Typhoon Haiyan (Yolanda): U.S. and
International Response to Philippines
Disaster
Thomas Lum, Coordinator
Specialist in Asian Affairs
Rhoda Margesson, Coordinator
Specialist in International Humanitarian Policy
November 25, 2013
Congressional Research Service
7-5700
www.crs.gov
R43309

---

Typhoon Haiyan (Yolanda): U.S. and International Response to Philippines Disaster

Summary
This report examines the impact of Typhoon Haiyan (Yolanda), which struck the central
Philippines on November 8, 2013, and the U.S. and international response. Typhoon Haiyan
(Yolanda) was one of the strongest typhoons (cyclones) to strike land on record. Over a 16 hour
period, the “super typhoon,” with a force equivalent to a Category 5 hurricane and sustained
winds of up to 195 mph, directly swept through six provinces and affected over 10% of the
nation’s population of 105 million people. The areas damaged by the typhoon were some of the
poorest parts of the Philippines.
Congressional concerns related to the storm and its aftermath include the immediate U.S. and
international humanitarian response, the impact on the U.S. foreign aid budget, the long-term
U.S. foreign aid strategy for the Philippines, and how the U.S. response to the disaster may
impact the U.S.-Philippines relationship as well as regional geopolitical dynamics.
The disaster quickly created a humanitarian crisis. In some of the hardest hit areas, particularly in
coastal communities in Leyte province and the southern tip of Eastern Samar, the storm knocked
out power, telecommunications, and water supplies. Between 65% and 90% of structures were
heavily damaged or destroyed. Two weeks after the typhoon, the Philippine government reported
that an estimated 13.7 million people had been affected, with more than 3.43 million displaced (of
which roughly 240,800 were housed in 1,096 evacuation centers). The government also reported
that 792,000 people were evacuated in advance of the disaster. On November 25, an estimated
5,000 deaths were associated with the typhoon and more than 1,600 people were thought to be
missing. All these numbers remain fluid and subject to revision.
The ongoing humanitarian relief operation is being led by the Philippine government. The United
Nations, along with other partners, including the United States, is supporting the current on-the-
ground response for humanitarian assistance. Apart from U.N. agencies, those responding to the
crisis include international organizations, non-governmental organizations (NGOs), Private
Voluntary Agencies (PVOs), and bilateral and multilateral donors. On November 12, 2013, the
U.N. Office for the Coordination of Humanitarian Affairs appealed for $301 million in the Haiyan
Action Plan to provide life-saving assistance and early recovery support. On November 22, the
Plan increased to $348 million, based on assessments completed as partners gained better access
to affected areas. As of November 22, U.S. funding for the humanitarian response included nearly
$52 million to support activities through the U.S. Agency for International Development
(USAID) and Department of Defense (DOD) humanitarian relief operations.
At its peak, approximately 50 U.S. military ships and aircraft were involved in relief efforts and
nearly 1,000 U.S. military personnel were deployed directly to disaster areas. The USS George
Washington naval task force as well as elements of the 31st Marine Expeditionary Unit (MEU)
from Okinawa formed the majority of Joint Task Force (JTF) 505, which coordinated and carried
out U.S. military relief efforts (Operation Damayan). U.S. military assistance included
transporting aid workers, clearing roads, distributing relief supplies, and evacuating those affected
by the typhoon. On November 24, 2013, DOD officials announced it would begin to transition all
of its relief efforts to the Philippine government.
The involvement of U.S. military forces in Haiyan relief efforts has come at a time of growing
U.S.-Philippine security cooperation. The United States and the Philippines maintain close ties
stemming from the U.S. colonial period (1898-1946), a security alliance, and common strategic
Congressional Research Service

---

Typhoon Haiyan (Yolanda): U.S. and International Response to Philippines Disaster

and economic interests. Other pillars of the bilateral bond include shared democratic values and
extensive people-to-people contacts. U.S. military forces engage in regular joint exercises with
the Armed Forces of the Philippines. The United States also has an ongoing, limited, non-
permanent military presence in the country engaged in counterterrorism and humanitarian
activities.
This report will be updated as events warrant. For background and information on the Philippines,
see CRS Report RL33233, The Republic of the Philippines and U.S. Interests. For background on
how the U.S. responds to international disasters, see CRS Report RL33769, International Crises
and Disasters: U.S. Humanitarian Assistance Response Mechanisms.


Congressional Research Service

---

Typhoon Haiyan (Yolanda): U.S. and International Response to Philippines Disaster

Contents
Typhoon Haiyan and Its Immediate Aftermath ................................................................................ 1
The Humanitarian Situation and Response ...................................................................................... 4
Preliminary Numbers at a Glance .............................................................................................. 4
Overall Status of the Relief Effort ............................................................................................. 5
Philippine Government Response ............................................................................................. 5
International Humanitarian Response ....................................................................................... 5
International Humanitarian Operation................................................................................. 5
Key Highlights: Humanitarian Needs and Response .......................................................... 6
International Humanitarian Funding ................................................................................... 7
U.S. Humanitarian Assistance ................................................................................................... 7
Mass Fatality Management ........................................................................................................ 8
U.S. Department of Defense Response to Typhoon Haiyan ............................................................ 9
U.S.-Philippines Relations ............................................................................................................. 10
U.S Military Presence in the Philippines ................................................................................. 10
U.S. Foreign Assistance to the Philippines .............................................................................. 10
Possible Economic Effects of Typhoon Haiyan ............................................................................. 11
Looking Ahead: Policy Issues ........................................................................................................ 12

Figures
Figure 1. Typhoon Haiyan as it Approached the Philippines Coast ................................................. 3
Figure 2. Haiyan’s Path and Destruction ......................................................................................... 4
Figure F-1. Map of the Philippines ................................................................................................ 24

Tables
Table 1. U.S. Assistance to the Philippines, FY2008-FY2014 ...................................................... 11
Table A-1. International Donor Contributions to United Nations Appeal and to Projects
Outside the Appeal (through November 25, 2013) ..................................................................... 13
Table B-1. Contributions Made Through November 22, 2013 ...................................................... 17

Appendixes
Appendix A. Donor Contributions and Pledges to the Philippines in Response to Typhoon
Haiyan (Yolanda) ........................................................................................................................ 13
Appendix B. U.S. Government Humanitarian Assistance to Typhoon Haiyan (Yolanda)
Relief .......................................................................................................................................... 17
Appendix C. Sources for Further Information ............................................................................... 19
Appendix D. How to Contribute to Relief Efforts ......................................................................... 21
Congressional Research Service

---

Typhoon Haiyan (Yolanda): U.S. and International Response to Philippines Disaster

Appendix E. The U.S. Government Emergency Response Mechanism for International
Disasters...................................................................................................................................... 22
Appendix F. Country Map ............................................................................................................. 24

Contacts
Author Contact Information........................................................................................................... 25
Acknowledgments ......................................................................................................................... 25

Congressional Research Service

---

Typhoon Haiyan (Yolanda): U.S. and International Response to Philippines Disaster

Typhoon Haiyan and Its Immediate Aftermath
In the early morning of Friday, November 8, 2013, one of the strongest typhoons (cyclones) to
strike land on record slammed into the central Philippines, also known as the Visayas region.
Over a 16 hour period, the “super typhoon,” with a force equivalent to a Category 5 hurricane and
clouds that covered two-thirds of the country, directly swept through six provinces and affected
over 10% of the nation’s population of 105 million people.1 Haiyan’s estimated wind speeds were
between 195 mph at its peak and 155 mph as it weakened and moved west, with wind gusts of up
to 235 mph.2 Several hundred thousand people reportedly had fled their homes in advance of
Haiyan’s arrival. Many of those displaced
were moved to evacuation centers.3 (See
Philippines at a Glance
Figure 1 and Figure 2.)
Geography: Mountainous archipelago
Area: 115,830 square miles (slightly larger than
The destruction quickly created a
Arizona); 7,000 islands
humanitarian crisis and seriously hampered
Population: 105 million
Philippine and international disaster relief
Ethnic groups: Malay (95%); Chinese, mixed race
efforts. The speed of the storm and advance
(Filipino-Spanish, Filipino-Chinese, Filipino-American),
warning prevented greater flooding and may
other (5%).
have saved many lives. However, in some of
Religions: Roman Catholic (80%); Muslim (5%)
the hardest hit areas, particularly in coastal
Life Expectancy: 72 years
communities in eastern and western Leyte
Literacy: 95%
province and the southern tip of Eastern
Samar, there appears to have been little
GDP per capita: $4,500 (purchasing power parity)
defense against Haiyan’s wrath. The storm
Population below poverty line: 26.5%
knocked out power, telecommunications, and
Infant Mortality: 18.2 deaths/1,000 live births
water supplies in at least six provinces. Food
GDP composition by sector: agriculture 12%;
was in short supply. Between two-thirds and
industry 31%; services 57%
90% of structures were heavily damaged or
Source: CIA, The World Factbook.
destroyed.4 Downed trees and other debris
blocked roads. Some airports, vital links to the rest of the archipelagic country, were damaged,
particularly Roxas airport on Panay Island and Tacloban airport. Most medical facilities and
pharmacies were destroyed or not functioning. Furthermore, decentralized authority, a shortage of
available government workers, looting, and heavy rains reportedly delayed some relief efforts.5
The city of Tacloban (population 220,000), capital of Leyte province, was one of the hardest hit
places and the scene of concentrated destruction and death. Thousands of Tacloban residents
likely drowned in a “two-story-high” storm surge, including people seeking safety in a sports

1 The tropical storm made landfall in Guiuan, Eastern Samar Province; Tolosa, Leyte Province; Daanbantayan and
Bantayan Island, Cebu Province; Concepcion, Iloilo Province (Panay Island); and Palawan Island.
2 By contrast, Hurricane Katrina had wind speeds of 140 mph at landfall.
3 Rick Gladstone, “Top U.N. Relief Official Flies to Philippines to Help Coordinate Aid Efforts,” New York Times,
November 11, 2013.
4 Fisher, op. cit.
5 Max Fisher, “47 Statistics That Explain Typhoon Haiyan,” Washington Post, November 12, 2013; Sunshine de Leon
and Alexandra Zavis, “Philippines Typhoon Leaves Millions in Need of Food, Water, Shelter,” Los Angeles Times,
November 11, 2013.
Congressional Research Service
1

---

Typhoon Haiyan (Yolanda): U.S. and International Response to Philippines Disaster

stadium that served as a shelter.6 Many observers and aid workers feared even greater desperation
in more remote areas beyond the cities, where there was little or no communication.
Steady population increases in disaster-prone areas, combined with a geography consisting of
islands and poor infrastructure, makes the Philippines vulnerable to humanitarian crises. An
average of 20 major storms batter the country each year. In 2012, Typhoon Bopha (Pablo) struck
the southern island of Mindanao, leaving nearly 2,000 people dead or missing. On the island of
Bohol, which lies just south of Haiyan’s path, a 7.1 magnitude earthquake in October 2013
displaced 350,000 people, many of whom resisted going to shelters as the storm approached,
fearing that they might collapse in an aftershock. Until Haiyan, the country’s most destructive
typhoon was Tropical Storm Thelma (Uring), which in 1991 killed over 5,000 people in the
Visayas region.
The areas damaged by the typhoon were some of the poorest parts of the Philippines, many of
them dominated by agriculture and fishing industries, with some tourist destinations also severely
damaged. Early estimates of the economic damage were between $6.5 billion and $15 billion.7
Among the agricultural crops most severely damaged were rice and sugar cane, which will likely
necessitate large Philippine imports of these foodstuffs over the coming months.
By November 18, 2013, ten days after the typhoon struck, regular relief activities reportedly had
reached most of the worst-stricken areas, including all 40 municipalities of Leyte province.
However, some remote areas and islands reported little or less regular disaster assistance.8 In
response to widespread fears about government corruption, the Aquino administration launched a
web portal that allows the public to track international disaster funds, the Foreign Aid
Transparency Hub (FAITH).
According to many observers, U.S. support to the Philippines following the typhoon, including
disaster assistance, expressions of sympathy, and a flurry of diplomatic activity, has bolstered the
already strong bilateral relationship. Some Philippine leaders argue that the U.S. military
response to the disaster strengthens the case for an enhanced U.S. military presence in the
country, an issue that the two sides have been discussing intensively during the past few months.9
On November 10, 2013, President Barack Obama made the following statement in response to the
Philippines disaster:
Michelle and I are deeply saddened by the loss of life and extensive damage done by Super
Typhoon Yolanda. But I know the incredible resiliency of the Philippine people, and I am
confident that the spirit of Bayanihan will see you through this tragedy. The United States is
already providing significant humanitarian assistance, and we stand ready to further assist
the Government’s relief and recovery efforts. Our thoughts and prayers go out to the millions
of people affected by this devastating storm.10

6 Keith Bradshear, “Struggle for Survival in Philippines City Shattered by Typhoon,” New York Times, November 11,
2013.
7 “Philippines Counts the Cost of Typhoon Haiyan,” Manilla Bulletin, November 21, 2013.
8 Andrew Jacobs, “Relief Supplies Pour into Philippines, but Remote Areas Still Suffer,” New York Times, November
16, 2013.
9 Babe Romualdez, “Babe’s Eye View: Thank God for the United States!” The Philippines Star, November 17, 2013;
Tarra Quismundo, “Storm Showed We Need US-Del Rosario,” Philippines Daily Inquirer, November 26, 2013.
10 “Statement by the President on Super Typhoon Haiyan/Yolanda,” November 10, 2013.
Congressional Research Service
2

---

Typhoon Haiyan (Yolanda): U.S. and International Response to Philippines Disaster

Members of Congress were among the first government officials to offer support. Representative
Chris Smith led a congressional delegation to Leyte province.11 On November 19, 2013, the
Subcommittee on East Asian and Pacific Affairs of the Senate Committee on Foreign Relations
held a hearing entitled “Assessing the Response to Typhoon Yolanda/Haiyan.” The Subcommittee
on Africa, Global Health, Global Human Rights, and International Organizations of the House
Committee on Foreign Affairs scheduled a hearing on the U.S. post-typhoon response for
December 3, 2013. Members circulated “Dear Colleague” letters in support of assistance to
remote areas affected by the disaster and protection for vulnerable Filipina women and children.
Members also sponsored resolutions expressing condolences, supporting assistance to the people
of the Philippines, and urging the U.S. government to permit Philippine nationals to be eligible
for Temporary Protected Status.12 On November 21, 2013, the Senate expedited the confirmation
of the new U.S. Ambassador to the Philippines, Philip Goldberg, so that he could help coordinate
U.S. assistance there. U.S. Secretary of State John Kerry reportedly announced plans to visit the
Philippines in December 2013. Kerry cancelled a trip to Manila in October 2013 due to tropical
storm Nari.13
Figure 1. Typhoon Haiyan as it Approached the Philippines Coast
November 7, 2013

Source: NASA.


11 The delegation also included Representatives Trent Franks and Al Green.
12 H.Res. 404 (Royce); H.Res. 408 (Speier); S.Res. 292 (Schatz); H.R. 3602 (Green); H.R. 3604 (Luetkemeyer).
13 Marvin Sy, “Kerry to Visit Phl Next Month,” Philippine Star, October 21, 2013. Kerry was to take the place of
President Obama, who cancelled a trip to Southeast Asia in October 2013 due to the U.S. government shutdown.
Obama’s travel was to include the Asia-Pacific Economic Cooperation (APEC) summit in Indonesia, the East Asia
Summit (EAS) in Brunei, as well as Malaysia and the Philippines.
Congressional Research Service
3

---

Typhoon Haiyan (Yolanda): U.S. and International Response to Philippines Disaster

Figure 2. Haiyan’s Path and Destruction

Source: South China Morning Post.
The Humanitarian Situation and Response
Preliminary Numbers at a Glance
Within a few days of the typhoon, the Philippine government reported that an estimated 11.5
million people had been affected by the storm, with more than 540,000 displaced (of which
roughly 380,000 were staying in 1,215 evacuation centers and 162,000 outside the centers). The
government also reported that 792,000 people were evacuated in advance of the disaster, and that
there were more than 2,300 deaths associated with the typhoon.
The estimated number of dead and missing is often fluid and subject to change in the days and
weeks following a natural disaster, particularly one on the scale of Typhoon Haiyan (Yolanda).
Two and a half weeks after the typhoon struck, based on figures provided by the Philippine
government, the U.N. Office for the Coordination of Humanitarian Affairs (OCHA) reported that
13.17 million people had been affected, with more than 3.43 million displaced (of which
approximately 240,800 were living in 1,096 evacuation centers). Estimates of the number killed
had risen to 5,000 with more than 1,600 missing. The number of injured was unknown. All
numbers remain subject to revision. In addition, assessments revealed an estimated 1.1 million
houses had been damaged.
Congressional Research Service
4

---

Typhoon Haiyan (Yolanda): U.S. and International Response to Philippines Disaster

Overall Status of the Relief Effort
In general, experts divide relief operations into several phases: search and rescue; treatment and
survival; relocation and rehabilitation; early recovery; and long-term reconstruction. As with any
significant natural disaster that has many moving parts, it can take days and sometimes weeks to
get a relief effort underway. Delays in transportation and congestion, lack of transportation
infrastructure, bureaucratic problems, and lack of access all can cause bottlenecks at key points in
the system. While timing is critical to save lives, a relief effort of this size requires the
coordination of assessments and appropriate responses with the government, local communities,
and the international community to function efficiently.
The humanitarian relief operation is being led by the Philippine government. It has been
hampered by a number of significant challenges, not unusual in a disaster of this magnitude,
including a general lack of transportation, extremely limited communications systems, and
damaged infrastructure. Aid personnel and humanitarian supplies have arrived in many of the
affected areas and are beginning to get to some of the more remote locations. In-depth
assessments, necessary to obtain a better understanding of the situation on the ground, are
ongoing.
Philippine Government Response
The Philippine government plans and administers disaster relief primarily through the National
Disaster Risk Reduction and Management Center (NDRRMC) and the Department of Social
Welfare and Development (DSWD). Other agencies involved in relief efforts include the Armed
Forces of the Philippines, the Office of Civil Defense, and the Department of Health. The
NDRRMC oversees activities along with Local Disaster Risk Reduction Management Councils
(LDRRMCs), the DSWD, DSWD field offices, local governments, and other agencies. The
DSWD and its field offices coordinate relief efforts on the ground. The NDRRMC also
collaborates with private sector disaster management networks. The Department of Foreign
Affairs serves as the first point of contact for countries and international organizations wishing to
provide assistance. Taking the lead on the disaster response, the Philippine government has
reportedly formed a high-level national taskforce to ensure fast track transition from relief efforts
to rehabilitation and rebuilding of affected areas.
International Humanitarian Response
The international community typically provides significant humanitarian assistance in response to
these disasters and their ongoing impact.
International Humanitarian Operation14
At the request of the Philippine government and in a supporting role, the United Nations
established Disaster Assessment and Coordination (UNDAC) and U.N. Office for the

14 Information drawn from various reports available at http://www.reliefweb.int and news articles. See also, U.N.
Office for the Coordination of Humanitarian Affairs, Philippines: Typhoon-Haiyan, Situation Report No. 17 (as of 25
November 2013); USAID, Philippines—Typhoon Yolanda/Haiyan, Fact Sheet #11, Fiscal Year (FY) 2014, November
22, 2013.
Congressional Research Service
5

---

Typhoon Haiyan (Yolanda): U.S. and International Response to Philippines Disaster

Coordination of Humanitarian Affairs (OCHA) teams. With the U.N. Humanitarian Country Team
already in place, OCHA is helping to coordinate actors on the ground and enlist donor support.
Humanitarian relief sectors are typically established during humanitarian crises to enable the
United Nations to coordinate partners, prioritize resources, and facilitate planning. In the
Philippines, relief sectors have been organized into 13 relief sectors or “clusters” led by various
agencies. The clusters include Camp Coordination and Camp Management; Early Recovery;
Education; Emergency Shelter; Emergency Telecommunications; Food Security and Agriculture;
Health; Livelihood; Logistics; Nutrition; Protection; Water, Sanitation and Hygiene; and
Communications and Communities.
The United Nations, along with other partners, including the United States, has a strong
relationship with the Philippines, and remains at the forefront of the current on-the-ground
response for humanitarian assistance. International recovery efforts are typically complex because
they require coordination among numerous actors and international entities. In the current crisis,
apart from U.N. agencies, those responding to humanitarian crises include international
organizations, NGOs, Private Voluntary Agencies (PVOs), and bilateral and multilateral donors.
Two weeks following the disaster, humanitarian organizations had reached most remote areas
with some food and relief commodities. Overall aid delivery to affected areas had been mobilized
and sustained, and in locations more accessible early on, assistance had begun to transition from
emergency response to early recovery.
Key Highlights: Humanitarian Needs and Response
• Sustained emergency assistance is still required, particularly food, clean water,
shelter, and basic health care to affected areas.
• Water, sanitation, and hygiene are critical priorities in affected areas and
evacuation centers and to prevent the further spread of acute respiratory
infections, including pneumonia. Medical teams focused on trauma began to
leave the country after two weeks. Concerns remain about a gap in the provision
of and access to basic health care.
• In the first two weeks after the typhoon, more than 3 million food rations were
distributed. Many in the worst-affected communities have little to no access to
markets, although outside these areas small markets are beginning to open. Food
security is a concern for the long term. Most of the rural population depends on
agriculture, and small farmers need to receive agricultural inputs before the
season ends in January to realize a harvest in spring 2014.
• Overall, an increasing number of people are returning home, but many in the
most affected areas are choosing to leave. It is unclear whether these people plan
eventually to return to their home areas, posing some challenges for aid agencies
determining where best to provide services. With 1.1 million homes estimated to
have been destroyed, shelter needs remain urgent and vary greatly by location.
Recovery of livelihoods is critical to enable people to rebuild.
• The U.N. Population Fund (UNFPA) launched a plan for national authorities and
humanitarian partners to provide assistance and protection support to more than 3
million women and girls affected by the disaster. The U.N. Children’s Fund
(UNICEF) and others are focused on identification, documentation, tracing, and
Congressional Research Service
6

---

Typhoon Haiyan (Yolanda): U.S. and International Response to Philippines Disaster

reunification for unaccompanied and separated children. Trafficking among
vulnerable populations has also been raised as a concern.
• An estimated 35,000 people have requested help from the Philippine Red Cross
in tracing family members who are thought to have gone missing in connection
with the typhoon.
• The International Committee of the Red Cross (ICRC), which is supporting the
Philippine Red Cross in its emergency humanitarian response, is also working
with the Philippine authorities on the proper management of the dead.
International Humanitarian Funding
A number of international actors are also providing relief to the Philippines, either through
financial contributions to the government or aid organizations or by directly providing relief
supplies and emergency personnel. (See Appendix A for a list of international donor
contributions.)
On November 12, 2013, the U.N. Humanitarian Country Team appealed for $301 million in the
Haiyan Action Plan to provide life-saving assistance and early recovery support. On November
22, the Plan increased to $348 million, based on assessments completed as partners gained better
access to affected areas. As of November 25, the revised Plan was 39% funded. Additional
pledges and contributions have also been made outside the appeal. A number of countries,
including the U.S. government, are providing assistance in the form of direct contributions of
items such as food and tents, or through the operation of relief flights and logistics support. As of
November 25, the U.N.’s Central Emergency Response Fund (CERF) had made available $134
million to the Plan.15
U.S. Humanitarian Assistance16
Following the typhoon on November 9, 2013, U.S. Charge d’Affaires Brian L. Goldbeck issued a
disaster declaration, and the U.S. Agency for International Development (USAID), through the
Office of Foreign Disaster Assistance (OFDA), immediately authorized funds to be released for
the initial implementation of an emergency response program. As of November 22, 2013, the
United States had provided nearly $52 million in humanitarian assistance.17 (See Appendix B for
detail.)
The U.S. government immediately set up an interagency task force to coordinate and facilitate the
humanitarian response to the typhoon in the Philippines through the Washington, DC-based
Response Management Team (RMT) headed by USAID through OFDA. It also deployed Disaster
Assistance Response Teams (DARTs). The RMT will support the USAID/DART, which is
focused on assessing humanitarian needs, positioning emergency relief supplies, and coordinating
assistance with the U.S. Embassy in the Philippines, the Philippine government, and the

15 See U.N. Office for the Coordination of Humanitarian Affairs, Philippines: Typhoon-Haiyan, Situation Report No.
17 (as of 25 November 2013).
16 For background information on overall U.S. humanitarian assistance, see CRS Report RL33769, International Crises
and Disasters: U.S. Humanitarian Assistance Response Mechanisms, by Rhoda Margesson.
17 See USAID, Philippines—Typhoon Yolanda/Haiyan, Fact Sheet #11, Fiscal Year (FY) 2014, November 22, 2013.
Congressional Research Service
7

---

Typhoon Haiyan (Yolanda): U.S. and International Response to Philippines Disaster

international community. The State Department set up a Crisis Response Task Force to help
monitor developments, facilitate coordination with other agencies as needed, and respond to
inquiries from concerned Americans. The U.S. Embassy in Manila provided a center for
coordination and communication among other U.S. agencies, Philippine authorities, and private
organizations and citizens. U.S.-based NGOs are playing an active role in the relief and recovery
effort.
Mass Fatality Management18
Management of the dead is one challenge of the response to a catastrophe. The task often falls
upon local communities, which are typically overwhelmed tending to the needs of the living.
A pervasive myth holds that human remains cause epidemics in disaster-stricken communities.
Human remains do not carry pathogens that are not already in circulation in a community, and
they do not generally pose an additional threat to the public.19 Rather, epidemics of intestinal
illness that follow a disaster typically result from loss of the infrastructures that prevent sewage
from contaminating potable water. Under such circumstances, many become exposed to the
illnesses of a few.
Upon review of the aftermath of the 2004 Asian tsunami, the Pan American Health Organization
(PAHO), the World Health Organization (WHO), and the International Committee of the Red
Cross (ICRC) published a first responder manual on mass fatality management. In it they said that
“political pressure brought about by [rumors of epidemics from human remains] causes
authorities to use unnecessary measures such as rapid mass burials.... The consequences of
mismanagement of the dead include mental distress and legal problems for relatives of the
victims.”20 Responders are urged to take steps that allow the eventual identification of remains,
and the opportunity for relatives to claim remains. Recommended approaches include rapid
retrieval of remains by responders who are not medical personnel (in order to focus the efforts of
medical personnel on survivors), best practices for victim identification, and options for storage
of remains pending identification. Because the means for optimal storage—ice and
refrigeration—may be in short supply following a disaster and are also needed by survivors, the
manual recommends temporary burial as a good option for immediate storage where no other
method is available.

18 Contributed by Sarah A. Lister, Specialist in Public Health and Epidemiology, Domestic Social Policy Division.
Information in this section is drawn from PAHO, WHO, and ICRC, Management of Dead Bodies After Disasters: A
Field Manual for First Responders, Morgan, Oliver, ed., Washington, DC, 2006 (hereinafter referred to as Field
Manual), http://www.paho.org/disasters/, under “Response Guidelines”; and Morgan, Oliver W. et al., “Mass Fatality
Management Following the South Asian Tsunami Disaster,” PLOS Medicine, vol. 3, no. 6 (June 2006), pp. 809-815,
http://www.plosmedicine.org.
19 Persons who directly handle human remains may be at risk of contracting certain infections such as HIV and
hepatitis, and should take appropriate preventive measures. Management of fatalities that result from epidemics of
infectious disease may require additional measures to protect the public. See PAHO, “Risk of Dead Bodies Associated
with an Epidemic,” undated, http://www.paho.org/disasters/, under “Response Guidelines.”
20 Field Manual, p. 5.
Congressional Research Service
8

---

Typhoon Haiyan (Yolanda): U.S. and International Response to Philippines Disaster

U.S. Department of Defense Response to Typhoon
Haiyan21
DOD’s initial response to Typhoon Haiyan was greatly facilitated by the advanced warning of the
storm as well as naval, air, and Marine Corps assets either visiting or stationed in mainland Japan
and the Japanese island of Okinawa. Initial U.S. military forces deployed to the disaster area
focused on assessing the extent of the damage and conducting limited search and rescue
operations. The USS George Washington naval task force as well as elements of the 31st Marine
Expeditionary Unit (MEU) from Okinawa formed the majority of Joint Task Force (JTF) 505,
which comprised over 13,000 U.S. service members. Fewer than 1,000 U.S. military personnel
were deployed directly to the disaster area while the rest served on ships or supported from bases
around the world. At its peak, the relief effort, named Operation Damayan, involved 13 U.S. ships
and 34 vertical lift aircraft.22
U.S. military aircraft provided reconnaissance of the affected areas, lifted aid workers into the
disaster zones, transported relief supplies, and evacuated those affected by the typhoon to various
locations in the Philippines. Marines who were deployed ashore assisted with road clearance and
with the distribution of humanitarian assistance. Once ground routes were improved, about 90%
of relief supplies were then relegated to truck transportation. The Marines concentrated their
efforts in the Guiuan, Eastern Samar, area which was the hub for supply transport and focused
their remaining efforts south of Tacloban in the Leyte Gulf area.
On November 24, 2013, DOD officials announced it would begin to transition all of its relief
efforts to the Philippine government and that JTF 505 would stand down on or about December 1,
2013.23 DOD officials further noted that it had delivered more than 4 million pounds of relief
supplies and equipment, primarily provided by USAID. In additionally, the U.S. military logged
nearly 2,400 flight hours, conducted more than 1,100 flights, and moved 2,000 relief workers into
Tacloban City. DOD also reported airlifting almost 20,000 survivors from the affected areas.
In addition to the United States, roughly 20 other nations and multilateral organizations, including
Australia, Japan, NATO, South Korea, and the United Kingdom, contributed military assistance.
This aid involved the use of military ships, transport planes, and helicopters. International
military personnel provided disaster relief and helped distribute medical supplies, drinking water
and food. China, which had been criticized for providing too little assistance and being slow to
respond, sent a naval hospital ship, the Peace Ark, to the Philippines on November 21. DOD
evacuated approximately 540 American citizens, 19,600 Philippine citizens, and 300 third country
nationals from typhoon-affected areas.

21 Contributed by Andrew Feickert, Specialist in Military Ground Forces, Foreign Affairs, Defense, and Trade
Division.
22 Ashley Rowland, “US Military Relief in Philippines Winding Down,” Stars and Stripes, November 25, 2013.
Damayan means “help in time of need” in Tagalog, the principal language of the Philippines.
23 Information in this section was taken from “DOD Transitions to Next Phase of Aid in Philippines,” American Forces
Press Service, November 25, 2013.
Congressional Research Service
9

---

Typhoon Haiyan (Yolanda): U.S. and International Response to Philippines Disaster

U.S.-Philippines Relations24
The United States and the Republic of the Philippines maintain close ties stemming from the U.S.
colonial period (1898-1946), a security alliance, extensive military cooperation, and common
strategic and economic interests. Other pillars of the bilateral bond include shared democratic
values and people-to-people contacts. Filipino Americans number approximately 4 million,
making them the second-largest Asian American population, and comprise the largest foreign-
born group in the U.S. Armed Forces. An estimated 150,000 Americans live in the Philippines.
U.S Military Presence in the Philippines
U.S. military forces are involved in several regular joint exercises and ongoing military missions
in the Philippines. The two major ones are the Balikatan (Shoulder to Shoulder) exercises and the
U.S. Joint Special Operations Task Force–Philippines (JSOTF-P) counterterrorism assistance,
which maintains a rotating presence on Mindanao Island and the Sulu archipelago. Both of these
programs include large humanitarian components. Other annual joint exercises include the
Cooperation Afloat Readiness and Training (CARAT) naval event and the Amphibious Landing
Exercise (PHIBLEX). In addition, U.S. warships made several port calls in the Philippines in
2013 prior to the Haiyan disaster.
DOD officials stated that the U.S. military had a “small footprint” of people and equipment in the
Philippines at the time of Typhoon Haiyan. No injuries or damage to them were reported.25
Currently, there are about 470 U.S. military personnel from JSOTF-P conducting
counterterrorism training for selected units of the Philippine military.26 Some members of JSOTF-
P supported Operation Damayan in Ormoc City, Leyte province.
The involvement of U.S. military forces in relief efforts following Typhoon Haiyan comes at a
time of growing U.S.-Philippine security cooperation. The bilateral security relationship has
gained prominence as a key link in the U.S. foreign policy “pivot” or “rebalancing” toward Asia.
Since 2012, U.S. and Philippine officials have discussed increasing U.S. ship and aircraft access
to Philippine military facilities, particularly at Subic Bay, site of the former U.S. naval base, and
bolstering U.S. military facilities and forces in the country on a semi-permanent or rotational
basis.
U.S. Foreign Assistance to the Philippines
The Philippines, regarded by Washington as a partner in maintaining regional security, is one of
the largest recipients of U.S. foreign assistance in Southeast Asia. U.S. assistance has focused
upon poverty reduction, broad-based economic growth, and, increasingly, external security
concerns. In the past decade, over half of U.S. assistance to the country supported development
programs in Mindanao and the Sulu Archipelago, where there has been a sustained Muslim

24 For background information, see CRS Report RL33233, The Republic of the Philippines and U.S. Interests, by
Thomas Lum.
25 Karen Parrish, “DOD Ready to Assist as Philippines Face Monster Strom,” American Forces Press Service,
November 8, 2013.
26 “The Army As of October 31,” Army Times, November 11, 2013, p. 5.
Congressional Research Service
10

---

Typhoon Haiyan (Yolanda): U.S. and International Response to Philippines Disaster

insurgency, with the aim of reducing the attractiveness of radical or extremist ideologies and
activities. In 2010, the Millennium Challenge Corporation (MCC) approved a five-year, $434
million compact with the Philippine government that focused on poverty reduction,
transportation, and the modernization of the Bureau of Internal Revenue. For FY2014, the Obama
Administration requested raising Foreign Military Financing to the Philippines by 75%. (See
Table 1.)
Table 1. U.S. Assistance to the Philippines, FY2008-FY2014
$ U.S. Thousands
FY2013
FY2014
Account FY2008 FY2009 FY2010 FY2011 FY2012

estimate
request
GHP
24,967 27,175 33,220 32,437 33,800 32,810 31,500
DA
27,321 30,000 40,310 79,055 81,055 85,755 87,682
ESF 42,773
30,000
30,000 0 0 0 0
FMF
27,757 28,000 29,000 11,970 27,000 28,483 50,000
IMET 1,525 1,730 1,850 1,971 1,954 1,614 1,700
INCLE
794 800 1,365 2,065 2,450 2,996 8,000
NADR 4,562 4,175 5,625 9,525 9,525 8,945 9,100
Total 129,699 121,880 141,370 137,023 155,784 160,603 187,982
Source: Department of State, Congressional Budget Justification for Foreign Operations (FY2008-14).
Notes: Foreign Aid Account Acronyms: GHP—Global Health Programs; DA—Development Assistance; ESF—
Economic Support Fund; FMF—Foreign Military Financing; IMET—International Military Education and Training;
INCLE—International Narcotics Control and Law Enforcement; NADR—Non-Proliferation, Anti-Terrorism and
De-Mining. This table does not include food aid and MCC funding. The FY2014 request includes $9.5 million
(Development Assistance) for programs in the South Pacific administered by the Philippines mission.
Possible Economic Effects of Typhoon Haiyan27
The Philippines is a middle-income country with a population of 105 million—Southeast Asia’s
second largest. Once one of the wealthiest nations in Southeast Asia, it had been considered one
of the region’s economic laggards since the 1970s, due in large part to widespread corruption and
poor governance. However, in the past three years—before the typhoon struck—the Philippines
had emerged as one of Asia’s strongest economies. The 7.6% GDP growth rate it posted in 2010
was the country’s fastest annual growth rate in 30 years. The Philippines grew 6.8% in 2012, still
one of Southeast Asia’s fastest growth rates, and the International Monetary Fund (IMF) had
predicted expansion of 7.0% in 2013 as recently as October.
This growth represented a strong resurgence for a country that had been a recipient of IMF loans
beginning in 1983, due to fiscal crises in the 1980s and the economic vulnerabilities exposed by
the Asian financial crisis in the 1990s. Many Philippine observers felt it was symbolically
important that the country became an IMF creditor in 2012, contributing to multilateral loans to
Europe. Analysts note that the Philippines, like many Southeast Asian nations, has benefitted

27 Contributed by Ben Dolven, Specialist in Asian Affairs, Foreign Affairs, Defense, and Trade Divison.
Congressional Research Service
11

---

Typhoon Haiyan (Yolanda): U.S. and International Response to Philippines Disaster

from substantial investment inflows over the past three years, but this raises the risks that the
trend could reverse, with private capital outflows possibly arising from the typhoon or for other
reasons, such as the possible tightening of U.S. monetary policy in the coming years.
Observers say it is too early to assess the broad impacts of the typhoon on the Philippine
economy, although the damage to the economic base of the Visayas region is clearly of large
scale. Although the affected areas are not the country’s largest sources of rice, the damage to rice-
growing areas is highly likely to reverse the Philippines’ trend in recent years towards rice self-
sufficiency, and rice imports will likely rise. Damage to other crops, such as sugar cane, coconut,
and pineapple, will likely have considerable impacts on agricultural livelihoods in the region.
Because the region most heavily affected is one of the country’s poorest, impacts on the broad
manufacturing base will likely not be deep. Economists note that once reconstruction efforts
begin, GDP growth will likely be bolstered by construction spending.
One important issue for the Philippine economic recovery in the months and years ahead will be
whether decentralized governance and corruption limits the efficiency of stimulus efforts. The
Philippine central government’s relative lack of control over decisions by regional governments
has been one of the chief obstacles to Philippine economic development for decades, many
observers say. While the World Bank rated the Philippines one of the world’s 10 most improved
business environments in an October 2013 survey, the strains arising from the typhoon’s damage
will be a test of whether the central government can effectively implement economic stimulus
without running into the issues of corruption or poor local governance.
Looking Ahead: Policy Issues
The impact of Typhoon Haiyan is of significant interest to the United States. As the extent of the
disaster becomes clearer, other issues may emerge for Congress as it considers the ongoing U.S.
response. These fall into several possible categories:
• The initial humanitarian relief period: Congressional interest and support is
likely to focus on the humanitarian impact of the disaster, the U.S. and
international response, and ongoing humanitarian developments.
• Ongoing oversight: Congress may exercise its oversight authority in the ongoing
provision of U.S. humanitarian assistance. It may consider how USAID and
DOD responses to the Haiyan disaster mesh with overall and existing U.S.
foreign aid programs, contributions by other governments, and overall global
humanitarian priorities.
• Longer-term assistance strategy: Given the extensive damage to the
Philippines’ economy and infrastructure, Congress may consider broad, long-
term U.S. assistance strategies in the Philippines. Lessons learned from the
response to the Philippines typhoon may influence future U.S. global disaster
assistance strategies and the provision of food aid.
• Strategic questions: Congress may consider how the U.S. disaster response may
impact the U.S.-Philippines relationship as well as regional geopolitical
dynamics, and how existing and ongoing U.S. military activities in the
Philippines may be affected by DOD’s role in disaster relief.

Congressional Research Service
12

---

Typhoon Haiyan (Yolanda): U.S. and International Response to Philippines Disaster

Appendix A. Donor Contributions and Pledges to
the Philippines in Response to Typhoon Haiyan
(Yolanda)28
Table A-1. International Donor Contributions to United Nations Appeal and to
Projects Outside the Appeal (through November 25, 2013)
(U.S. $)
Country/Agency
Contribution/
Donor
Commitmenta Pledgeb In-Kind
Supportc
Algeria
$3,000,000
$0
Rice shipped to the Filipino Department of Social
Welfare and Development.
Andorra $13,405
$0

Asian Development
$3,000,000 $0

Bank
Australia
$27,662,621
$930,233
Medical assistance team, tarpaulins, sleeping mats,
mosquito nets, water containers, health and hygiene
kits, disaster management specialists.
Austria
$1,859,504
$0
Rapid response team.
Azerbaijan $0
$250,000

Bahrain
$0
$0
Ninety tons of food, hygiene packs, blankets, tents,
mats, power generators, towels, pillows, water, and
water containers.
Bangladesh $0
$1,000,000

Belgium
$2,038,705
$0
Team of 40 medical personnel and equipment to set
up field hospital; water treatment units; relief goods.
Brazil $0
$150,000

Brunei Darussalam
$0
$0
Emergency relief supplies of rice and bottled water.
Cambodia $0
$100,000

Canada
$18,958,627
$190,658
Relief team of 20 medical staff plus team of 10
logistical support personnel to establish advanced
surgical position and to install a water purification
station.
U.N. Central
$25,284,204 $0

Emergency
Response Fund
(CERF)
China
$1,600,000
$400,000
A planeload of blankets, tents, and other emergency
relief goods.
Croatia $68,691
$0


28 Contributed by Susan Chesser, Information Research Specialist, Knowledge Services Group, Foreign Affairs,
Defense, and Trade Division.
Congressional Research Service
13

---

Typhoon Haiyan (Yolanda): U.S. and International Response to Philippines Disaster

Country/Agency
Contribution/
Donor
Commitmenta Pledgeb In-Kind
Supportc
Czech Republic
$213,904
$0

Denmark
$7,235,040
$0
Equipment and emergency coordinators, shelter, clean
water, medical supplies for 100,000 families,
telecommunications emergency response unit,
equipment and emergency coordinators.
Estonia $202,919
$0

European
$4,080,532
$9,641,873
Two planes loaded with relief goods, medical team,
Commission
and search and rescue teams.
Finland
$1,356,852
$0
Two motor boats for rescue operations.
France
$888,430
$0
Teams of urban search and rescue personnel, tents,
kitchen kits, and water purifying stations.
Germany
$0
$8,816,705
Medical team of 24 doctors and nurses with two tons
of medical supplies; the team will set up medical tents
and will be able to accommodate 1,000 persons per
day. Also, 23 tons of food, hygiene, and medical kits.
Holy See
$150,000
$0

Hungary
$0
$0
Five medics and search and rescue team.
Iceland $100,000
$0

India
$0
$0
Planeload of relief goods.
Indonesia
$2,000,000
$0
Medicine, drinking water, generator sets, blankets, and
food.
Intergovernmental
$0 $100,000

Organizations
Ireland $0
$1,377,410
Shelter
items.
Israel
$0
$0
Team of 158 medics, rapid response, and search and
rescue personnel; field medical facilities and supplies;
mobile desalination equipment; food.
Italy
$2,729,696
$0
Humanitarian flights, blankets, tarpaulins, tents, and
medical kits.
Japan
$30,647,121
$21,500,000
Rapid response medical assistance team of 25
personnel; 18 medics; plastic sheets, sleeping pads, and
other commodities.
Korea, Republic of
$0
$5,000,000
Disaster relief team.
Kuwait $0
$10,000,000

Luxembourg
$895,638
$0
Relief team of health workers and telecommunications
personnel, as well as information and communications
technology.
Malaysia
$1,000,000
$0
Medics, search and rescue personnel, blankets and
medicine.
Mexico $1,000,000
$0

Myanmar
$100,000
$0
Seven tons of medical and non-medical relief goods.
Netherlands $10,303,070
$0

New Zealand
$1,836,875
$2,454,620
Relief goods; aircraft for transportation.
Congressional Research Service
14

---

Typhoon Haiyan (Yolanda): U.S. and International Response to Philippines Disaster

Country/Agency
Contribution/
Donor
Commitmenta Pledgeb In-Kind
Supportc
Norway $6,433,794 $0

Pakistan $0
$1,000,000

Panama $0
$200,000

Papua New Guinea
$39,000
$1,167,000

Private (individuals
$41,118,633 $159,436,752

and organizations)
Qatar
$0
$0
Eighty tons of medications, food, tents, blankets, and
clothes.
Red Cross/Red
$1,013,404 $0

Crescent Societies
Russian Federation
$1,170,000
$0
Emergency field hospital with air mobile hospital and
rescue workers. Also, 56 metric tons of canned meat,
canned fish, and sugar.
Saudi Arabia
$100,000
$10,000,000

Singapore
$256,000
$0
Civil Defense Force relief team, tents, groundsheets,
medical supplies, blankets, use of aircraft to transport
further supplies.
Slovakia $0
$26,000

Slovenia $80,429
$0

South Africa
$400,000
$0
South African Relief Team of 50 doctors, paramedics,
fire, rescue and related personnel, with 3 tons of
medical equipment and medicines, and 10 tons of light
rescue equipment.
Spain
$2,193,702
$0
Two planes of emergency relief, including a health
relief team of 32 persons with surgery capacities. Also,
a team of seven logisticians and health professionals
with water, sanitation, and hygiene equipment.
Sweden
$10,250,708
$0
Two base camps and two Onsite Operations
Coordination Center modules with personnel to
support United Nations Office for the Coordination of
Humanitarian Affairs (UNOCHA).
Switzerland
$0
$6,500,000
Urban search and rescue team, tents, water
distribution kits, water pump kits, drinking water
reservoir, water disinfection kits, and tarpaulins.
Thailand
$200,000
$280,000
Planeload of relief goods.
Turkey
$0
$0
Search and rescue team, and a planeload of tents,
blankets, and kitchen sets.
Ukraine
$0
$0
Relief goods, including food, water filters, power
generators, canned beef, mattresses and pillows, and
disinfectant kits.
United Arab
$10,000,000
$0
Emergency response team.
Emirates
Congressional Research Service
15

---

Typhoon Haiyan (Yolanda): U.S. and International Response to Philippines Disaster

Country/Agency
Contribution/
Donor
Commitmenta Pledgeb In-Kind
Supportc
United Kingdom
$66,290,322
$28,870,968
Twelve National Health Service personnel able to
operate under emergency conditions; forklift trucks,
cutting equipment, and 4x4 vehicles to clear and open
runways and roads; temporary shelters; blankets;
water purification tablets; household goods; soap and
sanitary items; bedding; blankets; and solar lanterns.
United Nations
$6,000,000 $0

agencies
United States
$51,857,894
$0
Logistics and relief commodities.
Vietnam $0
$100,000

TOTAL $345,629,720d $269,492,219e

Source: Compiled by CRS from information provided by the Financial Tracking Service (FTS) of the United
Nations Office for the Coordination of Humanitarian Affairs (OCHA) at http://fts.unocha.org/pageloader.aspx?
page=home. International Assistance Matrix, provided by the Government of the Philippines at
http://www.gov.ph/faith/ful -report/.
Notes:
a. According to OCHA, a “Contribution” is the actual payment of funds or transfer of in-kind goods from the
donor to the recipient. A “Commitment” is a legal, contractual obligation between the donor and recipient
entity, specifying the amount to be contributed.
b. According to OCHA, a “Pledge” is a non-binding announcement of an intended contribution or al ocation
by the donor.
c. According to OCHA, a zero in both Contribution/Commitment and Pledge columns indicates the donor did
not report a value for an in-kind donation.
d. Total of contributions made to the United Nations appeal and to projects outside of the appeal.
e. Total of pledges made to the United Nations appeal and to projects outside of the appeal.



Congressional Research Service
16

---

Typhoon Haiyan (Yolanda): U.S. and International Response to Philippines Disaster

Appendix B. U.S. Government Humanitarian
Assistance to Typhoon Haiyan (Yolanda) Relief 29
Table B-1. Contributions Made Through November 22, 2013
U.S. Funding Source
Implementing Partner
Description
Funding
USAID/OFDAa
Catholic Relief Services
Transitional shelters.
$3,000,000
USAID/OFDAa
United Nations Office for
Coordination and advocacy in
the Coordination of
areas affected by Typhoon
$250,000
Humanitarian Affairs
Haiyan.
(UNOCHA)
USAID/OFDAa Oxfam/Great
Britain
Water, sanitation, and hygiene.
(Oxfam/GB)
$2,499,645
USAID/OFDAa
Plan International
Education assistance to children;
funding teachers and early
childhood facilitators in the
Provinces of Leyte, Southern
$3,000,000
Leyte, Eastern Samar, and
Western Samar.
USAID/OFDAa
United Nations Children’s
Access to Water, Sanitation and
Fund (UNICEF)
Hygiene (WASH) for children
$750,000
and women.
USAID/FFPb
World Food Program
Emergency food assistance.
$2,250,000
USAID/FFPb
World Food Program
Local or regional food
procurement.
$7,750,000
USAID/OFDAa
World Food Program
Lifesaving and early recover food
assistance.
$5,000,000
U.S. Department of
U.S. Department of
Logistics.
Defense
Defense
$21,857,894
USAID/OFDAa
Various recipients
Administrative support.
$209,619
USAID/OFDAa
Various recipients
Commodity airlifts, logistics,
$3,127,002
relief commodities.
USAID/OFDAa
USAID/Philippines
Logistics and relief commodities,
$100,000
WASH projects.
USAID/OFDAa
UN agencies and NGOs
Logistics and relief commodities,
$2,063,734
WASH, shelters.
TOTAL U.S.


$51,857,894
CONTRIBUTION
Source: Compiled by CRS from USAID, Philippines—Typhoon Yolanda/Haiyan, Fact Sheet #11, Fiscal Year (FY)
2014, November 22, 2013 and the Financial Tracking Service (FTS) of the United Nations Office for the
Coordination of Humanitarian Affairs (OCHA) at http://fts.unocha.org/pageloader.aspx?page=emerg-
emergencyDetails&appealID=1043.


29 Contributed by Susan Chesser, Information Research Specialist, Knowledge Services Group, Foreign Affairs,
Defense, and Trade Division.
Congressional Research Service
17

---

Typhoon Haiyan (Yolanda): U.S. and International Response to Philippines Disaster

a. USAID/Office of Foreign Disaster Assistance funding indicates actual or obligated amounts.
b. USAID/Food for Peace funding indicates the estimated value of food assistance.

Congressional Research Service
18

---

Typhoon Haiyan (Yolanda): U.S. and International Response to Philippines Disaster

Appendix C. Sources for Further Information30
U.S. Embassy in Manila, Philippines
Disaster Assistance: http://manila.usembassy.gov/disaster-assistance.html
U.S. Citizen Services: http://manila.usembassy.gov/wwwha017.html#Missing
This page provides information for persons trying to find American citizens who were in the
Philippines at the time of the storm.

U.S. Agency for International Development (USAID)
http://www.usaid.gov/haiyan
http://www.usaid.gov/philippines
USAID Office of Foreign Disaster Assistance (USAID/OFDA) Twitter Feed:
https://twitter.com/theOFDA

U.S. Department of Defense
Operation Damayan: http://www.defense.gov/home/features/2013/1113_haiyan/

Government of the Philippines
Matrix of International Assistance: http://www.gov.ph/faith/full-report/

This site tracks assistance the Filipino government receives from other countries, agencies of
the United Nations, and nongovernmental organizations. It is frequently updated each day.

U.N. News Centre
http://www.un.org/News/
The UN News Service publishes reports on the humanitarian aid efforts in the Philippines, as
well as news about the United Nations’ work in other countries.
Relief Web
http://reliefweb.int/disaster/tc-2013-000139-phl
This site is administered by the U.N. Office for the Coordination of Humanitarian Affairs
(OCHA) and provides links to reports by governments, international and intergovernmental
entities, and non-governmental organizations (NGOs) on humanitarian activities as well as
maps and fact sheets. This site is continuously updated.

30 Contributed by Susan Chesser, Information Research Specialist, Knowledge Services Group, Foreign Affairs,
Defense, and Trade Division.
Congressional Research Service
19

---

Typhoon Haiyan (Yolanda): U.S. and International Response to Philippines Disaster

Selected U.N. Entities
U.N. Country Team in the Philippines
http://reliefweb.int/organization/unct-philippines
United Nations Children’s Fund (UNICEF)
http://www.unicef.org/infobycountry/philippines.html
World Food Program (WFP)
http://www.wfp.org/countries/philippines
World Health Organization (WHO)
http://www.who.int/hac/en/index.html
United Nations High Commissioner for Refugees (UNHCR)
http://www.unhcr.org/52820a359.html
Food and Agricultural Organization of the United Nations (FAO)
http://www.fao.org/emergencies/crisis/philippines-typhoon-haiyan/en/
InterAction
http://www.interaction.org/crisis-list/interaction-members-respond-typhoon-haiyan
InterAction is an alliance of more than 180 U.S.-based nongovernmental organizations
(NGOs) that work around the world. The site describes the humanitarian assistance being
provided by each member organization responding to the Philippines disaster and provides
links to the individual websites where contributions can be made.



Congressional Research Service
20

---

Typhoon Haiyan (Yolanda): U.S. and International Response to Philippines Disaster

Appendix D. How to Contribute to Relief Efforts
USAID—How to Help
http://www.usaid.gov/what-we-do/working-crises-and-conflict/crisis-response/how-help
U.S. Embassy in Manila, Philippines
How to Contribute: http://manila.usembassy.gov/response-contribute.html
Charity Navigator
Super Typhoon Haiyan Disaster Relief: http://www.charitynavigator.org/index.cfm?bay=
content.view&cpid=1659
Provides analysis, evaluations, and ratings of charity finances as well as accountability and
transparency.
Guide Star
Helping Typhoon Haiyan Survivors:
http://www.guidestar.org/rxg/give-to-charity/donor-resources/philippines-typhoon-
relief.aspx?gsicn=November11TyphoonRelief&gsici=HomepageFeature
This organization gathers information about nonprofit organizations and reports on each
organization’s mission, legitimacy, impact, reputation, finances, programs, transparency, and
governance.
Congressional Research Service
21

---

Typhoon Haiyan (Yolanda): U.S. and International Response to Philippines Disaster

Appendix E. The U.S. Government Emergency
Response Mechanism for International Disasters31
The United States is generally a leader and major contributor to relief efforts in response to
humanitarian disasters. The President has broad authority to provide emergency assistance for
foreign disasters and the U.S. government provides disaster assistance through several U.S.
agencies. The very nature of humanitarian disasters—the need to respond quickly in order to save
lives and provide relief—has resulted in a rather unrestricted definition of what this type of
assistance consists of at both a policy and an operational level. While humanitarian assistance is
assumed to provide for urgent food, shelter, and medical needs, the agencies within the U.S.
government providing this support typically expand or contract the definition in response to
circumstances. Funds may be used for U.S. agencies to deliver services or to provide grants to
international organizations (IOs), international governmental and non-governmental organizations
(NGOs), and private or religious voluntary organizations (PVOs). The U.S. Agency for
International Development (USAID) is the U.S. government agency charged with coordinating
U.S. government and private sector assistance. It also coordinates with international
organizations, the governments of countries suffering disasters, and other governments.
The Office of Foreign Disaster Assistance (OFDA) in USAID’s Bureau for Democracy, Conflict,
and Humanitarian Assistance (DCHA) provides immediate relief materials and personnel, many
of whom are already abroad on mission. It is responsible for providing non-food humanitarian
assistance and can quickly assemble Disaster Assistance Response Teams (DARTs) to assess
conditions. OFDA has wide authority to borrow funds, equipment, and personnel from other parts
of USAID and other federal agencies. USAID has two other offices that administer U.S.
humanitarian aid: Food For Peace (FFP) and the Office of Transition Initiatives (OTI). USAID
administers emergency food aid under the Food for Peace Act (Title II of P.L. 480) and provides
relief and development food aid that does not have to be repaid. OTI provides post-disaster
transition assistance, which includes mainly short-term peace and democratization projects with
some attention to humanitarian elements but not emergency relief.
Although not all applicable to the disaster in the Philippines, the Department of Defense (DOD)
Overseas Humanitarian, Disaster, and Civic Aid (OHDACA) funds three Dodd humanitarian
programs: the Humanitarian Assistance Program (HAP), Humanitarian Mine Action (HMA)
Program, and Foreign Disaster Relief and Emergency Response (FDR/ER). OHDACA provides
humanitarian support to stabilize emergency situations and deals with a range of tasks including
providing food, shelter and supplies, and medical evacuations. In addition the President has the
authority to draw down defense equipment and direct military personnel to respond to disasters.
The President may also use the Denton program to provide space-available transportation on
military aircraft and ships to private donors who wish to transport humanitarian goods and
equipment in response to a disaster.
Generally, OFDA provides emergency assistance for 30 to 90 days after a disaster. The same is
true for Department of Defense humanitarian assistance. After the initial emergency is over,

31 Information in this section is drawn from CRS Report RL33769, International Crises and Disasters: U.S.
Humanitarian Assistance Response Mechanisms, by Rhoda Margesson.
Congressional Research Service
22

---

Typhoon Haiyan (Yolanda): U.S. and International Response to Philippines Disaster

assistance is provided through other channels, such as the regular country development programs
of USAID.
The State Department also administers programs for humanitarian relief with a focus on refugees
and the displaced. The Emergency Refugee and Migration Account (ERMA) is a contingency
fund that provides wide latitude to the President in responding to refugee emergencies. Assistance
to address emergencies lasting more than a year comes out of the regular Migration and Refugee
Account (MRA) through the Population, Migration, and Refugees (PRM) bureau. PRM assists
refugees worldwide, conflict victims, and populations of concern, often extended to include
internally displaced people (IDPs). Humanitarian assistance includes a range of services from
basic needs to community services.

Congressional Research Service
23

---

Typhoon Haiyan (Yolanda): U.S. and International Response to Philippines Disaster

Appendix F. Country Map
Figure F-1. Map of the Philippines

Source: Congressional Research Service.
Congressional Research Service
24

---

Typhoon Haiyan (Yolanda): U.S. and International Response to Philippines Disaster


Author Contact Information

Thomas Lum, Coordinator
Rhoda Margesson, Coordinator
Specialist in Asian Affairs
Specialist in International Humanitarian Policy
tlum@crs.loc.gov, 7-7616
rmargesson@crs.loc.gov, 7-0425



Acknowledgments
Susan Chesser, Information Research Specialist, 7-9547
Ben Dolven, Specialist in Asian Affairs, 7-7626
Andrew Feickert, Specialist in Military Ground Forces, 7-7673
Peter Folger, Specialist in Energy and Natural Resources Policy, 7-1517
Sarah Lister, Specialist in Public Health and Epidemiology, 7-7320
Barbara Torreon, Information Research Specialist, 7-8996

Congressional Research Service
25

---