts of climate change that is locally applicable.

Also, it is a difficult challenge convincing policy makers to integrate climate change adaptation to development policies since climate change impacts are based on long-term projections. Given the significant development pressures that exist at the local level (i.e. poverty, hunger, unemployment,


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Box 3. Continued.

among others) local government planners and decision makers in many cases do not have the luxury of being concerned about global change. It is important to find ways to integrate climate change adaptation into sustainable development planning in such a way that the policy makers will see climate change as an issue needing immediate action. Therefore, key to any attempt to embed the climate change issue at the local government level is the ability to answer the question: “What does it mean for my province, city, or town?”

The need to answer this question in Albay resulted in the creation of the Center for Initiatives in Research on Climate Change Adaptation (CIRCA) and strengthening of its APSEMO. The governor and some of his staff are actively participating on local and international climate-related conferences to further strengthen their knowledge and understanding on the issue.

2. Ordaining Policies and budget lines

As a result of the first NCCCA and followed by the creation of CIRCA, climate change concerns are gradually influencing the development planning of the province. The province has passed a number of legislations with regards to climate change adaptation. Also, there have been several memoranda promoting awareness DRM and CCA.

Currently, the province is on the process of updating and reviewing its CLUP for DRR and CCA. In the 2008 Plan Objectives and context of the province, it is recognized in the settlement and land use issues that the province is host to active volcano and is situated in the typhoon belt. Likewise, the existence of communities or settlements in volcanic hazard areas and other areas prone to severe flooding and landslide, necessitates that disaster management awareness among populace and the disaster management operations of LGUs should be strengthened to effectively respond to natural and man-made calamities occurring in the province.

The provincial government of Albay has allocated 9 percent of its total regular budget for climate change and disaster risk management activities. The CIRCA and A2C2 program, APSEMO and calamity fund receives 2, 2 and 5 percent respectively. The A2C2 program is under the Environmental Management category which also include solid waste management and environmental enhancement program; rehabilitation and protection of mangrove and micro-watershed areas; enforcement of forest laws in CBFM project areas; conduct of tree planting activities; quarrying regulation program; and maintenance of soil, water and conservation station (PAIP Albay, 2007).

3. Executing Programs

In August 2007, the provincial government resolved that environment (i.e. the importance of environmental protection, conservation and management) should be included in the curricula of all schools, colleges and universities in the province. A series of capacity-building activities was conducted starting off with the Training of Trainors to facilitate the mainstreaming of climate change adaptation in the curricula of education. In partnership with DepEd, Commission on Higher Education (CHED), Bicol University (BU) and private universities in the province, Albay initiated various activities such as the Box 3. Continued.


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conduct of essay writing and poster making contests, viewing of documentaries and conduct of seminars to propagate global warming awareness.

Also, the province’s agricultural rehabilitation program (AIARP) indicates its short term and long term goals: disaster preparedness and rehabilitation, and climate change adaptation, respectively. Currently, the program is focusing its activities to organized farmer clusters for typhoon preparedness and rehabilitation. Adaptation strategies in the agriculture sector i.e. resilient varieties and water conservation practices are currently being explored.

Following are some initiatives in line with its aim to promote environmentally sustainable practices, most in partnership with private corporations and government agencies:

The Barangay Level Composting project aimed to reduce the volume of garbage dumped at landfills by processing compost into organic fertilizer, thus reducing methane emissions form agricultural lands;

The Linis Kalog (Clean up of rivers and creeks) is constantly done to reduce the occurrence of floods and the damage it may cost;

The conduct of mangrove reforestation in several areas (e.g. the establishment of 10ha of mangrove plantations in the coastal areas of Manito, Albay;

The implementation of watershed management seeks to adapt to the impact of heavy rain on soils.

4. Building institutions

A further outcome of the 1st NCCCA was the realization that successful development and roll-out of the Albay Declaration would require that the task be appropriately resourced, both from a human and financial perspective. This required institutional change, as no formal climate change mandate existed anywhere within the prevailing provincial structures. Thus, the creation of CIRCA. This change to the provincial institutional structure was approved in 2007 and funds have now been committed, placing a full time staff to CIRCA and supporting its activities, as a first step towards realizing its functions.

Since the institutionalization of the APSEMO in 1994 and CIRCA in 2007, both have staff that are dedicated and committed to disaster management and climate change adaptation, respectively. However, there are limited interactions between the staff of the two organizations (Daep, 2008) although some of the activities of CIRCA are more on disaster risk management particularly with regards to information dissemination and conduct of training and workshops on disaster preparedness and risk reduction.

It is, however, important to note that mainstreaming climate change adaptation in the day-to-day decision-making in LGUs may require considerable additional work and wider responsibility –thus, may require additional staff and time. Also, there is a need to clarify and strengthen the links between climate change adaptation, disaster risk management, and development. In addition, the activities, programs and projects to be launched by new institutions like CIRCA should be made relevant to or integrated with existing institutions like APSEMO, structures, procedures and activities.

3.4 Key Areas of Progress and Challenges


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It is noteworthy that the province of Albay, through its governor is taking a strong initiative to promote climate change adaptation not only in the province, but nationwide as well. This drive is embedded in the fact that the province is among the most vulnerable in terms of climate-related and geologic hazards. It is the first local government to work on climate-proofing development.

Aside from Albay, a number of provinces such as Iloilo - province most ravaged by Typhoon Frank (Fengshen) in 2008, and Palawan – an island province, are starting to implement activities on addressing climate change specific to the needs of their areas. The province of Palawan undertook some action planning and initiatives to address climate change concerns (Perez, undated). They provided some recommendations for National Government (NG) action which include the creation, enhancement or strict implementation of coastal laws (Fisheries Code of 1998, mining laws, etc), regulations (on land use, zoning, etc) or programs (Disaster Management Program, Coastal Environment Program, Coastal Zone Management); and the formulation of guidelines and legislation for the implementation of an integrated coastal zone management for all coastal zones in the Philippines. While Iloilo started a project aimed to establish sustainable end-to-end institutional systems for the generation and application of locally tailored climate information; to build capacity to apply these in real-time in selected locations in the Philippines; and to scale up applications nationally in order to mitigate the impacts of droughts and floods. The Bangkok-based ADPC, PAGASA, IPG, LGU-Dumangas implemented a program entitled “Climate Forecast Applications (CFA) for Disaster Mitigation” with support from USAID Office of Foreign Disaster Assistance. It aims to strengthen national capacity to manage impacts of climate variability on climate-sensitive sectors, such as agriculture. Climate Field School (CFS) was established as a flagship activity under Climate Forecast Applications (CFA) piloted in Dumangas, Iloilo in July to September 2007. It hopes to enhance the capacity of extension workers and farmers to understand and apply climate information in order to reduce flood and drought risks in agriculture (Toledo, 2009).

With more than half of the total area of the Philippines at risk of natural disasters making 81% of its population at risk, more local governments are likely to draw lessons from the Albay initiatives and eventually from Iloilo and Palawan.

At the national level, climate change is slowly being integrated in different plans and programs. However, the progress is slow. Although climate change has been mentioned more frequently in the updated MTPDP, it continues to be narrowly directed, being mentioned in only two chapters. Climate change proves to be a low priority in terms of public resource allocation. Similarly, in terms of national laws, Lasco et. al. (2007) found that few environmental laws address climate change mitigation (i.e. Clean Air Act) and/or prescribe adaptation strategies to potential impacts of climate change. In a study conducted by Lasco et. al. (2009), there was a consensus (95 percent of the respondents) that mainstreaming climate change in policies and programs is important and about 59 percent concurred that it has not been mainstreamed in the country. The study concluded that climate change is still seen as peripheral when compared to more pressing social issues such as poverty and economic growth. However, there is a great opportunity to improve the linkage between climate change adaptation and development particularly in terms of disasters and weather-related hazards.

There has been a little progress in terms of mainstreaming of climate change in the decision-making processes of LGUs, however, this will still take some more efforts due to lack of information as well as the short planning horizon of local government executives. The former challenge can be handled through a more extensive and intensive IEC campaign through trainings, seminars and dialogues. Getting local executives to consider climate change in their decisions is, however, more of a challenge. Thus, the need


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to further instill ownership in local government staff.

At the national level, the newly crafted National Framework on Climate Change has put greater emphasis on adaptation. The document was formulated within the context of the country’s sustainable development goals and governance and institutional factors that affect the country’s ability to respond to climate change. However, the document does not detail specific steps but sets the strategic direction the government, the private sector and the general public would follow to come up with their precise programs to address the effects of climate change.

It is important to note that agriculture and water resources should be the priority sectors, which are inter-linked, and food security issues should be looked at in parallel in the context of climate change. The water resource and agriculture sectors are starting its initiatives on including climate change in its major strategies (Appendix E). There is the need to mainstream climate change adaptation in other sectors besides water and agriculture. Appendix E also summarizes the main features of selected Philippine policies on environment and natural resource management, and their respective possible impacts relating to climate change in the country. It is noticeable that only very few of these government policies directly address the mitigation of climate change, and/or prescribe adaptation strategies to the potential impacts of climate change. Most of the policies appear to prescribe merely reactive – not proactive – strategies to mitigate the impacts of and/or adapt to climate change (Lasco et.al., 2008).

Box 4. Recommended adaptation priorities of key sectors in Southeast Asia (ADB, 2010)

Key sectors (i.e. water, agriculture, forestry, coastal and marine, and health) of Southeast Asian countries have made encouraging initiatives for climate change adaptation. Below are the recommended priorities for these sectors.

In the water resources sector, the priority is to scale-up existing good practices of water conservation and management, and apply more widely integrated water management, including flood control and prevention schemes, irrigation improvement, and demand-side management.

In the agriculture sector, the priority is to strengthen local adaptive capacity by providing public goods and services, such as better information, research and development on heat-resistant crop varieties and risk-sharing instruments such as index-based insurance schemes.

In the forestry sector, the priority is to enhance early warning systems and awareness-raising programs to better prepare for potentially more frequent forest fires as a result of climate change; and implement aggressive public-private partnerships for reforestation and afforestation.

In the coastal and marine resources sector, the priority is to implement integrated coastal zone management plans, including mangrove conservation and plantation.

In the health sector, the priority is to expand or establish early warning systems for disease outbreaks, health surveillance, awareness –raising campaigns, and infectious disease control programs.

In the infrastructure sector, the priority is to introduce “climate-proofing of transport-related investments and infrastructure. There is a need to further mobilize greater and more diverse sustainable sources of financing that are


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nationally appropriate for climate change, especially in the private sector. In terms of mainstreaming, among the first to react are the development agencies as evidenced by efforts to “mainstream” adaptation into aid programs and projects. Individually and collectively, international multilateral and bilateral organizations have responded to the increasing challenge of climate change with an agenda for action to integrate climate concerns into the mainstream of developmental policy making and poverty-reduction initiatives (World Bank, 2008). This is proven by the increasing number of programs supported by these organizations in the country particularly on climate change adaptation. The national government should makes sure that climate change is one of its priority since most of the country strategies (as the argument been proven in the disaster section) are reflective of the governments’ development agenda.

Although several organizations like Manila Observatory, ICRAF, CI, and EEPSEA and some NGOs started efforts to find solutions to address climate change, there still remains a huge information gap in terms of vulnerabilities, risk, and adaptation strategies. There is a need for more research support from the government and other funding organizations. The science and research wings of the government particularly the agencies of DOST, DENR, and DA should further widen their research thrust to include climate change issues.

Finally, there is also a need to nationally promote climate change issues, problems and solutions to be translated into local context and with a language that people can understand.


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4. PROGRESS IN INTEGRATION OF CCA AND DRR

4.1 Overall gaps and needs

Natural disasters and climate change affect various natural, economic, social, and political activities and processes. Hence, these challenges need to be addresses in a more holistic, integrative and participatory manner at all scales, on all political levels and all sectors of society.

Historically, there are two separate communities of policy makers, practitioners, and researchers working on DRR/M and CCA evident in the limited overlap in approach and strategies, organizations and institutions, funding mechanisms (see Table 5) and even in meetings and conferences, research methods and tools, and language.

Table 5. General characterization of the CCA and DRR/M communities in the country

Disaster Risk Management Climate Change Adaptation

Approach

- Risk management- Engineering and national science-based

events and exposure- Shift from reactive to proactive approach- Local scale- Community-based- Short-term (but increasingly long-term)

- Risk management- Strong scientific basis- Vulnerability perspective- Multi-disciplinary approach- Global scale- Top-down- Long-term perspective

Organizations and Institutions

- United Nations- Provention Consortium (The World Bank)- IFRC- International, national and local civil society

groups and NGOs

National Council for DRR/M- National Defense (DND) as lead- Interior and Local Government, Social

Welfare and Development, Science and Technology and National Economic Development

- UNFCCC- IPCC- Academe and research- National and local NGOs

Climate Change Commission- Environment and Natural Resources,

Agriculture, Energy, and National Economic Development

Strategies


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- UN ISDR- Hyogo Framework of Action - Disaster Framework- National DRR/M Framework (to be adopted)- SNAP

- National Communication to the UNFCCC- National Framework Strategy on Climate

Change

Major Policies

- Philippine Disaster Risk Reduction and Management Act of 2010 (RA 10121), 27 May 2010

- Adopting SNAP and institutionalizing DRR (EO 888), 7 June 2010

- Philippine Climate Change Act of 2009 (RA 9729), 23 October 2009

Funding

- National Defense/ emergency response (National Calamity Fund, now the National DRR/M Fund)

- International Humanitarian Funding- Multilateral Bank- Bilateral Aid

- Special Climate Change Fund - Adaptation Fund

Modified from Thomalla, et.al., 2006

The increasing political momentum due to the number of typhoons that ravaged the country in the past four years, the overlapping objectives of DRM and CCA in general are increasingly being reflected in international agreements, government policies, as well as in some projects and programs in the country. There has indeed been an increase in mutual interest evidenced by the recent policies and programs, growing number of major conferences and policy dialogues, knowledge sharing and multi-stakeholder coordination, but there is still some way to go.

Disaster risk management

Based on the last two to four years of experience, multi-stakeholder participation and consultation have increased. The changes in policy framework and management strategies on DRR are adequate to show that the country has shifted from a reactive disaster response to a more proactive disaster management. Among others, the issue that needs to be resolved is how to efficiently and effectively ensure the implementation of a more proactive DRM in the country. The newly signed PDRRM Law, though provides for a more holistic, comprehensive, integrative and proactive approach in lessening the socioeconomic and environmental impacts of disasters including climate change, and promotes the involvement and participation of all sectors and all stakeholders concerned from the national to the local level, should be harmonized with existing environmental laws. More importantly, institutional


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coordination is needed between and among national, regional and local agencies. While more stakeholders from the NGOs and private sector are getting involved, the inclusiveness of DRM in terms of actors should be enhanced by conducting more stakeholder consultations to provide for future direction of DRR in the country (i.e. in the preparation of the Philippine DRRM Framework and Action Plan).

The LGUs seem to be in the best position to implement DRM effectively. Local champions are necessary to instill DRR and ensure DRM ownership particularly in raising public awareness and instilling knowledge and capacity specific to the needs of their constituents. Capacity building is deemed necessary particularly to LGUs. It is also important to discover how existing capacities can be used to the full advantage of the entire DRM community. However, financing mechanisms need to be explored. Local internal resources are insufficient, thus resource mobilization is needed.

Progress in terms of mainstreaming DRR in the country has been encouraging but rather slow. There have been significant steps taken from both the national government through its agencies, more particularly in the education and infrastructure sector. Development organizations’ programming shows promise in terms of mainstreaming DRR into their development work in hazard-prone countries like the Philippines. Thus, it is necessary that the government makes DRR a priority in its development agenda. It is also essential to put in place mechanisms and processes through which stakeholders can contribute and participate within appropriate legal mandates and institutional arrangements.

The newly signed PDRRM Law encourages the National DRRM Council, to be led by the OCD, to coordinate with the Climate Change Commission in the development of assessment tools on the existing and potential hazards and risks brought by climate change to vulnerable areas and ecosystems as well as the formulation and implementation of a framework for DRRM and CCA in all policies, programs and projects.

Climate change adaptation

Though there have been a number of significant steps the national government have taken, there is still a need to design national policies, programs and development interventions so that adaptation to current and future climate-related changes is enabled and not hindered.

The government has created the PCSD in response to its 1992 Earth Summit commitments. The IACCC was established a year earlier in 1991. More recently, the PTFCC and the Advisory Council on Climate Change (ACCC) were also formed after the ratification of the Kyoto Protocol in 2003. Additionally, President Arroyo has made “Green Philippines”, which is also a chapter in the Updated 2004-2010 Medium Term Philippine Development Plan, as one of the “8 in 8” priorities (NEDA, 2008). And most recently, the country has signed into law it’s Climate Change Act of 2009 and established the Climate Change Commission, a first in the region. Increasingly the Philippines, both at the national and local levels, have begun to pay attention to the adaptation-side of climate change, by promoting climate change risk management initiatives.

It is interesting to note, however, that the newly crafted NFSCC considers disasters i.e. natural meteorological and meteorologically-influenced hazards of primary relevance to the overall resilience of the country to climate change. The NFSCC suggests cross-cutting strategies, multi-stakeholder partnerships, financing valuation and policy planning and mainstreaming. It also considers DRR in its


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cross-cutting strategies i.e. in capacity development, knowledge management and information, education campaigns.

Box 5. Disaster Risk Reduction as a key result area in the NFSCC

In the overall effort of combating the effects of climate change, disaster risk reduction (DRR) shall be the first line of defense. Thus, beyond normal relief operations, the Framework Strategy shall expand and upgrade the country’s capacity to address and anticipate disasters such as typhoons, floods, and landslides. This would bring a renewed focus on science-based early warning systems and capacity-building for local government units and organizations for disaster preparedness and risk management. This would also entail vulnerability assessment of communities as well as prioritized disaster planning and management for areas in the typhoon-path and flood-prone areas.

Objective: Reduce disaster risks from climate change-induced natural hazards.

Strategic Priorities

a. Adoption of a responsive policy framework to serve as an enabling environment for reducing losses from natural disasters, including climate change-related risks.

b. Use of the best available and practicable tools and technologies from the social and natural sciences as decision aids and support systems to stakeholders in preventing, reducing and managing disaster risks.

c. Enhancement of institutional and technical capacity to facilitate the paradigm shift from disaster response to disaster preparedness and mitigation.

d. Enhancement of national monitoring, forecasting and hazard warning systems; and improve effectiveness of early warning systems available to communities.

e. Mainstreaming of climate and disaster risk-based planning in national and local development and land use planning thru the application of disaster risk assessment and by further supporting capacity development, including the preparation/ gathering and dissemination of appropriate data and maps necessary for national, regional, provincial and city/municipal planning.

4.2 Current mechanisms and incentives, and barriers to integration

This study assessed current efforts to address disaster risks and climate change in the Philippines, focusing particularly on aspects that can help build the inter-linkage/s between DRM and CCA. In this context, we tried to explore several key components of climate proofing development including knowledge on climate risk and vulnerability (i.e. information and communication), institutional capacity and coordination, local government and community initiatives, and financing DRM and CCA. Drawing from the review of institutional and policy initiatives on DRM and CCA, Table 6 summarizes the principal mechanisms and incentives, and barriers that shaped how integration progressed to date. These key points are expanded in the sections that follow.


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Table 6. Progress toward integration (incentives and barriers) of DRR/M and CCA in the country

Existing Mechanisms/Incentives Existing barriers to integration

Knowledge on climate risk and vulnerability:

Updating of forecasting capabilities Increasing IEC campaigns Schools are integrating DRR concepts in their

curriculum (primary and secondary schools) Starting to incorporate risk and impact

assessment procedures before construction of new roads and bridges

Increasing institutional commitments towards developing practices to streamline risk assessment

Involvement in regional discussions, agreements, and dialogues

Limited forecasting capability Unutilized existing data sources Difficult access to data and information Past and current adaptation strategies to

disaster-related events are largely not documented

Lack of/limited analysis of potential climate change impacts and vulnerabilities;

Education in DRM and CCA is still limited in scope and education materials are still inadequate

Gaps in awareness and understanding of risk

Institutional capacity and coordination:

Existing coordination structures for DRM i.e. cluster approach

Strategic and policy advances in strengthening disaster risk management

Key policy initiative and coordination mechanism for CCA

Institutional commitment from various stakeholders towards recharging the legal basis for DRR actions

Relatively weak coordination mechanisms regarding DRM and CCA

Impacts of and contribution to DRM and CCA not anchored on existing legal instruments

Local government and community initiatives:

Political momentum from major disaster events to consider future risks

National government is actively building awareness and capacity to mainstream DRM and CCA in land use and physical framework plans

Adopted a community-driven and engaged approach to DRM

Local government initiatives (e.g. Albay, Iloilo and Palawan) to institutionalizing DRM and CCA

Threat of discontinuity in policies, structures, programmes, plans due to short planning horizon

DRR and CCA a low priority for national and local leaders

Limited capacity, skills and resources


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Financing DRM and CCA:

Increasing funding for DRM and CCA SCCF pay special attention to DRR in guidance Few bilateral and multilateral donors have

integrated their support for DRR and CCA Several donors are investing directly on

capacity building for DRM and CCA

Use of LCFs are unknown and often misunderstood by local officials

Absence of insurance and risk transfer options Projects that address climate change in

disaster management are fragmented and tend to be donor-driven

Disaster emergency response continues to divert funds

Barriers to investment in risk reduction and adaptation

Knowledge on climate risk and vulnerability

The generation and provision of reliable and appropriate information on present and future climate risks is a key component of adaptation. Improvement of data sources and modeling capacity is both an adaptation in itself and a resource on which to base adaptive decisions and action. Both communities, DRR and CCA, have developed a wide range of analytical and assessment tools to assess risk and vulnerability and identify appropriate strategies. There is an improving science base with respect to climatic extremes and climate change, including recent studies on climate risk and vulnerability mapping in both government meteorological/hydrological agencies and academe. Forecasting capability of relevant government agencies i.e. PAGASA and PHIVOLCS are regarded as limited. Existing data sources i.e. climate/weather date are often not fully utilized and data from national and/or other external agencies can be difficult to access, especially for local researchers and local stakeholders. Past and current adaptation strategies to disaster-related events are largely not documented.

Information dissemination is another issue. There has been an increase in awareness campaigns in the form of seminars, trainings, film showing and participation of media mostly through partnerships of national agencies, NGOs and the academe. However, more intensive and targeted IEC is needed particularly to LGUs and their constituents.

Institutional capacity and coordination

The recently approved policies on both DRR and CCA, and other adaptation projects feature clear overlaps, including efforts to harmonize coordination structures. The effective reduction of vulnerabilities to current natural hazards and to climate change requires coordination across different levels and sectors of governance and the involvement of a broad range of stakeholders. The DRM community, having the newly signed PDRRM Law, is expected to increasingly adopt a more anticipatory and proactive approach, bringing it closer to the longer-term perspective of the CCA community. To strengthen the link between disaster risk management and adaptation to climate change, it is also important to understand when, and at what level, coordination is required, and who should take the lead. Adaptation to climate change is not simply an extension of disaster risk management. Adaptation to climate change not only means addressing changes in the intensity and frequency of extreme events, but also more subtle changes in climatic conditions as well as new emerging risks, which have not been experienced in a region before. Shifts in the timing of and magnitude of rainfall, rising temperatures and


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changes climate variability will in many ways affect natural resources and the quality of ecosystem services and hence impact on livelihoods and economic sectors that depend on them.

The cluster approach to DRM has further strengthened coordination across sectors for disasters in the country. Disaster coordination is achieved largely through a nested network of coordinating councils from national, provincial to municipal levels. Coordination in relation to CCA is generally less well developed at present. The creation of the Climate Change Commission is expected to clarify the roles and responsibilities of the concerned government agencies; encourage participation from different sectors i.e. private, NGOs, and research; and enhance coordination among all stakeholders.

The capabilities of local government in DRM and CCA need to be strengthened. All LGUs, particularly the most vulnerable ones, should have a dedicated office to handle disaster management. This, however, entails cost. The coordination between municipal, provincial, regional, and national preparedness and response mechanisms should also be strengthened.

Progress toward climate change adaptation in government agencies depends on political commitment and institutional capacity, reflected in robust policies and strategies geared toward consideration of disaster risk reduction and long-term changes in risk. Significant policy advances have been gained in strengthening disaster risk management, including key national policies/strategies in the country. However, having two separate “institutional homes” while sharing the same objectives and same challenges, they fail to coordinate themselves. Thus, it is crucial to emphasize the importance of integrating both DRR and CCA efforts towards the common objective of reducing risk to development. This is to avoid duplication of efforts, governance inefficiencies and even misunderstanding and competition among various stakeholders.

Local government and community initiatives

Efforts to forge greater capacity at the national scale have to be reflected by work at the local scale to increase the ability of local institutions and communities to cope with present and future risks from climatic hazards. Initiatives targeted at local and community level in DRM are evident in the projects and programs supported by donor organizations. More importantly, the LGUs, like that of the Province of Albay, possess a unique role of bridging local and national scale activities in terms of disaster coordination and CCA policies. These practices may also be used as vehicle to raise awareness and spread the strategies to other LGUs.

Financing DRM and CCA

Financing for disaster risk reduction and climate change adaptation can come from national budgets, international donors and private sector sources. Funding for DRM is growing, as reflected by the increasing number of projects by several bilateral donor organizations that have specific funding for DRR. CCA, on the other hand, is slowly getting attention and more funding. Few bilateral organizations have integrated their support for DRR and CCA. Many DRR/M projects are funded from humanitarian aids, CCA on the other hand is typically funded out of environmental departments from bilateral donor organizations.

There is a need to further mobilize greater and more diverse sustainable sources of financing that are


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nationally appropriate for climate change, especially in the private sector. A number of bilateral and multilateral donor organizations have integrated their support for DRM and CCA. Most CCA funding are typically contained in environment-related projects. Several donors are also investing directly in capacity building through NGOs and research networks.


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5. CONCLUSIONS AND RECOMMENDATIONS

5.1 Conclusions

The Philippines has been considered as highly vulnerable to current (i.e. natural disasters), as well as future climate-related risks. The country experiences an average of eight to nine tropical cyclones making a landfall plus recurring floods and landslides, periodic ENSO phenomenon, among others. Climate change is expected to exacerbate existing stresses, thus the development goals of the country can be severely affected by climate change and a great number of population and livelihoods can be at risk.

Managing such risks to development requires the systematic integration of DRM and CCA in terms of project activities, coordination and financing mechanisms. Progress toward DRM and CCA in government agencies depends on political will and institutional capacity, reflected in robust policies and strategies geared toward consideration of short- and long- term climate risk to development. Significant program and strategy advances have been gained in strengthening DRM; and pioneering steps, including key national policies and institutions, for promoting CCA.

The recently approved policies on both DRM and CCA, and other adaptation projects feature clear overlaps, including efforts to harmonize coordination structures. However, progress in terms of integration of DRM and CCA in political agendas and institutional priorities remains slow. Though significant policy advances have been recently gained, the continuing perception that DRM and CCA are of less priority hinders moves towards mainstreaming.

It is also important to point the significance of linking DRM and CCA activities and integrate with poverty reduction activities and development objectives. Being both a condition and determinant of vulnerability, poverty reduction should be an essential component of reducing vulnerability to natural disasters and climate change.

The political momentum and leadership brought by several disasters for the last two years tends to suffer from coordination conflicts, political instability, and short-term political cycles. Long-term issues such as CCA may suffer from the threat of unsustainable program and discontinuity of policies, therefore strengthening the need for ownership. The promising role of local champions and units should be emphasized and further supported by the national government.

5.2 Recommendations

Given the above realities on DRR and CCA policy and institutional landscapes in the country, the following recommendations and immediate priorities for the Philippines to integrating DRM and CCA into policies and programs are forwarded:

On knowledge on climate risk and vulnerability

Aggressive systematic knowledge generation and IEC campaign about DRM and CCA is needed. More research to better understand the local and sectoral impacts of climate change, climate variability and extreme, and disasters should be undertaken. This needs documentation and organization of all climate


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chang, variability and risk-related data and information in the country to properly identify hazards and risks. Useful action may include steping up efforts in documenting existing strategies and knowledge on adaptation to disasters, more research on technical solutions and capacities to enhance adaptive capacity of vulnerable communities and provide for sustainable livelihoods; and step up efforts to raise public awareness and IEC campaigns. Such campaigns ought to be targeted to a wider range of stakeholders such as the research and academe communities, policy makers and civil society.

On institutional capacity and coordination

The cross-sectoral nature of natural disasters and climate change warrants a similar approach to addressing the issue. A more integrative, participatory, and multi-stakeholder approach, as been highlighted in both Disaster Risk Reduction and Management Act and Climate Change Act, should be implemented. This entails not only increased policy dialogues but a more concerted and coordinated partnership arrangements and stronger operational links for research and policy.

On local government and community initiatives

The local leaders can be champions, and LGUs seem to be in the best position to implement DRM and CCA effectively. Local champions are necessary to instill DRR and CCA and ensure ownership particularly in raising public awareness and instilling knowledge and capacity specific to the needs of their constituents. Capacity building is deemed necessary particularly to LGUs. It is also important to discover how existing capacities can be used to the full advantage of the entire DRM community. However, financing mechanisms need to be explored. Local internal resources are insufficient, thus resource mobilization is needed.

On financing

The implementation of the above recommendations and of other development plans related to DRR and CCA may be hampered by inadequacy of funds and other (human and material) resources. As such, more concerted efforts, together with the all-important political will, ought to be devoted to establishing regular sources of funds at local, national and even international levels, to finance climate change-related initiatives

Finally, there is no one-size-fits-all solution to improving risk management strategies of the country i.e. integration of DRR agenda into CCA structures, or vice versa. This calls for the government to build and strengthen existing capacities. This will require further dialogues between the DRM and CCA communities to identify existing mechanisms and potential entry points to foster broader integration and facilitate stronger connections. Needless to say, the response of the Philippines should go beyond having institutions and policies put in place.


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