JURNAL PUBLIC POLICY - VOL. 11 NO.

1 (2025) JANUARY

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Jurnal Public Policy

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Strengthening Community Engagement in Local Disaster Management: The Northern

Mindanao, Philippines Experience

Rona Celeste V. Pasamonte

Bukidnon State University, Malaybalay City, Bukidnon, 8700, Philippines

ARTICLE INFORMATION A B S T R A C T
Community engagement plays a crucial role in effective disaster management at the local level. As a
Received: March 23, 2024
representative voice of the citizens, civil society has worked alongside the government to broaden service
Revised: January 20, 2025 delivery and act as collaborators in developing programs tailored to the community's needs. This study
Available online: January 31, 2025 examines the engagement of Civil Society Organizations (CSOs) in the local disaster risk reduction
management council (LDRRMC) of Bukidnon Province, Northern Mindanao, Philippines. Employing a
KEYWORDS descriptive-quantitative approach, the research evaluates CSOs' involvement in the functional areas of
planning, budgeting, implementation monitoring, and evaluation, utilizing a structured survey among
Community Engagement; Civil CSOs and local government units (LGUs). The results indicated that the CSOs were most engaged in the
Society Organizations; Local Disaster planning stage while least engaged in the monitoring and evaluation. The findings highlight the need for
Management; Participatory and clear guidelines and capacity development to enhance CSO engagement. Global practices from countries
Network Governance like Japan, South Korea, and India underscore the importance of participatory and network governance to
strengthen collaboration. This study contributes to the growing body of literature on CSO participation
CORRESPONDENCE in disaster governance.

Name: Rona Celeste V. Pasamonte

Email:
[email protected]

INTRODUCTION tsunamis. As a result, Japan has been exploring ways to ask for
Community engagement is considered a fundamental assistance from non-government organizations. Unlike Japan,
component of disaster management, especially for vulnerable South Korea is less affected by natural disasters, but in recent
countries like the Philippines. Situated along the Typhoon belt in years, the country has been hit by major disasters, such as the
the Pacific, the Philippines is visited by an average of 20 typhoons Gyeongju earthquake in 2016 and the Pohang earthquake in 2017.
every year, five of which are destructive (Asian Disaster Because of this, the government has started relying on civil
Reduction Center; Domingo & Manejar, 2018). It is located in the society and NGOs and learning from Japan's experiences (Park &
"Pacific Ring of Fire," making the country vulnerable to frequent Yoon, 2021).
earthquakes and volcanic eruptions. Its geographical location and Furthermore, the study of Satizábal et al. (2022) scrutinized
physical environment also contribute to its high susceptibility to how community engagement for disaster risk reduction has been
tsunamis, sea level rise, storm surges, landslides, governed and translated into practice in Australia, focusing on
flood/flashflood/flooding, and drought. This necessitates strong the experiences of the practitioners and community
collaboration between the government and the community representatives doing community engagement in a peri-urban
(Pandeya, 2015). and multi-hazard area of Victoria. The study identified and
Global frameworks like the Sendai Framework for Disaster discussed the role of connectors—individuals fostering
Risk Reduction emphasize community engagement as a connections within and among state-led emergency services,
significant component of DRR strategies. Specifically, priority local government, and the public—in negotiating change and
number 1 in the framework highlights the importance of building relationships. The results showed that the political
understanding risk assessment by encouraging local economy of state-led emergency management hinders the efforts
communities and other stakeholders to identify risks and of connectors, contributing to disconnection between the public,
vulnerabilities. Moreover, priority number 4 explicitly calls to community representatives, and emergency agencies. The result
empower the community in disaster preparedness, emphasizing is missed opportunities to build meaningful connections among
the need for the community to develop and implement emergency the public.
plans. As a member state of the United Nations, the Philippines Civil society has been proven to be an effective collaborator
is also a signatory to the Sendai Framework for Action (SFA), with the government during disasters. The study by Soriano
where it is recommended that information dissemination, policy- (2019) stated that CSOs, as non-state actors, played essential
making, disaster methodologies, and decision-making be science- roles in disaster risk response and management over the years.
based (Ong, 2023). They contributed to everything from traditional response and
Many countries in the world, including Japan and South relief to rehabilitation and disaster risk reduction. All
Korea, have developed robust strategies for community stakeholders have recognized the significance and need for
engagement in local disaster management. Japan is a disaster- community-based risk reduction in international, national, and
prone country affected by several disasters like earthquakes and local civil society. They endeavored to establish links to the policy

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 JURNAL PUBLIC POLICY - VOL. 11 NO. 1 (2025) JANUARY

options at the national and local levels (Williamson & Rodd, accountable to citizens. Improving the relationship between
2016). people and their government has long-term, exponential benefits
The 2013 Asian Development Bank Publication defined the for everyone. OGP is a broad partnership that includes members
CSOs in the Philippines from the Filipino concepts of at the national and local levels as well as thousands of civil society
pakikipagkapwa (holistic interaction with others) and kapwa organizations. It ensures that civil society organizations or direct
(shared inner self). Voluntary assistance or charity connotes citizen engagement have a role in shaping and overseeing
equal status between the provider of the aid and the recipient for governments (Open Government Partnership, 2019). In essence,
Filipinos, which embodies the terms damayan (the help of peers CSO engagement contributes to the effective integration of a
in periods of crisis) and pagtutulungan (mutual self-help) and the participatory framework as it actively supports and enhances
Western notion of kawang gawa (charity). CSOs refer to non- participatory governance (Cook & Andersson, 2017).
state and non-profit associations that work to improve society Ballesteros and Ancheta (2018) elaborated on participatory
and human conditions. Basic types of CSOs include non- governance as a variant of governance theory whereby citizens are
government organizations, civic organizations, cooperatives, directly engaged or involved in managing resources for economic
social movements, professional groups, and business groups and social development. They also emphasize that locally based
(Department of the Interior and Local Government economic development is more likely to be successful if initiated
Memorandum Circular 2018; Baidhar, 2024). at the community and local level (Blakely & Leigh, 2010).
Moreover, Fischer (2018) argued that participatory governance
Local context goes beyond democratic participation in elections or
The province of Bukidnon is a landlocked plateau located in transparency. Its practice results in direct purposive engagement
Northern Mindanao (Region 10). Like many other provinces in of citizens in pressing issues in the community or society. A
the Philippines, Bukidnon has experienced severe disasters that typical application of participatory governance is in delivering
have devastated homes and communities. Flooding and public goods and services by the government or civil servants
landslides were the most notable natural disasters in the (disaster management and environmental concerns). However,
Municipalities of Valencia and Lantapan, Bukidnon, in 2023. citizens can play an active role in the programs, projects, or
(ASEAN Disaster Information Network, 2023). Over the years, activities that are important to them. The concept of
the Philippine government has developed strong coping participatory governance arose from political and social science
mechanisms based on its long history of disasters. The Philippine disciplines grounded in the theory of democratic engagement. It
Disaster Risk Reduction and Management Act institutionalizes is important to note that these processes encompass practices
the national disaster risk reduction management plan in the beyond the democratic right to vote or the right to transparency
whole country (Republic Act 10121, 2010). It further stated the (Fischer, 2018). It includes practices in both "public deliberation"
significant role of Civil Society Organizations (CSOs) as and "co-production." Participatory governance contextualizes the
members in every local disaster risk reduction management involvement of the CSOs in resource management of the local
council at the provincial, city, municipal, and barangay levels. government unit in governing the local community and populace.
Similarly, Republic Act 7160 (1991), or the Local Government Chen (2023) highlights the importance of CSOs and
Code of 1991, along with various legal circulars, emphasized the government interaction, especially during a crisis. Accordingly,
significance of community engagement through the involvement the central government and the society empower each other in
of accredited CSOs in local disaster risk reduction planning, public governance, and the central government's capability of
budgeting, implementation, and monitoring and evaluation turning CSOs into partners secures the mutually beneficial
(Philippine Development Plan 2023-2028, 2023; Republic Act relationship between them (Orbista, 2012). However, Chen
9729, 2009; Ruvalcaba-Gomez, 2019). noted that the fragmentation of the local government and its
While significant research has focused on disaster affiliated institutions leads to the co-existence of conflicting
preparedness, response, recovery, and CSO humanitarian aid modes of government-CSO interactions at the local level, which
perspective, few studies examine the level of CSO engagement at is the institutional basis for the survival and growth of CSOs even
the local level of decision-making, particularly at the local in localities with very conservative local political environments.
disaster risk reduction management council in a disaster-prone It turns out that distinguishing the roles of heterogeneous "state"
country like the Philippines. Although existing literatures actors helps to unravel the complexity of government-CSOs
emphasize the value of CSO and government collaborations, relations and provides new insights into the role of CSOs. This
especially during disasters, challenges like funding and limited further implies that the interaction between government and
resources often constrain its effectiveness (Protik et al., 2018; CSO is crucial for addressing crises and improving governance.
Rafique & Khoo, 2018). This highlights the need for further Network governance aligns with the principles of open
studies exploring the practices and challenges of CSOs' government partnership and participatory governance. A study in
engagement in local disaster management, especially in the areas China was conducted among civil society organizations and local
of planning, budgeting, implementation, monitoring, and government. Civil society practitioners initiated open-ended
evaluation. processes of communication, consultation, and cooperation. Such
processes help promote cross-sector collaboration between
Participatory and Network Governance Chinese civil society organizations and local government
Globally, participatory governance has become a mechanism agencies. The developments signified an incremental change from
for fostering transparency, accountability, and inclusivity in government control (guanzhi) to public management (guanli)
public decision-making. Participatory governance is a significant and to network governance (zhili). The study further looked at
component of the Open Government Partnership (OGP). The strategies for the establishment of cooperative relations, focusing
Open Government Partnership is based on the concept that an on steering mechanisms and process factors. Additionally, to
open government is more accessible, more responsive, and more further understand the dynamics of cross-sector collaboration,

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 JURNAL PUBLIC POLICY - VOL. 11 NO.1 (2025) JANUARY

the study explored the social capital dimensions of the principle projects, and activities following legal provisions and established
of reciprocity and trust. The findings revealed that successful goals and objectives. The CSOs are at the forefront of the
experiments with cross-sector collaboration not only depend on community before, during, and after a disaster. When disaster
structural factors but also the skills and strategies of the strikes, the CSOs, along with barangay officials and staff, are
individuals and organizations involved (Fulda, Li, & Song, 2012). usually the first responders. The result exemplifies the significant
Another significant cornerstone of participatory governance role of CSOs in disaster management. In 2015, a study conducted
involves an active civil society that can question public in cyclone Aila-affected areas in India revealed that the role of
authorities and suggest different government interventions. NGOs in disaster management was providing relief materials,
CSOs' role as watchdogs of the government is to ensure the involvement in rescue operations, arranging temporary shelters,
proper delivery of essential services and hold government officials organizing health camps, and developing communication
accountable. CSOs' constructive engagement increases citizens' facilities (Mondal et al., 2015).
trust and confidence in the government, advocating for a better The CSOs were recognized as the government's key partner
and more transparent government (Munene & Thakhathi, 2017). in the localization of Disaster Risk Reduction Policies. They
This study explored the level of engagement of Civil Society helped translate significant law provisions while strengthening
Organizations (CSOs) in the local disaster risk reduction and community cooperation, especially in disaster response and relief.
management council in the province of Bukidnon as perceived by All stakeholders have recognized the significance of community-
both CSOs and local government units. Specifically, the study based risk reduction and their different capacities in supporting
focused on their involvement in the functional areas of planning, efforts at the local and national levels. The local government unit
budgeting, implementation, and monitoring and evaluation. perceived that the CSOs respond promptly to disasters because
of their strategic location. Compared to the barangays, the CSOs
perform their functions beyond just eight hours a day. The
citizens are more likely to call for their help during a disaster.
Civil Society Local From the citizens' previous experience, the CSOs responded
Organizations Government Unit promptly. According to some CSOs, they are always visible in the
community and make sure that they are always ready to help the
community (Ursulom, 2021). They conducted foot and motor
patrols during nighttime to ensure the safety of the people in the
community. The local government unit noted that the citizens
felt more comfortable and at ease with the CSOs (Ibones et al.,
2024).
CSO Level Engagement Strong citizen participation is essential in substantially
reducing disaster losses during disasters. This is done by
enhancing the inclusion and meaningful participation of
Figure 1. The framework of the study vulnerable community members disproportionately impacted by
disasters. Promoting and strengthening local leaders, including
grassroots, increase effective community mobilization and
METHOD representatives (Arab Network for Environment and
Development). One of the strongest typhoons recorded in world
The research utilized a descriptive-quantitative design to history hit the Philippines in 2013, according to the final report
examine CSOs' level of engagement in the local disaster risk by the Philippines National Disaster Risk Reduction &
reduction management council. It focused on CSOs' involvement Management Council (NDRRMC); super Typhoon Haiyan,
in key areas of planning, budgeting, implementation, monitoring, locally called "Yolanda," affected 44 provinces after landfall in
and evaluation. The study was conducted in the province of Eastern Samar on November 8. It has affected 3,424,593 families,
Bukidnon, Philippines, among all accredited CSOs and selected with 6,300 casualties, 28,688 injured, and 1,062 missing. The
local government unit members of the provincial disaster risk estimated cost of damage was ₱9.46 billion.
reduction and management council (Provincial Development and Immediately after the landfall, a group of government and
Physical Framework Plan 2020-2025). Data was collected using non-government agencies and institutions joined in responding
a structured survey questionnaire employing the 5-point Likert to the challenge. In disaster response and management, Soriano
Scale: 5-Highly Engaged, 4-Engaged, 3-Moderately Engaged, 2- (2019) highlighted CSOs as proven effective in helping
Fairly Engaged, and 1-Not Engaged. To analyze the data, governments address calamities and disasters by raising funds for
descriptive statistics like mean and standard deviation were used the affected community, mobilizing networks to operate on the
to treat the data. ground, deploying humanitarian missions to complement
government efforts, and demanding accountability from the
RESULTS AND DISCUSSION State. Governments have recognized the significant help that
CSOs contribute to addressing disaster reduction, response and
CSOs' Level of Engagement in the Provincial Disaster Risk management, environmental issues, health, education, political
Reduction Management Council awareness, and poverty alleviation. The CSOs, among others,
The results in Table 1 revealed that the CSOs' overall level of were observed to be effective in raising awareness in the
engagement is rated as engaged in the Local Government following areas: advocacy service provider, capacity builder, and
planning, budgeting, implementation, monitoring, and representative.
evaluation. This means that CSOs participated and contributed
to the results achieved, as well as the sustainability of programs,
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Table 1. CSO Level of Engagement in the Local Disaster Risk Reduction and climate change adaptation into
Management Council programs as a strategy for sustainable
Overall Mean 3.90 Engaged development and poverty reduction
CSOs’ Engagement Mean Interpretation giving inputs to local government 3.58 Engaged
units on recommending the
Local Government Planning implementation of the forced
giving inputs to local government 4.46 Highly preemptive evacuation of residents, if
units in the formulation and Engaged necessary
preparation of the Local Disaster Risk supporting the local government unit 3.54 Engaged
Reduction and Management Plan of in the promulgation of their respective
the Province internal rules and regulations for their
supporting the local government unit 4.38 Highly meetings
in the review of the plan consistent Engaged
with other national and local planning Local Government Monitoring and Evaluation
programs annually supporting the local government unit 3.46 Engaged
assisting the local government unit in 4.15 Engaged in the monitoring and evaluation of the
the development of the plan consistent implementation of the Local Disaster
with other national and local planning Risk Reduction and Management Plan
programs annual (LDRRMP)
supporting the local government unit 3.92 Engaged supporting the local government unit 3.23 Moderately
in the integration of disaster risk in the submission of Reports on the Engaged
reduction and climate change adaption implementation of Local Disaster Risk
into local development plans and Reduction and Management Plan
strategies in sustainable development (LDRRMP)
and poverty reduction
supporting the local government unit 3.77 Engaged Table 2. Summary of CSO Engagement
in the testing of the plan consistent Key Areas Mean Interpretation
with other national and local planning Planning 4.13 Engaged
programs annually Budgeting 3.89 Engaged
Implementation 3.98 Engaged
Local Government Budgeting Monitoring & Evaluation 3.35 Engaged
supporting the local government unit 4.15 Engaged
in the integration of disaster risk The result further showed that the CSOs were more engaged
reduction and climate change adaption in planning the local disaster risk reduction management council.
into the budget as a strategy for The result implies that since CSOs knew the community's
sustainable development and poverty situation, they could provide essential data for disaster planning.
reduction They are a reliable source of information for the local disaster risk
the deliberation of budget 4.08 Engaged reduction management council. The CSOs perceived that being
prioritization for disaster risk immersed in the community as first responders could contribute
reduction and climate change adaption a lot to preparing the local disaster risk reduction management
supporting the local government unit 3.77 Engaged Plan. The CSOs stand true to spreading the spirit of volunteerism
in raising awareness of the different in the community. On the other hand, the local government unit
functions and, responsibilities and perceived the CSOs' inputs as relevant in preparing the plan.
deliverables in the local budgeting They were genuinely committed to performing their roles while
process ensuring that they delivered their advocacy.
supporting the local government unit 3.54 Engaged However, effective governance can be compromised if CSOs
in the finalization of financial lack influence in local decision-making. The study of Bhuiyan et
resources and budgetary allocations al. 2023 in Bangladesh assessed the degree to which the CSOs
applicable to their respective have made the local government's decision-making and activities
jurisdictions more participatory at the grassroots. It was found that the CSOs
have been less effective in mobilizing public engagement and
Local Government Implementation affecting decision-making to promote participatory governance
assisting the local government unit in 4.38 Highly in the study area. Moreover, a key reason behind less
the implementation of the Local Engaged participatory local governance is the high-power distance
Disaster Risk Reduction and culture, where the power of local governance is concentrated in
Management Plan (LDRRMP) the hands of a few powerful elites (Rafique et al., 2021), and the
supporting the local government unit 4.38 Highly general public is distancing itself from the local government. As a
in convening of the local council as the Engaged result, the local citizens become apathetic to local governance,
need arises growing a lack of trust and interest in the decision-making
process and the activities of the LGUs'. This lack of interest and
supporting the local government unit 4.00 Engaged
in integrating disaster risk reduction lack of trust eventually contribute to the people's lack of
participation in the local governance process, creating a vicious
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cycle of less participatory local governance (Henry et al., 2019;

Guragain, 2024). International insights and implications
Japan and South Korea's global practices highlight that
Challenges faced by CSOs when engaging in the Local Disaster reliance on NGOs' and CSOs for disaster management
Risk Reduction Management Council underscores the importance of collaboration. Government efforts
The CSOs faced challenges primarily in the monitoring and alone are not sufficient to ensure effective and comprehensive
evaluation (M&E) of Disaster Risk Reduction Management- disaster risk reduction and management. Moreover, learning from
related programs, projects, and activities of the council. Although the experiences of Japan, an established mechanism for
DILG Memorandum Circular 2018-89 encourages CSOs to community engagement can empower citizens to actively fulfill
engage in the feedback mechanism of various projects and sub- their role, especially during disasters. The Philippines can also
project monitoring, the lack of needed skills and training draw insights from India's experiences in strengthening the
hindered their effective involvement in the monitoring and collaboration with CSOs, especially as first responders. Because
evaluation. Instead, the CSOs diverted their attention to being CSOs' are at the grassroots level, they can provide faster relief to
community responders. In support of this, the local government communities affected by disasters (Iddi & Nuhu, 2018).
unit also agreed that the CSOs needed more technical capacity to
do the job. CONCLUSION
The study of Guce and Galindes (2017) revealed that the The study highlights the significant yet underutilized role of
existing Republic Act 7160, or the local government of 1991 and CSOs in local disaster management in the Province of Bukidnon,
other legal issuances, conceptualized citizen participation using Philippines, particularly in the areas of planning, budgeting,
a limited lens. The study further suggested that elevating citizen implementation, monitoring, and evaluation. Although the
participation beyond administrative, platform-focused standards results revealed a higher engagement in the planning stage, their
allows stakeholders to substantially influence government involvement in the monitoring and evaluation is slightly lower
decision-making. Additionally, lessons can be drawn from models due to the absence of clear guidelines. This emphasizes the need
and experiments to clarify citizens' roles in the process and to to establish a clear framework and implement capacity-building
build on their capacities to perform these roles successfully (Guce programs to ensure meaningful and sustained CSO engagement.
& Galindes, 2017; Ertan, 2020; Gilfillan & Fee 2017). Furthermore, international practices from countries like
The result could also be attributed to the lack of clear Japan, South Korea, and India provide significant insights into
guidelines and criteria for monitoring and evaluation, which promoting stronger collaboration with CSOs, especially during
mirrors Abdula's (2018) observation of CSOs' participation in disasters. Empowering CSOs as active partners creates a ripple
barangay governance. The absence of specific M&E frameworks effect for citizen responsiveness and resilience. However, the
for participation may have hindered their ability to contribute effectiveness of these collaborations will also depend on the
effectively to the evaluation processes. Establishing metrics, institutionalizing participatory and network governance
tools, and indicators for M&E could be beneficial in enforcing mechanisms. These will not only strengthen the Philippine local
CSOs' involvement in local government. disaster management but also promote collaborative local
This is in contrast to a case study conducted in the West decision-making aligned with the Sendai Framework for Disaster
African country of Ghana, where there was an observed increase Risk Reduction.
in the number of CSOs engaged in independent monitoring and
evaluation of government programs and policies. Accordingly, RECOMMENDATIONS
most CSOs rely on a range of M&E tools in combination with 1. The Philippine Local Government may consider
advocacy strategies to hold the government accountable and revising, formulating, and issuing clear guidelines on
improve the implementation of programs and policies. However, CSOs' engagement. These guidelines may also include
despite the popularity of such initiatives, their effectiveness and indicators as the basis for assessing CSOs' level of
impact remain unconfirmed and are not well understood. In engagement, stating the target each CSO needs to
addition, little is known about the influence of this type of CSO- attain every year, which will be the basis for renewing
led M&E at the district level. The research further suggests that their future accreditation.
the built-in dialogue space is acting as a catalyst for certain 2. A comprehensive capacity-development program for
influence mechanisms (Gildemyn, 2014). CSOs may also be considered to address the gaps and
The difference between the case of Ghana and this study challenges faced by CSOs in effectively engaging with
could be attributed to varied factors like existing policies, CSO the local disaster risk reduction management council.
culture in both countries, CSO capacities, and the relationship 3. The Philippines may strengthen its collaboration with
between government and CSOs. For instance, the higher level of CSOs by adopting the experiences of other countries
engagement of CSOs in Ghana may be due to their established like Japan, South Korea, and India.
collaboration and the limitation of CSOs' engagement in
government. In contrast, in the Philippines, there is a lack of clear
Acknowledgments
guidelines on CSOs' extent of engagement, especially in the
This study would not have been possible without the support
monitoring and evaluation of government programs, projects, and
from Bukidnon State University. I extend my heartfelt gratitude
activities. Although the case of Ghana suggests that the
to the respondents and everyone who participated in it.
monitoring evaluation initiatives are considered a powerful tool
to assess government accountability and transparency, their
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