Civil-Military Cooperation in Emergency Relief

Rosalie Arcala Hall, editor

Contents
Disaster in a Conict Area: The Indonesian Militarys Role in the 2004 Tsunami Response in Aceh Province

Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7 Transnational Civil-Military Interface: . . . . . . . . . . . . 9 New Challenges . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9 Disaster Relief and the Changing Roles . . . . . . . . . . . 18 of the Indonesian Military . . . . . . . . . . . . . . . . . . . . . . 18 The TNI on the Ground: Disaster Response in Conict Area . . . . . . . . . . . . . . . 24 Civilian or Military or Both? An Introspection . . . . . 28 References . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31
Civil-Military Cooperation in International Disaster Response: the Japan Self Defense Forces ( JSDF) Deployment in Aceh, Indonesia

Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . The Military in Non-Traditional Roles: Implications . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Overseas Deployment and the Self Defense Forces Reinvention . . . . . . . . . . . . . . . . . . . . . Japan as Sending Country: Framework of Overseas Deployment for Disaster Relief Missions . . . . . . . . . . Indonesia as Receiving Country: Disaster Response Frameworks and the Role of International Actors . . The JSDF in Action at Aceh. . . . . . . . . . . . . . . . . . . . . . International Actors in Aceh. . . . . . . . . . . . . . . . . . . . . Military versus Civilian Roles in Disaster Relief: A Postscript . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Conclusion. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Recommendations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . References . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . (Endnotes) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

34 36 38 40 47 49 52 57 60 63 66 71

The Role of Transnational Society in Tsunami Humanitarian Aid

Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 78 Humanitarian Assistance Following Disasters: The Role of Transnational Societies. . . . . . . . . . . . . . . 81 Disaster and Conict: The Operational Conundrum at Aceh . . . . . . . . . . . . . . . . . . . . . . . . . . . 85 What Legal Framework? . . . . . . . . . . . . . . . . . . . . . . . . 91 Military Presence . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 98 Local Engagements and Public Acceptance . . . . . . . 104 Conclusion. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 108 References . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 111
Responding to Disasters: Framework, Challenges and Prospects for the Philippines

Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . The Philippine Disaster Response Framework . . . . The Military in Disaster Response . . . . . . . . . . . . . . . Challenges and Prospects . . . . . . . . . . . . . . . . . . . . . . Conclusion. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . References . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

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Responding to Disasters: Framework, Challenges and Prospects for the Philippines1*

Raymund Jose G. Quilop Associate Professor of Political Science University of the Philippines Diliman and Senior Analyst of the Ofce of Strategic and Special Studies Armed Forces of the Philippines

Introduction While the Philippine military has come to be known more for prosecuting an insurgency campaign for almost the past four decades, against both the communist insurgents and Muslim secessionists, its role in other areas, particularly in disaster response, has likewise consistently grown and expanded. This is particularly true considering that the Philippines is regularly struck with calamities and disasters, which the government has ofcially dened as a situation usually catastrophic in nature, in which a number of persons are plunged into helplessness and suffering, and as a result may be in need of food, clothing, shelter, medical care and other basic necessities of life (NDCC : 27). Calamities and disasters are often times the result of typhoons and storms that regularly hit the country annually as well as the occasional volcanic eruptions and earthquakes the country experiences.
1 * This essay is a revised version of the discussion paper prepared for Workshop on Civil-Military Cooperation in Emergency Relief in Tokyo, Japan on January 21-22, 2008. The views expressed by the author in this essay are his personal views and do not necessarily reect the ofcial position of the institutions he is afliated with.

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Responding to disasters is actually not something new for the military. Its involvement in disaster response dates back during the Marcos administration with included transporting people from areas struck by calamities and delivering food and medicines (Hall 2004: 115). This role became more pronounced in 199298 with the eruption of Mt. Pinatubo in Central Luzon. As Hall notes, [t]hey built houses, classrooms and clinics in victim relocation areas. They completed the construction of the Mount Pinatubo Megadike and de-silted/dredged rivers congested by lahar ow. They constructed bunkhouses and bathrooms in urban poor resettlement areas. They built schools under the presidents school building program. In the realm of disaster preparedness, the military took the lead in organizing local evacuation systems (Hall, 2004: 118) The government as a whole and the defense department where the AFP is embedded has frameworks and guidelines regarding the militarys involvement in disaster response. In fact, disaster response is ofcially spelled-out as a mission area for the entire Philippine defense establishment, indicating that it is actually considered as a priority area for deployment of forces and allocation of limited resources which the defense department receives from the national government. The six other mission areas are internal security, territorial defense, national development, international defense and security engagement, peacekeeping operations, and command and control. However, much needs to be done if the armed forces were to be more effective in responding to disaster as will be elaborated in the succeeding sections of this essay. Furthermore, how the growing role of the armed forces in responding to disasters impacts on its core competence of managing violence and prosecuting wars need to be examined as well.

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It is in this context where this essay attempts to examine the growing role of military personnel in this specic non-traditional area for militaries to operate in an attempt to esh out where exactly does and should the armed forces t in the overall elaborate disaster response framework of the government. This is particularly important amidst apprehensions that with the growing role of the military in disaster response, not only is its core competence as a military force being sacriced and limited resources being spread too thinly but its inuence in the wider Philippine polity might unnecessarily grow as well. The Philippine Disaster Response Framework The government has a policy framework for as well as a seemingly too elaborate institutional mechanism for responding to calamities and disaster. The policy framework is embodied in Presidential Decree 1566 (Strengthening the Philippine Disaster Control Capability and Establishing the National Program on Community Disaster Preparedness) issued by then President Ferdinand Marcos on June 11, 1978. The decree established the so-called Disaster Coordinating Council system as the Philippines institutional mechanism for responding to disasters and calamities. Through this system, disaster coordinating bodies are established at all levels of government in the Philippines, from the national to the barangay (village/ community) level, to facilitate coordination among the various government agencies and between the government and non-government organizations that are involved in responding to disasters and calamities. Apparently, through this system, the Philippines is able to utilize all available means for disaster response which

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are ordinarily used for military and police missions, public service or commercial purposes (Capistrano: 2). At the highest level, the national disaster coordinating council (NDCC) is composed of the defense secretary as chairman, with the secretaries of public works, transportation and communication, social welfare and development, agriculture, education, nance, labor and employment, justice, trade and industry, interior and local government, health, environment and natural resources, and budget as members. The Chief of Staff of the Armed Forces of the Philippines, the administrator of the Ofce of Civil Defense (OCD), which incidentally is another bureau within the defense department, and the Secretary-General of the Philippine National Red Cross are also members. The NDCC is actually the highest policy making, coordinating and supervising body regarding disaster management. It could recommend to the President whether a state of calamity in certain areas struck by disaster or calamity including the entire Philippines need to be declared. The declaration is crucial as it enables the national government to release the so-called National Calamity Fund to support disaster response operationsrelated activities. The decree species that the Ofce of Civil Defense within the defense department provides secretariat services to the national disaster coordinating council. More importantly, it is responsible for coordinating the activities and functions of the various agencies [of the government] and private institutions and civic organizations in implementing policies drawn by the NDCC as regards disaster management. It is also tasked to prepare and disseminate disaster control manuals and other publications pertaining to disaster prevention, control and mitigation. As such, the OCD

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is actually the operating arm of the NDCC. Below the NDCC, the various DCCs are given the responsibility to establish their respective operating facilities or disaster operations centers. Considering that the region is not actually a political subdivision but merely an administrative one, it is the regional police director that serves as the chairman of the DCC at this level, with the executives of the regional ofces and eld stations of the different line agencies of the government serving as members. At the provincial, city/municipal and barangay level, the elected local chief executives namely the provincial governor, city/municipal mayor and barangay chairman serve as chairmen, respectively, of their respective DCCs. The chief of police in these local government units serve as vice-chairman and the action ofcer. Ofcials and ofcers of national government agencies assigned in these areas including the local ofcials themselves serve as members. A set of implementing rules and regulations was subsequently issued by then Defense Minister Juan Ponce Enrile who was also the chairman of the National Disaster Coordinating Council. The IRR denes the responsibility of every agency, ofce or entity in relation to disaster response. It also establishes the procedures and guidelines for inter-agency coordination and dissemination of information before, during or after a disaster/calamity. What is more important though is the fact that the IRR enumerates the various disaster management activities that will be undertaken in the various phases of disaster management namely: predisaster phase, emergency phase and post-emergency phase.

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Activities undertaken under the rst phase include planning for disasters, drills, public information drive, stockpiling of basic materials, organizing and training programs, and communication and warning activities. In the emergency phase, the crucial services that must be made available include the following: rescue and engineering, evacuation of affected people, rst-aid and medical services, disaster relief services, police auxiliary service, auxiliary re service, emergency transportation services, and assessment of resulting damage. In the post-emergency phase, data must be cross-checked, requirements for rehabilitation have to be determined and the availability of labor to restore, repair and construct damaged infrastructures must be ensured. Consequently, a Calamities and Disaster Preparedness Plan was prepared, the latest version having been issued in August 1988. The plans primary objective is to ensure effective and efcient implementation of civil protection program through an integrated, multisectoral and community based approach and strategies for the protection and preservation of life, property and environment. The plan details the specic tasks and functions of the various agencies involved in the council as well as those of the various tiers of the council. The Philippine disaster response framework involves four phases namely mitigation, preparedness, response and rehabilitation. According to the NDCC, the mitigation phase pertains to implementing measures to minimize the impact of disaster or calamity in terms of casualties and damage to properties. These include insurance coverage of properties, implementation of safety regulations, land use and zoning, building and re codes, among others. The preparedness phase involves pre-disaster actions that would minimize the loss of lives and properties such as formulating contingency plans,

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informing the public adequately, educating and training individuals involved in disaster response. In the event that a disaster or calamity strikes, response becomes crucial. This refers to the concerted effort by two or more agencies, public or private to provide emergency assistance or relief to persons affected by the disaster or calamity. Finally, rehabilitation of the affected area needs to be undertaken. This refers to the process of restoring to a normal condition the public infrastructures damaged by the disaster or calamity. The Military in Disaster Response The Calamities and Disaster Preparedness Plan of 1988 spells out the following specic tasks for the armed forces: (1) organization of reaction teams in all military installations, (2) establishment of communication linkages and their availability for disaster operations, (3) assistance to the national police in securing disaster areas, (4) assistance in the reconstruction of damaged national and local roads and/or bridges, structures and facilities, and (5) assistance in providing transportation facilities for the quick movement of relief supplies and personnel as well as the evacuation of victims of disasters. In 1990, the Department of National Defense and the Armed Forces of the Philippines came up with a Crisis Management Manual. This manual prescribes the concept, policies and procedures to equip military commanders with a basic understanding of crisis management and to guide their actions during crises. While the manual acknowledges two types of crises namely man-made and natural, it focuses more on manmade emergencies, specically as regards crises created by insurgent and terrorist groups.

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Nonetheless, the crisis management procedures Nonetheless, the crisis management procedures spelled out in the manual is also applicable in handling spelled out in the manual is also details applicable in handling natural calamities. The manual what ought to natural The manual details a what ought to be done calamities. in various phases of managing crisis namely be done in various phases of managing a crisis the proactive and reactive phases. These two namely phases the proactive and reactive phases. two namely phases involve what the government calls theThese 4-P Model involve what the government calls the 4-P Model namely prediction, prevention and preparation for the proactive prediction, prevention and for the proactive phase and performance for preparation the reactive phase. phase and performance for the reactive phase. What is interesting to note here is that another is interesting interesting note here is is toto note here is that another syssystemWhat for handing crises is actually tothat be another utilized system for is actually to -beaccording utilized tem for handling is actually to be utilized according tohanding the crises crisis crises management manual the Peace according to the crisis management manual --and the Order Peace and Order Council. These councils established along to the crisis management manual -- are the Peace and Order Council. These councils are namely established along the various levels of are government, national, Council. These councils established along the various the various levels ofnamely government, namely national, provincial, city/municipal and barangay. The composition levels of government, national, provincial, city/ provincial, city/municipal and barangay. The composition is the same as that of the disaster coordinating council. municipal and barangay. The composition is the same as is the as of the a disaster coordinating council. In addition to that thecoordinating POC, Special Actions Committee that ofsame the disaster council. In addition to the In addition thehas POC, a been Special Actions Committee (SAC) all to tiers also constituted. The SACs POC, a at Special Actions Committee (SAC) at all tiers has also (SAC) at all tiers has also been constituted. The SACs are supposed toThe take decisive action emergency been constituted. SACs are supposed toin take decisive are supposed to take decisive action in emergency situations. action in emergency situations. situations. In accordance with PD 1566 and the Calamities In accordance with PD 1566 and the and Disasters Preparedness Plan, theCalamities General and Disasters Preparedness Plan, the Standard General Headquarters of the AFP published in 1995 Headquarters of the AFP published in 1995 Standard Operating Procedure (SOP) No. 15, which created the Operating Procedure (SOP) 15, which createdisthe AFP Disaster Response Task No. Force whose mission to AFP Disaster Response Task Force whose mission to assist the NDCC in conducting search, rescue, reliefis and assist the NDCC in conducting search, rescue, and rehabilitation operations. It is this task force thatrelief provides rehabilitation operations. It is this task that response provides general direction and control over allforce disaster general direction and control over all disaster response operations of the AFP. operations of the AFP. Correspondingly, the Army, Navy and Air Force Correspondingly, the Army, Navy and Air Force have created their respective Disaster Response Task have created theirThe respective Response Groups (DRTGs). Unied Disaster Commands (those Task that Groups the (DRTGs). Unied Commands (those that employ variousThe forces coming from the Army, Navy employ various from the Army, Navy and Airthe Force) alsoforces have coming their corresponding DRTGs. and Air Force) also have their DRTGs. In addition, they have put up corresponding Disaster Coordinating In addition, they have put up Disaster Coordinating

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Centers, which are collocated with the Regional Disaster Coordinating Councils. The DCC automatically serves as the AFPs Advance Command Post (ACP) in areas struck by calamities or disasters. Depending on where a calamity or disaster strikes, the armed forces division/ brigade or battalion is expected to respond. Of course, the corresponding air force and navy units in the said area, if available, are also expected to respond. The functions of the DRTF are actually those enumerated in Calamities and Disaster Preparedness Plan but with the added function of providing medical assistance to victims of calamities and disasters. This function is performed by the AFP Reserve Commands Technical Service Battalion composed of doctors, nurses and medical aidmen. The Vice Chief of Staff of the armed forces serves as the Task Force commander and therefore exercises command and control over it. Next in command is the Deputy Chief of Staff for Operations, who exercises functional supervision over the task force. The assistant deputy chief of staff for logistics heads the administrative and resources section, the assistant deputy chief of staff for civil-military operations heads the disaster monitoring and public affairs section, and the Chief of the AFPs Command Center serves as the head of the task forces plans and operations section. In addition to the regular force of the AFP, reservist units are also utilized during calamities and disasters. These include the Ready Reserve (15th ID) and Regional Community Defense Group of the Army and the Reserve Centers of both the Air Force and Navy. With disaster response being one of the seven mission areas for the Philippine military, it is also

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instructive to look at the resources allocated; specically those that relate to what are mode of operating expenditures (MOE) for this concern. For the year 2008 and in terms of the PHP 9 billion allotted for the six mission areas, excluding force level command and control, disaster response received PHP 157 million, making it rank number 4 out of the 6 mission areas. Of course, what has been allocated is still small compared to internal security operations, which received the biggest (PHP 7.8 billion). This is followed by support to national development (PHP 496 million) and territorial defense (PHP 300 million). Humanitarian assistance got the smallest (PHP 7.3 million). The nature of insurgencies, which necessitate winning the hearts and minds of the populace, explains why support to national development gets the second biggest allocation after internal security operations. These are the resources utilized by the military in undertaking community projects that are intended to bring people closer to the government. Challenges and Prospects The Philippines indeed has an elaborate framework compared to other countries in responding to disasters. But even with this response framework, the assistance of other countries when calamities and disasters strike is still necessary, particularly because of the increasing magnitude of disasters. Timely assistance and effective response from other countries is of course greatly facilitated if a regional response framework Developing such framework is difcult, difcult, as the exists. Developing such a framework ndings of seminar-workshops hosted by ndings of two twolandmark landmark seminar-workshops hosted the Philippines in 1999 and in 2002 and which were named by the Philippines in 1999 and in 2002 and which were SAGIP (the Filipino word for rescue).

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99, as it was called, brought together partici namedSagip SAGIP (the Filipino word for rescue) Sagip 99, as pants the Philippines, the US and Australia, primarily it wasfrom called. to exchange information on the disaster relief structures of named SAGIP (the Filipino word for rescue) Sagip 99, as the three countries including the role of defense authorities Brought together participants from the Philippines, it the UScalled. and Australia, primarily to exchange information inwas responding to disasters. on the disaster relief structures of the three countries Brought together participants from the Philippines, including the role of defense authorities in responding to the US and Australia, primarily to exchange information disasters. It was also meant to enhance cooperation among on disaster relief structures of the three relief. countries the the three states as regards delivering disaster The including the role of defense authorities in responding to main purpose of the exercise was to develop common disasters. It was also meant to enhance cooperation among procedures for cooperative disaster relief operations in the the three states as regards delivering disaster relief. The event of a major disaster as a means to enhance regional main purpose of the exercise was to develop common defense relationship. Unfortunately, the desired set of procedures for cooperative disaster relief operations in the common procedures was not developed. event of a major disaster as a means to enhance regional defense Unfortunately, thecountries desired set of Inrelationship. 2002, the pool of involved was common procedures was notThese developed. expanded to twelve (12). included Australia,

Bangladesh, Cambodia, Indonesia, Japan, Malaysia, In 2002, pool of countries was Mongolia, New the Zealand, theinvolved Philippines, Singapore, expanded to twelve (12). These included Australia, Switzerland and Thailand. The 2002 Sagip attempted Bangladesh, Cambodia, Indonesia, Japan,for Malaysia, to further develop a common framework disaster Mongolia, New Zealand, the Philippines, Singapore, response, including management, infrastructure and Switzerland and Thailand. The multinational 2002 Sagip attempted procedure to enhance coordinated response to further develop a common framework for linkages disaster to disasters. It was also meant to identify response, including management, and among national response agencies, infrastructure regional warning procedure to enhance coordinated multinational response centers and multinational disaster responders. This to disasters. It wasinvolved also meant to identify linkages meant that what were were no longer simply the among national response agencies, regional warning defense forces of the participating states but their civilian centers disaster should responders. This agenciesand andmultinational thus, the framework also provide meant that what were involved were no longer simply the for mechanisms where these agencies could effectively defense forces ofactions the participating states but their civilian coordinate their with military and defense forces agencies and thus, the framework should also provide in responding to disasters. The objective of Sagip 2002 was for mechanisms where these agencies couldprocedures effectively to develop a set of policy recommendations, coordinate their actions with military and defense forces and mechanisms for implementing a regional framework in responding tomulti-national disasters. The objective of Sagip was for enhancing cooperation in 2002 disaster to develop a set of policy recommendations, procedures response. But again, the procedures and mechanisms for and mechanisms for implementing afor regional framework implementing a regional framework disaster response for enhancing multi-national cooperation in disaster remain to be developed. response. But again, the procedures and mechanisms for implementing a regional framework for disaster response remain to be developed.

in responding to disasters. The objective of Sagip 2002 was to develop a set of policy recommendations, procedures Civil-Military Cooperation in Emergency Relief and mechanisms for implementing a regional framework for enhancing multi-national cooperation in disaster response. But again, the procedures and mechanisms for A positive development to date is the existence implementing a regional framework for disaster response of the ASEAN Agreement on Disaster Management remain to be developed. and Emergency Response (AADMER) and the ASEAN Standby Arrangements and toStandard A positive development date is theOperating existence Procedures for disaster management operations. What of the ASEAN Agreement on Disaster Management needs to be doneResponse is how to (AADMER) translate these arrangements and Emergency and the ASEAN into a mechanism that would allow for a coordinated Standby Arrangements and Standard Operating action from disaster response agencies of the various What AsiaProcedures for disaster management operations. Pacic states. Theis Oslo Guidelines on the Use of Military needs to be done how to translate these arrangements and Civil Defense Assets in the Disaster Relief could serve into a mechanism that would allow for a coordinated as a takeoff point for developing a regional framework. action from disaster response agencies of the various AsiaBut it must be noted that these set of guidelines merely Pacic states. The Oslo Guidelines on the Use of Military establishes a framework for formalizing andcould improving and Civil Defense Assets in the Disaster Relief serve the efciency of the use framework. of military as a effectiveness takeoff point and for developing a regional teams and be expertise in international disaster merely relief. But it must noted that these set of guidelines More effective disaster response needs the involvement establishes a framework for formalizing and improving of other agencies of government, as will be further the effectiveness and efciency of the use of military elaborated below. teams and expertise in international disaster relief. More effective disaster response needs the involvement The difcultyof of developing a common of other agencies government, as will framework be further and once below. available, developing the corresponding elaborated regional infrastructure was already apparent in Sagip 1999 involving onlyof 3developing states. The attempt to develop The difculty a common framework one doubly difcult in Sagipthe 2002corresponding with 12 states and became once available, developing taking part. regional infrastructure was already apparent in Sagip

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1999 involving only 3 states. The attempt to develop In fact, this difcult is the in same observation in the one became doubly Sagip 2002 with 12 states recently concluded ASEAN Regional Forum Voluntary taking part. Demonstration of Response. Held in Manila in 2009 and co-hosted thethis Philippines the observation US, 14 states around In by fact, is the and same in the the Asia-Pacic including theRegional European UnionVoluntary took part. recently concluded ASEAN Forum Eight other Asian were observers. exercise Demonstration of countries Response. Held in ManilaThe in 2009 and showed that while some Asia-Pacic states (including co-hosted by the Philippines and the US, 14 states around the Philippines)including have the the framework for responding to the Asia-Pacic European Union took part. disasters with a few having a demonstrated capability to Eight other Asian countries were observers. The exercise address others dont. states More interesting showed disasters, that while somesimply Asia-Pacic (including is the fact that a regional infrastructure for responding the Philippines) have the framework for responding to disasters with a few having a demonstrated capability to address disasters, others simply dont. More interesting is the fact that a regional infrastructure for responding

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co-hosted by the Philippines and the US, 14 states around the Asia-Pacic including the European Union took part. Civil-Military Cooperation in Emergency Eight other Asian countries were Relief observers. The exercise showed that while some Asia-Pacic states (including thedisasters Philippines) have the framework forthose responding to to is still to be developed. For countries disasters with a few having a demonstrated capability to with the capacity to respond to disasters, their internal address disasters, others simply dont. More interesting mechanisms are already well-developed. But external is the fact that a regional infrastructure responding mechanisms to nd synergy among for such internal to disasters is still toin be developed. For those countries mechanisms are still various stages of development. with the meantime capacity to that respond to disasters, their internal In the a regional framework and mechanisms are already well-developed. But external infrastructure is being eshed out, what could be done mechanisms to how ndforeign synergy among such internal is to determine partners could practically mechanismswith are still in Philippines various stages of development. coordinate the and dovetail their In the meantime that disasters a regional framework and presence in cases where or natural calamities infrastructure is being what could be done hit the Philippines and eshed foreign out, assistance is solicited by is to determine how foreign partners could practically the Philippine government. coordinate with the Philippines and dovetail their presence in cases of where disasters or course, natural important, calamities Timeliness response is, of hit the Philippines and foreign is solicited by with the rst 72 hours, being theassistance most crucial. Medicines, the Philippine food, drinking government. water, rescue equipment need to be made available and a communications structure need to be setTimeliness oftime response course, important, up within the said frame is, in of order to increase the with the of rst 72 hours, being persons. the most crucial. Medicines, chances rescuing affected food, drinking water, rescue equipment need to be made available and a communications structure need to be setUsually, the foreign ministries of other states up within the said time frame in order to increase the offer assistance to the Philippines through the countrys chances of rescuing affected persons. Department of Foreign Affairs. The DFA then conveys the offer to the NDCC and the NDCC makes the assessment the foreign ministries of other states as to Usually, what specic assistance is needed. Although offer assistance tothe thePhilippine Philippines through the countrys coursed through Department of Foreign Department of Foreign Affairs. The DFA then conveys the Affairs, the primary channel whereby foreign partners offer to theassistance NDCC and makes the assessment providing tothe theNDCC Philippine personnel during as to of what specic assistance is needed. Although times natural disasters and calamities remain to be the coursed through the Philippine Department of Foreign disaster coordinating council system. The strategy, of Affairs,varies the primary channel whereby partners course, with each country. For the foreign US, for example, providing assistance to the Philippine personnel during the practice is to send a so-called Disaster Assessment times of natural disasters and calamities remain to be the Team composed of 2-3 members who coordinate with disaster coordinating council system. strategy, of the NDCC in determining what specic The assistance could course, varies with each country. For the US, for example, be extended. the practice is to send a so-called Disaster Assessment Team composed of 2-3 members who coordinate with the NDCC in determining what specic assistance could be extended.

disaster coordinating council system. The strategy, of course, varies with each country. For the US, for example, Civil-Military Cooperation in Emergency Relief the practice is to send a so-called Disaster Assessment Team composed of 2-3 members who coordinate with How to facilitate coordination among the various the NDCC in determining what specic assistance could disaster relief agencies and forces both at the planning be extended. and operational, i.e. deployment, levels consequently is How to facilitate coordination among the various another central issue. Yet, the process for coordinating disaster relief agencies and forces at the the execution of certain tasks both related to planning disaster and operational, i.e. deployment, levels consequently is relief operations is complex and often unclear. It was another central issue. Yet, the process for coordinating acknowledged that in order for foreign partners to the execution of certain tasks related to disaster effectively provide assistance to the Philippines, it is relief operations is complex and often unclear. It was necessary that they be informed of the command structure acknowledged that operations, in order forwhich foreign partners to for disaster-relief unfortunately effectively provide assistance to the also Philippines, it be is is relatively complex. The structure needs to necessary that they be informed of the command structure simplied. for disaster-relief operations, which unfortunately is relatively complex. The structure also needs to be It is also enlightening to note that while disaster simplied. response is often primarily undertaken by civilian agencies of governments, coordination among militaries It is also enlightening to note while because disaster appears relatively easier. This is that probably response is often undertaken bythe civilian militaries across theprimarily region practically have same agencies of governments, coordination among militaries command structure. Besides, each of these military forces appears relatively easier. This is probably because is practically familiar with how other military forces are militaries across the region practically have the same structured and how they operate. command structure. Besides, each of these military forces is practically familiar with how other military forces are In this regard, the Philippine armed forces, structured and how they operate. for example, recognized that there is a need for closer

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dialogue and consultation between the Philippine Inand this regard, the Philippine armed forces, military their foreign partners and for an enhanced for example, recognized that there is a need for closer liaison mechanism between Filipino and foreign military dialogue and consultation between is the Philippine commanders. What was also recognized the usefulness military and their foreign partners and for an enhanced of having the Philippine military serve as the focal point liaison mechanism between Filipino and foreign military of coordination between foreign military personnel and commanders. What was also recognized is the usefulness local civilian authorities. of having the Philippine military serve as the focal point of coordination between foreign military personnel and It is in this context that military to military local civilian authorities. cooperation between the Armed Forces of the

Philippines and other armed forces, specically the US is increasingly in this context that military to response military forces, Ithas considered disaster cooperation between the Armed Forces the together with humanitarian assistance as one keyof area of Philippines and other armed forces, specically the US forces, has increasingly considered disaster response together with humanitarian assistance as one key area of

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to military cooperation between the Armed Forces of the cooperation.and Theother recently created Security Engagement Philippines armed forces, specically the US Board composed of Philippine and US militaryresponse ofcials, forces, has increasingly considered disaster which focuses on Philippine-US cooperation in nontogether with humanitarian assistance as one key area of traditional security issues created has formulated concept of cooperation. The recently Security a Engagement joint operations for disaster response that eshes out the Board composed of Philippine and US military ofcials, mechanics of how US could provide assistance the which focuses onthe Philippine-US cooperation in to nonPhilippines during disasters and calamities.a concept of traditional security issues has formulated joint operations for disaster response that eshes out the The of concept involves the establishment of to what mechanics how the US could provide assistance the are called Combined Coordination Centers. Composed Philippines during disasters and calamities. mainly of military personnel, the CCC covers issues pertaining to operations, civil-military operations and The concept involves the establishment of what communication, transportation, mobility and manpower. are called Combined Coordination Centers. Composed While civilian agenciesthe could be mainly other of military personnel, CCC eventually covers issues pertainingin to operations, operations, CMO civil-military operations and involved and communications, communication, transportation, mobility concerned and manpower. military personnel would be primarily with While other civilian agencies could eventually be troop mobility and provision of the manpower required involved in action. operations, and communications, for effective If the CMO area struck by a calamity or military personnel would primarily concerned disaster happens to be abe conict zone betweenwith the troop mobility and provision of the manpower required military and domestic insurgents, AFP personnel would fortasked effective action. If the area struck a calamity or be of ensuring peace and order inby support of police disaster happens to be a conict zone between the operations as well as force protection for both local and militarymilitary and domestic insurgents, AFP personnel would foreign personnel. be tasked of ensuring peace and order in support of police operations well as 2008 force Balikatan protectionExercises for both local and The as February between foreign military personnel. Philippine and US troops also focused on humanitarian assistance and disaster response. Specically, the Thedeveloped February 2008 Balikatan Exercises between exercises a concept for the formation and Philippine and US troops also focused on humanitarian employment of a joint task force (JTF) to command and assistance disaster response. Speci cally, and the control jointand operations in humanitarian assistance exercises developed a concept for the formation and disaster response; examined how to establish, organize, employment of a joint task force (JTF)force; to command and and operationalize the joint task established control joint operations in humanitarian assistance and command and control relationships between JTF and disaster response; examined how to establish, organize, other agencies; and enhanced interoperability with other and operationalize the joint task force; established agencies and US JTF among others. command and control relationships between JTF and other agencies; and enhanced interoperability with other agencies and US JTF among others.

Civil-Military Cooperation in Emergency Relief It is in this context that military

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The prospect for foreign partners effectively interfacing with the Philippines in responding to disasters could be greatly enhanced if the Philippines unilateral capability for disaster response is enhanced. Along this line, the Philippines needs to go beyond merely relying on the services of the armed forces in times of disasters and instead improve the capability of its Ofce of Civil Defense (OCD), which incidentally is another agency within the Philippines defense department and which is mandated to coordinate on the national level, the activities and functions of various agencies and instrumentalities of the national government and private institutions and civic organizations developed to public welfare so that the facilities and resources of the entire nation may be utilized to the maximum extent for the protection of the civilian populace and preservation of property during times of war and other national emergencies of equally grave character (Ofce of Civil Defense). However, with the Philippines not having been engaged in war, specically against a foreign aggressor although it has been ghting an insurgency war, the OCD has evolved to focus more on the other national emergencies of equally grave character. These are the disasters and calamities that regularly hit the Philippines. In the Calamities and Disaster Preparedness Plan of 1988, the OCD is specically tasked to perform the following functions, to wit: 1. make available the National Disaster Management Center for use by the National Disaster Coordinating Council during disaster operations and during conferences of the NDCC Technical Working Group;

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2. spearhead, in coordination with the Department of Interior and Local Government, the organization of Disaster Coordinating Councils and with the other departments/ agencies in the organization of Disaster Control Groups or Action Teams 3. develop and prepare programs of instruction/ training modules for disaster preparedness training of disaster council and disaster control group members in coordination with the Department of Social Welfare and Development and the Department of Interior and Local Government 4. develop and prepare training programs and train the organic trainers of those departments/agencies tasked with the organization of disaster coordinating councils, disaster control groups or reaction teams. In fact, the OCD is actually the operations center of the NDCC with the OCDs administrator serving as the executive ofcer of the council and interestingly is the only bureau within the defense department, aside from the Armed Forces of the Philippines, which has ofces at the regional level. Efforts to enhance the capacity of the OCD have commenced but much more needs to be done. The increasing frequency and magnitude of disasters affecting the Philippines and the region makes it imperative that the disaster response capacity of the ofce be prioritized. The OCD needs to work closely with local government units and local ofcials, who are actually the rst responders in times of disaster. Furthermore, the OCD also needs to work closely with military commanders and troops in the eld as they, together

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with the local ofcials, are also usually the rst to be on the site of disasters. Beyond working closely with local executives and the military, the OCD also needs to strengthen its linkages with both domestic and foreign response-related organizations. Non-governmental organizations, organized reserves as well as other private institutions also need to interface with the OCD for an effective and efcient response to disasters. Conclusion The disaster coordinating council (DCC) framework from which disaster response proceeds assigns a limited and ancillary role to the military. The DCC is civilian agencies dominated and led. The armed forces is represented in the national coordinating body, but its presence is not axiomatic in the local DCCs. It must be noted that while the defense secretary chairs the national tier of the DCC, the lower-level tiers are headed by local chief executives with the corresponding chiefs of police serving as vice-chairmen. The AFPs role specied in the Calamities and Disasters Preparedness Plan is limited to establishing communications linkages, providing assistance to the police in handling security of the affected area, reconstruction of roads and similar infrastructure and providing transport support for aid distribution and evacuation of victims. The Philippine disaster response framework is also congured for small-scale natural disasters, which the country experiences with regularity (typhoons, ooding, landslides). In this type of disaster, it is assumed that the civilian government apparatus in the affected area remains operational, and therefore able to coordinate responses under the DCC framework.

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Nonetheless, the AFPs organization of a DRTF indicates that the armed forces takes its role in disaster response seriously. While disaster relief may have the least mature structures and guidelines in conducting operations relative to its other mission areas such as internal security operations, territorial defense, international defense and security engagement, national development, the structure and the concept of operations for disaster response exist. What needs to be done is for these structures and processes to be rened and of course, simplied, to facilitate the entry of civilian bodies in disaster operations, particularly foreign partners, if necessary. The good thing is that there exist frameworks for the armed forces participation in these so-called operations other than war, although they need to be further rened, particularly in consideration of the involvement of foreign forces. But, as previously pointed out, it is equally necessary that the capacity to respond to disasters of the Ofce of Civil Defense, which is civilian staffed although another agency within the defense establishment, needs to be enhanced. This is to enable the Philippine to respond to disasters without relying too much on the armed forces. The involvement of the armed forces in responding to disasters in something expected and actually something the wider public would welcome. It is indicative of the realization within government that the role of its armed forces is no longer solely conned with prosecuting military operations in times of conict whether internal or with other countries. But overly relying on the military to respond to disasters not only diverts limited resources away from the thrust to enhance the armed forces own capability to perform its primary mandate of addressing armed challenges to the nations

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and peoples security. More disturbing is the possibility of having the military playing a dominant, although hopefully not a domineering role, in other affairs of the country, affairs which are better left to civilian agencies of the government.

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References
AFP Calamities and Disaster Preparedness Plan. 1995. Hall, Rosalie Arcala Exploring New Roles for the Philippine Military:Implications for Civilian Supremacy, Philippine Political Science Journal Vol 25 No. 48 (2004) : 107-130. Capistrano, Melgabal. Natural Disaster Reduction: National Response and International Cooperation. Paper presented at the 3rd International Working Group Seminar and Exercise on Multilateral Disaster Response and Humanitarian Assistance held at the Mandarin Oriental Hotel, Makati City, Philippines on July 22-26, 2002. Department of National Defense. Defense Transforming Defense through Reforms. 2007. Policy:

Department of National Defense. Strategic Defense and Security Outlook: The Emerging Defense and the Future Defense Security Environment. 2007. Department of National Defense. The Defense Department: Declaration of National Policies, Mandate, Mission, Strategic Goals and Structures. 2007. Heyman, Amelie and Victoria, Lauerel. Citizenry-Based Development-Oriented Disaster Response. Quezon City: Center for Disaster Response, 2001. Interview with Colonel Rafael Valencia, Ofce of the Deputy Chief of Staff for Operations, Armed Forces of the Philippines on January 16, 2008. National Disaster Coordinating Council. Building Emergency Evacuation Plan. (undated). National Disaster Coordinating Council. Calamities and Disaster Preparedness Plan. 1988.

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National Disaster Coordinating Council. Primer on the Philippine Disaster Management System. (undated) National Disaster Coordinating Council and the UN Refugee Agency. Contingency Planning for Emergencies: A Manual for Local Government Units. 2003. Ofce of the Deputy Chief of Staff for Plans, Armed Forces of the Philippines. After Conference Report on Sagip 1999 (Seminar-Workshop on Disaster Response and Humanitarian Assistance) held at Camp Emilio Aguinaldo, Quezon City on February 17-19, 1999. Presidential Decree No. 1566. Strengthening the Philippine Disaster Control Capability and Establishing the National Program on Community Disaster Preparedness. 1978 Quilop, Raymund Jose G. Globalization, Democracy and the Philippine Military. Quezon City: Ofce of Strategic and Special Studies, Armed Forces of the Philippines. 2005. ________. Latest Balikatan Exercise Focuses on Disaster Relief Operations, Janes Defense Weekly, February 27, 2008 found @ www.janes.com Rules and Regulations Implementing the Provisions of Presidential Decree No. 1566. Strengthening the Philippine Disaster Control Capability and Establishing the National Program on Community Disaster Preparedness.