IRR of RA 10121 on Disaster Risk Reduction

Policy, purpose, and guiding commitments

The State upholds constitutional rights to life and property by addressing root causes of vulnerabilities to disasters, strengthening institutional capacity, and building resilience of local communities to disasters including climate change impacts. Section 3(a).
The State adopts universal norms and humanitarian assistance standards such as the Universal Declaration of Human Rights, UN Guiding Principles and Guidelines on Internal Displacement and Durable Solutions, CEDAW, Convention on the Rights of the Child, and global risk reduction efforts. Section 3(b).
The State incorporates internationally accepted disaster risk management principles in the creation and implementation of national, regional, and local sustainable development and poverty reduction strategies, policies, plans, and budgets. Section 3(c).
The State adopts a holistic, comprehensive, integrated, and proactive disaster risk reduction and management approach to lessen socioeconomic and environmental impacts of disasters including climate change, and promotes participation of all sectors and stakeholders at all levels, especially local communities. Section 3(d).
The State develops and implements a comprehensive National Disaster Risk Reduction and Management Plan (NDRRMP) to strengthen national and LGU capacities and institutionalize arrangements and measures reducing disaster risks, including projected climate risks, and enhancing preparedness and response capabilities. Section 3(e).
The State institutionalizes coherent and responsive disaster risk reduction programs integrated into development plans at various levels of government, adhering to transparency and accountability within poverty alleviation and environmental protection contexts. Section 3(f).
The State mainstreams disaster risk reduction and climate change adaptation and mitigation into development processes such as policy formulation, socioeconomic development planning, budgeting, and governance—particularly across environment, agriculture, water, energy, health, education, poverty reduction, land-use and urban planning, and public infrastructure and housing. Section 3(g).
The State institutionalizes policies, structures, coordination mechanisms, and programs with continuing budget appropriation for disaster risk reduction from national down to local levels. Section 3(h).
The State mainstreams disaster risk reduction into peace processes and conflict resolution approaches to minimize loss of lives and damage to property and to ensure communities in conflict zones—including Internally Displaced Persons (IDPs)—can promptly resume normal lives during intermittent conflicts. Section 3(i).
The State ensures disaster risk reduction and climate change measures are gender responsive, sensitive to indigenous knowledge systems and cultures, and respectful of human rights. Section 3(j).
The State recognizes local risk patterns and strengthens LGU capacities through decentralized powers, responsibilities, and resources at regional and local levels. Section 3(k).
The State recognizes and strengthens LGU and community capacities for mitigating, preparing for, responding to, and recovering from disaster impacts. Section 3(l).
The State engages participation of CSOs, the private sector, and volunteers in disaster risk reduction programs. Section 3(m).
The State develops and strengthens capacities of vulnerable and marginalized groups to mitigate, prepare for, respond to, and recover from disaster effects. Section 3(n).
The State enhances a program educating and training humanitarian aid workers, communities, health professionals, government aid agencies, donors, and media on actively supporting breastfeeding before and during a disaster and/or emergency. Section 3(o).
The State provides maximum care, assistance, and services to individuals and families affected by disasters, implements emergency rehabilitation projects to lessen disaster impacts, and facilitates resumption of normal social and economic activities. Section 3(p).

Coverage and application of the Rules

The Rules govern development of policies and plans and implementation of actions and measures for all aspects of disaster risk reduction and management, including good governance, risk assessment and early warning, knowledge building and awareness raising, reducing underlying risk factors, and preparedness for effective response and early recovery. Section 4.
These Rules apply to all levels of government, civil societies, private sectors, and all other DRM stakeholders. Section 4.

Definitions for disaster risk reduction and management

Adaptation is the adjustment in natural or human systems in response to actual or expected climatic stimuli or their effects that moderates harm or exploits beneficial opportunities. Rule 2, Section 1(a).
Capacity is the combination of strengths and resources available within a community, society, or organization that can reduce risk or disaster effects, including infrastructure, institutions, coping abilities, human knowledge and skills, tools and systems, processes, appropriate technologies, and collective attributes such as social relationships, leadership, and management. Rule 2, Section 1(b).
Civil Defense is disaster preparedness and prevention activities other than military actions geared to reduction of loss of life and property from natural and human-induced disasters; it may also be referred to as Civil Protection. Rule 2, Section 1(c).
Civil Society Organizations (CSOs) are non-state actors whose aims are neither to generate profits nor to seek governing power; CSOs unite people for shared goals and interests and include NGOs, professional associations, foundations, independent research institutes, CBOs, faith-based organizations, people’s organizations, social movements, and labor unions. Rule 2, Section 1(d).
Climate Change is a change in climate identifiable by changes in mean and/or variability of properties that persists for an extended period typically decades or longer, whether due to natural variability or human activity. Rule 2, Section 1(e).
Community-Based Disaster Risk Reduction and Management (CBDRRM) is disaster risk reduction and management where at-risk communities actively identify, analyze, treat, monitor, and evaluate disaster risks to reduce vulnerabilities and enhance capacities, with people at the center of decision-making and implementation. Rule 2, Section 1(f).
Complex Emergencies are human-induced emergencies where the cause and assistance are complicated by intense political considerations. Rule 2, Section 1(g).
Contingency Planning is a management process analyzing specific potential events or emerging situations that might threaten society or the environment and establishing arrangements in advance for timely, effective, and appropriate responses. Rule 2, Section 1(h).
Disaster is a serious disruption of a community or society’s functioning involving widespread human, material, economic, or environmental losses and impacts that exceeds the ability of the affected community or society to cope using its own resources; it results from the combination of hazard exposure, vulnerability conditions, and insufficient capacity or measures to reduce or cope with negative consequences. Rule 2, Section 1(i).
Disaster Mitigation is the lessening or limitation of adverse impacts of hazards and related disasters, including engineering techniques and hazard-resistant construction and improved environmental policies and programs and public awareness. Rule 2, Section 1(j).
Disaster Preparedness is the knowledge and capacities developed by governments, professional response and recovery organizations, communities, and individuals to effectively anticipate, respond to, and recover from likely, imminent, or current hazard events or conditions, supported by formal institutional, legal, and budgetary capacities. Rule 2, Section 1(k).
Disaster Prevention is the outright avoidance of adverse impacts of hazards and related disasters by taking action in advance such as risk-eliminating construction, land-use regulations preventing settlement in high-risk zones, and seismic designs ensuring survival and function of critical buildings. Rule 2, Section 1(l).
Disaster Response is the provision of emergency services and public assistance during or immediately after a disaster to save lives, reduce health impacts, ensure public safety, and meet basic subsistence needs; it focuses on immediate and short-term needs and may be called disaster relief. Rule 2, Section 1(m).
Disaster Risk is the potential disaster losses in lives, health status, livelihood, assets, and services over a specified future time period. Rule 2, Section 1(n).
Disaster Risk Reduction is the concept and practice of reducing disaster risks through systematic efforts to analyze and manage causal factors of disasters, including reduced exposure to hazards, lessened vulnerability of people and property, wise management of land and the environment, and improved preparedness. Rule 2, Section 1(o).
Disaster Risk Reduction and Management is the systematic process using administrative directives, organizations, and operational skills and capacities to implement strategies, policies, and improved coping capacities to lessen adverse impacts and the possibility of disasters, including prospective risk reduction and management to avoid development of new or increased risks when risk-reduction policies are not in place. Rule 2, Section 1(p).
Disaster Risk Reduction and Management Information System is a specialized database containing information on disasters and impacts, risk assessment and mapping, and vulnerable groups. Rule 2, Section 1(q).
Disaster Victims are persons or groups adversely affected by a hazard who must leave habitual residences due to existing or impending threats, damaged shelter units, casualty among immediate family members, or those whose main source of income or livelihood is damaged and who experience hopelessness and difficulty coping with their own resources even if their habitual place remains habitable. Rule 2, Section 1(r).
Early Recovery is a multidimensional recovery process beginning in a humanitarian setting and guided by development principles to build on humanitarian programs and catalyze sustainable development, generating self-sustaining nationally owned resilient post-crisis processes across restoration of services, livelihoods, shelter, governance, security and rule of law, environment, and social dimensions including reintegration of displaced populations. Rule 2, Section 1(s).
Early Warning System is capacities to generate and disseminate timely meaningful warning information for individuals, communities, and organizations to prepare and act appropriately in sufficient time to reduce harm or loss; it comprises knowledge of risks, monitoring/analysis/forecasting, communication/dissemination, and local response capabilities. Rule 2, Section 1(t).
Emergency is an unforeseen or sudden occurrence demanding immediate action. Rule 2, Section 1(u).
Emergency Management is organization and management of resources such as volunteers, funds, donations, food and non-food items, temporary/evacuation centers, and responsibilities addressing all aspects of emergencies, particularly preparedness, response, and initial recovery steps. Rule 2, Section 1(v).
Exposure is the degree to which elements at risk are likely to experience hazard events of different magnitudes. Rule 2, Section 1(w).
Geographic Information System is a database containing, among others, geo-hazard assessments, climate change information, and climate risk reduction and management. Rule 2, Section 1(x).
Hazard is a dangerous phenomenon, substance, human activity or condition that may cause loss of life, injury or other health impacts, property damage, loss of livelihood and services, social and economic disruption, or environmental damage. Rule 2, Section 1(y).
Internally Displaced Persons (IDPs) / Persons Displaced by the Disaster are persons or groups forced or obliged to flee or leave homes or habitual residence to avoid effects of natural or human-induced disasters, who have not crossed an internationally recognized State border. Rule 2, Section 1(z).
Land-Use Planning is the process by public authorities identifying, evaluating, and deciding options for land use including long-term economic, social, and environmental objectives and implications for communities and interest groups, and promulgating plans describing permitted or acceptable uses. Rule 2, Section 1(aa).
Mitigation is structural and non-structural measures to limit adverse impacts of natural hazards, environmental degradation, and technological hazards and ensure at-risk communities address vulnerabilities to minimize disaster impacts, including hazard-resistant works, plans/programs/projects/activities, awareness raising, knowledge management, land-use and resource management policies, enforcement of land-use planning, building and safety standards, and legislation. Rule 2, Section 1(bb).
National Disaster Risk Reduction and Management Framework (NDRRM Framework) provides a comprehensive, all hazards, multi-sectoral, inter-agency, and community-based approach to disaster risk reduction and management. Rule 2, Section 1(cc).
National Disaster Risk Reduction and Management Plan (NDRRMP) is the document formulated and implemented by the OCD setting out goals and specific objectives for reducing disaster risks with related actions; it includes identification of national hazards, vulnerabilities and risks to manage; approaches and strategies; agency roles, responsibilities, lines of authority; vertical and horizontal coordination in pre- and post-disaster phases; and budgetary resources; it must conform with the NDRRM Framework. Rule 2, Section 1(dd).
Post-Disaster Recovery is restoration and improvement of facilities, livelihoods, and living conditions, including efforts to reduce disaster risk factors, in accordance with “build back better” principles. Rule 2, Section 1(ee).
Preparedness (pre-disaster actions and measures) includes pre-disaster activities to avert or minimize loss of life and property such as community organizing, training, planning, equipping, stockpiling, hazard mapping, insuring of assets, and public information and education initiatives. Rule 2, Section 1(ff).
Private Sector comprises private corporations, households, and nonprofit institutions serving households. Rule 2, Section 1(gg).
Public Sector Employees include all persons in the civil service. Rule 2, Section 1(hh).
Rehabilitation ensures affected communities/areas restore normal level of functioning by rebuilding livelihoods and damaged infrastructures and increasing communities’ organizational capacity. Rule 2, Section 1(ii).
Resilience is the ability of a system, community, or society exposed to hazards to resist, absorb, accommodate, and recover from hazard effects in a timely and efficient manner, including preservation and restoration of essential basic structures and functions. Rule 2, Section 1(jj).
Response is any concerted effort by two (2) or more agencies—public or private—to provide assistance or intervention during or immediately after a disaster to meet life preservation and basic subsistence needs and restore essential public activities and facilities. Rule 2, Section 1(kk).
Risk is the combination of the probability of an event and its negative consequences, including expected losses from interactions between hazards and vulnerable conditions. Rule 2, Section 1(ll).
Risk Assessment is a methodology determining nature and extent of risk by analyzing hazards and evaluating vulnerability conditions that could harm exposed people, property, services, livelihood, and the environment; it includes review of hazard technical characteristics (location, intensity, frequency, probability), analysis of exposure and vulnerability dimensions (physical, social, health, economic, environmental), and evaluation of effectiveness of prevailing and alternative coping capacities for likely risk scenarios. Rule 2, Section 1(mm).
Risk Management is systematic managing of uncertainty to minimize potential harm and loss, comprising risk assessment and implementation of strategies and specific actions to control, reduce, and transfer risks. Rule 2, Section 1(nn).
Risk Transfer is formally or informally shifting financial consequences of particular risks from one party to another where a household, community, enterprise, or State authority obtains resources from the other after a disaster occurs in exchange for ongoing or compensatory social or financial benefits. Rule 2, Section 1(oo).
State of Calamity is a condition involving mass casualty and/or major property damages, disruption of means of livelihoods, roads, and normal way of life in affected areas from a natural or human-induced hazard. Rule 2, Section 1(pp).
Sustainable Development is development meeting present needs without compromising future generations; it includes “needs,” especially of the world’s poor, and limitations imposed by state of technology and social organizations on environment’s ability, integrating economy, governance, social cohesion, and ecological integrity. Rule 2, Section 1(qq).
Volunteer refers to individuals or groups contributing time, service, and resources for a just and essential social development cause, mission, or endeavor for public interest and as mutually meaningful and beneficial. Rule 2, Section 1(rr).
Vulnerability is characteristics and circumstances making a community, system, or asset susceptible to damaging effects of a hazard, arising from physical, social, economic, and environmental factors such as poor design and construction, inadequate asset protection, lack of public information/awareness, limited official risk recognition and preparedness measures, and disregard for wise environmental management. Rule 2, Section 1(ss).
Vulnerable and Marginalized Groups include individuals or groups with higher exposure to disaster risk and poverty, including women (especially pregnant women), youth, children (especially orphans and unaccompanied children), elderly, differently-abled people, indigenous people, disadvantaged families and individuals in high-risk areas and danger zones, and those living in road right-of-ways and highly congested areas vulnerable to industrial/environmental/health hazards and road accidents, including marginalized farmers and fisher folks. Rule 2, Section 1(tt).

National Disaster Council structure and powers

The National Disaster Coordinating Council (NDCC) is renamed as the National Disaster Risk Reduction and Management Council (NDRRMC) hereinafter referred to as the National Council. Rule 3, Section 1.
The National Council is headed by the Secretary of the Department of National Defense (DND) as Chairperson; Vice Chairpersons are: Secretary of DILG for Disaster Preparedness, Secretary of DSWD for Disaster Response, Secretary of DOST for Disaster Prevention and Mitigation, and Director-General of NEDA for Disaster Rehabilitation and Recovery. Rule 3, Section 2.
Other National Council members include the Secretaries of numerous national departments and key officials listed in Rule 3, Section 2(a)–(jj), including Administrator of the OCD and sectoral representatives from CSOs and the private sector.
The National Council develops the NDRRM Framework and reviews it on a five (5)-year interval or when necessary to ensure relevance. Rule 3, Section 3(a).
The National Council ensures the NDRRMP is consistent with the NDRRM Framework. Rule 3, Section 3(b).
The National Council advises the President on the status of disaster operations (preparedness, prevention, mitigation, response, and rehabilitation) by government, CSOs, private sector, and volunteers; recommends declaration of a state of calamity in extensively damaged areas; and submits proposals to restore normalcy, including calamity fund allocation. Rule 3, Section 3(c).
The National Council ensures multi-stakeholder participation in developing/updating/sharing the Disaster Risk Reduction and Management Information System and GIS-based national risk map as policy/planning/decision tools. Rule 3, Section 3(d).
The National Council establishes and/or strengthens a national early warning and emergency alert system to provide accurate and timely advice and warnings through diverse mass media channels including digital and analog broadcast, cable, satellite television and radio, wireless communications, and landline communications. Rule 3, Section 3(e).
The National Council develops risk transfer mechanisms to guarantee social and economic protection and increase resiliency. Rule 3, Section 3(f).
The National Council monitors enforcement by agencies and organizations of laws, guidelines, codes, and technical standards required by the Act. Rule 3, Section 3(g).
The National Council manages and mobilizes resources for disaster risk reduction and management including the National Disaster Risk Reduction and Management Fund. Rule 3, Section 3(h).
The National Council issues guidelines and procedures and monitors Local Disaster Risk Reduction and Management Fund (LDRRMF) releases and their utilization, accounting, and auditing. Rule 3, Section 3(i).
The National Council develops assessment tools on existing and potential hazards and risks from climate change to vulnerable areas and ecosystems in coordination with the Climate Change Commission. Rule 3, Section 3(j).
The National Council develops vertical and horizontal coordination mechanisms for coherent implementation by sectoral agencies and LGUs. Rule 3, Section 3(k).
The National Council formulates a national institutional capability-building program using results of a biennial baseline assessment and studies. Rule 3, Section 3(l).
The National Council formulates, harmonizes, and translates a national agenda for research and technology development on disaster risk reduction and management. Rule 3, Section 3(m).
In coordination with the Climate Change Commission, the National Council formulates and implements a framework for climate change adaptation and disaster risk reduction and management to serve as basis for policies, programs, and projects. Rule 3, Section 3(n).
The National Council constitutes a technical management group to coordinate and meet as often as necessary to manage and sustain national efforts. Rule 3, Section 3(o).
The National Council tasks the OCD to conduct periodic assessment and performance monitoring of member agencies of the Council and Regional DRRMCs as defined in the NDRRMP. Rule 3, Section 3(p).
The National Council coordinates/oversees incorporation of the country’s disaster management treaty obligations into disaster risk reduction and management frameworks, policies, plans, programs, and projects, including AADMER in force 24 December 2009. Rule 3, Section 3(q)–(r).
The Chairperson may call upon other government instrumentalities and non-government civic and private organizations for assistance using their facilities and resources to protect life and property across the disaster risk reduction and management range, including calling the reserve force under Republic Act No. 7077 to assist in relief and rescue. Rule 3, Section 4.
The Chairperson, assisted by Vice Chairpersons, provides overall direction and exercises supervision and coordination of relevant programs/projects/activities consistent with mandates of member departments/agencies. Rule 3, Section 5.1.
Every member agency formulates its own DRRM implementing plan and manual of operations and submits a copy of the implementing plan to the National Council for adoption; each member agency is assigned functions relevant to mandates, programs, geographic jurisdiction, and special constituencies indicated in the NDRRMP. Rule 3, Section 5.2.
Every member agency establishes its respective Emergency Operations Center (EOC) subject to exemptions granted by the National Council and designates a DRRM focal officer. Rule 3, Section 5.3.
The National Council meets regularly every quarter on dates and place determined by the Council, and it formulates internal rules for meetings; the Chairperson may call special meetings as needed. Rule 3, Section 6.

Regional and local disaster governance bodies

The current Regional Disaster Coordinating Councils become Regional Disaster Risk Reduction and Management Councils (RDRRMCs). Rule 4, Section 1.
Each RDRRMC is chaired by OCD Civil Defense Officers designated as Regional Directors of the OCD; vice chairpersons are the regional directors of DSWD, DILG, DOST, and NEDA; members are executives of regional offices and field stations of government agencies that are members of the National Council. Rule 4, Section 2.
RDRRMCs coordinate, integrate, supervise, monitor, and evaluate member agencies and Local DRRMCs within jurisdictions, ensure risk-sensitive regional development plans, and convene regional line agencies and institutions/authorities in emergencies (except NDRRMC policy-making). Rule 4, Section 3.
RDRRMC Chairpersons may tap facilities and resources of other government agencies and the private sector for protection of life and property in pursuing disaster risk reduction and management. Rule 4, Section 3.1.
RDRRMCs constitute technical working groups of member agency representatives coordinating and meeting as often as necessary to manage and sustain regional efforts. Rule 4, Section 3.2.
RDRRMCs meet regularly every quarter, with OCD regional offices serving as secretariat, and internal rules for meetings. Rule 4, Section 4.
RDRRMCs must establish a 24-hour operating facility named the Regional Disaster Risk Reduction and Management Operations Center (RDRRMOC). Rule 4, Section 5.
Each RDRRMC member agency establishes its own EOC subject to regional council exemptions and designates a DRRM focal officer. Rule 4, Section 5.
The Metro Manila Disaster Risk Reduction and Management Council (MMDRRMC) is chaired by the Chairperson of the Metro Manila Development Authority (MMDA) and has an organizational structure similar to RDRRMCs, composed of MMDA departments/offices and/or regional offices/field stations operating in the National Capital Region; the OCD Civil Defense Officer designated as NCR Regional Director serves as Vice-Chairperson for Disaster Preparedness or other functions determined by MMDRRMC Chair. Rule 4, Section 6.
In the ARMM, the Regional Governor is the RDRRMC Chairperson; it may have four (4) Vice Chairpersons for Disaster Response, Preparedness, Mitigation and Prevention, and Disaster Rehabilitation and Recovery as enumerated, and it formulates internal meeting rules. Rule 4, Section 7.
RDRRMCs may invite other concerned institutions, organizations, agencies, and instrumentalities in the private and public sector when necessary to perform their mandate. Rule 4, Section 8.
Provincial, City, and Municipal Disaster Coordinating Councils are renamed as Provincial, City, and Municipal Disaster Risk Reduction and Management Councils; Barangay Disaster Coordinating Councils cease to exist and their functions shift to Barangay Development Councils (BDCs) as LDRRMCs in every barangay. Rule 5, Section 1.
LDRRMC composition may include the enumerated local officials and representatives including local chief executive, planning officer, LDRRMO head, social welfare and development, health, agriculture, gender and development, engineering, veterinary, budget, DepEd school division/district, AFP head in area, PNP provincial/city/component, BFP fire marshal, Liga ng mga Barangay president, PRC, four (4) accredited CSOs, and one (1) private sector representative. Rule 5, Section 2(1)–(18).
LDRRMCs are encouraged to include specified additional members such as DILG and DENR local directors/officers, Coast Guard or Forest Guard officials where applicable, and a representative of the Sanggunian. Rule 5, Section 2.1.
Selection of CSO and private sector representatives in LDRRMCs adheres to National Council guidelines including accreditation and operational mechanisms or processes. Rule 5, Section 3.
LDRRMC functions include approving/monitoring/e