The Policies, Practices and Politics of Dealing with Disasters An Analysis of How Disaster Risk Reduction Policies and Actions are Framed in the Philippines A Research Paper presented by: Maryanne Jude Mendoza Philippines in partial fulfillment of the requirements for obtaining the degree of MASTERS OF ARTS IN DEVELOPMENT STUDIES Major: Governance, Policy, and Political Economy GPPE Specialization: Public Policy and Managment PPM Members of the Examining Committee: Dr. Des Gasper (Supervisor) Dr. Dubravka Zarkov (Second Reader) The Hague, The Netherlands December 2014 Disclaimer: This document represents part of the author’s study programme while at the Institute of Social Studies. The views stated therein are those of the author and not necessarily those of the Institute. Inquiries: Postal Address: Institute of Social Studies P.O. Box 29776 2502 LT The Hague The Netherlands Location: Kortenarkade 12 2518 AX The Hague The Netherlands Telephone: +31 70 426 0460 Fax: +31 70 426 0799 i Acknowledgements I am eternally grateful to a lot of people who have helped me get through this learning process. Foremost, I wish to extend my sincerest gratitude to my supervisor, Dr. Des Gasper, whose guidance, encouragement and insights have helped me tread the landscape of frames and discourses. Thank you for generously lending me your books and for introducing me to possible resource persons, particularly, Dr. Hilhorst. On that note, I would also like to thank Dr. Thea Hilhorst, who has graciously met with me and has opened a line of communication that enabled me to raise questions and clarifications about the ever-changing topic of disasters. I would also like to convey my appreciation to my second reader, Dr. Dubravka Zarkov. Thank you for your comments on my draft. This has undoubtedly forced me to rethink, recalculate and narrow down the research I wanted to pursue. Truly, I have learned a lot from you. To Bobby Julian, who has been such a great mentor and friend, nurturing my interest in studying disasters even in my earlier days working in the Senate of the Philippines, and for connecting me with some of my key respondents Yeb Saño of the Climate Change Commission, Cathy Vidar of World Bank, and Babes Supetran of UNDP. To my respondents, who have generously shared their time despite busy schedules and field visits: Usec. Manny Esguerra, Asec. Mon Liboro, Mina Marasigan, Commissioner Yeb Saño, Cathy Vidar, Anne Orquiza, Mr. Kusakabe, Prof. Mel Luna, Babes Supetran, Agnes Palacio, and Malu Cagay. Your insights have greatly enriched my paper. To my colleagues from the Office of Senator Guingona, especially, Levin, thank you for making constant visits to the Senate Records and Archive section when I needed copies of transcripts, speeches and press statements. Lastly, to my family and friends, for always being there, for the overwhelming love and support. We may be in different parts of the world, but your cheers and words of encouragement has been strongly felt. ii Contents List of Maps ....................................................................................................................................................... iv List of Figures .................................................................................................................................................... iv List of Tables ..................................................................................................................................................... iv List of Acronyms ................................................................................................................................................ v Abstract .............................................................................................................................................................. vi Keywords ........................................................................................................................................................... vi Chapter 1 A Land in the Path of Disasters .............................................................................................. 1 1.1 The Problem .......................................................................................................................................... 2 1.2 Objective and Research Questions .................................................................................................... 4 1.3 Brief background on the Philippine disaster profile ....................................................................... 4 1.4 Scope and Limitations ......................................................................................................................... 6 1.5 Justification of the Research ............................................................................................................... 7 1.6 Methodology ......................................................................................................................................... 7 1.7 Organization of the Paper ................................................................................................................... 9 Chapter 2 Understanding the Nature of Disasters and Disaster Governance ........................... 10 2.1 The Nature of Disasters and Vulnerabilities .................................................................................. 10 2.2 Disaster Governance as the Theoretical Framework .................................................................... 12 Chapter 3 Overview of the Disaster Risk Reduction Policy Frameworks in the Philippines 15 3.1 Historical Roots of the DRRM Frameworks in the Philippines ................................................. 15 3.1.1 The Colonial Period (1521 – 1946) ........................................................................................ 15 3.1.2 Post-World War II – 2010 (1947 – 2010) ............................................................................. 17 3.2 Policy in Focus: The National DRRM Act of 2010 (2010) ......................................................... 19 3.3 Institutional Structures that Enable the Hazard Paradigm .......................................................... 22 Chapter 4 Building safer, adaptive and disaster resilient Filipino communities: Framing of the National DRRM policy ................................................................................................... 24 4. 1 Global Frames: The Paradigm Shifts from Emergency Management to Disaster Risk Reduction ............................................................................................................................................. 24 4.2 Local Frames: Framing of the National DRRM Policy ................................................................ 28 4.2.1 Redefining Disasters, Locating Hazards and Vulnerability in the Equation .................. 30 4.2.2 Disaster Risk Reduction as an Overemphasis of Disaster Preparedness and Disaster Prevention and Mitigation? .................................................................................................... 31 Chapter 5 Of Policies, Practice and Politics: Conclusion and Moving Forward ....................... 33 Reference: ....................................................................................................................................................... 6 Annex A ............................................................................................................................................................. 43 iii List of Maps Map 1. A map showing the reported instances of disasters as classified for each disaster sub-group and continent for 2013……………………………………………………………………………. 5 List of Figures Figure 1. Own table of the regional summary of the total number of disasters, victims and damages for 2013…………………………………………………………………………………………… 5 Figure 2. The CEA Organizational Chart………………………………………………………………... 17 Figure 3. The four priority areas as outlined in the National DRRM Framework and in the National DRRM Plan ……………………………………………………………………………………………22 List of Tables Table 1. Summary of the task forces and ad hoc bodies created post-disaster………………..................…21 Table 2. Summary and Timeline of the Disaster Management Organizations in the Philippines…………22 iv List of Acronyms AIPA ASEAN Inter-Parliamentary Assembly ADPC Asian Disaster Preparedness Center CEA Civil Emergency Administration CRED Center for Research on the Epidemiology of Disasters DILG Department of Interior and Local Government DND Department of National Defense DOST Department of Science and Technology DRR Disaster Risk Reduction DRRM Disaster Risk Reduction and Management DSWD Department of Social Welfare and Development EO Executive Order GFDRR Global Facility for Disaster Reduction and Recovery HFA Hyogo Framework for Action IDNDR International Decade for Natural Disaster Reduction ISDR International Strategy for Disaster Risk NCDA National Civil Defense Administration NCDC National Civil Defense Council NDCC National Disaster Coordinating Council NDRRMC National Disaster Risk Reduction and Management Coordinating Council NEC National Emergency Commission NEDA National Economic and Development Authority OCD Office of Civil Defense OPARR Office of the Presidential Assistant for Rehabilitation and Recovery PD Presidential Decree PIDS Philippine Institute for Development Studies PNRC Philippine National Red Cross Project NOAH Nationwide Operational Assessment of Hazards RA Republic Act UNDP United Nations Development