PRIMER English - Final PDF
PRIMER English - Final PDF
Primer on the
Disaster Risk
Reduction and
Management (DRRM)
Act
of 2010
DRRNetPhils
Disaster Risk Reduction Network Philippines
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disaster response
The provision of emergency services and public assistance during or
immediately after a disaster in order to save lives, reduce health
impacts, ensure public safety and meet the basic subsistence needs
of the people affected. Disaster response is predominantly focused
on immediate and short‐term needs and is sometimes called
“disaster relief”.
Hazard
Prepare for Hazards A phenomena, event, occurrence or
Know the hazards human activity that may cause injury,
Contingency Planning
loss of lives and damage to property and
the environment
Monitor Hazards
Early warning systems Typhoons Wars
Floods Epidemics
Mitigate Hazards Drought Terrorism
Protect communities Earthquake
through infrastructure Tsunami Disaster Risk
Fire
Exposure of vulnerable
communities to a hazard
T
Exposure In
The degree to which people and properties are Soc
Minimize Exposure
Relocate likely to experience hazards
Evacuate
Dense population
Living in high‐risk areas
Vulnerability and Capacity
The characteristics of a community that make it susceptible to a
hazard or capable of coping and recovering from the damaging
effects of a disaster.
VULNERABILITY CAPACITY
Poverty Overexploited and Wise use of resources
Disabilities degraded natural resources Robust infrastructure
Poor health and sanitation Poor infrastructures Strong and good
Hunger Poor governance governance
Poor land use planning
e
d
Reduce Vulnerabilities
Enhance Capacities
Organized communities Reduced poverty
Transfer Risks Strong governance Diversified livelihoods
Insurance and Food security Management of natural resources
Social protection Quality education Protection of the environment
Health and sanitation Access to lifeline elements
Access to safe water Retrofitting
Infrastructure development
etc...
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The DRRM Act
Why do we need to give importance to disasters?
Disasters cause the destruction of communities, death of millions, and collapse of people's
livelihoods. Disasters leave indelible impacts on physical landscapes and on people's minds. In
development terms, disasters can mean serious economic impact on nations, communities,
and households. For a developing nation like the Philippines, disasters also pose major
hurdles for the achievement of the Millennium Development Goals (MDG).
The Philippines is one of the world's most disaster prone nations. The exposure of the
Philippines to disasters can be attributed to its geographical and physical characteristics.
Earthquakes are common and volcanoes abound because the country is in the Pacific Ring of
Fire. The Philippines also absorbs the full strength of typhoons that develop in the Pacific
Ocean.
Aside from natural causes, the Philippines also experiences human‐induced disasters. These
are brought about by hazards that are of political and socio‐economic origins and
inappropriate and ill‐applied technologies. Many are forced to evacuate during times of
conflict. People die from earthquakes primarily because of the collapse of substandard
buildings. The health of people is severely affected because of industrial and domestic waste
that pollutes the water, land and air.
Hazards become disasters only if vulnerable people and resources are exposed to them.
People who live in poverty and adverse socio‐economic conditions are highly vulnerable to
disasters. The most vulnerable sectors include the poor, the sick, people with disabilities, the
elderly, women and children. Although many people may be affected, these vulnerable
sectors will have the least capacity to recover from the impact of a disaster.
In this context, it is important for society to strengthen the capacity of vulnerable sectors. In
doing so, the vulnerable sectors cease to be victims of disasters and will become agents of
change for meaningful development of communities.
What is the DRRM Act?
Republic Act No. 10121 or the Philippine Disaster Risk Reduction and Management Act of
2010 (DRRM Act) is a new law which transforms the Philippines’ disaster management system
from disaster relief and response towards disaster risk reduction (DRR). It was approved on
May 27, 2010. It repealed Presidential Decree No. 1566 which was enacted way back in 1978.
Disasters as merely a Disaster mainly a reflection of
function of physical hazards people’s vulnerability
Focus on disaster response Integrated approach to genuine
and anticipation social and human development to
reduce disaster risk
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Hyogo Framework of Action
What is the basis of the DRRM Act?
The DRRM Act adopts and adheres to principles & Strategic Goals
(a) Effective integration of disaster
strategies consistent with the international standards set
risk considerations into
by the Hyogo Framework for Action (HFA). The HFA is a
sustainable development
comprehensive, action‐oriented response to p o l i c i e s , p l a n n i n g a n d
international concern about the growing impacts of programming at all levels ‐
disasters on individuals, communities & national disaster prevention, mitigation,
development. preparedness and vulnerability
reduction
The HFA was developed following the tsunami in 2004
(b) Development and strengthening
which claimed more than 200,000 lives and massively of institutions, mechanisms and
damaged properties and the environment. This capacities at all levels
emphasized the need for a paradigm shift from disaster
response to disaster risk reduction (DRR). (c) Systematic incorporation of risk
reduction approaches into the
design and implementation of
The HFA was formulated and adopted by 168
emergency preparedness,
governments at the World Conference on Disaster response and recovery
Reduction held in Kobe, Hyogo Prefecture, Japan in p r o g r a m m e s i n t h e
2005. It is aimed at building the resilience of nations and reconstruction of affected
communities to disasters, and reducing vulnerabilities communities
and risks to hazards. On September 14, 2009, the
Philippine Senate ratified the ASEAN Agreement on Disaster Management and Emergency
Response (AADMER) which is ASEAN’s affirmation of its commitment to the HFA.
Priorities for Action
Civil society organizations (CSO), the private sector and volunteers. Civil society
organizations and the private sector play key formal and informal roles in effective DRRM.
They complement and enhance the government’s resources and efforts in implementing an
effective DRRM. Their participation and involvement in all aspects of DRRM from planning to
implementation is ensured through their membership at all levels of governance (Sec. 2.d;
Sec. 5.hh & ii; Sec. 11.a.17 & 18; and Sec. 12.d) and through an accreditation process (Sec. 13).
Examples of CSOs are cooperatives, peoples organizations, neighborhood associations, non‐
government organizations, church‐based organizations and academic institutions.
Communities. Communities, including the most vulnerable sectors, are both disaster victims
and agents of change. It is crucial to strengthen, institutionalize and scale up the skills,
knowledge and innovative practices that they have initiated and sustained in DRRM. Their
active and substantive participation at all levels of DRRM coordination is recognized since they
are most familiar with their situation. They themselves shall determine which approach is
most appropriate for them (Sec. 2.d and Sec. 12.d).
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Structure
How has the DRRM structure changed?
The DRRM Act clarified the distinction between oversight versus implementation of DRRM in
order to strengthen the capacities of local governments. It broadened the membership of the
DRRM Councils at all levels. It also recognizes the importance of local communities by
institutionalizing the participation of civil society organizations and the private sector.
National DRRM Council (NDRRMC)
The National Disaster Risk Reduction and Management Council (NDRRMC) is a multi‐
sectoral body composed of the heads of the different executive departments of government,
government institutions, local government associations, civil society organizations, and the
private sector. It shall oversee the DRRM system in the Philippines. (Secs. 5 and 6)
Restructuring of Institutions
PD 1566 DRRM Act
Overseeing Implementing
National
National DCC OCD (Secretariat) OCD
DRRMC
Provincial Provincial
Provincial DCC DRRMO
DRRMC
Barangay Barangay DRRM
Barangay DCC Development Committee
Council
DND
Chair
MEMBERS:
New members:
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Regional DRRM Councils (RDRRMC)
The Regional DRRM Councils (RDRRMC) are responsible for coordinating, integrating,
supervising and evaluating DRRM activities of the Local DRRM Councils. The RDRRMC is
chaired by the Regional Director of the OCD. It is responsible for ensuring disaster sensitive
regional development plans, and convening the different regional line agencies and concerned
institutions and authorities in case of emergencies (Sec. 10).
National DRRM Framework
National DRRM Plan
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Governance
How will DRR be prioritized in national and local governance?
Disaster risk reduction is prioritized by mainstreaming and integrating it in the national and
local development processes. This includes policy formulation, socio‐economic development
planning, budgeting, and governance. Particular areas covered are environment, agriculture,
water, energy, health, education, poverty reduction, land‐use and urban planning, and public
infrastructure and housing, among others (Sec. 2.g).
In order to guarantee
this, government National
agencies/ institutions DRR- National DRRM
Sensitive National DRRM Framework
and relevant
Plans and Government Council
commissions, LGUs, Programs Agencies
CSOs and the private
sector are represented National
OCD
in overseeing and DRRM
Plan
implementing
structures of DRRM at
Local
all levels of government.
Development Local
Close coordination Councils Local
DRRM DRRM
between the DRRM
Offices Plan
councils and the local
development councils is
mandated in the law. DRR-Sensitive DRR-Sensitive
Local Local Development
Comprehensive Plans, Programs
Land Use Plan and
Budgets
DRR-Sensitive
Local
Comprehensive
Development
Plan
Setting up billboards about local risks and contingency plans of the
community builds awareness and preparedness in times of disaster.
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The DRRM Act also recognizes the important role of
the youth. DRR is mainstreamed into the
educational system and in the programs of the
Sangguniang Kabataan (SK) (Sec. 14).
In coordination with the OCD, DRR will be
incorporated into the school curricula through the
DepEd, CHED, TESDA, National Youth Commission
(NYC), DOST, DENR, DILG‐BFP, DOH, DSWD and
other agencies. DRR will be included in lessons for
high school and college. It is also incorporated in the
National Service Training Program (NSTP). It will be
implemented in both public and private educational
institutions, including formal and non‐formal
education, vocational schools, programs for
indigenous peoples and out‐of‐school youth.
Planting of trees along riverbanks to
mitigate soil erosion
Experimenting with tall flood resilient rice varieties in farms projected
to have excessive rainfalls due to climate change
16 R.A. 10121: Disaster Risk Reduction & Management Act
Vulnerability Reduction
How can the DRRM Act reduce vulnerabilities?
The biggest shift is the recognition that the damaging effects of disasters can be reduced by
reducing vulnerabilities and enhancing capacities of local communities. It is not necessary to
wait for a disaster to happen before planning and taking action against hazards.
Before, the local calamity fund can only be used after a declaration of a state of calamity.
Now, the fund has been renamed as the DRRM Fund and is encouraged to be used to fund
activities to reduce vulnerabilities. It can be used to fund training of personnel; procurement of
equipment, and capital expenditures; the conduct of
participatory risk assessments; the establishment of early
warning systems; the conduct of emergency drills; public
awareness campaigns; the purchase of communication
equipment; construction of safe evacuation centers; etc.
Vulnerabilities are further reduced when disaster risk
reduction and climate change adaptation strategies are
mainstreamed in local government budgeting and
planning processes.
Painting of flood level markers on
river walls become part of the local
early warning system
Setting up of rainwater harvesting facilities in communities prone
to dry spells and in regions projected to have less rainfall due to
climate change.
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What is the difference between the DRRM Fund and the previous
Calamity Fund?
• A declaration of a state of calamity is no longer necessary to access and utilize the DRRM
Fund.
• The Local DRRM Fund shall be sourced from not less than 5% of the estimated revenue
from regular sources (Sec. 21 par. 1).
• The DRRM Fund can be used for DRRM. It can be used to implement the DRRM Plan.
Thirty percent (30%) of the fund shall be set aside as a Quick Response Fund (QRF) for
relief and recovery programs. (Sec. 21 par 1; Sec. 22.a & c )
• Unexpended LDRRMF goes to a trust fund which will be used solely for DRRM activities of
the LDRRMC within the next five (5) years. Funds which are still not fully utilized after five
(5) years shall go back to the general fund and will be available for other social services to
be identified by the local sanggunian. (Sec. 21 par. 3)
• The LDRRMC may transfer the DRRM Fund to support disaster risk reduction work of
other LDRRMCs which are declared under a state of calamity (Sec. 21 par.1)
How is the proper utilization of the DRRM Fund ensured?
At the local level, the LDRRMO through the LDRRMC and the LDC shall submit the proposed
programming of the LDRRMF to the local sanggunian (Sec. 12.c.7). It shall likewise submit the
report on the utilization of the LDRRMF and other dedicated DRRM resources to the local
Commission on Audit (COA) (Sec. 12.c.24). Releases, utilization, accounting and auditing of
the LDRRMF shall be monitored and shall be in accordance with the guidelines and procedures
by the NDRRMC (Sec. 6.i; Sec. 22.d).
The LDRRM Plan shall be the
basis for the use and
disbursement of the Local
DRRM Fund. This shall be
monitored and evaluated by the
LDRRMC (Sec. 21).
Funds can be used for sandbagging and stabilization of riverbanks.
Preparing LGUs for disasters by
purchasing life‐saving equipment
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Disaster Response
What happens when a disaster strikes?
A State of Calamity can be declared so that disaster response can be coordinated, remedial
measures can be taken, and the Quick Response Fund can be used to provide assistance to
those affected.
Who can declare a State of Calamity?
The President can declare a state of calamity upon the recommendation of the NDRRMC. The
local sanggunian may now also declare and lift the state of calamity within their locality. This is
upon the recommendation of the LDRRMC based on the results of the damage assessment
and needs analysis (Sec. 16).
What are remedial measures?
Remedial measures are the mandatory
courses of action which shall immediately
be undertaken during the declaration of a
state of calamity (Sec. 17). These are as
follows:
1. Imposition of a price ceiling on basic
necessities and prime commodities
2. Prevention of overpricing/profiteering
and hoarding of prime commodities,
medicines and petroleum products
3. Programming/reprogramming of funds
for the repair and upgrading of public
infrastructure
4. Granting of no‐interest loans by
government financing institutions to the
most affected population
Conducting Emergency drills for different forms
of hazards raises awareness and informs
residents of emergency contingency plans.
Distribution of relief goods should be organized to
ensure the dignity of affected communities
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Prohibitions and Penalties
What are the prohibitions?
1. Dereliction of duties which leads to 10. Misrepresenting the source of relief
destruction, loss of lives, critical damage goods, equipment or other aid
of facilities and misuse of funds commodities by:
2. Preventing the entry and distribution of a. Either covering, replacing or defacing
relief goods in disaster‐stricken areas, the labels of the containers to make it
including appropriate technology, tools, appear that the goods, equipment or
equipment, accessories, disaster teams/ other aid commodities came from
experts another agency or persons
3. Buying, for consumption or resale, from b. Repacking the goods, equipment or
disaster relief agencies any relief goods, other aid commodities into containers
equipment or other aid commodities with different markings to make it
which are intended for distribution to appear that the goods, came from
disaster affected communities another agency or persons or was
4. Buying, for consumption or resale, from released upon the instance of a
the disaster affected recipient any relief particular agency or persons
goods, equipment or other aid c. Making false verbal claim that the
commodities received by them goods, equipment or other aid
5. Selling of relief goods, equipment or other commodity in its untampered original
aid commodities which are intended for containers actually came from another
distribution to disaster victim agency or persons or was released
6. Forcibly seizing relief goods, equipment upon the instance or a particular
or other aid commodities intended for or agency or persons
consigned to a specific group of victims or 11. Illegal solicitations by persons or
relief agency organizations representing others as
7. Diverting or misdelivery of relief goods, defined in the standards and guidelines
equipment or other aid commodities to set by the NDRRMC
persons other than the rightful recipient 12. Deliberate use of false or inflated data in
or consignee support of the request for funding, relief
8. Accepting, possessing, using or disposing goods, equipment or other aid
relief goods, equipment or other aid commodities for emergency assistance or
commodities not intended for nor livelihood projects
consigned to him/her 13. Tampering with or stealing hazard
9. Substituting or replacing relief goods, monitoring and disaster preparedness
equipment or other aid commodities with equipment and paraphernalia.
the same items or inferior/cheaper quality
It is the primary responsibility of government to respond to disasters.
Humanitarian agencies start to help only if the government is unable or
unwilling to respond to the needs of all affected people
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Directory
National Agencies: OCD sa mga Rehiyon:
NDRRMC (02) 9115061 to 64 CAR (074) 6190966/ 3042256
Region I (072) 6076526/ 7004747
Philippine National Hotline: 143
Region II (078) 8441630
Red Cross (02) 5270000
Region III (045) 4551526
PAGASA (02) 434‐2696 Region IV‐A (049) 8344244/ 5317279
(for weather updates) Region IV‐B (043) 7234248
Acknowledgement
This primer was written by Atty. Eunice Agsaoay‐Saño, with editorial and design support
provided by Allan Vera.
This primer is intended to serve as an aid to understanding and popularizing the DRRM Act. It is
by no means intended to replace the actual text of the law. If there are any inconsistency in this
primer with the actual provisions of the law, the text of the law shall prevail. The full text of RA
10121 can be accessed through the following web link:
http://www.senate.gov.ph/republic_acts/ra%2010121.pdf
The Implementing Rules and Regulations (IRR) of the DRRM Act was approved on September 27,
2010. The full text of the IRR can be accessed at: http://ndcc.gov.ph/attachments/095_IRR.pdf
This primer is made possible
through the support of: