A fictional call for submission to the Philippine House Committee on National Defense and Security inquiry
The call for submissions by the Philippine House Committee on National Defense and Security provides an opportunity to propose reforms and responses to the national security challenges posed by climate and environmental changes. By recognizing the wide-ranging implications of climate change, promoting national solidarity, protecting indigenous communities, strengthening preparedness, and fostering collaboration, the nation can better address the complex intersection of climate change and national security.
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To: The Honorable Members of the Philippine House Committee on National Defense and Security
Attention: Hon Raul “Boboy” C. Tupas
Chairperson, Committee on National Defense and Security; House of Representatives, 19th Congress, Batasan Hills, Quezon City
Date: September 25, 2023
Subject: Call for submissions on proposed ‘Climate, the Environment, and National Security Bill 2023’
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1. Introduction
The Philippines, an archipelago comprising over 7,641 islands, finds itself at a critical crossroads, facing the complex interplay of climate change, environmental degradation, and national security concerns. According to the INFORM Risk Index 2023, the country ranks 29th out of 191 nations at high risk, grappling with the significant flood (29th) and earthquake risks (10th) (DRMKC 2023). Additionally, its 4th place in the 2009-2019 Global Climate Risk Index underscores its vulnerability to extreme weather events (GermanWatch 2021). Studies also indicate that climate change—propelled by warmer ocean temperatures—escalates the ferocity of tropical typhoons like the devastating Typhoon Haiyan in 2013 (Emanuel 2020; Knutson 2023). These phenomena are not just isolated events; they carry profound implications for national security, such as causing internal displacements, straining resource allocation, and complicating territorial disputes.
Amidst intertwined environmental and security challenges, aligning national defense and public safety framework with ecological and climate resilience is crucial. Effective disaster management requires collaboration among the Armed Forces of the Philippines (AFP), the Philippine National Police (PNP), Local Government Units (LGU), and community stakeholders. The “Climate, the Environment, and National Security Bill 2023” is a pivotal step in this direction.
This proposal highlights critical duties and responsibilities the upcoming legislation should address, focusing on tactical and operational aspects of disaster response. It advocates for a framework emphasizing uniform services disaster readiness, prompt reply, collaboration, and leadership. Such a framework enhances liaison with local agencies, clear public communication, infrastructure protection, and upholding civilian authority. This approach equips the Philippines to tackle current issues and ensures a resilient future.
2. Linking Climate Change and Security Related Issues
Early political and military entities acknowledge that climate change exacerbates conflict, especially in unstable areas (Cullen et al. 2000; Kennett et al. 2012), and even Asian history is considerably similar (Donges et al. 2015; ZHANG 2017). The intersectionality of environmental and security concerns in the Philippines is increasingly evident as the country grapples with the repercussions of climate change and ecological degradation. Climate-induced phenomena directly impact national security, most notably seen in internal displacements. For instance, Typhoon Haiyan in 2013 led to the displacement of over 4.1 million people (IDMC 2014, 19), and similarly, 2019 recorded 364,000 displacements associated with disasters (IDMC 2020, 2). Additionally, rising sea levels and changing marine ecosystems can potentially exacerbate internal migration, considering the country’s geographic vulnerability, where much of the Philippines’ territory lies near the coastline, and approximately 60% of the country’s inhabitants reside in coastal areas (World Bank 2005). Consequently, even a slight increase in sea levels has the potential to flood extensive areas, predominantly in regions with low elevations. A study by the Intergovernmental Panel on Climate Change underscored that, given the ongoing global warming patterns, places in the Philippines, mainly populated coastal urban centers like Manila, face threats from encroaching sea levels (IPCC 2022, 343). The confluence of environmental and security challenges underlines the pressing need for integrative strategies that address both facets simultaneously.
A swift and coordinated response is crucial to maintain national security and prevent widespread lawlessness following disasters within disaster-hit areas or nearby towns/cities (internal migration). This responsibility lies heavily on our uniformed services within the home front, who play a pivotal role in disaster response and ensuring order within affected communities and or immediately controlling internal migration effects in collaboration with local leaders. Uniform services such as the AFP, PNP, Philippine Coast Guard (PCG), Bureau of Fire Protection (BFP), and Bureau of Jail Management Penology (BJMP) need to have a clear and unified mandate when responding to such emergencies. While these agencies are rooted in distinct founding laws, a comprehensive legal framework must streamline their duties during disasters, eliminating ambiguity or overlapping responsibilities. This clarity ensures that each agency can effectively fulfill its role, providing timely and organized aid and relief to vulnerable communities.
3. The Need for Integrated Disaster Management
Integrated disaster management remains a crucial cornerstone for nations vulnerable to climate perturbations, and the Philippines stands as a prominent example. The need for an integrated disaster management approach in the wake of climate-induced phenomena is paramount for national security. A unified approach concept is crucial, as it streamlines communication, coordination, and response efforts during crises, reducing redundancies and ensuring the optimal utilization of resources (Paton and Johnston 2017).
This concept of disaster management approach is crucial for various reasons. It breaks down bureaucratic walls, fostering cross-functional teamwork for efficient resource use and rapid emergency response. At its core lies coordinated action among key uniformed stakeholders like the AFP, PNP, and PCG while also suggesting the inclusion of other uniformed services like BFP and BJMP to perform roles similar to AFP and PNP during crises.
The existing Republic Act 10121, or the “The Philippine Disaster Risk Reduction and Management Act of 2010,” offers a framework for disaster management, focusing on policymaking, coordination, integration, supervision, and monitoring, but lacks a definitive command structure for immediate response. A designated command and commander is crucial: provincial authorities handle lesser emergencies, while regional leadership is required for more significant crises. Essentially, the “command” ensures a streamlined response, and the “commander” legally orchestrates and aligns actions.
Clear command and control in disaster response are essential for efficient life-saving actions rather than serving political interests. The actions of former Cabinet Secretary Mar Roxas, then head of the Department of the Interior and Local Government, exemplify potential pitfalls. Roxas’s frequent appearances in disaster zones, at times seemingly directing operations or at other times being passive, blurred lines of authority. Notable instances include disputes with media and politicians in Typhoon Haiyan’s aftermath (Macaraig 2013) and risk-taking visits to affected areas without safety precautions (Calica 2014). Such actions diverted attention from essential response tasks and raised concerns about command structures. A formalized command mandate in new legislation would bolster efficient responses and minimize political distractions.
The existing RA 10121 falls short in granting the Office of Civil Defense (OCD) apparent command authority for disaster management. This proposed bill aims to correct this by defining OCD’s role and establishing it as the central command at the local level during crises like Typhoon Haiyan. By formally empowering OCD to lead and coordinate efforts, the legislation seeks a streamlined, efficient response that integrates uniform services and local governments. Consistent with the Philippine constitution’s emphasis on civilian supremacy, the name- Office of Civilian Defense aptly resonates, ensuring clear lines of responsibility among uniform entities when challenges arise.
4. Essentials of the Climate, the Environment and National Security Bill 2023 defined in Obligation, Duties and Restraint
The “Climate, the Environment, and National Security Bill 2023” represents a forward-thinking strategy addressing the pressing challenges faced by the Philippines due to climatic shifts. Three pillars fortify this legislative proposal: Disaster Preparedness, Quick Response, and Coordination.
Firstly, this bill requires all uniformed services to have a direct role, albeit participation in disaster response during emergencies- a mandate outlined in a specific section. Significantly, this proposition raises the roles of BFP and BJMP, obligating them as part of frontline services of the government to be at par with the supplementary duties of AFP and PNP, thereby enhancing the country’s disaster response preparedness.
Given its geographical susceptibility to natural calamities and island composition, the Philippines has traditionally leaned on the AFP, PNP, and PCG for disaster response, as these agencies have a widespread presence across all localities. These agencies excel in rapid response and specialized aid. However, integrating additional agencies like the BFP and the BJMP is essential to fortify national preparedness. Both are professional national entities, on par with AFP and PNP, specializing in emergency services and maintaining order (OG 2004). By integrating more agencies, creating specialized disaster response units within them, and promoting inter-agency collaboration, the Philippines can adopt a more comprehensive and agile approach to handling natural calamities. Building on this idea, the bill clearly outlines distinct disaster response obligations for the BFP and BJMP, aligning them closely with the AFP and PNP. Additionally, the legislation should formally mandate all these uniform services to have mandate roles in disaster response as defined by law. This alignment would streamline operations and enhance the government’s response through optimal utilization of skills, manpower, and logistics and avoid confusion.
Secondly, in disaster situations, following preparedness, the emphasis must shift to rapid action, given that timely responses can significantly influence outcomes. To ensure promptness, frontline uniform services should have efficient and adaptable mobilization protocols. A recommended strategy is a centralized command in disaster-stricken areas, entrusting the Office of Civil Defense (OCD) with on-the-ground disaster response operations-basically the Incident Commander (UNDDR 2011; OCHA 2023). This approach would free the National Disaster Risk Reduction and Management Council (NDRRMC) to concentrate on policy development, coordination of humanitarian relief, liaising with global entities like the UN, and communication with provincial/city/municipal-DRRMC (OG 2010). Granting the Office of Civil Defense (OCD) apparent authority through this bill would solidify its capacity to prioritize disaster response without political distractions. This approach is informed by the challenges encountered in the 2013 Typhoon Haiyan response and recovery efforts, especially before the Inter-Agency Standing Committee (IASC) initiated a Level 3 response (Rodil et al. 2016).
I therefore add another proposal that this forthcoming bill grants the Office of Civil Defense (OCD) the legal authority to assume direct command of disaster response operations across the country, adjusting based on the location and scale of the event. This explicit provision would clarify ambiguities in RA 10121 and the 2021 National Disaster Reduction Management Reference Handbook regarding the chain of command in disaster responses (OCHA 2021).
Lastly, effective disaster response extends beyond rapid deployment. Close collaboration with local authorities, community leaders, and NGOs enhances ground intelligence and widens the reach of centralized forces (Heijmans & Victoria, 2001). Given the Philippines’ archipelagic nature, there’s an imperative for both physical and digital response infrastructures to be resilient and ready. Harnessing a cohesive platform, akin to the Strategy of Holistic Approach used against the Philippine insurgency, can bridge inter-agency divides for efficient actions (Banlaoi 2009, 92). Implementing a similar collaborative strategy fortifies the command structure, enhancing agency coordination for life-saving responses. Central to this approach is the envisioned leadership role of the OCD as the primary Incident Commander in disaster operations.
Overall, the Philippines’ disaster response strategy is the pivotal role of the OCD, a civilian entity, orchestrating operational efforts on the ground and ensuring democratic principles are upheld. A restraint in a form that seeks collaborative platforms, emphasizing regular coordination between civilian leadership and security forces like the AFP and PNP, is foundational and adheres to the principle of the constitution of civilian supremacy. This collaboration prioritizes training that underscores civilian primacy, requiring that military and police activities remain transparent, supportive, and under civilian oversight. Clear boundaries are imperative to prevent overreach, and any force deployment must be judiciously used, always with civilian sanction. Furthermore, the disaster response roles of the AFP and PNP must be devoid of political biases, centering purely on the citizenry’s well-being.
5. Conclusion
The upcoming “Climate, the Environment, and National Security Bill 2023” is poised to revolutionize the Philippines’ disaster management approach. Two pivotal suggestions emerge: Firstly, clearly defining roles for the BFP and BJMP in disaster response, aligning them with AFP and PNP efforts, and promising enhanced, synergized interventions. Secondly, empowering the OCD with direct oversight of nationwide disaster response centralizes leadership and ensures cohesive decision-making. Beyond immediate relief, effective disaster management can curtail the urgency of internal migrations, which often strain resources and potentially cause socio-cultural clashes. The residents can feel assured of their safety and the quick restoration of their homes and communities, thereby avoiding the uncertain and often perilous journey to unfamiliar locales. We can mitigate these migrations by bolstering response measures, ensuring community stability, and restoring public trust.
Respectfully,
BYRON FILOG ALLATOG
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