Disaster Risk Reduction Management: The Model of Albay

Disaster preparedness in the Philippines has become a necessity as it faces an average of

eight to ten typhoons a year, and financial costs reaching $ 1 billion per disaster (Brown 2013).
A leading example would be the case of the province of Albay which is even referred to as a
"Vatican of Disasters of the Philippines" (Fernandez 2016).
Being located in the eastern seaboard of the country, Albay is vulnerable to the effects of
the Pacific Jinx (Espinas 2013). Geologic hazards such as earthquakes and volcanic hazards and
hydrometeorologic hazards such as typhoons, flood, lahar and mudflow abound in the province.
In fact, in the past until the late 80s, the province used to experience frequent weather
disturbances, sometimes experiencing as much as 18 typhoons in one year (GOVPH n.d.).
However, regardless of such susceptibility to disasters, it has been known for its resilience when
it comes to disasters. In fact, Albay received recognition from the Guangzhou International
Awards for Urban Innovation through its approach of Zero Casualty policy toward natural
disasters. It has become a global model for coastal countries of modest means.
The framework, like any other models, underwent development to become an exemplary
one. Before, Albay had an after-the-fact-disaster response. As a matter of fact, disaster-related
activities for agencies have been considered as ad-hoc rather than their main functions. It was
only in 1998 when the province adopted community-based disaster preparedness methodologies
and responsive activities in order to lessen the casualties and havoc that natural disasters brought
about. International Decade for Natural Disaster Reduction (IDNR) has introduced a paradigm
shift from disaster response to disaster risk reduction that is, the realization that loss and
damage from disasters can be prevented or minimized if people and governments are prepared,
well-informed, and have the capacity to bounce back after a disaster strikes. (Romero 2008).
Initially, there were three measures that the government took in order to better cope with
calamities (Espinas 2013). First was the institutional set-up and disaster management education.
Primarily, the Albay Public Safety and Emergency Management Office (APSEMO), a permanent
disaster risk management office (DRMO) was established. Through it, the roles of PDCC
members before, during and after the impact of the calamity were delineated, and
communication between the involved sectors such as the local government units and non-
government organization was better facilitated (Espinas 2013). APSEMO also takes pride in the
development and standardization of an operations manual regarding the different phases of
disaster which was already adopted by the PDRRMC. Moreover, another project office that was
put up in the province was the Albay Millennium Development Goals Office (ADMGO) whose
primary function is to oversee the implementation of the millennium development goals (MDG)
whilst coordinating the MDG programs with the government agencies and other partners. While
the APSEMO coordinates disaster response efforts, the AMDGO coordinates disaster recovery
efforts through a cluster approach(Espinas 2013). Aside from such institutional set-ups, there is
also the disaster management education. As the participation of stakeholders were called for, the
Bicol University, the regional state and research university,became one of the primary movers
in mainstreaming DRR and CCA in the school curricula (Espinas 2013).
Second, disaster operation centres, equipment and facilities were established. A budget
apportioned for calamities is readily maintained In fact, the province has mobility assets, such
as ambulances, rubber boats, passenger trucks, helicopters, and fire trucks that could evacuate
160,000 people per day if needed(Salceda n.d.). There are also several protocols that are well
established such as evacuation protocols.
Lastly, the government launched income-generating projects to encourage volunteers for
the disaster management strategies.
Afterwhich, the province adopted a framework which is composed of four elements
namely (1) disaster risk reduction; (2) environmental protection; (3) development planning and
strategies; and (4) geo-strategic integration approach (Espinas 2013).
Disaster risk reduction includes strategies such as disaster preparedness, disaster
response, preemptive evacuation, and building-back-better. A collaboration with different
warning agencies such as PHIVOLCS, PAGASA and PDRRMC has provided the province
emergency protocols, community-based warning system, risk mapping and emergency research
among others. The province has adopted measures such as demand-driven relief operations,
rescue and retrieval and others. Moreover, the adoption of the building-back-better strategy was
seen as a way of incorporating relocation of settlements with the construction of better
infrastructure that lessen the communities vulnerability to disasters (Salceda 2008).
. To achieve zero casualty, the province prioritized preemptive evacuation (See Appendix 1).
Before, evacuation only happened when the signal number 3 is raised by PAGASA. However,
preemptive evacuation dictates that evacuation be based on the gravity and proximity of risks
regardless of being declared as only signal number 1 or 2.
For environmental protection, there was extensive support in terms of investments and
regulation to create a sustainable environment. Several interventions have been applied such as
the Integrated Ecosystems Enhancement, which focused on strict protection of ecosystems.
Another is engineering intervention that which emphasizes effective infrastructure to mitigate
damage in lives and properties in the face of disasters. In fact, Albay, in partnership with
DENR, has pursued a true-to-form reforestation initiative that increased its forest cover by 88
percent in seven years from 26,298.71 in 2003 to 44, 891.16 in 2010(The Philippine Star 2014).
This resulted to the quadrupling of mangrove forests from 700 to 2,400 hectares from 2009 to
2013 (The Philippine Star 2014).
Development planning and strategies are mainly focused on appropriate mapping and
zoning to avoid catastrophic occurrences, to optimize land resources, and to identify
development opportunities. The province adopted a Comprehensive Land Use Plan (CLUP), a
computer modelling system which will help in climate predictions. Furthermore, risk mapping
was used to project hazards and risks of certain geographic areas (Salceda n.d.).
The last element, geo-strategic approach, involves a creation of a new suburban economic
platform where economic activities would be safe from threats of geologic or hydrometreologic
hazards. The GUICADALE Economic Platform, which includes three municipalities and a city
namely Guinobatan, Camalig, Daraga and Legazpi City, all of which are located in an upland
area, targets the creation of a new suburban sprawl in the province.Such aims to to encourage
economic activities to be located safe from the threats of the Mayon volcano eruptions, lahar
flow, flooding, tsunami and thus be free from risks brought about by aforesaid disasters
(Espinas 2013). Furthermore, the government redirected the centers of business and residential
activities from hazard-prone areas towards safer locations. Also included in the said strategy is
the relocation of more than 10,000 households in high-risk areas, the ongoing building of an
international airport, road networks, and a new government center (Salceda n.d.).
Indeed, natural disasters are inevitable. However, the negative effects that it brings about
can definitely be lessened, and the case of Albay is a great proof to it. Despite its vulnerability,
the province adapted measures to overcome the constraints and limitations posed by such in its
development. Although these efforts do not guarantee the absolute safety from effects of
disasters, it can be used to make the province still viable for new investments. With other
provinces challenged by the impacts of climate change, the different measures used by Albay in
disaster risk management and climate change adaptation could be relevant when crafting their
own adaptation plans (Espinas 2013).
Bibliography
Brown, Sophie. The Philippines Is the Most Storm-Exposed Country on Earth. November 11,
2013.http://world.time.com/2013/11/11/the-philippines-is-the-most-storm-exposed-country-on-
earth/ (accessed February 19, 2017).

Espinas, Agnes. Geography and Public Planning: Albay and Disaster Risk Management . 2013.
http://hdn.org.ph/wp-content/uploads/DP_04_Espinas.pdf (accessed February 17, 2017).
GOVPH. ALLURING ALBAY. n.d. http://albay.gov.ph/about/ (accessed February 17, 2017).

Fernandez, Rudy. Albays climate change program becomes model for other provinces. 2016.
http://www.philstar.com/science-and-environment/2016/02/11/1551679/albays-climate-change-
program-becomes-model-other (accessed February 23, 2017).

Romero, Segundo E. A Permanent Disaster Risk Management Office: Visible, Measurable

Impact over the Years. Albay Provincial Government. Oxfam Great Britain , 2008.

Salceda, Joey Sarte. "Scaling Up Resources for Disaster Risk Reduction: The Practices of Albay
Province, Philippines." Third Asian Ministerial Conference on Disaster Risk Reduction; Kuala
Lumpur. December 2, 2008. http://www.unescap.org/idd/events/AMCDRR-
2008/documents/TS4-Philippines.pdf (accessed February 17, 2017).

Salceda, Joey Sarte. "Adapting to Climate Change: Strategies of Albay, Philippines." Knowledge
Center in Climate Change, n.d.

The Philippine Star. Barangay Forestry Program fits Albays devt thrust. June 29, 2014.
http://www.philstar.com:8080/agriculture/2014/06/29/1340209/barangay-forestry-
program-fits-albays-devt-thrust (accessed February 17, 2017).
Appendix 1