AFP CURRENT THRUST MODULE

DISASTER RISK REDUCTION AND

MANAGEMENT/ CLIMATE CHANGE

The Philippines is considered one of the most disaster prone countries in the
world. As such, the country is annually plagued by disasters and this has become a
major obstruction in the sustainable development of the country. Response to cope
with the effects of disasters is a primary concern of the government. In line with this,
the government maximizes the utilization of its agencies, peoples’ organizations,
non-government organizations and other institutions including the Armed Forces of
the Philippines in responding to disasters.

Presidential Decree Number 1566 which was promulgated on June 11, 1978,
calls for the “Strengthening of the Philippine Disaster Control Capability and
Establishing the National Program on Community Disaster Preparedness”. This law
prescribes the organization and membership of various government agencies and
units for disaster management operations. It also includes NGOs and POs.

In line with Presidential Decree Number 1566 and the National Disaster
Preparedness Plan, the Armed Forces of the Philippines formulated the AFP
Standing Operating Procedure Number 15. This SOP serves as the AFP Calamities
and Disaster Preparedness Plan.

A disaster is an event, natural or man-made, sudden or progressive, which

impacts with such severity that the affected community has to respond by taking
exceptional measures.

Disaster management is an applied science which seeks, by the systematic

observation and analysis of disasters, to improve measures relating to prevention,
mitigation, preparedness, emergency response and recovery.

A. Types of Hazards and Effects

1. Natural. The Philippines is exposed to almost all natural

hazards. The following is a brief account of the main hazards to which the country is
exposed.

a. Typhoon. A severe tropical hurricane which usually occurs in

western Pacific or the China Sea and is the most frequent cause of disaster in the
Philippines. Typhoons occur mainly from July to December. Typhoons result to
destruction of properties, crops, livestock, infrastructures and loss of lives. Typhoons
accompanied by heavy rains are the cause flooding.

b. Storm surge. An atmospheric disturbance manifested in

strong winds accompanied by rain and often by thunder and lightning. Storm surges
cause severe damage to coastal areas. It may cause heavy flooding especially in
low-lying areas and vicinities with inadequate drainage system.

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c. Flood. The overflowing of excessive water in an area that is

normally dry. Flooding severely disrupts the economic and social activities of the
people. Sometimes it is swift and it often results to loss of lives, destruction or loss of
properties, destruction of infrastructures and other valuable assets essential for the
well being of the people.

d. Volcanic Eruption. The process wherein molten rock

materials (magma) are emitted or ejected in the form of flowing masses and stream
from a crater vent fissure. Volcanic eruption usually results to the displacement and
evacuation of people living within the danger areas around the erupting volcano. It
also causes disruption in economic and social activities of the people and the loss of
lives and destruction of properties. The Philippines has more than 200 volcanoes, of
which at least 17 are considered active. The Mount Pinatubo eruption was among
the biggest volcanic eruptions in recent times.

e. Earthquake. Earthquakes are ground vibrations caused by

volcanic activity. These occur without notice. Earthquakes usually trigger landslides.
Strong earthquakes may result to severe destruction of properties, infrastructures,
economic facilities and vital utilities. It may even result to loss of lives and injuries.
Earthquakes originating from the sea may trigger tsunamis which pose extreme
hazard in coastal areas.

f. Tsunami. Tsunamis are very large ocean waves caused by

underwater earthquake or volcanic eruption and are sometimes loosely called “tidal
waves”. Tsunamis have affected Philippine coastal areas up to four meters above
sea level. The coastal areas of southwest Mindanao are most vulnerable. Tsunamis
may result to the destruction of properties and infrastructures, injuries and even loss
of lives in coastal areas.

g. Landslide. It is the dislodging and falling of a mass of land

and rocks. Landslides are mostly triggered by excessive rainfall as in the Southern
Leyte tragedy in February 2006 or by earthquakes as what happened in Baguio City
in July 1990. Severe landslides may isolate a locality with the obstruction of major
economic and communication links. In some cases, landslides may cause injuries or
even loss of lives.

h. Drought. It is a long period without rainfall. Drought which

brings damage to crops which lead to economic losses and disaster declarations.
Increasing drought risk is thought to be associated with deforestation and agricultural
development.

2. Man-made Disasters. Man-made disasters are events triggered

by hazards initiated by human activities and undertakings either deliberately or by
accident, causing massive destruction, economic losses, injuries or loss of lives.

a. Fire. Rapid and persistent chemical reaction involving the

combination of combustible materials and oxygen that releases heat and light.
Uncontrolled fire results to destruction of properties and severe physical and
psychological injuries or even resulting to loss of lives. Fire is caused by various

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origins ranging from faulty electrical wirings, overloading of electrical equipment,

negligent and irresponsible use of heat emitting devices, to arson.

b. Conflagration. It is a large disastrous fire involving numerous

buildings/houses or structures.

c. Maritime Disasters. These are ill-fated events that occur at

high seas causing excessive damages, injuries and loss of lives.

d. Land and Air Accidents. These are unplanned or

unforeseen events or circumstances that may occur either on air or on land resulting
mostly from ignorance or carelessness.

e. Oil Spill. Fallout of oil or similar substance from a container

tank resulting to environmental hazards. Oil spill usually occurs at the sea and is
caused by the mishandling of vessels containing the substance or from sea mishaps
or accidents as what had happened in Guimaras on 11 August 2006.

f. Civil Strife. These are social unrest with violent activities,

destruction of properties, and chaos resulting to injuries.

g. Pollution. It is the contamination of water, soil, or

atmosphere by the discharge of noxious substances especially gaseous, chemical or
organic wastes. Pollution causes hazards to the environment and health.

h. Red Tide. Presence of toxic chemicals or pollutants in

coastal waters that extremely affects natural resources (shellfish) resulting to food
poisoning and deaths.

i. Industrial Accidents. Accidents that occur in industrial

facilities caused by unsafe practices or malfunction of equipment and machineries. It
could be very minimal or extensive in magnitude.

B. Disaster Coordinating Councils and Units

The basic Philippine law on disaster management provides for the

organization of multi-sectoral disaster coordinating councils at every level of
government, from the national level to the barangay (or village) level headed by the
local chief executive of the affected area. Through these disaster coordinating
councils, which are able to link with all relevant government agencies and civic
organizations, Philippine communities mobilize resources and capabilities needed to
manage disasters.

The disaster coordinating council approach enables the country to

utilize all available means for disaster response, means that are ordinarily used for
military and police missions, public service or commercial purposes, but may be
rapidly converted into disaster reduction capabilities. It also allows for routine
cooperation, sharing of resources and dissemination of information during periods of
extreme stress and emergencies. At the same time, the disaster management
coordination approach provides for dedicated technical capabilities for specialized

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disaster management services as well as directing attention to disaster

preparedness.

At whatever scale of disaster, whether national, regional, provincial,

municipal or barangay level, an appropriate disaster coordinating council is
established, organized and trained to respond. The National Disaster Coordinating
Council or NDCC, is the policy-making and coordinating body for disaster
management at the national level. It directs all disaster preparedness planning, as
well as disaster response operations and rehabilitation, both in the public as well as
private sectors. It advises the President on matters related to natural calamities and
disasters, including recommendations for the declaration of a state of calamity in
disaster-affected areas. There are nineteen (19) member-agencies that comprise the
NDCC. However, other agencies may be tapped by the NDCC chairman to be ex-
officio members.

In each local government of the province, city or municipality, the local

disaster coordinating council is headed by the local chief executive. In these local
disaster coordinating councils, local as well as central government agencies
operating at the local level cooperate with civic and non-government organizations
under the leadership of the local chief executive.

Disaster Management Response Units. Several disaster response

units are organized and established at the local level. These are composed of the
government agencies, non-government organizations, and peoples’ organization.

Disaster Management Operations Support. The Local Government

Code of 1991 has decentralized much of the authority of governance to local
officials. All local government units are required to set aside 5% of their estimated
revenues from regular sources for unforeseen expenditures arising from the
occurrence of disasters. These funds are used for disaster management operations,
relief and rehabilitation.

C. Army’s Role in Disaster Management

The Armed Forces of the Philippines particularly the Philippine Army is

considered as a major player in disaster management. The military is regarded as an
important and capable entity for disaster management due to its training, equipment,
and organizational structure. It is viewed as a capable force that can perform a wide
array of emergency actions and operate under adverse conditions. Much more,
majority of the standard and day-to-day operations of the military organization
parallel public emergency measures.

Based on the Calamities and Disaster Preparedness Plan, the Armed

Forces of the Philippines is tasked to establish communication linkages and make
these available for disaster operations; assist the PNP in providing security coverage
in disaster areas; assist in the reconstruction of damaged national and local roads,
bridges, structures and facilities; assist in providing transportation facilities for the
rapid movement of rescue relief supplies and personnel; evacuation of victims; and
to organize reaction teams in all military installations.

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The following discuss the role of Army units within the different stages
of disaster management following the ADB Disaster Management Cycle model.

1. Development. During the development stage, Army units

participate in capability building and organizational development activities. Army
units in the field of engineering, medical services, communication and information
technology may be tapped to provide inputs in policy making and long term
development planning.

Other activities may include the conduct of joint training for disaster
response operations with the local disaster coordinating councils to enhance the
inter-operability of disaster response units coming from different member-agencies.

2. Prevention. In the prevention stage, the Philippine Army

supports the efforts of the government for disaster prevention. Army units may
participate in identifying and implementing engineering interventions. Engineering
units may be tapped to conduct mapping and related studies as well as the
construction of protective facilities depending on the capacity of the concerned
government entity. The Philippine Army also participates in security operations to
prevent high profile terrorist attacks that may result to disasters.

3. Mitigation. During mitigation stage the Army engineers in

support role may be tapped by disaster coordinating councils to assist in the
structural disaster mitigation activities such as de-silting of river systems or repair of
public structures that pose hazards to citizens. It should be emphasized that LGU
resources shall be utilized for such activities. Other Army units can also participate in
clean up drives as part of civic action activities.

4. Preparedness. In the same manner as in mitigation, the Army

plays a vital role for disaster preparedness. Army units participate in joint disaster
preparedness planning together with the member agencies and the disaster
coordinating council to come up with a sound plan to cope with effects of disasters.
Moreover, Army units shall maintain the readiness of their respective disaster
response units particularly the trained personnel organized as a team or unit, and
their equipment.

The following stages in preparedness segment are elucidated to

identify actions that the Army shall undertake:

a. Threat. As part of preparedness, Army units shall identify

hazards, critical areas, and effects of these hazards. These should be discussed and
presented with the disaster coordinating council and come up with measures to
prevent or mitigate the effects.

b. Warning. During the warning stage, Army units shall closely

monitor warnings or signals announced by appropriate government agencies and be
ready to execute measures relative to the warning. Moreover, Army units shall
disseminate the warning to those who do not have equipment to monitor such
warnings.

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c. Precaution. Utilizing available capabilities, Army units shall

assist the local disaster coordinating council in the conduct of evacuation. In
coordination with other law enforcement agencies and as prescribed by the local
disaster coordinating council, Army units shall extend security assistance to
evacuation centers. Participation in providing medical services may be arranged with
the concerned agency. Army engineers may extend services in the preparation and
maintenance of evacuation facilities.

d. Disaster Impact. At the impact of disaster, and when

situation permits, Army units shall initiate immediate response during the critical
moments to those affected primarily to save lives. In instances where no preparation
or very little preparation time is possible, such as road mishaps or earthquakes, Army
units shall initiate the most immediate and appropriate response. However,
subsequent actions shall be in accordance with the local disaster coordinating
council once coordination and control have been established.

e. Response. During the response stage, the primary role of

the Army is to ensure security and stability in order to facilitate appropriate response
from other agencies and organizations especially during the most critical periods
within the emergency situation. The Army response units, independently or in
conjunction with other response units, support the conduct of search and rescue,
assistance in relief operation and evacuation, in the distribution of emergency food,
and in providing shelter and medical assistance.

f. Recovery. The recovery segment may take three stages –

restoration, rehabilitation and reconstruction. At all stages, the Army’s role is to
support the government’s efforts to restore public utilities, rehabilitate affected
communities and reconstruct vital infrastructures. Army units may be tapped by the
local disaster coordinating council to conduct immediate restoration of utilities. Army
engineers, with their current capabilities may conduct road clearing, particularly the
fallen trees, debris or landslides, restoration of water system, and power supply.
Army units can also provide communication facilities with the available
communication equipment while signal unit may provide assistance in the restoration
of other communication facilities. For hygiene and sanitation, medical services may
also be provided in coordination with the local health department. During the
rehabilitation and reconstruction, Army engineers may undertake civil work projects.

D. The nature and extent of Army assistance in disaster Operations

1. Ground survey and assessment, especially to ascertain levels of

casualties and damage.
2. Reconnaissance in the disaster zone and of the routes within and
leading towards it.
3. Organized and mobile manpower to assist in rescue.
4. Communications units to provide emergency radio and telephone
links.
5. Logistics units available to handle store and transport goods and
people over all types of roads and routes.
6. Emergency medical support to other agencies and civilian services.
7. Aircraft for reconnaissance (Aviation Battalion).

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8. Electrical power, engineering, long distance radio communication.

9. Reconnaissance and reporting upon the damage caused and the
state of the infrastructure and communications and the use of
warning to endangered communities.
10. Rescue, evacuation and the provision of life support system
(medical aid, water, food and shelter) in emergency centers or
camps.
11. Road clearance and the repair of breaks in road communications
using temporary bridging equipment.
12. Emergency communications (tactical radios) linking Disaster
Operations Centers at various levels of government.
13. Assistance in safeguarding/security of evacuated villages or urban
areas.
14. Transportation of emergency supplies.

E. Support to Local Disaster Operations Units

1. National. As prescribed in the law, the AFP shall support the

National Disaster Coordinating Council in the conduct of disaster management
operations. The Philippine Army shall support the NDCC by deploying additional
response units in support to the Regional Disaster Coordinating Council as
prescribed by the NDCC. Army units deployed in the different regions in the country
including Army Reservists shall participate in any disaster management operation.

2. Regional. At the regional level, Army Divisions shall provide

support to the RDCC by deploying additional units to the Provincial Disaster
Coordinating Council as prescribed by the RDCC.

3. Provincial. At the provincial level, Army Brigades provide

support to the Provincial Disaster Coordinating Council by deploying additional
response units to the City or Municipal Disaster Coordinating Council as prescribed
by the PDCC.

4. City or Municipal. At the City or Municipal level, Army

Battalions shall provide support to the City or Municipal Disaster Coordinating
Council by providing additional response units to the Barangay Disaster Coordinating
Council as prescribed by the MDCC or CDCC.

5. Other Levels. Central agencies operating within a particular

locality shall operate as prescribed by the concerned local disaster coordinating
council during disaster response operations. Hence, Army units deployed in a locality
shall coordinate its efforts when conducting disaster management operations with
the local disaster coordinating council.

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