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Frameworks and Partnerships Frameworks and Partnerships Improving HA/DR in the Asia Pacific

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Frameworks and Partnerships Frameworks and Partnerships Improving HA/DR in the Asia Pacific Frameworks and Partnerships Frameworks Frameworks and Partnerships Improving HA/DR in the Asia Pacific THE JAPAN-U.S.-PHILIPPINES CIVIL-MILITARY DISASTER PREPAREDNESS INITIATIVE The strong disaster capabilities of Japan and the U.S. have been demonstrated in many recent natural disasters. These allies and partners stand well prepared to lead the Asia Pacific in preparedness and response. In this Report the NGO Peace Winds America explores how the two nations can even further enhance their cooperation with each other and with the Philippines. Peace Winds America has examined the response to Typhoon Haiyan, Improving HA/DR in the Asia Pacific HA/DR in the Improving focusing on disaster frameworks, leadership, and coordination mechanisms. The Report offers best practices, lessons learned, and training suggestions to strengthen disaster preparedness and response. The recommendations offer guidance for the three nations trilaterally, for the Japan-U.S. strategic alliance, and for ASEAN and its member-states. This Report was authored by Jon Ehrenfeld and Dr. Charles Aanenson, with Dr. Rosalie A. Hall, University of the Philippines—Visayas. Admiral Alexander Pama, Philippine Office of Civil Defense, provided the preface. The Sasakawa Peace Foundation and the Japan Foundation Center for Global Partnership funded the 2013-2015 Japan-U.S.-Philippines Civil-Military Disaster Preparedness Initiative. Additional support was provided by the Carnegie Endowment for International Peace. peace w peace peace winds AMERICA THE JAPAN-U.S.-PHILIPPINES peace winds AMERICA AMERICA inds CIVIL-MILITARY DISASTER PREPAREDNESS INITIATIVE Frameworks and Partnerships Improving HA/DR in the Asia Pacific Peace Winds America Board of Directors Board Officers Representative Jim McDermott, Dr. Michael Green, Vice Chair Honorary Chairman Center for Strategic and International U.S. Congress (WA) Studies Ambassador Shunji Yanai, Vice Chair Kevin Ichikawa, Secretary Law of the Sea Tribunal Central Japan Railway Tom Dolan, Treasurer Formerly U.S. Pacific Command / USAID Board Members General Thomas Conant (USMC, Ret.) Yoshiyuki Kasai TLC Consulting, LLC Central Japan Railway Admiral Walt Doran (U.S. Navy, Ret.) Representative Akihisa Nagashima Formerly of Raytheon Asia The National Diet of Japan Gary Gordon Kensuke Onishi The Boeing Company Peace Winds Japan | Civic Force General W. C. Gregson (USMC, Ret.) General Noboru Yamaguchi (JGSDF, Ret.) W. C. Gregson Associates National Defense Academy Senator Mazie Hirono Dr. Charles Aanenson, CEO U.S. Senate (HI) Peace Winds America Ambassador Thomas Hubbard McLarty Associates Frameworks and Partnerships Improving HA/DR in the Asia Pacific By Jon Ehrenfeld and Dr. Charles Aanenson With contributions by Prof. Rosalie Arcala Hall, Ph.D. University of the Philippines Visayas Miagao, Iloilo, Philippines peace winds AMERICA The Japan-U.S.-Philippines Civil-Military Disaster Preparedness Initiative Published in the United States of America by Peace Winds America www.peacewindsamerica.org Copyright © 2015 by Peace Winds America All rights reserved. No part of this publication may be reproduced, stored in a retrieval system, or transmitted in any form or by any means, electronic, mechanical, photocopying, recording, or otherwise, without prior permission of the publisher. ISBN (print): 978-0-9893447-2-2 ISBN (electronic): 978-0-9893447-3-9 Peace Winds America makes no warranties or representations regarding the accuracy of any map in this volume. Depicted boundaries are meant as guidelines only. Front cover photo: Volunteers near Ormoc unload relief supplies from a helicopter of U.S. Navy Helicopter Sea Combat Squadron 25 on 16 November, 2013 (U.S. Navy photo by Mass Communication Specialist 3rd Class Mackenzie P. Adams/Released). Back cover photos from left to right: A doctor with the Japan Disaster Relief Team examines a patient in Tacloban ( 2014, JICA); A mother and her children wait for registration at an evacuation center in Estancia, Iloilo on 23 November, 2013 (International Organization for Migration, (c) 2013, used under Creative Commons Attribution 2.0 license); and U.S. Marine Brig. General Paul Kennedy, second from right, with counterparts from the Armed Forces Philippines and Department of Social Welfare and Development at the reopened Tacloban airport, 24 November 2013 (U.S. Department of Defense, Cpt. Caleb Eames/Released). Design and publishing services by The National Bureau of Asian Research Printed in the United States. peace winds AMERICA Contents Preface . vii Admiral Alexander P . Pama, NDRRMC Acknowledgements . ix Executive Summary . xiii 要旨 . xvii List of Acronyms . xxiii Chapter I Introduction. 1 Chapter II The Disaster Management Framework of the Philippines. 9 Chapter III The Response to Typhoon Haiyan. 31 National Response, Coordination, and Logistics . 31 Eastern Samar/Leyte (Tacloban) — Region VIII . 65 Western Visayas (Roxas, Panay Island) — Region VI . 82 Central Visayas (Cebu) – Region VII . 100 International Relief Efforts . 113 Chapter IV Lessons Learned and Recommendations for the Philippines. .125 Chapter V Lessons Learned and Recommendations for the United States, Japan, and Multilaterals. 167 Chapter VI Conclusion. 201 Chapter VII 結論. .219 Preface June 2015 Disaster response remains a major challenge to achieving disaster resiliency. The Philippines continues to face disasters such as tropical cyclones, earthquakes, and volcanic eruptions. Over the past four years, successive large-scale disasters devastated areas in the Philippines – Tropical Storm Washi in December 2011, Typhoon Bopha in December 2012 and Typhoon Haiyan in November 2013. As Typhoon Haiyan made its way through the Philippines, it became clear that all the preparations undertaken were overwhelmed by the magnitude of the typhoon. Upon making landfall over the Eastern Visayas, it produced a 5-7 meter-high storm surge in Samar and Leyte and resulted in the death of at least 6,000 people, damaged over a million houses, and brought about property damage amounting to over USD 2.14 Billion. In the aftermath, one of the many challenges faced by the National Disaster Risk Reduction and Management Council (NDRRMC) was managing the surge of assistance and outpouring of support from different countries and organizations. The governments of Japan and United States were among the earliest responding countries. Their initial response operations enabled the Philippines to transition to early recovery and rehabilitation. Typhoon Haiyan brought to fore a realization that there is a need for the country to revisit and improve its disaster risk reduction and management policies, programs and activities. The Office of Civil Defense recognized the importance of putting in place a resilient system which could respond to unprecedented disasters. viii • Frameworks and Partnerships It is in this light that the Philippines has strengthened its National Disaster Response Plan (NDRP) for Hydro-Meteorological Hazards. The Plan outlines the processes and mechanisms to facilitate a coordinated response by the departments and agencies in the national and local level. Moreover, the Pre-Disaster Risk Assessment (PDRA) was institutionalized in August 2014 to ensure that hazard specific, time-bound and area-focused assessment will ensure better decision making that will correspond to appropriate and immediate actions both at the national and local levels. Both tools have aided the Government in its execution and represent a huge improvement in disaster response, particularly in coordinated response. Peace Winds America’s conduct of study of the lessons learned during the Typhoon Haiyan HA/DR operation is a milestone as it provides an opportunity to share the importance of connectivity and coordination mechanisms among governments and humanitarian responders. May this book serve as a tool to strengthen the ties of all society towards continuous improvement in disaster management. My heartfelt gratitude and congratulations for this initiative. Admiral Alexander P. Pama Administrator, Office of Civil Defense Executive Director, NDRRMC Manila, Philippines Acknowledgements The Peace Winds America 2013-2015 Japan-U.S.-Philippines Civil-Military Disaster Preparedness Initiative has achieved its goals due to the support, encouragement, and contributions of our many partners. Without them PWA could not have written this Report, held training workshops/exercises/forums, or completed the research and review. We offer them our sincere gratitude. This Initiative was made possible by the generous support of our benefactors. We are indebted to the Sasakawa Peace Foundation and wish to extend our appreciation to Executive Director Junko Chano and Program Officer Aya Murata. We hope this Initiative marks the start of an enduring partnership to improve disaster preparedness and strengthen the Japan-U.S. alliance. We also deeply appreciate the opportunity to work again with the Japan Foundation Center for Global Partnership, aided by Associate Program Officer Lisa Wong and Chief Officer Takashi Imai. To both these donors we trust our efforts have helped demonstrate the pivotal role Japan plays in preparing for and responding to natural disasters. We are grateful to Senior Associate Jim Schoff at theCarnegie Endowment for International Peace. Through his advice, support, and expertise we advanced the Initiative. Several Peace Winds America board members have provided invaluable contributions: Dr. Michael Green (Center for Strategic and International Studies), Ambassador Tom
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