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Building e-Resilience in Mongolia
Building e-Resilience in the Philippines
Enhancing the Role of Information and Communications Technology for Disaster Risk Management
2 | B u i l d i n g e - R e s i l i e n c e i n t h e P h i l i p p i n e s
The secretariat of the Economic and Social Commission for Asia and the Pacific (ESCAP) is the
regional development arm of the United Nations and serves as the main economic and social
development centre for the United Nations in Asia and the Pacific. Its mandate is to foster
cooperation among its 53 members and 9 associate members. It provides the strategic link
between global and country-level programmes and issues. It supports Governments of countries
in the region in consolidating regional positions and advocates regional approaches to meeting the
region’s unique socioeconomic challenges in a globalizing world. The ESCAP secretariat is in
Bangkok. Please visit the ESCAP website at http://www.unescap.org for further information.
The shaded areas of the map indicate ESCAP members and associate members.
3 | B u i l d i n g e - R e s i l i e n c e i n t h e P h i l i p p i n e s
Building e-Resilience in the Philippines: Enhancing the Role of Information and
Communications Technology for Disaster Risk Management
© United Nations, 2016
The designations employed and material presented do not imply the expression of any opinion
whatsoever on the part of the Secretariat of the United Nations concerning the legal status of any
country, territory, city or area, or of its authorities, or concerning the delimitation of its frontiers
or boundaries. References and maps obtained from external sources might not conform to the
United Nations editorial guidelines. Mention of firm names and commercial products does not
imply the endorsement of the United Nations.
For more information contact:
Information and Communications Technology and Disaster Risk Reduction Division
United Nations Economic and Social Commission for Asia and the Pacific
The United Nations Building
Rajadamnern Nok Avenue
Bangkok 10200
Thailand
Telephone: +66 2 288 1234
Fax: +66 2 288 1000
Email: [email protected]
Website: http://www.unescap.org/idd
4 | B u i l d i n g e - R e s i l i e n c e i n t h e P h i l i p p i n e s
Contents
List of Figures ................................................................................................................................. 6
List of Tables ................................................................................................................................... 6
Abbreviations and Acronyms .......................................................................................................... 7
1. Introduction............................................................................................................................. 8
2. The Legal and Policy Context of ICT in DRM in the Philippines .......................................... 9
2.1 DRR and DRM as a Legal Duty ........................................................................................... 9
2.2 Legal Context of DRR in the Philippines.............................................................................. 9
2.3 Legislative Efforts ............................................................................................................... 11
2.4 The Tampere Convention .................................................................................................... 13
2.5 The ASEAN Agreement on Disaster Management and Emergency Response .................. 14
2.6 Executive Decrees and Agency-Level Policies to Implement Disaster-Related Measures. 15
2.7 Efforts at the Local Level .................................................................................................... 18
3. Assessment of ICT Readiness and DRM Plans .................................................................... 18
3.1 e-Resilience ......................................................................................................................... 18
3.2 State of ICT Infrastructure in the Philippines: Availability, Usage and Quality................. 19
3.3 Gateways and Telecommunication Backbones ................................................................... 21
International Cable Landings ............................................................................................... 21
Domestic Networks ............................................................................................................... 24
Internet Exchange ................................................................................................................. 24
Cellular Networks ................................................................................................................. 25
3.4 Resilient Government ICT Systems .................................................................................... 26
The e-Government Master Plan ............................................................................................ 26
3.5 ICT for DRM ...................................................................................................................... 27
Fibre Optic Network ............................................................................................................. 27
Government Cloud or GovCloud .......................................................................................... 27
TV White Space ..................................................................................................................... 28
Integrated System for Digital Broadcast TV ......................................................................... 29
3.6 Revised Building Code Standards ....................................................................................... 29
4. Trends in Applications .............................................................................................................. 29
4.1 ICTs in Disaster Prevention and Mitigation ........................................................................ 29
Project NOAH ....................................................................................................................... 29
Advanced Remote Data-acquisition Unit (arQ) ................................................................... 30
Nababaha.com ...................................................................................................................... 31
PHIVOLCS Information Portal and Hazard Maps .............................................................. 31
4.2 ICTs in Disaster Preparedness ............................................................................................ 32
OCD’s Disaster Information for Nationwide Awareness Project (Project DINA) ............... 32
Weather Forecasting ............................................................................................................ 32
OCD’s National Cell Broadcast System ............................................................................... 33
4.3 ICTs in Disaster Response .................................................................................................. 33
NDRRMC’s Intelligent Operations Center ........................................................................... 33
Government Emergency Communication Programme ......................................................... 34
NDRRMC National Text Blast System .................................................................................. 34
eBayanihan Project .............................................................................................................. 35
Batingaw Mobile App ........................................................................................................... 35
4.4 ICTs in Disaster Recovery .................................................................................................. 35
FAiTH ................................................................................................................................... 36
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Track Recovery System ......................................................................................................... 36
iGovPhil ................................................................................................................................ 37
5. Conclusions and Recommendations .......................................................................................... 37
5.1 Recommendations ............................................................................................................... 38
1. Formulate an ICT plan for DRM that is integrated and coordinated with existing DRM
and climate change policies and programmes...................................................................... 38
2. Strengthen the enabling policy environment for enhancing ICT in DRM and CCA. ... 39
3. Promote public-private partnerships in the sharing of resources and information, and
in facilitating better coordination during disasters. ............................................................. 40
4. Prioritize resilience ...................................................................................................... 41
5. Build capacity in the use of ICT for DRM and CCA .................................................... 42
6. Engage and strengthen bilateral, regional and international collaboration for DRM
and CCA ............................................................................................................................... 43
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List of Figures
Figure 1: Access to ICTs in the Philippines, 2000-2013
Figure 2: Map of cable landings in the Philippines
Figure 3: The building blocks of e-government in the EGMP
List of Tables
Table 1: Summary of relevant DRM laws and the ICT involved/covered
Table 2: Relevant resolutions related to the Tampere Convention
Table 3: Important executive issuances on the use of ICT in times of emergency
Table 4: Internet growth in the Philippines, 2000-2014
Table 5: Summary of submarine cable systems in the Philippines
Table 6: Mobile phone coverage (base stations, cell sites and coverage)
Table 7: Security and recovery measures undertaken by government agencies and departments
7 | B u i l d i n g e - R e s i l i e n c e i n t h e P h i l i p p i n e s
Abbreviations and Acronyms
AADMER ASEAN Agreement on Disaster Management and Emergency Response
AAG Asia-America Gateway
APCN Asia Pacific Cable Network
APCN-2 Asia Pacific Cable Network 2
ASEAN Association of Southeast Asian Nations
ASTI Applied Science and Technology Institute
CCA Climate Change Adaptation
CICT Commission on Information and Communications Technology
DFON Domestic Fibre Optic Network
DOST Department of Science and Technology
DRM Disaster Risk Management
DRR Disaster Risk Reduction
EAC-C2C East Asia Crossing
EGMP e-Government Master Plan
EO Executive Order
ESCAP Economic and Social Commission for Asia and the Pacific (United Nations)
ETPI Eastern Telecommunications Philippines
FAiTH Foreign Aid Transparency Hub
G-P Guam - Philippines
GIS Geographic Information System
ICT Information and Communications Technology
iGovPhil Integrated Government Philippines
IOC Intelligent Operations Centre
IPv6 Internet Protocol version 6
ISP Internet Service Provider
LGU Local Government Unit
MIX Manila Internet Exchange
NDRRMC National Disaster Risk Reduction and Management Council
NDTN National Digital Transmission Network
NGO Non-Governmental Organization
NTC National Telecommunications Commission
OCD Office of Civil Defense
PAGASA Philippine Atmospheric, Geophysical and Astronomical Services Administration
PARR Presidential Assistant for Rehabilitation and Recovery
PHIVOLCS Philippine Institute of Volcanology and Seismology
PhIX Philippine Internet Exchange
PHOpenIX Philippine Open Internet Exchange
PLDT Philippine Long Distance Telephone Company
R&D Research and Development
SEA-ME-WE-3 South-East Asia - Middle East - Western Europe 3
SMS Short Message Service
TelicPhil Telecom Infrastructure of the Philippines
TGN-IA Tata TGN Intra-Asia
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1. Introduction
The Philippines is one of the most disaster-prone countries in the world, with annual damages
amounting to 0.7 per cent of the nation’s gross domestic product per year, and deaths due to
disasters averaging 1,000 per year.1 Located on the western rim of the Pacific and along the
Circum-Pacific Seismic Belt, the Philippines is subject to storms, typhoons, earthquakes, floods,
volcanic eruptions, droughts, landslides and other natural hazards. At least 60% of the total land
area of the country is exposed to multiple hazards and 74% of its population is vulnerable to the
impact of these hazards.2
Since 2010 when the Disaster Risk Reduction and Management Act was passed, the Philippines
has been shifting its focus from disaster response to a holistic and proactive approach to disaster
risk reduction (DRR) and disaster risk management (DRM), with the intent of making people
more resilient to the effects of disasters. With the Act of 2010 serving as the country’s overall
guiding policy and framework for DRR, it addresses four overlapping areas or phases: (1)
Disaster Prevention and Mitigation; (2) Disaster Preparedness; (3) Disaster Response; and (4)
Disaster Rehabilitation and Recovery.
The role of information and communications technology (ICT) in all these phases is critical for
managing and communicating information, and coordinating efforts among different actors. This
report looks at the resilience of ICT systems in the Philippines, or the ability of the ICT systems
to withstand and recover from disaster events. It also examines the role of ICT in building
people’s resilience to disasters in the Philippines, by providing examples of how ICT has helped
Filipinos withstand, adapt to and recover from the effects of disasters.
The next section of this report discusses ICT considerations in DRM policies. This is followed by
an assessment of the ICT readiness of the DRM sector in Section 3. The findings from this
section are based on interviews with government officials and with experts that are developing
ICT applications for DRM in the country. Attention is given to fibre optic connectivity networks
and broadband as critical infrastructure for DRM. In this regard, the state of broadband
infrastructure as provided by the market and the government is described, along with the various
cable landings in the country. Data is provided on the growing Internet user base in the country,
despite the relatively poor quality of broadband access available. The resilience of ICT systems to
provide early warnings, withstand disaster events and help recovery is also examined.
Section 4 goes on to provide some examples of ICT applications in the four phases of DRM, such
as: monitoring and data acquisition systems for disaster prevention and mitigation; weather
forecasting systems for disaster preparedness; an intelligent operations centre and emergency
communication systems for disaster response; and information systems for tracking donations and
funds during disaster recovery. These examples are based on a review of related literature,
information provided by key agencies involved in DRM, and presentations from recent
workshops on ICT and DRM that the Philippine ICT Office conducted. The final section of this
report concludes with an analysis of lessons learned and issues that need to be addressed.
1 Global Facility for Disaster Reduction and Recovery, Country Program Update: Philippines, May 2014. Available
from https://www.gfdrr.org/sites/gfdrr/files/region/PH.pdf. 2 Ibid.
9 | B u i l d i n g e - R e s i l i e n c e i n t h e P h i l i p p i n e s
2. The Legal and Policy Context of ICT in DRM in the Philippines
This section surveys efforts undertaken by the Government of the Philippines to develop a
comprehensive DRR programme. Specifically, it looks at the extent to which current legislative
efforts have empowered or equipped communities and stakeholders to manage disaster risks, and
promoted the effective use of ICT in DRM. It also looks at the extent to which the country has
adopted and complied with global disaster risk assessment practices (e.g., the Tampere
Convention).
2.1 DRR and DRM as a Legal Duty
Under the Philippine Disaster Risk Reduction and Management Act of 2010, the State committed
to “provide maximum care, assistance, and services to individuals and families affected by
disaster, implement emergency rehabilitation projects to lessen the impact of disaster, and
facilitate the resumption of normal social and economic activities” (Section 2p). The State
considers it a duty to ensure the safety of lives and property in the event of a disaster as explicitly
stated under Section 19a that any person, group or corporation may be held liable for “dereliction
of duties which leads to destruction, loss of lives, critical damage of facilities, and misuse of
funds.” A negligent public official, in other words, may be held personally accountable for acting
in bad faith or ultra vires to the mandate of the State.
Subsequently, several bills were filed to strengthen the DRR programme prescribed by law. For
example, during the 15th Congress, the law criminalizing the tampering, theft and appropriation of
government-owned DRM equipment was passed. Other examples include proposed bills to:
institutionalize DRM at the level of the Sangguniang Kabataan (the locally elected youth
council); institutionalize a system for the effective administration of cash donations and
humanitarian aid from local and foreign sponsors; and penalize refusal to evacuate in the event of
a calamity or disaster. There was also a proposed bill to take advantage of the booming mobile
phone industry with measures requiring telecom companies to allow free short message service
(SMS) alerts in the event of a disaster or calamity (this was eventually enacted into law on 20
June 2014).
Some legislators see the need to integrate DRR into other sectors such as taxation and education.
For instance, there is a pending bill that seeks tax relief to the contributions made to disaster relief
and rehabilitation efforts. There is also a proposal to establish a Philippine Academy for DRR and
climate change adaptation (CCA). Another proposal requires broadcast media to provide adequate
public service time to enable government to reach and educate the public on important issues,
including disaster preparedness.
2.2 Legal Context of DRR in the Philippines
The Act of 2010 called for the establishment of the National Disaster Risk Reduction and
Management Council (NDRRMC) coordinated by the Office of Civil Defense (OCD). The inter-
agency council guides the nation's DRR efforts at the national and local levels.
The Act of 2010 puts OCD to the task of coming up with a National Disaster Risk Reduction and
Management Plan, to be implemented at all government levels. The law also mandates the
reorganization of existing provincial, regional, city, municipal, and barangay (village) disaster
10 | B u i l d i n g e - R e s i l i e n c e i n t h e P h i l i p p i n e s
coordinating councils into provincial, city, municipal and barangay disaster risk reduction and
management councils to oversee the implementation of the local disaster risk reduction and
management plans.
An interesting feature of this legislation is the premium it places on technologies as potential
tools for disaster prevention and mitigation. For instance, under the law the NDRRMC is
mandated to ensure that various stakeholders participate in the development, updating and sharing
of information through the creation of databases and geographic information system (GIS)-based
risk maps. Under Section 6 of the Act, the NDRRMC is tasked to develop tools to assess existing
and potential hazards brought about by climate change to vulnerable areas and ecosystems. The
NDRRMC is also tasked to establish a national early warning and emergency alert system that
can be disseminated through digital and analogue broadcast, cable, satellite television and radio,
as well as wireless and landline communications. Even though the Council is chaired by the
Secretary of the Department of National Defense, the Secretary of the Department of Science and
Technology (DOST) sits as Vice-Chairperson for disaster prevention and mitigation.
The Climate Change Act of 2009 was passed a year earlier in order to ‘mainstream’ climate
change as an agenda in the government’s programme of action. Even then, the law already
identified, among others, research and development (R&D), database development and
management, capability building, and information dissemination as part of government’s strategy
to address climate change (Section 12). The law also creates a Climate Change Commission that
is empowered to receive funds from local and foreign sources to finance the research,
development and promotion of technologies.
The People’s Survival Fund Act, amended the Climate Change Act on 6 June 2012, by allocating
PHP 1 billion in a start-up fund for the development of forecasting and early warning systems for
climate-related hazards, among other interventions.
On 4 December 2012, President Benigno Aquino III signed into law the Risk Reduction and
Preparedness Equipment Protection Act that punishes the theft, tampering or destruction of vital
facilities and accessories used for detecting and mitigating natural disasters. Equipment,
according to the law’s implementing rules and regulation refers to, “pieces of equipment or
devices or parts thereof that gather, transmit, store, archive, process and analyse meteorological,
hydrological, oceanographic, geodetic, geological, volcanological and seismological data, and
disseminate information, which are used for preparing and warning the public about weather,
hydrological and oceanographic conditions, earthquake, volcanic or tsunami activities and similar
natural phenomena” (refer to the Advanced Remote Data-acquisition Unit on p. 37 for examples
of ICT equipment being used for this purpose). Note, however, that the special law covers only
government facilities, and not those owned or operated by private entities. The implementing
rules and regulations that were drafted by DOST also lists the specific equipment protected under
this law.
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Table 1: Summary of relevant DRM laws and the ICT involved/covered
Policy What it provides ICT involved/covered
Philippine Disaster Risk
Reduction and
Management Act of 2010
(RA 10121)
A multi-stakeholder participation in
the development, updating and
sharing of a Disaster Risk Reduction
and Management Information System
Establishment of a national early
warning and emergency alert system
to provide accurate and timely advice
to national and local emergency
response organizations and the
general public
- Database and information system
- GIS-based national risk maps
- Dissemination of warning
messages via digital and analogue
broadcast, cable, satellite
television and radio, as well as
wireless and landline
communications
Climate Change Act of
2009 (RA 9729)
R&D, database development and
information dissemination as part of
strategy to address climate change
Research, development and
promotion of technology
- Database and new risk assessment
technology
- Communication infrastructure
- Tools and technology relevant to
climate change
People’s Survival Fund
Act (RA10174)
Financing the development of
forecasting and early warning
systems
- Forecasting and early warning
ICT
Risk Reduction and
Preparedness Equipment
Protection Act (RA
10344)
Punishes the theft, destruction,
tampering and illegal sale of
equipment used in DRR
- Protection of government
equipment and technology used
in DRM
2.3 Legislative Efforts
Most of the relevant DRR legislations were enacted in the past five years, but this does not mean
that similar efforts were not undertaken previously. The idea of setting up a national agency that
will oversee and coordinate disaster relief efforts, for instance, had already been a legislative
agenda since democracy was restored in the Philippines in 1987. During the 8th Congress, at least
five bills were filed at the House of Representatives, calling for the institution of a national
disaster relief and rehabilitation office. There have also been attempts, at least from the Lower
House, to coordinate national and local disaster relief efforts, as shown by the bills calling for
strengthening the country’s preparedness capability, as well as proposals for setting up provincial
disaster and relief operations funds. With respect to raising public awareness, as early as the 8th
Congress, Iloilo Rep. Narciso Monfort already proposed the inclusion of basic concepts of
disaster prevention and preparedness as a subject in the academic curriculum of prospective
medical and health professionals. None of these bills, however, successfully materialized into
legislation.
During the 9th Congress, proposals to strengthen the disaster preparedness capability of the
country were revived. The proposal to include basic disaster prevention and preparedness in the
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medical and nursing curriculum was reconsidered. Even then, there were attempts to
institutionalize a comprehensive prevention, rescue, relief and rehabilitation programme in the
event of a disaster or calamity. More concrete proposals included Rep. Danilo Suarez’s bill
calling for the reorganization of the Philippine Atmospheric, Geophysical and Astronomical
Services Administration (PAGASA) to make it more responsive to disasters, and House Speaker
Jose De Venecia’s bill allowing local government units (LGUs) to use 5 per cent of their reserve
funds for local emergency situations. All of these measures, however, sat pending in their
respective committees.
Raising disaster awareness appears to be a recurring interest among many House Members, as
shown by proposals during the 10th Congress to include disaster preparedness in the high school
curriculum (see for instance, bills filed by Rep. Antonio Diaz and Rep. Narciso Monfort). In
order to fully harness the opportunities that new advancements in ICT offer, there were measures
that proposed, among others, Internet access for all government offices and the establishment of a
Philippine Internet corporation. Again, none of these proposals made it past chamber
deliberations.
At the 11th Congress, again there were calls to include disaster awareness as part of the school
curriculum, not just at the secondary level, but also at the primary level. Likewise, there were
proposals to modernize the government’s weather agency (PAGASA), including its capability to
broadcast information to the public. Several bills were filed calling for the streamlining of the
country’s disaster preparedness and prevention capability. Relating to ICT, Rep. Jose Maria
Gonzales filed a bill calling for the reorganization of the National Telecommunications
Commission (NTC), and Rep. Leandro Verceles proposed the creation of a Department of ICT
that is distinct and separate from the Department of Transportation and Communication.
During the 12th Congress, no less than six related bills were filed calling for the creation of a
Department of ICT. There was also a proposal to reorganize the Coast and Geodetic Survey
Department of the National Mapping and Resource Information Authority, and to transfer its
supervision to the Department of Transportation and Communication. Neither disaster mitigation
per se, nor the creation of a separate agency exploring the potential of ICT seemed to be the
priority during that time, as none of these proposals were enacted into legislation.
A number of the aforementioned legislative proposals were revived during the 13th Congress. The
call to strengthen the country’s disaster response capability, for instance, was a reverberating
theme, although Congress would adjourn with these bills pending at the Committee on National
Defense. Similarly with ICT, as the Filipino consumer was rapidly being introduced to products
and services utilizing the technology, there were legislative proposals geared toward the
integration of ICT in the school curriculum at primary and secondary levels, but there were no
significant legislative changes related to promoting ICT development and use, particularly the use
of ICT as a tool for DRM.
The 14th Congress in 2010 marked an important milestone for DRR in the Philippines when the
Philippine Disaster Risk Reduction and Management Act of 2010 was passed. The year 2010 was
a stormy year for the Philippines, and policymakers seemed to have taken the issue of DRR
seriously. In Rep. Narciso Santiago’s version of the bill, he even proposed the development of
training programmes on emergency and disaster preparedness for public sector employees.
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2.4 The Tampere Convention
Policymakers have long seen the potential of ICTs in managing disaster risks. In fact, as early as
1990, States have gathered in Geneva to discuss ways in which communication can help in
disaster recovery and response. This was followed by the World Conference on Natural Disaster
Reduction in Yokohama in 1994 where it was recognized that disaster prevention, mitigation,
prevention and relief are crucial to sustainable development policies.
Several conferences and workshops that followed paid special attention to telecommunication
infrastructures that have become part of people’s daily lives. Collectively, these discussions
became the precursor of the Tampere Convention on the Provision of Telecommunication
Resources for Disaster Mitigation and Relief Operations.3 A summary of the conferences and
resolutions that contributed to the Convention’s adoption are given in Table 2.
Table 2: Relevant resolutions related to the Tampere Convention
Resolution/Conference Highlights
International Conference on Disaster
Communications (Geneva, 1990)
Ways in which ICT can help in disaster mitigation and response
United Nations General Assembly
Resolution 44/236
Designated 1990-2000 as the International Decade for Natural
Disaster Reduction
United Nations General Assembly
Resolution 46/182
Called for strengthened international coordination of
humanitarian emergency assistance
World Conference on Natural Disaster
Reduction (Yokohama, 1994)
Yokohama Strategy and Plan of Action for a Safer World
Resolution 7 of the World
Telecommunication Development
Conference (Buenos Aires, 1994), endorsed
by Resolution 36 of the Plenipotentiary
Conference of the International
Telecommunication Union (Kyoto, 1994)
Governments were urged to take all the practical steps for
facilitating rapid deployment and effective use of
telecommunication equipment for disaster mitigation and relief
operations by reducing and, where possible, removing
regulatory barriers and strengthening cooperation among States
Resolution 644 of the World Radio
Communication Conference (Geneva, 1997)
Governments were urged to give their full support to the
adoption of this Convention and to its national implementation
Resolution 19 of the World
Telecommunication Development
Conference (Valletta, 1998)
Governments were urged to continue their examination of this
Convention and consider giving their full support to its
adoption
United Nations General Assembly
Resolution 51/194
Encouraged the development of: (1) A transparent and timely
procedure for implementing effective disaster relief
coordination arrangements, and (2) ReliefWeb as the global
information system for the dissemination of reliable and timely
information on emergencies and natural disasters
3 Yun Zhao, "Disaster Management and the Tampere Convention", Journal of East Asia and International Law, vol.
141, no. 1 (2008), pp. 141-151.
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The Tampere Convention is considered the first global treaty to provide an international
regulatory framework on the use of telecommunication resources for DRM.4 Some of the key
features of the Tampere Convention include:
Interstate telecommunication inventory and assistance – Article 4 of the Tampere
Convention stipulates that a State party to the Convention may request ICT assistance
from other parties in an event of disaster mitigation and relief. Under Article 5, State
parties so requested must provide appropriate privileges, immunities and facilities to
persons involved in providing disaster relief assistance. Under Article 8, a State party,
non-State entity or intergovernmental organization may deposit with the operational
coordinator, information about certain telecommunication resources necessary to respond
to particular disasters. The operational coordinator, in turn, is obliged to disseminate such
information to party States. States are under obligation to exert effort to facilitate action
and to minimize damage by reducing response time.
Removal of regulatory barriers – Article 9 of the Convention calls upon party States to
reduce or remove regulatory barriers, not just to the use of ICT for disaster mitigation and
relief, but in providing telecommunication assistance. Barriers, of course, may include
restriction on trade of ICT equipment, laws restricting the movement of people who
operate the equipment, and policies that delay the administration of interventions. Some
concrete measures that States can adopt to comply with the provision include the granting
of immunity to ICT operators engaged in disaster relief efforts, tax exemption or relief to
those involved in disaster relief assistance, a licensing exemption for ICT equipment used
in relief operations, and the lifting of import or export restriction on ICT devices used for
disaster relief and management.
Expediting and facilitating ICT use within the framework of international
humanitarian assistance – The Convention espouses the use of ICT as a form of direct
assistance, as a component, or in support of other disaster mitigation and relief activities
to States affected by a disaster. The Convention defines the status, privileges and
immunities of persons serving as partners in international humanitarian assistance,
including government entities, international organizations, as well as non-governmental
and non-State actors.
As of 19 September 2014, the Convention has 60 signatories and 48 parties. The Convention
formally took legal effect on 8 January 2005. The Philippines, as of this writing, is neither a party
nor a signatory to the Convention.
2.5 The ASEAN Agreement on Disaster Management and Emergency Response
At the regional level, the Philippines is party to the ASEAN Agreement on Disaster Management
and Emergency Response (AADMER),5 which was ratified by all ten Association of Southeast
Asian Nations (ASEAN) Member States and became legally binding on 24 December 2009.
AADMER is ASEAN’s attempt at formulating a proactive regional framework for cooperation,
coordination, technical assistance, and resource mobilization in all aspects of DRM. The
4 Allison Rahrig, "Love Thy Neighbor: The Tampere Convention as Global Legislation", Indiana Journal of Global
Legal Studies, vol. 17, no. 2 (2010), pp. 272-288; and Yun Zhao, "Disaster Management and the Tampere Convention",
Journal of East Asia and International Law, vol. 141, no. 1 (2008), pp. 141-151. 5 See http://agreement.asean.org/media/download/20140119170000.pdf.
15 | B u i l d i n g e - R e s i l i e n c e i n t h e P h i l i p p i n e s
Agreement, which was drafted in response to ASEAN’s commitment to the Hyogo Framework
for Action,6 is the first legally binding Hyogo-related instrument in the world.
AADMER seeks to provide effective mechanisms to minimize the social, economic and
environmental impact of disasters through concerted national efforts and strengthened regional
and international cooperation. To do this, Member States agreed on an AADMER Work
Programme for 2010-2015.7 The Work Programme recognizes the importance of ICT, and
envisions an ASEAN-wide ICT infrastructure comprised of people, processes, policies and
technologies that are dependable, flexible and scalable. ICT-related actions in the Work
Programme include:
Evaluating existing ICT assets and prioritizing those that have immediate implications
Developing minimum standards for information management and communication
infrastructure to guarantee not only the security of information, but also its availability
and reliability
Establishing and implementing ICT policies in accordance with best practices
Coming up with an ICT governance model that provides ongoing dialogue, collaboration
and coordinated decision-making
2.6 Executive Decrees and Agency-Level Policies to Implement Disaster-
Related Measures
Presidents have traditionally resorted to various written instruments to direct the executive branch
and implement policies whose legal bases were already laid down by legislation.8 Executive
issuances, which have the force and effect of law, are among the vehicles through which the
President exercises this authority. Under the 1987 Constitution there is a separation of powers;
the power to make laws confined to a Congress composed of the Senate and the House of
Representatives, and the duty to execute it vested in the executive department, which is
symbolized and represented by the President.
Section 2.3 discussed legislative efforts related to DRM and ICT. On the part of the executive,
there were also efforts to direct government agencies to integrate ICT not just in its internal
operation, but in the delivery of public services. Table 3 lists important executive issuances that
relate to the use or adoption of ICT tools in the event of disasters.
It is important to mention here that the government already has an e-Government Master Plan
(EGMP) that serves as a blueprint for the integration of ICT in government operation. Under the
6 The Hyogo Framework for Action 2005-2015: Building the Resilience of Nations and Communities to Disasters was
endorsed by the United Nations General Assembly in the Resolution A/RES/60/195 following the 2005 World Disaster
Reduction Conference held in Hyogo, Japan in January 2005. Find out more at
https://www.unisdr.org/we/coordinate/hfa. 7 ASEAN Secretariat, ASEAN Agreement on Disaster Management and Emergency Response (AADMER) Work
Programme for 2010-2015 (Jakarta, 2013). Available from
http://www.asean.org/storage/images/resources/ASEAN%20Publication/2013%20%2812.%20Dec%29%20-
%20AADMER%20Work%20Programme%20%284th%20Reprint%29.pdf. 8 Vivian S. Chu and Todd Garvey, Executive Orders: Issuance, Modification and Revocation (Washington DC,
Congressional Research Service, 2014). See also Rogelio Alicor L. Panao, "Beyond roll call: executive-legislative
relations and lawmaking in the Philippine House of Representatives", Philippine Political Science Journal, vol. 35, no.
1 (2014), pp. 59-77.
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Plan, the government is envisioned to become digitally empowered to provide integrated,
transparent and responsive online services to the public. Executive Order (EO) 269, which
created the ICT Office, serves as one of its legal foundations. EO 47, which reorganized and
placed the ICT Office under DOST, serves as its implementing law.
Strictly speaking, neither the EGMP nor the aforementioned EOs deal directly with the issue of
ICT adoption towards a more resilient DRM framework. However, the EGMP states that e-
government R&D funds may be used to review existing and proposed mission critical projects
including the development of the national disaster and safety management system, among others.
The commitment to adopt DRR policies is covered by EO 888 that was issued on 7 June 2010.
This EO provides for the adoption of the strategic national action plan, which is encapsulated in
18 projects that include: information and database generation (under the coordination of OCD and
DOST); information, education and communication campaign (to be undertaken by the Philippine
Information Agency); and the development of forecasting and early warning systems (to be
spearheaded by DOST).
Table 3: Important executive issuances on the use of ICT in times of emergency
Executive
issuance Title Important provision
PD 576-A
(11
November
1974)
Regulating the ownership and
operation of radio and TV stations and
for other purposes
Radio and TV stations are required to allocate at
least two hours a day for public service
programmes (e.g., news, educational
programmes and government policy
dissemination).
EO 205, S.
1987
(30 June
1987)
Regulating the operation of cable
antenna television systems in the
Philippines and for other purposes
In times of war, rebellion, public peril or other
national emergency, the President may cause the
closure of a franchise holder’s CATV system or
to authorize government possession and use of it
without compensation.
EO 59
(24
February
1993)
Prescribing the policy guidelines for
compulsory interconnection of
authorized public telecommunications
carriers, in order to create a universally
accessible and fully integrated
nationwide telecommunications
network and thereby encourage greater
private sector investment in
telecommunications
Interconnection between NTC authorized public
telecommunications carriers shall be
compulsory. Interconnection means linkage by
wire, radio, satellite or other means, of two or
more existing telecommunications carriers or
operators with one another for the purpose of
allowing or enabling the subscribers of one
carrier or operator to access or reach the
subscribers of the other carriers or operators.
EO 109
(12 July
1993)
Policy to improve the provision of
local exchange carrier service
Authorized gateway operators are required to
provide a minimum of three hundred local
exchange lines per international switch
termination, and one rural exchange line for
every ten urban local exchange lines installed.
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EO 436
(9
September
1997)
Prescribing policy guidelines to govern
the operations of cable television in the
Philippines
The operation of cable television systems, as a
subscriber service undertaking with a unique
technology, shall be maintained separate and
distinct from telecommunications or broadcast
television, and under the sole supervision of the
NTC.
EO 469
(23
February
1998)
amending
EO 190
Approving and adopting the National
Information Technology Plan 2000 and
establishing the National Information
Technology Council
The EO calls for the coordination of all IT
public initiatives, programmes and projects, as
well as the promotion of strategic partnerships
and alliances among local firms and institutions
with leading international research, educational
and training institutions, technology providers,
developers, and manufacturers to speed up
industry growth. It also calls for the creation and
maintenance of a national database on IT as part
of the national statistical system.
EO 264
(12 July
2000)
Establishing the Information
Technology and Electronic Commerce
Council from the merger of the
National Information Technology
Council and the Electronic Commerce
Promotion Council
The EO intends to formulate a national
programme and strategy for the promotion of e-
commerce in the country. The national
programme and strategy for e-commerce shall
be consistent with the National Information
Technology Plan for the 21st Century and its
successor plans.
EO 269
(12 January
2004)
Creating the Commission on
Information and Communications
Technology (CICT)
One of CICT’s function is to encourage the use
of ICT in support of efforts for the development
and promotion of the country's arts and culture,
history, education, public health and safety, and
other socio-civic purposes.
EO 888
(7 June
2010)
Adopting the Strategic National Action
Plan on DRR 2009-2019 and
institutionalizing DRR
Included in the 18 priority projects under the
Strategic National Action Plan are information
and database generation; information,
education, and communication campaigns; and
forecasting and early warning.
EO 893
(11 June
2010)
Promoting the deployment and use of
Internet Protocol Version 6 (IPv6)
The EO orders the adoption of a government
IPv6 migration plan. It also orders Internet
service providers (ISPs) to be IPv6 compliant
within two years.
EO 47
(23 June
2011)
Reorganizing, renaming and
transferring the CICT and its attached
agencies to the DOST, directing the
implementation thereof, and for other
purposes
The EO aims to ensure the provision of, among
others, efficient and effective ICT infrastructure,
information systems and resources to support
efficient and accountable governance, and the
delivery of accessible public service.
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2.7 Efforts at the Local Level
Under existing DRR laws, LGUs are expected to be at the frontline in emergency response, as
well as be proactive in mitigating disaster risks. This vision is enshrined in the Local Government
Code, and reiterated in relevant legislations such as the Climate Change Act and the Philippine
Disaster Risk Reduction and Management Act. The latter act, for instance, mandates every LGU
to create a local disaster risk reduction and management plan.
House Bill 4926 that provides for an online network establishment policy (or the ONE
Philippines Act, according to its proponents) was passed on third reading. If enacted into law, the
bill will pave the way for nationwide interconnectivity among LGUs, under the coordination of
the DOST-ICT Office. The LGUs will then be able to use the improved connectivity and
interconnectivity to better coordinate and manage DRR efforts.
The problem with the Philippines is not the lack of laws, but lukewarm efforts at awareness
raising and in establishing a sufficient and stable enabling environment.9 Indeed, policy is a key
tool for guiding investment that promotes DRR, but in the Philippines not only is there a lack of
understanding of the costs and benefits of DRR, but there is also a mismatch between
policymaking and local realities. One stark lesson that experts noticed through the years is that
stronger efforts at the international level do not necessarily lead to substantive and rapid results
on the ground and at the local level.
3. Assessment of ICT Readiness and DRM Plans
This section focuses on aspects of e-resilience across all phases of DRM. The section will
discuss: (1) The overall state of the ICT infrastructure; (2) Existing ICT activities relevant to
DRR; (3) ICT programmes and initiatives that enhance DRR; and (4) The Philippine’s
participation in regional DRR systems (including the Asian Regional Integrated Multi-Hazard
Early Warning System). To start, a brief explanation of the concept of e-resilience is given.
3.1 e-Resilience
Resilience refers to the “ability to recover after a disaster as quickly as possible,” and when
considering ICT’s role in DRM, the focus should not only be on aspects related to the technology
per se, but also to the process.10
This includes the process of managing the information and the
technology, of developing human capacity to innovate and harness the potential of the
technologies, and of financing ICT development for DRM. In essence, e-resilience requires an
understanding of these interrelated human and technical components.11
Resilience is defined by the United Nations as, “the ability of a system, community, or society
exposed to hazards to resist, absorb, accommodate to, and recover from the effects of a hazard in
a timely and efficient manner, including through the preservation and restoration of its essential
9 Charlotte Benson, Mainstreaming Disaster Risk Reduction into Development: Challenges and Experience in the
Philippines (Geneva, ProVention Consortium, 2009). 10 The definition is based on an interview with Gen. Ojeda, Deputy Director for Cybercrime of the ICT Office. 11 Richard Heeks, Reinventing Government in the Information Age (1999).
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basic structures and functions.”12
3.2 State of ICT Infrastructure in the Philippines: Availability, Usage and
Quality
Figure 1: Access to ICTs in the Philippines, 2000-2013
Source: Graph created based on data from the International Telecommunication Union
Like the rest of the world, mobile phones have allowed Filipinos greater access to basic
telecommunication services. Based on data from the International Telecommunication Union,
access to mobile phones per 100 households has grown from only 8 per cent in 2000 to 104.5 per
cent by the end of 2013. In contrast, fixed telephone lines per 100 households have declined
slightly from 4 per cent in 2000 to 3.2 per cent in 2013. Over the same period, fixed broadband
has had a slow and steady growth, but only 2.61 per cent of the population had access to fixed
broadband in 2013 (see Figure 1). Nonetheless, access and use of the Internet among Filipinos
has been growing at a steady and faster pace, from 2.6 per cent in 2000 to almost 40 per cent in
2014 (see Table 4). Given the limited fixed broadband infrastructure in place, it may be safe to
say that it is wireless broadband through mobile devices and public access that is driving this
increased demand and use of the Internet.
12 United Nations Office for Disaster Risk Reduction, "Terminology". Available from
http://www.unisdr.org/we/inform/terminology.
0.00
20.00
40.00
60.00
80.00
100.00
120.00
fixed telephone per 100
mobile/cellular per 100
fixed (wired) broadbandper 100
% individuals usinginternet
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Table 4: Internet growth in the Philippines, 2000-2014
Year Internet users Total population % of population that
are Internet users
2000 2,000,000 78,181,900 2.6
2005 7,820,000 84,174,092 9.3
2008 14,000,000 96,061,683 14.6
2009 24,000,000 97,976,603 24.5
2011 33,600,000 103,775,002 32.4
2012 36.2
2013 37.0
2014 39.7
Sources: http://www.internetworldstats.com/asia/ph.htm (for years 2000-2011); Broadband Commission, The State of
Broadband 2013: Universalizing Broadband (Geneva, 2013); Broadband Commission, The State of Broadband 2014:
Broadband for All (Geneva, 2014); and Broadband Commission, The State of Broadband 2015: Broadband as a
Foundation for Sustainable Development (Geneva, 2015).
Despite the increased demand and use of the Internet among Filipinos, much is left to be desired
with respect to access to broadband infrastructure in the Philippines as compared to the rest of the
world. The Broadband Commission’s 2014 report ranks the Philippines 57th among 132 countries
surveyed in the area of household broadband penetration, with just about 23 out of 100 homes
having access to broadband Internet. This puts the country’s ranking at 110th place in fixed
broadband infrastructure with a 2.6 per cent penetration rate, and 79th in mobile broadband with a
20.3 per cent penetration rate. In terms of Internet user penetration, the Philippines is 106th, with
37 out of 100 Filipinos reported to be having Internet access.
Furthermore, in terms of quality, many independent studies have pointed out the poor quality of
broadband access in the Philippines. The country’s average broadband download speed is only
3.5 Mbps compared to the global average of 18.0 Mbps. Upload speed in the Philippines is 1.3
Mbps compared to the global average of 8.2 Mbps. The quality of mobile broadband is slightly
better with download speed of 3.7 Mbps and upload speed of 1.6 Mbps, compared to the global
average of 7.7 Mbps and 2.8 Mbps, respectively.13
Even when it comes to 4G-LTE technology, a
study by OpenSignal shows that the Philippines has the slowest speed at only 5.3 Mbps.14
Also, a
LIRNEasia Broadband Quality of Service Experience report shows that the Philippines’ basic
data plans gave the lowest value for money compared to all ISPs in South-East Asia and South
Asia that were tested during January to March 2014.15
13 Jose Bimbo F. Santos, "What else is new? PH Internet speed slowest in ASEAN", InterAksyon.com, 20 April 2014.
Available from http://www.interaksyon.com/infotech/what-else-is-new-ph-internet-speed-slowest-in-asean
Xinhua, "Australia has world's fastest LTE mobile Internet, PH slowest among 16 countries - UK survey", 22 February
2014. Available from http://www.interaksyon.com/infotech/australia-has-worlds-fastest-lte-mobile-internet-ph-slowest-
among-16-countries-uk-survey. 15 Based on a report provided by Ms. Grace Mirandilla.
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3.3 Gateways and Telecommunication Backbones16
International Cable Landings Several commercial undersea cable systems connect the Philippines to the rest of the world.
There are seven submarine cable systems landing in the Philippines. These include:
i. Asia Pacific Cable Network (APCN)
ii. Asia Pacific Cable Network 2 (APCN-2)
iii. Asia-America Gateway (AAG)
iv. East Asia Crossing (EAC-C2C)
v. Guam - Philippines (G-P)
vi. South-East Asia - Middle East - Western Europe 3 (SEA-ME-WE-3)
vii. Tata TGN Intra-Asia (TGN-IA)
These submarine cable systems are distributed in five cable landing stations in Batangas,
Ballesteros, Capepisa, La Union and Nasugbu (see Figure 2 and Table 5).17
Figure 2: Map of cable landings in the Philippines
Source: http://www.cablemap.info/
16 This section is largely based on a report by Erwin Alampay for LIRNEasia. 17 Submarine Cable Networks. Available from http://www.submarinenetworks.com/stations/asia/philippines.
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These cable landing stations were established by different telecommunication operators. The
Philippine Long Distance Telephone Company (PLDT) runs three international submarine cable
landing stations:
i. Batangas City (for APCN-2 and SEA-ME-WE-3)
ii. Bauang, La Union (for AAG)
iii. Daet, Camarines Norte (for Asia Submarine-cable Express)
Globe Telecom operates two international submarine cable landing stations:
i. Ballesteros, Cagayan (for TGN-IA)
ii. Nasugbu, Batangas (for a new South-East Asia-Japan Cable to help increase the capacity
and boost the resiliency of the Globe network)
Pacnet’s18
EAC-C2C cable network has dual landings in the Philippines—in Capepisa, Cavite and
Nasugbu, Batangas.
These cable landings are especially important from an economic perspective, given that the
Philippines is one of the world’s top business process outsourcing destinations. These multiple
submarine networks serve as critical components to the business process outsourcing industry by
providing reliable, redundant and diverse links between the Philippines and the rest of the world.
From a DRM perspective, the redundant systems allow for communication to flow, even when
some channels get disconnected.
In 2008, the NTC issued a memorandum circular that called for the mandatory interconnection of
backhaul operations19
to landing sites, as a way of bringing down prices to benefit consumers.
Since the backhaul networks are necessary to bring the traffic to and from international optical
submarine cable systems, the cost of the backhaul networks is part of the prices of international
circuits. This can help bring down prices of services that require international connections like
fixed-line, mobile and text messaging. It also benefits companies that do not have their own cable
landing stations, because it gives them more choices of backhaul networks.
18 Pacnet was acquired by Telstra in 2015. See https://en.wikipedia.org/wiki/Pacnet. 19 Backhaul networks transmit traffic to and from international optical cable systems. This would allow for faster
communication not just within the country, but also between the Philippines and other countries.
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Table 5: Summary of submarine cable systems in the Philippines
Submarine
cable
system
Length &
design
capacity
Year
started
Landing
point in
PH
Other landing points
Owner/Maintenance
authorities (PH
authorities in bold)
AAG 20,000 km,
2.88 Tbps
2010 La Union Malaysia, Singapore,
Thailand, Brunei
Darussalam, Viet Nam,
Hong Kong, Guam,
Hawaii and continental
West Coast of USA
AT&T Inc., Bayan,
Bharti, BT Global
Network Services,
CAT Telecom, ETPI,
FPT Telecom, the
Government of Brunei
Darussalam, PT
Indosat, PLDT,
Saigon Postel
Corporation, StarHub,
Telcotech, TELKOM
Indonesia, Telstra,
Telekom Malaysia,
TNZL, Viettel and
VNPT
TGN-IA 6,700 km,
3.84 Tbps
2009 Ballesteros,
Cagayan
Hong Kong, Viet Nam,
Singapore and Japan (with
connectivity via the TGN
Pacific Network to Guam
and USA)
Tata Communications
and Globe
EAC-C2C 19,500 km,
2.5 Tbps
2007 Capepisa Japan, Republic of Korea,
Taiwan, Hong Kong,
Singapore, Viet Nam,
Guam and USA
Pacnet
APCN-2 19,000 km,
2.56 Tbps
2002 Batangas Japan, Republic of Korea,
Taiwan, Hong Kong,
Malaysia and Singapore
CT, Reach NHK,
CTM, TM, Singtel,
KT, NTT Com, KDDI,
PLDT and CHTI
SEA-ME-
WE-3
39,000 km,
960 Gbps
1999 Batangas China, Brunei Darussalam,
Viet Nam, Malaysia,
Singapore and Hong Kong
CT, Reach NHK,
CTM, PLDT, JTB,
MPTC, VNPT, TM
and Singtel
G-P 3,600 km,
40 Gbps
1999 Batangas Guam AT&T and PLDT
APCN 12,084 km,
5 Gbps
1997 Batangas Japan, Republic of Korea,
Taiwan, Hong Kong,
Malaysia, Singapore,
Thailand, Indonesia and
Australia
KT, KDDI, Chunghwa
Telecom International,
PLDT, Reach NHK,
TM, Singtel, CAT and
Indosat
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Domestic Networks
There are two large domestic undersea cable systems that form a ring around the country and land
at more than 20 Philippine population centres. Alternative backbone networks were initiated in
1996 by existing telecommunications providers. These are the National Digital Transmission
Network (NDTN) managed by the Telecom Infrastructure of the Philippines (TelicPhil)—a
consortium of seven local exchange carriers,20
and the Domestic Fibre Optic Network (DFON),
owned and operated by PLDT.21
NDTN is a fibre optic backbone that is capable of transmitting about 150,000 simultaneous calls
and runs from La Union in the north through Western Visayas to Davao City in the south. DFON
uses a fibre optic cable network and operates at 2.5 Gbps, applying synchronous digital hierarchy
to provide nationwide digital coverage.
The government also has a national backbone infrastructure because of its municipal telephone
programme that was implemented to establish public calling offices in municipalities across the
country to provide local and long distance services nationwide. This was done through the
participation of both government and private institutions.22
Aside from this, the government also
has the Philippine Research, Education and Government Information Network. It is the country’s
only research and education network that connects academic research and government
institutions, and has links to international research and education networks such as the Asia-
Pacific Advanced Network, the Asian Internet Interconnection Initiatives and the Trans-Eurasia
Information Network 3.
There have been investments in satellite communications in the country in case of disasters or
emergencies. The Mabuhay Philippines Satellite Corporation launched the first Philippine
satellite, the Agila II, in August 1997.23
Satellite technology now links Metro Manila government
stations to all regions of the country.
Internet Exchange
The Philippine Internet Exchange (PhIX), formally launched on 3 July 1997, was the first
interconnection or network access point established in the Philippines by PLDT. PhIX allowed
local ISPs with a primary connection to the global Internet, to access and exchange local Internet
transactions without accessing the global Internet.
By 2002, there were three Internet exchanges in operation, two of which were commercial and
operated by telecommunication companies. After PhIX, the second telco-run exchange was the
Manila Internet Exchange (MIX), operated by the Eastern Telecommunications Philippines
(ETPI). Both PhIX and MIX offered network monitoring and security and were also peered
together. However, some local technology bloggers then noted: “The link between MIX and
20 These were BayanTel, Digitel, ETPI, Extelcom, Globe, PT&T and Smart. 21 Philly, "Philippines and Submarines", Philfaqs, 23 May 2010. Available from http://philfaqs.com/philippines-and-
submarines/. 22 Bree Connally, "Information Technology in the Philippines", 12 December 1999. Available from
http://www1.american.edu/carmel/bree/telecom.html. 23 Ibid.
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PHIX (was) so congested that it (was) actually faster if the traffic passed international cable
networks!”24
The third exchange was run as a non-profit called Common Routing Exchange or CORE, which
was operated by the Philippine Internet Foundation. It had a lower level of service, although it
was completely free of charge. It was also the very first ISP in the Philippines, having started in
1994.
In order to address the problem of network congestion, the Applied Science and Technology
Institute (ASTI), the R&D arm of DOST, initiated the Philippine Open Internet Exchange
(PHOpenIX) in 2007. This Internet exchange was meant to be operated as a neutral institution as
it was maintained by a consortium of commercial, non-governmental, academic and government
institutions. The significance of the project is that Philippine-based ISPs will be able to route their
traffic locally without depending on their telecommunications providers, especially during major
disasters that could damage undersea cables. Among the major ISPs, only PLDT has not joined
PHOpenIX.25
Cellular Networks
The main mobile network providers in the country use GSM/GPRS networks. They have since
upgraded to 3G/4G services that can be used to access the Internet through mobile phones and
other devices. There are also other next generation networks and other technologies for linking
the last-mile (i.e., ADSL, Wi-Fi, VSAT, Wi-Max, etc.)
As far as coverage is concerned, both Smart and Globe have continued to expand the number of
cell sites and base stations throughout the country, with both already claiming 99 per cent
coverage since 2007 (see Table 6).
Table 6: Mobile phone coverage (base stations, cell sites and coverage)
2005 2006 2007 2008 2009 2010
Smart Base Stations 5,982 6,099 7,825 8,477 9,727 10,316
Smart Cell Sites 4,305 4,377 5,001 5,284 5,539 6,037
Coverage 82% 99% 99% 99% 99% 99%
Globe Base Stations 10,333 11,660
Globe Cell Sites 5,159 5,884 6,217 6,446 6,226 6,698
Coverage 93% 96% 99% 99% 99% 99% Sources: Annual Reports of SMART and Globe
24 The Rebirth of Philippine Internet Exchanges? 13 January 2007. Available from http://phopenix.net/news/the-rebirth-
of-philippine-internet-echanges/. 25 Personal interview conducted at the ASTI office, U.P. Diliman, on 18 September 2008.
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3.4 Resilient Government ICT Systems
While the primary framework for DRR is the current DRM Plan 2011-2028, the national ICT
policy framework for government is the EGMP.
The e-Government Master Plan
The EGMP was developed to operationalize the e-government aspect of the Philippine Digital
Strategy of 2011. The EGMP essentially acknowledges the crucial role that ICT has in
governance and for the delivery of public services.
The following are the focus areas extracted from the EGMP that are related to DRM:
1. Transparent government/open governance, with the key actions related to this being –
Improved government ICT infrastructure, systems and ICT-related procedures.
Enhanced services.
Increased access of government data to the public.
2. Internet for all/digital inclusion –
Implementation of national connectivity and broadband development.
Establish information and communication infrastructure: disaster mitigation and
management, public education, public health and other sectoral concerns.
Public shared access: community e-centres.
Green ICTs: e-waste, ICTs and climate change.
To undertake these focus areas, the EGMP identifies the following building blocks: (1) The
governance system for the various information systems that will be involved; (2) The basic
infrastructure that would include broadband access, registries and data centres that need to be
interoperable; and (3) Applications that would run these core services (see Figure 3).
Figure 3: The building blocks of e-government in the EGMP
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For the purposes of this report, we will look at the state of the infrastructure, registries and
services as applicable in DRM-CCA and framed under the latest DRM plan.
3.5 ICT for DRM
The current EGMP makes no specific mention to the use of ICT for DRM. However, the basic
foundational infrastructure and shared services that apply to it (see the three foundations/base of
the diagram in Figure 3) are expected to deliver public service, which includes DRM services.
The basic e-government infrastructure discussed in the EGMP comprises the following:
Fibre Optic Network – One of the projects of the EGMP is the Integrated Government
Philippines (iGovPhil) Project.26
This project is tasked to provide the necessary
infrastructure and software needed for e-governance. The infrastructure includes the
creation of data centres and layout of fibre optic networks to interconnect government
offices and provide high-speed communication and sharing of tasks and data. Software
includes online tools, services and applications for use by government agencies and
citizens. With fibre optic technology, government agencies will have access to the
Internet and the iGovPhil network at bandwidths and speeds that most commercial
service providers offer, but at a much lower cost.
Initially, iGovPhil will tap into existing fibre connections used by some government
agencies in the EGMP to create a fibre optic network in Metro Manila and Metro Cebu.
Eventually, this will be expanded to connect all government offices across the country.
According to ASTI, the lines have already been laid out, and had targeted the last quarter
of 2015 to light the network up. There are plans for eight other regions of the country to
have their own fibre optic networks, and eventually all these will be interconnected.
The ICT Office’s main data centre is in Quezon City, and a commercial back-up of their
data centre is in Makati. A third data centre is planned in Subic. Subic’s location is
strategic from a resiliency standpoint as it is not co-located in Manila, but it is one of the
international cable landing points. Subic is in a relatively high geographical area and
therefore not flood prone. It is also relatively isolated from the population, which adds to
its security.
Government Cloud or GovCloud – Participating government agencies will be provided
access to modules and software through a cloud service—a platform that the
government’s email system, payment system, records management system, public key
infrastructure, and other hosting and communication services will be operating on.
Through the GovCloud, agencies will be able to share resources, hardware and software
over the network connected to the data centre. In terms of resiliency, having a centralized
system allows for better security of the data as well as the network.
26 Find out more about iGovPhil at http://i.gov.ph/.
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The capacity for information security management in many government agencies and
departments is very low as pointed out in the latest resource survey conducted and
mentioned in the EGMP. The survey shows that only 72 per cent of the agencies have
back-up power, and only 55 per cent have a software firewall (see Table 7 for full survey
results). Hence, even from a basic, non-natural disaster perspective, much of the basic
information that many government agencies keep is already vulnerable to various
possible technical (e.g., power outages, file damage) and human (e.g., hacking) factors.
Table 7: Security and recovery measures undertaken by government agencies and
departments
Protection / Measure Count %
Back-up power unit 214 72
Software firewall 163 55
Subscription to a security service 160 54
Security policy/guidelines 139 47
Physically restricted access to critical ICT equipment 136 46
Hardware firewall 127 43
Secure servers 123 42
Storage of back-up media 97 33
Off-site back-up 55 19
Encryption 51 17
Regular ICT security training of employees 49 17
Disaster recovery plan 41 14
Digital signatures 18 6
Others 11 4 Source: EGMP
In July 2013, the government issued Administrative Order 59, mandating the migration of
all government websites to the government’s more secure Government Web Hosting
Service after a spate of cyberattacks from overseas.
TV White Space – TV white space refers to the unused TV channels between the active
ones in the VHF and UHF frequencies. These channels can be used to access broadband
Internet connectivity at a low cost. Currently, the Philippines has 24-31 unused TV
channels in the rural areas, and 18 in Metro Manila.
The DOST-ICT Office proposes to adopt and deploy TV white space technologies for
providing broadband-based public services and for developmental interventions such as
telemedicine, educational content delivery, rural last-mile connectivity and environmental
sensor networks. During a disaster, TV white space can allow citizens to access
broadband Internet services, even when fibre optics and cable connections are down.
DOST has been conducting trials in the Visayas Region, including in areas hit by
Typhoon Haiyan such as Leyte Province, and in Bohol that was hit by an earthquake in
2013. Based on the trials, the ICT Office has developed guidelines for scaling up the use
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of TV white space nationwide. According to ASTI, with the available bandwidth in TV
white space, it can provide voice and even video communication should the need arise in
an emergency situation.
Integrated System for Digital Broadcast TV – There is a planned transition of TV
channels from analogue to digital transmissions (see Memorandum Circular 0511-2013).
This will require TV stations to change their transmitters, and viewers to change their TV
systems. But once this is done, this system can also be used to broadcast early warning
messages via digital TV.27
3.6 Revised Building Code Standards
Last but not least, consistent with the government’s call to ‘build back better’, one of the lessons
learned from the Philippines’ experience in Typhoon Yolanda is that certain building standards
need to be revisited. This includes standards on how the ICT infrastructure itself is developed in
the future. In the Philippines, where mobile services are crucial for universal access strategies,
this means having mobile towers that are resistant to the strongest of winds. According to the ICT
Office and experts from the private sector, telecommunication towers should now be able to
withstand typhoon winds of 250-300 km per hour.
4. Trends in Applications
This section provides some examples of ICT applications in the four phases of DRM
4.1 ICTs in Disaster Prevention and Mitigation
The lead agency involved in disaster prevention and mitigation is DOST. One of the desired
outcomes for this phase of DRM is end-to-end monitoring, forecasting and early warning
systems. In this regard, there are a number of initiatives that DOST carries out that can be cited.
Foremost among these are Project NOAH and arQ.
Project NOAH
Project NOAH or the Nationwide Operational Assessment of Hazards was initiated as a response
to President Aquino’s challenge to put in place a programme for:
Communities situated in the country’s 18 major river systems;
Enhancement of geo-hazard maps; and
Enhancement of storm surge vulnerability maps.
27 Based on an interview with Gen. Ojeda, Deputy Director for Cybercrime of the ICT Office.
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As such, Project NOAH’s goal is to provide high-resolution flood hazard maps, and install 600
automated rain gauges and 400 water-level measuring stations for 18 major river basins28
of the
Philippines. The other river basins of the Philippines will also be mapped, after the work on the
18 major river basins is completed.
The hazard maps are produced with computer simulations that show flood-prone areas at a local
scale. These maps are needed for localized emergency responses, identification of evacuation and
access routes, road closures during disaster events, siting of key rescue facilities, and
comprehensive land-use planning.29
For this, Project NOAH uses various data sources to provide the appropriate lead time for various
weather disturbances (e.g., local thunderstorms, monsoon rains, tropical cyclones). Data sources
include: (1) Satellite data five days before landfall; (2) Doppler radar 24 hours before land fall;
(3) Auto rain gauges 6-9 hours before flooding; and (4) Water level sensors 3-6 hours before
flooding.
There are nine components under Project NOAH are as follows:
i. Hydromet Sensors Development
ii. DREAM-LIDAR 3-D Mapping Project (includes Rapid Flood Simulation)
iii. Flood NET – Flood Modelling Project
iv. Hazards Information Media
v. Geo-hazards Mapping through LIDAR
vi. Doppler System Development
vii. Landslide Sensors Development Project
viii. Storm Surge Inundation Mapping Project
ix. Weather Information Integration for System Enhancement
The storm surge inundation maps produced under component 8 are important for improved
disaster mitigation. Such maps were produced for Leyte, Bohol, Eastern Samar and Iloilo
provinces.
Advanced Remote Data-acquisition Unit (arQ)
At the heart of DOST’s DRM system is the arQ, which is composed of low-powered devices that
can store, acquire and process data gathered from various sensors in the field. According to ASTI,
there are over thousands deployed and scattered all over the Philippines.
In terms of resiliency, the arQ has an on-board volatile memory, capable of storing a year’s
quantity of data. It is IP67-rated for outdoor use, and consumes low amounts of power. The arQ’s
constituent devices have redundant power schemes with two in-built high capacity rechargeable
lithium polymer batteries as the primary power source, and an external solar supply as secondary
power. Also, over-the-air programming is possible for remote firmware upgrades.
28 The 18 river basins are: Marikina River, Cagayan de Oro River, Iligan River, Agno River, Pampanga River, Bicol
River, Cagayan River, Agusan River, Panay River, Magaswang Tubig River, Jalaur River, Ilog-Hilabangan River,
Agus River, Davao River, Mindanao River, Tagum-Libuganon River, Tagaloan River and Buayan-Malungun River. 29 DOST - Project NOAH website. Available from http://noah.dost.gov.ph/.
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This system includes automated weather stations, meteorological buoys, automated rain gauges,
agro-meteorological stations, water level monitoring stations and tsunami early warning system
(the Philippines currently has five of these in pre-identified tsunami prone areas).
Nababaha.com
Nababaha.com30
is a non-profit project of members of the volcano-tectonics laboratory of the
National Institute of Geological Sciences at the University of the Philippines.
The project developed flood hazard maps from flood simulations using Flo2d—a U.S. Federal
Emergency Management Agency approved flood routing application software. The flood maps
were simulated using rainfall delivered by tropical storm Ondoy on 26 September 2009 over 3
arc-second topography from the Shuttle Radar Topography Mission. The rainfall event is
considered an extreme event that can generate floods with a 100-150 year return period. These
hazard maps are indicative inundation maps for large flood events, and useful only for knowing
which places to avoid during extremely heavy rainfall. For local governments, these flood hazard
maps can be used for localized emergency responses (i.e., evacuation and access routes; road
closures; siting of key rescue facilities) and for urban planning. It should not be used for
insurance and bank appraisal purposes.
These hazard maps are only as good as the topographic map base that was used in the flood
simulation. Detailed and more accurate flood hazard maps of any city can be conducted upon
requests to the flood simulation team at the National Institute of Geological Sciences.
PHIVOLCS Information Portal and Hazard Maps
One of the agencies attached to DOST is the Philippine Institute of Volcanology and Seismology
(PHIVOLCS). The key mandates of PHIVOLCS that are closely related to DRM are carried out
through its Volcano, Earthquake and Tsunami Disaster Preparedness and Risk Reduction
Programme. The following are all the major programmes that PHIVOLCS is currently
implementing:
Earthquake Generation Potential of Active Faults and Trenches
Earthquake Hazards and Risk Assessment
Eruption and Magmatic History of Volcano Systems
Leadership Enhancement and Development
National Earthquake Monitoring and Information
National Tsunami Monitoring and Early Warning
National Volcano Monitoring and Warning
Strategic Human Resource Management and Development
Strategic Performance Assessment and Development for Excellence
Volcanic Hazards and Risk Assessment
Volcano, Earthquake and Tsunami Disaster Preparedness and Risk Reduction
PHIVOLCS introduced the ‘Information Portal for Philippine Earthquake and Volcano’ on 15
September 2014. The overall goal of the five-year programme is to enhance the capabilities of
30 See http://www.nababaha.com/.
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DRM authorities and related organizations to respond to earthquake and volcano disasters
through the proposed four components namely: (1) Real-time earthquake monitoring; (2)
Evaluation of earthquake generation potential; (3) Integrated real-time volcano monitoring; and
(4) Provision of disaster mitigation information and promotion of utilization.
Following a series of joint meetings with partner agencies, including the Japan International
Cooperation Agency-Japan Science and Technology Agency, and the National Research Institute
for Earth Science and Disaster Prevention, PHIVOLCS came up with a prototype of the portal,
which will be available for public viewing in the near future.
PHIVOLCS has also been creating earthquake and volcano hazard maps. PHIVOLCS and Kyoto
University have been mapping the Philippine Fault Zone since 2003, and to date, 90 per cent of
the on-land stretch of the Philippine Fault Zone has been mapped based on available large-scale
aerial photographs. In areas where there are no available aerial photographs, various satellite
images are used to map the fault zone. The identified surface traces of the fault zone are then
plotted onto 1:50,000 topographic maps published by the National Mapping and Resource
Information Authority, and compiled using GIS platforms such as MapInfo Professional and the
Generic Mapping Tool.
4.2 ICTs in Disaster Preparedness
OCD’s Disaster Information for Nationwide Awareness Project (Project DINA)31
Project DINA is the Philippines’ proof of commitment to the realization of the Hyogo Framework
for Action’s Priority Action 3: Use knowledge, innovation and education to build a culture of
safety and resilience at all levels. Project DINA developed and disseminated DRR information to
the public, including audio-visual materials on what to do before, during and after earthquakes,
tsunami, tropical cyclones, landslides, floods, volcanic eruptions, and fires. The project launched
its website on 6 November 2013, allowing the public to access all of Project DINA’s materials
online on its website.32
Weather Forecasting
The lead agency for weather forecasting is PAGASA, a scientific and technological services
institute under DOST. Its mission is to provide weather, flood, climate and astronomical products
and services to promote people’s safety and well-being, and contribute to national development.33
PAGASA’s ISP network ensures fast back-up and reliable Internet connections (three ISPs
connected to a load balancing router, its operations connected by a 1GB fibre optic connection
between its weather forecasting and flood forecasting operations) to its main administrative
office, which is also connected to another ISP. It has an FTP server that links with various
31 Project DINA's website. Available from http://ocd.gov.ph/index.php/project-dina. 32 Carmela Fonbuena, "Project DINA: It may save your life", Rappler, 6 November 2013. Available from
http://www.rappler.com/nation/43037-project-dina-disaster-website-launched. 33 A presentation on PAGASA. Available from
http://www.wmo.int/pages/prog/wcp/wcasp/documents/workshop/pune2015PPT/day1/Session4-Philippines.pdf.
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forecast and warning systems, and through which it issues local forecasts/warnings through
PAGASA’s regional centres. PAGASA is also connected to the Global Telecommunication
System as global connections are needed for the rapid collection, exchange and distribution of
observations and processed information within the framework of the World Weather Watch. It is
also part of the Regional Meteorological Telecommunications Network for Region V (South-
West Pacific).34
Forecasts, warnings and other information are disseminated by PAGASA through TV and radio
broadcasts, SMS blasts, and various online tools such as email, Facebook and Twitter. Warnings
are disseminated to the general public, as well as to those in the aviation and shipping industry.
At present, the warning systems include the rainfall warning system and the thunderstorm
warning system. There is also an early warning and monitoring system for flood supported by the
Korea International Cooperation Agency.35
OCD’s National Cell Broadcast System
The national cell broadcast system allows text messages to be sent to a large number of mobile
phone subscribers in near real-time with location specific information. It is part of a nationwide
early warning system for the public and can be used to disseminate critical information before,
during and after any disaster scenario. The text messages sent out are free of charge.
4.3 ICTs in Disaster Response
NDRRMC’s Intelligent Operations Center
Typhoon Yolando exposed the weak communication system of the NDRRMC. It did not have a
radio communication system, and its satellite communications equipment was only available in
Luzon.36
Thus on 5 May 2014, the NDRRMC announced the establishment of an Intelligent
Operations Centre (IOC), a 600m2, state-of-the-art communications facility that can withstand
disasters of even Typhoon Yolanda’s magnitude.37
This initiative is supported by SMS Global
Technologies, and includes the construction of the IOC building, and provision of an emergency
communication vehicle, and relevant management and technical training to personnel at the IOC.
The plan is for the IOC to be a central hub where all the information can be integrated, processed,
consolidated and aggregated for specific areas, in order for the government to make critical
decisions during disasters. The IOC building, which will be located within the premises of Camp
Aguinaldo, the central military headquarters, is estimated to cost PHP 300 million (USD 6.5
million).
34 R. P. Canillo, "ICT for Disaster Risk Management", presentation made at the Workshop on ICT for Disaster Risk
Management for ASEAN at Quezon City, the Philippines on 11-12 December 2013. 35 Ibid. 36 This was according to Lieutenant Colonel Edwin Sadang, who then headed the OCD Operations Division. 37 Voltaire Tupaz, "Disaster agency gets modern communications facility post-Yolanda", Rappler, 5 May 2014.
Available from http://www.rappler.com/nation/57270-nDRMc-acquires-modern-communications-facility-post-yolanda.
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Government Emergency Communication Programme
With the implementation of Project NOAH in 2011, DOST through the ICT Office has also been
tasked to ensure the smooth tracking, exchange and use of critical information prior to, during
and after a natural calamity.
ICT Office’s Government Emergency Communication Programme adopts a three-pronged
approach:
i. Procurement/provisioning of mobile/portable emergency communication
equipment/facilities like mobile ICT, satellite phones and modern HF radios;
ii. The immediate deployment of mobile/portable emergency communications equipment to
areas hit by natural calamities. This would include deployment to selected ICT offices,
OCD, the Department of Social Welfare and Development and other concerned agencies;
and
iii. The development of an Operations Manual for the ICT Office on reducing vulnerabilities
and increasing resiliency.
With this programme, the ICT Office aims to shorten the time it takes to reach those affected by
disasters and improve disaster response efforts through enhanced communication and enhanced
capacity of the telecommunications team. According to Col. Sadang of the OCD, NDRRMC
should ideally have the capacity to deploy at least six rapid telecommunications teams, and each
team should be equipped with the following:
Satellite phones (10 units)
VHF base radios (6 units)
HF radios (6 units)
VHF handheld radios (30 units)
Mobile phones (10 units)
Mobile generators (2 sets)
Solar-powered mobile phones (6 sets)
Integrators (2 sets)
Pocket Wi-Fi (6 sets)
Tool kits (6 sets)
Laptops (5 units)
Drones (2 units)
A public announcement system
NDRRMC National Text Blast System
This communication system connects about 100,000 disaster managers throughout the
Philippines, allowing NDRRMC to rapidly send free SMS messages, including advisories and
announcements, and be able to receive feedback, comments, queries and other messages. This
service is only available to pre-registered SMART subscribers.
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eBayanihan Project
eBayanihan is a DOST-funded project to develop a Nationwide Participatory SMS-Web Based
Disaster Reporting System. This system is created by the Ateneo de Manila University Social
Computing Science Lab. What it does is to crowdsource information and situation reports via
SMS from all networks to eBayanihan. To participate, citizens are instructed to use the following
reporting format:
POST [KEYWORD], [URGENCY], [STREET BRGY MUNICIPALITY/CITY], [DETAILS OF
SITUATION]
Among the keywords it tracks are: Accidents, Barangays, Bridges, Brownouts, Earthquake,
Evacuate, Fire, Flood, Landslide, Rain, Relief, Rescue, Road and Wind.
Batingaw Mobile App
Batingaw is the Filipino word for siren or alarm. The Batingaw mobile application for iOS and
Android devices was developed by NDRRMC in partnership with Smart Communications and
Tudlo Innovation Solutions.
The mobile app can be used to give government agencies, organizations and individuals
immediate access to disaster warnings, advisories, location data and disaster mappings. It features
step-by-step instructions that can guide users to safety during disasters. The app also enables
users to contribute information to emergency agencies more easily and quickly.38
Among its
features are the following:
Access and links to government agencies and NGOs’ websites and Twitter feeds
Description of the different hazards
Safety tips (before, during and after disasters)
Digital tools (siren, flashlights, compass, strobe, e-library, FM and AM radio)
Contact numbers of national responders
Location maps with different layers on responders, warehouses, schools, evacuation
centres and hospitals
4.4 ICTs in Disaster Recovery
One of the things the public demands from the government’s post-disaster recovery work is
greater transparency in terms of how funds for disaster relief and recovery are used, whether this
is from taxpayers’ money or from individual, group or corporate donations. In this regard, there
are two information systems to note: the Foreign Aid Transparency Hub (FAiTH) and the Track
Recovery System.
38 Smart Communications, "OCD-NDRRMC, SMART launch Batingaw mobile app", press release, 21 July 2014.
Available from http://smart.com.ph/About/newsroom/press-releases/2014/07/25/ocd-ndrrmc-smart-launch-batingaw-
mobile-app.
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FAiTH39
FAiTH is an online portal with information on calamity aid and assistance pledged or given by
countries, intergovernmental organizations, NGOs and private entities to the Philippine
government. Information on donations through the Commission on Filipinos Overseas’ Lingkod
sa Kapwa Pilipino Programme and through Philippine embassies are also available on the portal.
FAiTH was launched to track foreign aid for the victims of Typhoon Yolanda, but ultimately the
portal is intended for tracking foreign aid received for all calamities. FAiTH only tracks
assistance given to the Philippine government’s implementing agencies. This covers cash
donations as well as non-cash donations (such as medical equipment, medicines, relief goods,
etc.) to the OCD, Department of Health, Department of Social Welfare and other agencies. Aid
pledged to NGOs and intergovernmental organizations are only monitored insofar as they are
reported to have been pledged for such organizations, but FAiTH does not track the use of the
aid.
Track Recovery System
The Track Recovery System is an initiative of the Presidential Assistant for Rehabilitation and
Recovery (PARR)40
to allow the public to track the funds that are given for post-Yolanda
recovery, and at the same time, hold implementing agencies accountable to demonstrate results
on the ground.
The plan is for the system to initially track post-Yolanda recovery efforts, but it is envisioned that
the system will be used to monitor the recovery from calamities in the future. PARR is
collaborating with relevant government agencies like the Department of Budget and Management
and the National Economic Development Authority for data.
While FAiTH only tracks foreign aid to the Philippine government, the Track Recovery System
will track projects of all implementing entities including national government, LGUs, NGOs and
the private sector. These implementing entities will be able to use the Track Recovery System for
their monitoring, mapping and reporting needs. In terms of the coverage and period, the Track
Recovery System will include the financial and physical status update of programmes and
projects during the recovery phase, while FAiTH only reports on the financial status of pledges
made during emergency response.
Another useful portal for information on response and recovery programmes and projects is a
United Nations site called Humanitarian Response. The portal has a section dedicated to response
and recovery information in the Philippines.41
39 See http://www.gov.ph/faith/. 40 After Typhoon Yolanda, the government created the position of Presidential Assistant for Rehabilitation and
Recovery (PARR). The PARR was tasked to unify the efforts of government and other agencies involved in post-
Yolanda rehabilitation and recovery. In performing its mandate, the PARR coordinates with the NDRRMC and
consults with LGUs. 41 See http://www.humanitarianresponse.info/operations/philippines.
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iGovPhil
An important aspect of disaster recovery is the recovery of vital information that is needed for
government to function. Hence, the iGovPhil Project of the EGMP includes making sure that the
needed government information about its citizens, and services connected to them, can be
reconstructed and made accessible as soon as possible. The project involves establishing
registries of citizens, businesses, land and transportation; and the archiving and digitization of
government records. Secure and duplicate records are crucial for rapid system recovery for
government functions to operate quickly post-disaster.
The iGovPhil is a flagship project of the DOST implemented through its attached agencies—the
ICT Office and ASTI. The project will provide the necessary infrastructure, support services and
applications needed for e-governance. The infrastructure includes the government data centres
and fibre optic networks to interconnect government offices, and provide high-speed
communication for the sharing of tasks and data. It also has online security tools, services and
applications for use by government agencies and citizens.
The iGovPhil will digitize paper-based documents and records and, more importantly, develop
systems that will manage these documents—from creation, routing, tracking, archiving to
disposal—while adhering to existing policies, laws and ISO standards as defined by the National
Archives of the Philippines. The project is composed of four components: (1) the Archives and
Records Management Information System; (2) the Agency Records Inventory System; (3) Data
Registry; and (4) Digitization.
5. Conclusions and Recommendations
Previous studies have identified key ICT tools that are relevant for DRM. These include radio and
television, telephone (fixed and mobile), SMS, satellite radio, Internet/email, amateur and
community radio, and GIS and remote sensing.42
Many of these are already being used in the
Philippines, especially for monitoring weather and keeping the public informed. Also, based on
the inventory of available laws, executive issuances and legislative efforts, it is clear that the
Philippines is not very far behind in terms of policy. But as experts have warned, ICT is a tool
and not a panacea for all disaster-related concerns.
A problem ailing DRM efforts in the country is the apparent disconnect between policy and
reality. On paper, the laws look good and provide for legal mechanisms needed to prepare the
country for disasters. In practice, however, these laws have to give in to the realities of
governance problems and limited and vulnerable infrastructure to enforce them. A high level of
policy commitment by government—commitment that is impervious to change in administrations
and political shifts—is also necessary.
42 Chanuka Wattegama, ICT for Disaster Management (Bangkok, UNDP-APDIP and UN-APCICT, 2007), Available
from http://www.unapcict.org/ecohub/resources/ict-for-disaster-management/; and Christine Apikul, ed., ICT for
Disaster Risk Reduction, ICTD Case Study 2 (Incheon, UN-APCICT, 2010), Available from
http://www.unapcict.org/ecohub/ict-for-disaster-risk-reduction-1.
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Interestingly, some experts consider the Philippines’ legal framework as an example of good
policy linkage in addressing both the issues of climate change and DRM.43
But more needs to be
done. The critical challenge is how to sustain political will to ensure policy stability once the
legal bases have been set in place. A devastating storm or earthquake can rouse the public and
prompt government to act, but a vigilant public and quality leadership are the real impetus for
policy commitment.
Needless to say, any policy—be it in promoting ICT or addressing DRM in general—should take
into account the country’s ability to narrow the information and digital divide. But, as Padojinog44
reminds us, closing the divide entails not just increasing the ICT capability of users or increasing
ICT usage. It also involves improving access and affordability for consumers through
competition, interconnection and convergence in the ICT sector. Similarly, resiliency is not just
about being better prepared, but requires a transformation so that adaptive practices become the
new mode for business operations, including those in the ICT sector.45
5.1 Recommendations
1. Formulate an ICT plan for DRM that is integrated and coordinated with
existing DRM and climate change policies and programmes.
As previously mentioned, the Philippines does not lack laws that provide the framework for
DRM. What is conspicuously absent, however, is a single unified strategy that ties and
coordinates policies for stakeholders. In 2013, the EGMP was crafted to serve as a blueprint for
the integration of ICTs for the whole of government. The plan is commendable in recognizing
that interoperability and harmony of operation is not solely a technical concern, but an
organizational matter that needs to be addressed. It also recognizes the need to have centralized
and redundant databases and registries, linked together in a more localized infrastructure that can
be properly secured and backed-up. These features are necessary to make sure government
systems remain resilient in all contingencies, not just natural hazards. Government is undoubtedly
a prime mover of change, but in the larger scheme of things it is only one element.
Consistent with this study, it is recommended that the formulation of a comprehensive ICT plan
for DRR should take into account existing policies, programmes and standards that unify efforts
in a coherent strategy. The need for such a single, unified plan finds its logic in the very definition
of resilience as a core approach in managing disaster risks that addresses DRR, as well as CCA,
social protection and humanitarian responses, towards achieving sustainable development.
The EGMP, as discussed earlier, allocates R&D funds for mission critical projects, including the
development of the national safety and management system. A truly “resilient” policy, however,
43 Sivia Llosa and Irina Zodrow, Disaster Risk Reduction Legislation as a Basis for Effective Adaptation, Global
Assessment Report on Disaster Risk Reduction (Geneva, United Nations International Strategy for Disaster Reduction,
2011). 44 Winston Conrad B. Padojinog, The Philippine Information and Communication Technology Sector: Evolving
Structure and Emerging Policy Issues, Discussion Paper Series No. 2005-29 (Makati, Philippine Institute for
Development Studies, 2005). 45 Angelica V. Ospina, David Faulkner and Keith Dickerson, Resilient Pathways: The Adaptation of the ICT Sector to
Climate Change (Geneva, International Telecommunication Union, 2014).
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is one that addresses not just the issue of fiscal commitment, but invites inputs from other
relevant actors, such as civil society and the private sector. Current e-government applications, in
fact, does not appear to be proceeding in accordance with the EGMP due to the absence of
implementing guidelines to coordinate efforts across agencies; aside from internal resistance
within some organizations for this change. Web presence, even in the government, remains
underdeveloped. Funds for the promotion of e-governance, on the other hand, still exhibit a low
rate of absorption. There is also a noticeable duplication of efforts by other stakeholders such as
NGOs and private businesses, not only in DRM efforts but also in the use of ICTs for
coordinating such efforts (social media, in particular).
A comprehensive and integrated ICT-for-DRM plan should be neither a summary of issues for
multi-stakeholder discussions nor an academic paper to spur research. Rather, it must be a living
framework aimed not just at policymakers but those at the receiving end of every disaster or
policy—the citizens. Specifically, it should take into account, but is not necessarily limited to the
following:
Assess existing structures and procedures, including building code standards and risks of
current ICT development projects, through proper stakeholder participation.
Make an inventory of existing and critical ICT infrastructure, and recommend ways in
which they can be developed in accordance with the resiliency framework; such that they
are integrated, made interoperable through standards, and made more resilient to multi-
hazards (e.g., through back-up and improved cybersecurity).
Provide a framework for protecting citizens who use ICT legitimately, as well as an
equitable and enforceable system of remedy for harm caused by ICT use.
Develop alternative ICT channels, along with proper protocols, in case of a failure of the
main communication systems.
Provide a mechanism for informing citizens about new ICT tools and how they are being
deployed in support of public services.
Provide and enforce legislation to pave the way for an enabling environment for business
and investors to take advantage of ICT in their own resiliency initiatives.
Provide alternatives and complements to ICT for citizens accessing government services.
Formulate and develop a comprehensive set of multi-hazard disaster and continuity plans
that assume the failure of ICT.
Provide a plan of action that emphasizes capacity building in the use of ICT for DRM.
Design and implement a career system for government DRM and ICT personnel that
realize higher monetary and non-monetary benefits to ensure that these human resources
that are crucial to create an effective and resilient DRM and CCA programme, are
retained.
2. Strengthen the enabling policy environment for enhancing ICT in DRM and
CCA.
It is not enough to have laws and programmes, especially in a political context where policy
commitment and stability can also be a concern. An observation that reverberates in many reports
and assessments about the state of ICT in the Philippines is its poor infrastructure.
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In 2009, the Philippines already reported a mobile telephony penetration rate of 100 per cent,
suggesting universal mobile access for every Filipino. Yet, the problems of poor connection and
service quality remain a concern, especially with respect to broadband. In reality, mobile and
mobile Internet services are still limited in geographic reach, and largely benefit the urbanized
population of the country.46
As experts have long noted, the gap is largely physical. Recent worldwide tests conducted from
March-April 2014 by NetIndex show that the average download speed in the Philippines is only
about 3.5 Mbps and the average upload speed is 1.4 Mbps. This makes it the slowest Internet
connection speed in the ASEAN region. In comparison, Singapore’s download speed is 61 Mbps,
and Japan’s 22.3 Mbps.47
Speed matters, of course, considering that an additional Mbps in
broadband speed can spell the difference between basic email and live streaming. Imagine the
potential for areas such as telemedicine, geo-hazard mapping, and real-time evacuation efforts
with just half of the broadband speed of Singapore or Japan.
An enabling environment implies a business climate that allows companies to invest not just in
accessible technologies, but on resilient processes. It is pertinent for the government, at least in
the short run, to relax the regulatory environment for ICT companies to encourage more private
participation. Short-term policies may include tax breaks and exemptions for companies that are
willing to invest in R&D of emerging ICT technology. In the long run, the government should
take an active role in developing the country’s infrastructural landscape, either through direct
investment or through public-private partnerships.
3. Promote public-private partnerships in the sharing of resources and
information, and in facilitating better coordination during disasters.
The government cannot do everything on its own. Infrastructure, as a public good, naturally
requires massive fiscal reallocations and is susceptible to the hierarchy of priorities.
A mechanism for more coordinated efforts, specifically those that promote public-private
partnerships are needed, especially since many of the Philippines’ ICT infrastructures are
controlled by private providers, and citizens likewise provide useful feedback and participate (or
volunteer) directly in DRM work.
Government can prioritize providing public goods in areas where market participation is
relatively young. For instance, government can support shared access facilities (the development
of community e-centres or hubs envisioned in current legislative proposals), especially in remote
or economically marginalized communities. Broadband infrastructure deployment and
development is another area where private sector initiative will likely have a more substantial
impact. At present, broadband penetration in the Philippines remains low, and the quality is far
from the global broadband averages. Some have called for opening the sector to foreign
competition as a way of further invigorating private sector investments and initiatives to allow the
country to transition to better, more accessible and reliable broadband services. In poor countries,
where overall financing of disaster mitigation intervention is a concern, donor agencies highly
46 ICT Office, The Philippine Digital Strategy Transformation 2: Digitally Empowered Nation (Quezon City, 2012), p.
134. 47 Jose Bimbo F. Santos, "What else is new? PH Internet speed slowest in ASEAN", InterAksyon.com, 20 April 2014.
Available from http://www.interaksyon.com/infotech/what-else-is-new-ph-internet-speed-slowest-in-asean.
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encourage the introduction of DRR resource streams as an affirmative action measure within the
budgetary framework of DRR policies.48
The current private-public partnership is still replete with many challenges. Nonetheless, ICT
adoption in the current DRM framework is possible, if accompanied by necessary investments
and active efforts to integrate initiatives into the overall national development strategy.49
4. Prioritize resilience
Climate change is likely to increase the incidence of natural hazards with escalating cost
implications. Moreover, human-induced disasters, such as information security threats and
cyberterrorism, are on the rise. Thus, it is more important than ever for the Philippine
Government to prioritize the development of more resilient ICT-for-DRM systems.
Prioritizing financial resources in building resilience should be seen as an investment and not a
cost. However, it encompasses more than increasing financial outlays in and strengthening of
hard infrastructure such as data centres, electrical grids and power stations, fibre optic networks
and other ICTs, but also includes making robust soft infrastructure such as information systems,
human resources and knowledge.50
The advantage of resilient infrastructure—whether soft or hard—is that they are not just able to
withstand natural hazards and disasters, but they are also better equipped to recover quickly
during and after crises. Lastly, resilient ICTs provide stability and continuity to the operations of
the most important systems, especially during a crisis.51
In the Philippines, public sector planning for and investment in resilience is still a work in
progress. While ICT resiliency is currently nascent and inadequate, there is, however, a growing
awareness of the importance of prioritizing resilience strategies, and this is indicated in various
DRR policies and programmes. An example of the Philippine Government’s commitment to
adopt resilient risk reduction and management policies is the EO 888 that was issued on 7 June
2010. The EO provides for the adoption of the strategic national action plan, which is
encapsulated in 18 projects that include information and database generation (under the
coordination of OCD and DOST); the information, education and communication campaign (to
be undertaken by the Philippine Information Agency); and the development of forecasting and
early warning systems (to be spearheaded by DOST).
It is in this light that the Philippine Government, through the DOST, must see through the full
implementation of its EGMP; specifically those items that enhance the resilience of critical ICT
infrastructure to mitigate the impact of disasters and adapt to climate change. Given its
importance to all phases of DRM, the EGMP’s implementation should promote not just
48 United Nations Development Programme, Effective Law and Regulation for Disaster Risk Reduction: A Multi-
Country Report (New York, 2014). 49 Jennifer Giroux, Florian Roth, and Michel Herzog, Using ICT and Social Media in Disasters: Opportunities and
Risks for Government (Zurich, Center for Security Studies, 2013). 50 Asian Development Bank, Investing in resilience: Ensuring a disaster-resistant future (Mandaluyong City, 2013). 51 Siemens AG, "Study finds cities could save billions of dollars by investing in resilience”, press release, 18 April
2013. Available from
http://www.siemens.com/press/en/pressrelease/?press=/en/pressrelease/2013/corporate/axx20130428.htm.
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continuity, but also interoperability, robustness, redundancy and reliability of ICT infrastructure
and of ICT-enabled services and products when a disaster strikes.52
As such, this would also require the formulation of a government continuity plan, patterned after
the business continuity plans in the private sector. In the Philippines, the private sector has taken
the lead in formulating and implementing business continuity plans while government has lagged
behind. The United Nations Economic and Social Commission for Asia and the Pacific (ESCAP)
suggests that government continuity plans should consider assessing vulnerabilities and defining
critical infrastructure for ICT, as strategies for resiliency would be different for hard
infrastructure such as data centres and soft infrastructure such e-government software.
Government continuity plans should also encompass governmental assets and human resources in
an effective and integrated way. Moreover, government continuity plans should be tested
regularly, validated through simulations, and updated to take into account technical and other
changes over time.53
iGovPhil is a start, but its impacts will only be felt if more government
departments and agencies migrate its systems and comply with efforts on information systems
harmonization.
Lastly, in the liberalized economic context of the Philippines where the private sector owns or
controls a number of critical infrastructures, it would also be beneficial for government to
consider collaborative arrangements such as public-private partnerships to bolster its continuity
plan for ICT resilience for DRM.
5. Build capacity in the use of ICT for DRM and CCA
In a recent focus group discussion on crisis management, attended by senior government officials
in the Philippines, the challenge of enhancing and sustaining the country’s capacity to collect,
assess and use ICT-derived information, and use ICT applications for DRM were identified as
key concerns. The consensus amongst participants at the focus group discussion was that while
investing in appropriate technology for DRM was strategic, a greater emphasis should also be
placed on the sustained and long-term development of capacities of the government’s human
resources for DRM and CCA. The goal is to develop and broaden the pool of skilled human
resources that possess expertise in both DRM, and ICT for DRM and CCA.
Capacity building in the use of ICT for DRM and CCA will require significant government
investments in enhancing disaster risk managers and first responders’ ICT skills. It will also
require programmes to re-orient and train government ICT workers (e.g., database and system
administrators and application developers) to have expertise in DRM and CCA frameworks and
know-how.
Government should ensure continuous capacity building in all aspects of DRM and CCA, through
enhanced policies and programmes, including in the effective use of ICT technologies at national
and local government levels. Moreover, national capacity building activities should take
advantage of existing public-private partnerships, and bilateral, regional and international
mechanisms for DRM and CCA. These various networks and mechanisms have the potential to
provide not only a platform for both ICT and DRM experts to engage in dialogue and information
52 ESCAP, Information and Communications Technology-Enabled Disaster Risk Reduction in Asia and the Pacific,
Committee on Information and Communication Technology First Session, E/ESCAP/CICT/2, 25 August 2008. 53 Ibid.
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sharing, and participate in joint training exercises and simulations for mitigation, preparedness
and response, but also provides an opportunity to enhance capacity via access to new ICT
applications for DRM and CCA.
6. Engage and strengthen bilateral, regional and international collaboration for
DRM and CCA
According to ESCAP, the evolving trends and experiences in regional and international
cooperation in DRM suggest the potential not just to broaden access to ICT but contribute to its
resilience.54
ESCAP identifies specific areas where regional and international cooperation are
seen to be effective in contributing to ICT effectiveness and resilience in DRM, such as in:
The development and sharing of information (including regional best practices in DRM),
communications and space infrastructure resources (e.g., emergency communications
systems and early warning systems, fibre optic and data centre infrastructure, and satellite
technologies for disaster preparedness, mitigation, response and recovery)
Multi-hazard information networks
Capacity building in the use of ICT for DRM
ESCAP argues that countries such as the Philippines, which are still evolving in their ICT
capabilities for DRM and are unable to afford full standby systems for DRM (especially for
emergency communications), would benefit from participating in international cooperative
arrangements, such as those organized by the United Nations. There are also regional
mechanisms such as the ASEAN Coordinating Centre for Humanitarian Assistance on Disaster
Management (AHA Centre) that manages the Regional Integrated Multi-Hazard Early Warning
System, and facilitates cooperation and coordination for DRM and emergency response at the
international and regional levels.
In these various fora for cooperation, the Philippines should push to further enhance and
strengthen already formalized systems for international cooperation for building resilience in ICT
for DRM. The Philippines should also advocate that information on best practices, DRM data and
research, as well as ICT innovations and technologies crucial to DRM are accessible, available
and affordable for Members States.
Indeed, the Philippines should actively participate in and take advantage of existing regional and
international cooperation mechanisms for DRR, as they are not just crucial for improving DRM
capabilities, but also in expanding the operational applications of relevant ICT tools for DRM and
CCA, and in enhancing ICT resilience in general.
An example of this was the involvement of PHIVOLCS in the Mitigate and Assess Risk from
Volcanic Impact on Terrain and Human Activity Project between 2009 and 2012. It was a four-
year project in collaboration with academic institutions from Europe, the Philippines, Indonesia,
Cameroon, Cape Verde and Montserrat. The project aimed to develop tools and integrate cost-
effective methodologies to mitigate risks from hazards of active volcanoes. The project
was composed of work packages, each with specific objectives and concerns ranging from
54 ESCAP, Information and Communications Technology-Enabled Disaster Risk Reduction in Asia and the Pacific,
Committee on Information and Communication Technology First Session, E/ESCAP/CICT/2, 25 August 2008.
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instrumental monitoring, hazard and risk assessment, socio-economic vulnerability and resilience,
database design, capacity building and volcanic threat management.55
55 PHIVOLCS, "MIAVITA Project", 25 March 2011. Available from
http://www.phivolcs.dost.gov.ph/index.php?option=com_content&view=category&layout=blog&id=74&Itemid=5000
33.