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Fire + water + bombs: Disaster management among academic libraries in Marawi City, Lanao del Sur, Philippines
International Journal of Disaster Risk Reduction 41 (2019) 101311
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Fire þ water þ bombs: Disaster management among academic libraries in Marawi City, Lanao del Sur, Philippines Daryl L. Superio a, *, Ethelyn M. Abaday b, Mary Grace H. Oliveros a, c, Allana S. Delgado a, c, Vince Ervin V. Palcullo c, d, Joy F. Geromiano a, c a
Aquaculture Department, Southeast Asian Fisheries Development Center, Tigbauan, Iloilo, Philippines University Library, Mindanao State University at Naawan, Misamis Oriental, Philippines School of Graduate Studies, Central Philippine University, Jaro, Iloilo City, Philippines d Henry Luce III Library, Central Philippine University, Jaro, Iloilo City, Philippines b c
A R T I C L E I N F O
A B S T R A C T
Keywords: Academic libraries Disaster management Disasters in libraries Battle of Marawi Philippines
The academic libraries in Marawi City, Lanao del Sur, Philippines are vulnerable to disasters. In the last ten years, the majority of the 13 respondent libraries have sustained at least one disaster that may have been caused by civil unrest, war or terrorism, flood, earthquake, or fire. The majority were unprepared to face such disasters, may it be small-scale or catastrophic, and only one library has a disaster management plan. The lack of significant holdings of rare books, shortage of financial resources, no perceived risk, and the unavailability of staff to write a disaster management plan, are the reasons why most libraries do not have a plan. Moreover, the majority lacked staff that has undergone training in disaster preparedness and management. On the other hand, all of the libraries have disaster management practices that although not enough, will still enable them to lessen the effects of the disaster and save their library and parts of their collection when necessary. The respondents identified man agement support as an essential factor in their success in disaster management. The results of the study provide valuable information on the current state of the libraries in the Philippines with regards to disaster preparedness and management. Therefore, it is an essential addition to the literature on disaster management in the Philippines, which is very scarce as of the moment.
1. Introduction
Provincial public library [61]. The Battle of Marawi was identified to be the most massive urban warfare in the country since World War II. The whole city was heavily damaged, with more than a thousand people killed and displaced from Marawi City and the surrounding areas due to the conflict. Ninety-five percent (95%) of the buildings in the battle area were heavily damaged [8]. An estimated 150 billion pesos would be needed to rehabilitate the entire city, rebuild damaged structures, and restore essential services and 2 billion pesos to rehabilitate the 22 public schools that were destroyed [19]. Aside from these, 47 schools were partially damaged and are currently using temporary spaces for their classes [12]. Private schools in Marawi also appealed to the government for assis tance in rebuilding structures after the war [27]. The Department of Education (DepEd) is partnering with the Congress of the Philippines for funds to help in the rehabilitation of schools. The government desig nated the National Disaster Risk Reduction Council (NDRRMC) to take
The Philippines is identified as one of the top three global disaster hotspots [55] in the world. Natural calamities such as typhoon, earth quake, and tsunami occur regularly, causing widespread damage and losses [65]. Human-made tragedies, although not frequent, also occur in the Philippines. For instance, the Maute rebel group attacked Marawi City, Lanao del Sur on May 23, 2017, resulting in conflict between the Philippine government forces and the terrorist group, also known as the Battle of Marawi, that lasted for five months, ending on October 23, 2017 [16]. Marawi City is the capital of Lanao Del Sur Province in Mindanao. It is a fourth-class city consisting of 96 barangays or villages, with a total land area of 87.55 square kilometers. Its population as of 2015 is 201,785 and 99% are Muslims. Their economy relies on agriculture, trade, and exports. It has 16 colleges and a university [17,66] and one
* Corresponding author. E-mail addresses: [email protected] (D.L. Superio), [email protected] (E.M. Abaday), [email protected] (M.G.H. Oliveros), adelgado@ seafdec.org.ph (A.S. Delgado), [email protected] (V.E.V. Palcullo), [email protected] (J.F. Geromiano). https://doi.org/10.1016/j.ijdrr.2019.101311 Received 24 January 2019; Received in revised form 24 August 2019; Accepted 31 August 2019 Available online 1 September 2019 2212-4209/© 2019 Elsevier Ltd. All rights reserved.
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the lead of the response operations in Marawi City to efficiently deliver services and respond to the needs of the people affected by the war [56]. Libraries were also damaged and affected during the crisis. Libraries provide for the needs of the people acting as the community’s infor mation centers and repositories of valuable historical and cultural her itage. In any school and organization, disaster management planning for libraries should be a priority to preserve crucial information. Libraries should be preserved and protected against disasters. However, while there are studies on the effects of natural calamities in libraries, those affected by war are still a new topic in the Philippines in this era. This study was conducted to record the occurrence of disasters in the last 10 years and their impacts on libraries, document the disaster management practices and the overall preparedness of the academic libraries in Marawi City in facing disasters, as well as provide baseline information to fill in this knowledge gap in the Philippine setting. The scope of the study only includes the 13 academic libraries in Marawi City, Lanao del Sur, Philippines. The results may not be used to generalize the current state of all the libraries in the country regarding their disaster preparedness and management but could be used as a basis for the conduct of a national study of the libraries in the country.
publications documenting the impacts of disasters in libraries, including typhoons [56,76] and fires [2,28,75]. 2.1. Fire disasters in libraries In the book “Books on fire: The destruction of libraries throughout history,” Polastron [63] provided a detailed list of libraries that were destroyed by fire from the ancient times to the present. Fire “was responsible for the majority of library disappearances throughout his tory” [63,64]. Faulty electrical wiring, and the failure or misuse of lighting, cooking, cooling, and heating equipment, and arson were some of the common reasons for fire disasters in libraries [47]. Fires due to faulty electrical wirings turned the Mzuzu University in Malawi to ashes [14], damaged 400,000 books of the USSR Academy of Science Library [52,72,74] and closed the Barton Public Library for a year because of smoke damage [62]. Arson has been one of the cruelest causes of fire disaster in libraries. Arsonists have caused the fire disaster twice in the Los Angeles Central Public Library in 1986 that is considered to be the worst library fire in American history [10], and destroyed libraries including those in Great Britain and Canada [2]; West Africa [6]; Australia [22]; Poland [83]; and the Philippines [22,28]. Moreover, fire disasters caused by natural phenomena such as wildfire and lightning have caused damage to some libraries. The col lections of the Paradise Branch of the Butte County Library in California were damaged by smoke from wildfires in November 2018 [34], while a fire ignited by a lightning strike burned parts of and brought fire, smoke and water damages to the collections of the Library of Southeast Asian Fisheries Development Center, Aquaculture Department (SEAFDE C/AQD Library) in Iloilo Province, Philippines in 1998 [75] and the Hopkinton Town Library in New Hampshire, the USA in 2018 [44].
2. Review of related literature A disaster is “any incident which threatens human safety and/or damages, or threatens to damage a library’s building, and collection or item(s) therein, equipment and systems” [46]. Natural phenomena (ty phoons or hurricanes, earthquakes, tsunamis, landslides, volcanic eruption, vermin, and wildfires) or human-made adversities (careless ness such as gas leaks or faulty wirings, willful destruction including arson, vandalism, civil unrest, war, and terrorism) were often the causes of disasters in libraries. A disaster is unavoidable, but in some cases, its occurrence could be predicted. Hence, preparation could be made to lessen its effects. Frequently it happens in an instant which often leaves its victims unguarded and overwhelmed with the damage it has incurred. Libraries, being prone to disasters, must always be prepared for the worst to come. Since the earliest times, libraries around the world have experienced natural and human-made disasters, there were fortunate libraries that were able to bounce back after the calamity while there were those that vanished and remain part of history. Several works have been published documenting disasters in libraries including the books “Memory of the world: Lost memory - libraries and archives the twentieth century” which provided a comprehensive list of libraries and archives that were destroyed by disasters from 1904 to 1994 [83], and “Lost Libraries: The Destruction of Great Book Collections since Antiquity” which docu mented the disasters that destroyed some libraries from ancient, medi eval up to the present time [64]. However, the majority of the libraries covered in these works were from the Global North while only a few were from the Global South, maybe because library services in devel oping countries during those times were inadequate and trained li brarians were scarce [33]. It was only in the 1970s when libraries from developing countries got representation in the International Federation of Library Associations and Institutions (IFLA) [29]. Hence, documen tation about their experienced disasters remains limited. Since the 1980s, there has been an increasing number of publications documenting disasters in libraries in developing countries. Nigerian li braries were damaged due to fire (1987), leaky roofs and leaky pipes (1975–1985), and civil war (1967–1970) [89]. In Ghana, vermin, vandalism, and leaky walls, although non-catastrophic, when left un attended, could cause significant damage to the building and collection of an academic library [90]. On the other hand, the 2005 earthquake in Pakistan devastated schools, academic and public libraries [70,71] while a flood ravaged two university libraries in Punjab, India, in 1994 [37]. Disasters such as fire, flood, landslide, etc. were experienced by 13 academic libraries in Malaysia [73]. Meanwhile, in the Philippines, despite being prone to different types of disasters, there are very few
2.2. Water disasters in libraries Water disasters due to malfunctioning plumbing, leaky roofs, heavy rains, typhoons, and floods are common causes of damage to libraries and their collections. Malfunctioning plumbing or leaky pipes damaged a considerable amount of books and some equipment in the McWherter Library of the University of Memphis in 1996 and 2014, although the library personnel was able to salvage the collections with lesser damage since the previous disaster had already prepared them [13]. Several studies are doc umenting how small scale water disasters have affected and successfully managed by libraries like the cases of Howard Tilton Library at Tulane University (USA) [43]; Lane Community College Archives (USA) [81]; and, SEAFDEC/AQD Library (Philippines) [75]. Although small scale water disaster is not catastrophic, it must not be neglected; thus, library personnel must check water lines and the possible entry point of water regularly to ensure safety and reduce risk in libraries. Some libraries have experienced catastrophic water disasters. Van der Hoeven and Van Albada [83] made a comprehensive list of water disasters that caused immense damage to the libraries and archives around the world. Included in their list were the libraries that were destroyed by floods, like the libraries in Ohio, West Virginia, Indiana, Illinois and Mississippi (1937), the former Royal and Provincial Library in Hannover (1946), the Fawcett Library (1994) and the University of Sussex Library in the United Kingdom (2000). In 1979, the Taylor Institution Library’s collection in the United Kingdom was damaged by water because of water main break. Natural calamities that have caused severe damages to some libraries in the last decade include the Asian tsunami in 2004 that damaged li braries in Sri Lanka and Indonesia [3,7]; hurricane Ivan in Jamaica in 2004 [58]; hurricane Katrina in the United States in 2005 [15,79] and Typhoon Haiyan in the Philippines in 2013 [76]. 2
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2.3. Civil unrest and war disasters in libraries
institutional and community supporters; government partners; collec tion managers; information disseminators; internal planners; educators and trainers; and information community builders in the aftermath of a disaster [25].
War is also a massive catalyst for disasters in libraries. It can cause a domino effect that can trigger further damages because of fire and water. Throughout history, several important libraries were destroyed due to civil unrest or war. Van der Hoeven and Van Albada [83] had listed li braries that experienced overwhelming destruction caused by wars like the University of Valencia Library during the Spanish Civil War in 1932, libraries in China during the Sino-Japanese War in 1937–1945, as well as libraries in Germany, Poland, France, Belgium, Italy, and Russia among others during these periods. The libraries in the Philippines were also damaged during World War II [32,60]. The National Library had 733,000 vol in its collection before the war started but only saved 36,600 vol after. The University of the Philippines Library recovered only 3000 vol out of 147,000 vol in its collection. The Scientific Library, which had 357,000 vol, was destroyed entirely. Recently, two schools, including their libraries, were burned by arsonists in Marawi City, Lanao del Sur due to poll violence on May 9, 2016 [28]. Several libraries, archives and cultural heritage were destroyed during the Balkan Wars in the 1990s in the countries of Croatia, BosniaHerzegovina, and Kosovo [67]. In 2003, looting of libraries, museums, and archives occurred after the fall of Saddam Hussein’s regime in Iraq. The National Library and the National Archives in Baghdad were burnt and looted twice [4]. After the first attack, a part of the collections was moved by the library employees and volunteers to a mosque and at the Board of Tourism building. In 2014, the militant group ISIS captured the City of Mosul in Iraq and intentionally burned books. By the time the Iraqi army was advancing to retake the city, the retreating militants burned the library of the University of Mosul [86].
2.5. In retrospect - disasters in libraries No matter how big, secured, or advanced a library is - the library personnel cannot stop a catastrophe from happening. However, they can prepare ahead to lessen the damage to the collection in case disaster strikes, and the best preparation is to have a disaster management plan. A disaster management plan must be comprehensive and should include disaster control, risk assessment, training of staff, and finance [46]. It is an essential part of disaster preparedness and management, as it could guide the library personnel on what to do in a critical time thereby minimizing the impacts of the disaster and maximizing their efficiency in controlling it [75]. Despite its importance, it is uncommon among libraries [5,37–39,73,75,89]. Some did have a disaster man agement plan but was found to be inadequate for the disaster that their libraries have sustained [79]. Therefore, to ensure its effectivity, a disaster management plan should " … be flexible and open to revision and updating. No disaster plan is complete and perfect; all plans could be better in some way,” as stated by Robertson [68]. A comprehensive disaster management plan is of little value when there is a lack of well-trained library staff on disaster preparedness and management to implement them [46]. Studies have found that the majority of the libraries lacked staff who are well-trained on disaster preparedness and management, including the libraries in Ghana [5], Greece [39], India [37], Nigeria [89], the Philippines [76], and South Africa [59]. Due to lack of training, some of the document recovery practices of the libraries in Panay Island, the Philippines that were affected by Typhoon Haiyan were inappropriate, thereby worsening the damage of the affected library collections rather than saving them [76]. Therefore, training library staff on disaster management is as necessary as writing a disaster management plan. Moreover, knowing that victims of disasters would often go to libraries to seek comfort [88], it is therefore a must for librarians to equip themselves not just with skills on keeping the library and its collection safe, and on saving the affected resources, but also with skills on responding to the needs of the community.
2.4. The roles of libraries and librarians in time disasters The library personnel is one of the most important factors for suc cessful disaster preparedness and management, as they are “the first line of defense in every disaster situation” [9]. However, according to Rob ertson [68] compared to other professionals, librarians are less inclined to plan and respond to a disaster. Moreover, they lack training and would often rely on public safety personnel to prepare them and sometimes, save them from any unfortunate events because they were busy with routine library works and the occurrence of a disaster is infrequent. Hence, there are several cases where libraries and their collections were damaged like the majority of the libraries in Panay Is land, Philippines during the onslaught of typhoon Haiyan in 2013 [76] and the libraries in Croatia during the war in 1991–1995 [31] because the majority of the librarians did not see any approaching risk. On the other hand, there were instances when the library disaster preparedness and procedures seemed inadequate due to the intensity of the disaster, for example, when Hurricane Katrina struck Louisiana, USA in August 2005 and was followed by hurricane Rita in less than a month. The massive destruction led to the temporary closure of one-third of public libraries in Louisiana [30]. The most important lessons for the librarians was the inadequacy of their disaster management plans and the importance of the library to the community after the disaster. Hamilton [30] noted that, since people turned to libraries, librarians must focus on business continuity rather than collection recovery. Libraries and librarians play essential roles in disaster response and recovery. According to Young [88], libraries are essential “in building a more disaster-resilient society through community support and in fostering access to critical information and resources in the wake of a disaster.” Traumatic experiences during disasters could cause immense psychological impacts on victims. A library is a place where victims could seek comfort [88], with its resources, particularly the Internet, they were able to provide victims connectivity to the outside world, including government agencies, insurance companies, employers, and loved ones among others [25,35]. Furthermore, librarians could act as
3. Methodology This is a quantitative-qualitative study of the disaster-preparedness of academic libraries in disaster prone community, like those in Mar awi City, Philippines. The instrument that was used in data gathering was based mainly on the tool used in the study of Superio, Alayon, and Oliveros about the academic libraries in Panay Island the Philippines that were affected by Typhoon Haiyan in 2013 [76]. Furthermore, studies about water-, fire-, and civil unrest or war-related disasters from different countries were also consulted during its development. It in cludes questions on demographics, the library and its environment, the library personnel, the disaster management practices, the disaster(s) experienced in the last 10 years and the damages sustained by the library and the collections, and open-ended questions on the realizations regarding the strengths and weaknesses of the library in dealing a disaster. The survey started in November 2017, a month after the war ended, and it concluded in January 2018. The head librarians or librarians-incharge of all the 16 colleges, and a university including its depart mental libraries in Marawi City were considered in the study. Due to safety reasons, civilians were not allowed to enter the City. Thus, the most convenient means for the researchers to identify and to contact the librarians for data gathering was through social media given the fact that Filipinos are the world’s leader in social media usage, particularly Facebook [11]. One of the researchers has joined the Facebook Page of 3
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the Philippine Librarians Association, Inc. - Autonomous Region for Muslim Mindanao Librarians Council (PLAI-ARMMLC). Through the PLAI-ARMMLC Facebook Page, 19 respondent librarians were identi fied. The researchers were not able to establish contact with the li brarians or library-in-charge of the other colleges as there is no record of their membership in PLAI-ARMMLC. Furthermore, the researchers were not able to visit the schools and conduct an ocular inspection because the whole Mindanao Island was under Martial Law and the civilians were not allowed to enter Marawi City without clearance from the Military. Print copies of the survey instrument were sent to some respondents through the contacts of the researchers who are residing in Marawi City, while some were given personally. Since the respondents were also affected by the war, to ensure the efficiency in data gathering, electronic versions of the instrument were sent to the respondents as Facebook Messenger attachment. All of the responses were sent back to the re searchers as Facebook Messenger attachments as well. Furthermore, Facebook Messenger was also utilized when clarifications were needed from the respondents. For the researchers to ensure the safety of data, all the conversations were deleted after the attachments were downloaded, and all of the responses were recorded. After three months, 13 responses were received, yielding a 68.4% response rate, higher than 60%, which, according to Taylor-Powell and Hernan [78] is considered adequate to represent the whole sample. Several follow-ups were done on the remaining six respondents but to no avail. Since the responses contain some sensitive information, the re searchers have decided to anonymize the name of the academic institutions. The Statistical Package for Social Sciences (SPSS) Version 19 soft ware and the Microsoft Excel 2010 were used to analyze the data. Fre quency counts, percentages, and mean were used to describe the results.
10,000.00). For some of the respondents, the allocated budget is not even enough for the development of the library collection. Ten of the thirteen (76.9%) libraries were prone to disasters. All of the 10 respondents identified their libraries as being prone to earth quakes. Several earthquakes have devastated Lanao del Sur in the past, one of which was an intensity six earthquake on April 12, 2017, that has affected thousands of individuals in the province [91]. On average, there are at least three small to moderate earthquakes that happened in Lanao del Sur from 2011 to 2016 [92]. According to the Philippine Institute of Volcanology and Seismology (Phivolcs), Central Mindanao including Lanao del Sur where Marawi is situated “is one of the most seismically active areas in the country because of the presence of the western extension of the Mindanao Fault or Cotabato-Sindangan Fault, an active fault that runs from Sarangani province to the northwest of Zamboanga Peninsula” [20]. Sixty percent of the respondent identified fire as one of the disasters that are most likely to happen; the libraries of the 40% of the respondents were made up of materials that are fire hazards. Fifty percent of the libraries were prone to wars, terrorisms or civil unrest. Historically, the Mindanao Region experienced several disastrous wars and terrorists-inflicted destruction that has caused damages to cultural heritage, and libraries, one of which is the Marawi Siege. While some identified their libraries to be prone to flood (40%) and typhoons (30%), in the past decades, Mindanao Island is known to be “typhoon-free” because it is outside the typhoon belt [97,98]. Typhoons do hit the Mindanao Island but not as frequent as in Luzon and Visayas islands. However, since the late 2000s several typhoons have been recorded and most of which have caused billions of pesos (Php) of damages to agriculture, infrastructure, and properties and have claimed hundreds of lives [97,98]. One was typhoon Vinta (International name: Tembin), that made landfall on December 23, 2017, three months after the war. Due to severe flooding, Marawi City was placed under a state of calamity. Typhoon Vinta has affected hundreds of thousands of families and has incurred an estimated Php 2 billion worth of damages [99].
4. Results and discussion 4.1. The library environment
4.2. The library personnel
Like the libraries in Panay Island that were devastated by the super typhoon Haiyan in 2013 [76], in Marawi City, majority (61.5%) of the respondent’s library buildings were made of concrete materials, more than one-third (38.5%) were made of mixed concrete and wood mate rials (Table 1). In the Philippines, wood is commonly used with concrete because it is less expensive compared to purely concrete, howbeit it is vulnerable to disasters [50] like fire [54], typhoons and termites [1], and earthquake [26] among others. Wood materials are usually mixed with concrete because these libraries were inadequately funded, with the majority having an annual budget lower than Php 500,000.00 (USD
The Philippine Board for Librarians (BFL), which is under the Pro fessional Regulations Commission, is the government body that oversees the practice of librarianship in the Philippines. The BFL, as stated in the Republic Act 9246, also known as The Philippine Librarianship Act of 2003, has adopted a set of standards for all the types of the libraries. Two of the provisions of the standard for academic libraries, specifically entail that libraries “shall have policies on security of its collection to safeguard the collection from damage, loss, mutilation, and theft”, and “shall provide control and security measures in its building and facilities such as emergency exits, fire extinguishers, and built-in emergency lights” [18]. Hence, it is the responsibility of the library management to oversee if not to create the disaster management program of their li braries to ensure the security and safety of their collections, building, and facilities. In the Philippines, courses on disaster preparedness and manage ment are often included in collection management, conservation, and in archives and records management subjects in the masters in library and information science curriculum [93,94]. As stated in Table 2, only 46% of the respondents finished their master’s degree despite the minimum
Table 1 The library and its environment. The Library Environment
f
%
1. Physical Structure (n¼13) a. Concrete (cement and steel) 8 61.5 b. Mixed (commonly wood, sometimes with cement and steel) 5 38.5 2. Annual Library Budget (n¼13) a. Below Php500,000 (USD10,000; 1USD ¼ Php50) 9 69.2 b. Php500,001–750,000 (USD10,001–150,000; 1USD ¼ Php50) 3 23.1 c. PhP1,000,001–1,250,000 (USD20,001–25,000; 1USD ¼ Php50) 1 7.7 3. Location Prone to Disaster (n¼13) a. Yes 10 76.9 b. No 3 23.1 4. Disaster(s) that are Most Likely to Happen (Multiple Responses) (n¼10) a. Earthquake 10 100 b. Fire 6 60 c. Wars/Terrorism/Civil disorder or civil unrest 5 50 d. Flood 4 40 e. Typhoon 3 30 f. Volcanic Eruption 1 10
Table 2 The library and its personnel (n ¼ 13). The Library Personnel
f
%
1. Highest Educational Attainment of Head Librarian/Officer-In-Charge a. Bachelor’s Degree (in Library and Information Science) 7 53.8 b. Master’s Degree (in Library and Information Science) 6 46.2 2. Has Staff(s) that has(ve) Undergone Training on Disaster Management a. None 11 84.6 b. Yes (one or more) 2 15.4
4
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that most of them did not perceive any risk to happen [76]. Similarly, the lack of human resources is the most common reason for the absence of a disaster management plan among 12 (100%) respondents (Table 3). Lacking human resources does not only mean that there is no enough number of personnel working and are overloaded with library work, but it also means that the library lacks a staff who is knowledgeable enough to carry out the task. The finding is associated with the fact that the majority of the libraries are manned by librarians who lack training on disaster preparedness and management (Table 2). Moreover, the other reasons were that the libraries do not have significant holdings of rare books (83.3%), lack of financial resources (75%), no perceived risk (66.7%), and lack model to serve as a guide (41.7%). Only six out of 12 (50%) libraries intended to write a disaster management plan, a much lower outcome compared to the 83% of the libraries in Panay Island that were planning to write one [76]. A good disaster management plan should explain the duties and procedures in the areas of the organization, the people, the collections, buildings, and other assets [22]. Only one respondent library has a disaster management plan which explained the abovementioned cate gory. However, the respondent library does not assess or update the disaster management plan regularly, which is one of the most important aspects that should be done to ensure its effectivity [22].
requirements stated by the Commission on Higher Education (CHED) for libraries of higher education institutions in the Philippines that a head librarian must have at least a master’s degree in library and information science or related field. Majority of libraries in the Philippines are managed by licensed librarians however, the majority are still completing their master’s degree [76]. For the librarians to be effective, they must acquire knowledge and develop skills in disaster preparedness and management on all of the four phases of disaster response planning as identified by Kahn [36] which are: 1) Response, the most important aspect (including skills on responding to the notification of disaster, damage assessment, recovery decisions and priorities, emotional issues, etc.); 2) Recovering collec tions and restoring operations (including skills in scanning the envi ronment for safety, evaluating and revising the plan, handling and drying methods for water damaged collections, handling molds, insects and pests, etc.); 3) Prevention (including skills in looking for potential hazard in the building and correcting them, and in identifying and planning for safety of vulnerable collections), and; 4) Planning (including writing of a disaster management plan, assigning re sponsibilities for activating and implementing the plan, designating priorities for recovery of affected damaged collections, etc.). However, these aspects of disaster preparedness and management are not all covered in the courses offered in library schools not just in the Philippines but also in North America as well [95]. Hence, the best way to learn and develop the abovementioned skills is through continuing professional education such as attendance to training, workshops, and conferences. Only 15.4% of the respondents have undergone training on disaster preparedness and management even though the majority is aware that their libraries are vulnerable to different types of disasters. Trained li brary personnel is one of the most important factors for the successful implementation of a disaster management plan [21,23,76]. This person can determine the best ways to recover the damaged library materials so the library could resume its regular operation on time [36]. The apparent absence or the lack of trained library personnel on disaster preparedness and management is a common concern of libraries in different parts of the world [5,37,39,59,76,89]. Librarians are seldom trained because most often, they would rely on police, firefighters, in surers, and municipal planners among others to prepare or occasionally save them from disasters because they have other tasks [68]. However, the respondents identified lack or the absence of management support as the reason why the majority of libraries lacked personnel that is skilled in disaster management.
4.4. Disaster management practices in libraries Libraries have disaster management practices. Through these prac tices, the libraries in northern Panay, the Philippines that were affected by Typhoon Haiyan were able to save parts of their collections [76]. Table 4 shows that the respondent libraries have some disaster man agement practices as well, such as the maintenance of an updated tele phone tree (46.2%), keeping of emergency kits including flashlights and fire extinguishers (38.5%), and guidelines on how to salvage the damaged library materials (23.1%). Only few respondents have the following: alarm system against fire (15.4%); collections with label for easy prioritization on what to salvage in case of disaster (7.7%); estab lished contacts with other libraries and government agencies who could respond in case of disaster (7.7%); organized drills to train staff (7.7%); and, regular training for staff on disaster management (7.7%). According to Layne [40], “every device, on every system, needs to be tested and documented, not less than annually” this is to ensure that they are in good condition and are operating correctly. Although two respondent libraries have alarm systems against fire and another respondent library has an alarm system against theft, these are not regularly tested, hence, leaving their libraries unprepared and vulner able to damage whenever a disaster comes. Insurance is the “best possible safeguards to preserve and protect the incalculable wealth of buildings and the contents of libraries for future generations” [82] as it protects against hazards and risks of a loss against the buildings and contents, and protection against claims arising from injuries occurred inside the building premises. Only one respondent answered that their library building and collection are insured. The reason for the absence of insurance among the libraries could be asso ciated with the fact that property and liability insurance is quite expensive while the libraries remain under-budgeted. As presented in Table 1, ten of the respondent libraries stated that their location is prone to disasters such as an earthquake, fire, war/
4.3. Disaster management planning in libraries A disaster management plan prepares libraries for any disaster that might occur[49]; it would assist libraries in preventing disasters from happening as it provides step-by-step instructions that help to eliminate panic, ensures that proper decisions are taken, reduces damage to col lections, and limits recovery costs should a disaster occur [52]. A well-thought-out disaster response plan will decrease the amount of time it takes to implement disaster recovery procedures and should decrease the loss of materials and contents and increase the recovery rate [36]. Despite its importance, it is uncommon among libraries around the world [5,37–39,39,54,59,73,76,85,89]. Similarly, only one of the 13 (7.7%) libraries has a disaster management plan, although the majority identified their location to be prone to both natural and human-made disasters. In the study conducted by Varlamoff and Plassard [84] among 73 national libraries, only 39 (53%) had a disaster management plan. The lack of human and financial resources and model to guide in the creation of a disaster management plan were the most common reasons why it does not exist. Lack of human and financial resources were also the most common reasons why the majority of academic libraries in Panay Island, Philippines do not have a disaster management plan, other than the fact
Table 3 Reasons why disaster management plan does not exist (n ¼ 12).
5
Reasons
f
%
1. Lack of human resources 2. No significant holdings of rare books 3. Lack of financial resources 4. No perceived risk 5. Lack of model to serve as a guide
12 10 9 8 5
100.0 83.3 75.0 66.7 41.7
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Table 4 Disaster management practices of libraries (n ¼ 13). Disasters experienced in the last 10 years. Disaster Management Practices
f
%
1. An updated list of staff (telephone tree) to contact in case of disaster 2. Have emergency kits (flashlights, fire extinguishers, etc.) 3. Have guidelines on how to save damaged library materials 4. Have an alarm system against fire 5. Collections labeled to identify what to prioritize in case of disaster 6. Contacts with libraries/government agencies who could respond in case of disaster 7. Drills or exercises have been organized to train staff 8. Have an alarm system against theft 9. Staff trains regularly on disaster management (at least once a year)
6 5 3 2 1 1
46.2 38.5 23.1 15.4 7.7 7.7
1 1 1
7.7 7.7 7.7
Table 5 Disaster(s) experienced in the last 10 years - multiple responses (n ¼ 6). Disasters
f
%
1. Civil unrest/Civil disorder 2. Wars/Terrorism 3. Flood 4. Earthquake 5. Fire
4 3 2 1 1
66.7 50.0 33.3 16.7 16.7
unfamiliar with how to respond to a disaster effectively. 5. Conclusions and recommendations Libraries in Marawi City are generally prone to disasters. Regardless of nature, they are unprepared in facing either small-scale or cata strophic disasters because the majority of the libraries do not have a disaster management plan, and a staff that is trained in disaster man agement. The librarians remain undertrained because they lack support from the administration because library development remains the least priority. This fact is not just evident among the respondent libraries but also to the majority of the libraries in the country [69,75,87]. On the other hand, despite the lack of support from the management and the lack of training of library staff, the libraries have disaster management practices that enabled them to save parts of their collections. The insignificant number of rare books collections was one of the most common reasons identified by the majority of the respondents why disaster management plans do not exist. Still, academic libraries should plan for the security of their libraries and collections, since they house information resources that are essential to support the curricular offer ings of their parent institution. According to Kahn [36], the value of the collections for the institution to achieve its mission or in providing essential services to its patrons is one of the top categories to consider when making decisions on what to prioritize during the disaster recov ery phase. Thus, the educational value of the collection in academic li braries is a valid reason to prepare a disaster management plan. Since the librarians have insufficient knowledge and training on disaster management, it is suggested that the different library organi zations in the Philippines, notably the Philippine Librarians Association, Inc. (PLAI) as the umbrella organization of all the library groups in the country, should initiate training programs on disaster management. The scope of the training programs should be as intensive as possible and will cover all aspects of disaster preparedness and management, such as disaster response, recovery, prevention, and planning. The writing and implementation of a disaster management plan should be given emphasis. Likewise, the librarians must be trained in dealing with any type (i.e., water, fire, war, etc.) and extent (i.e., small-scale and cata strophic) of disasters. Moreover, as revealed in the study, libraries and its collections are not only vulnerable during disasters and conflicts but also in times of heightened security threats, when ordinary people do not have the au thority or mobility to carry out assessments or pre-emptive actions [note from reviewer]. This is similar to the case of the respondent libraries, wherein the whole Mindanao Island was placed under Martial Law. Thus, the scenario mentioned above, although do not always happen must also be included when planning for disaster preparedness and management. If possible, a more detailed study on the status of all the libraries in Marawi City, including the steps that were undertaken by the librarians to save the damaged collections, and to rebuild their libraries and col lections that were not dealt in the present study, is recommended. Also, a national survey on the disaster preparedness and management of different types of libraries in the country is suggested. Furthermore, due to lacking information on the current state of disaster preparedness and management of libraries in the Southeast Asian Region, a region-wide study would be very significant knowing that countries in Southeast
terrorism, flood, typhoon, and volcanic eruption, civil unrest or civil disorder. Table 5 shows that five of the libraries have sustained one of these disasters in the last 10 years, while one library has experienced an earthquake, war, and civil unrest or civil disorder that have caused some damages in their collection and library building. Two respondent li braries indicated that they had experienced flooding that caused slight damage or at most 25% damage to their collections. Flood is a constant threat to the libraries throughout the Philippines since there are at least 20 typhoons annually leading to heavy rainfall during the rainy season [76,80]. One respondent library indicated that they had sustained damages caused by an earthquake. Fire is one of the most common causes of di sasters in libraries around the world. A library in Iloilo Province, Philippines was razed by fire due to a bolt of lightning that struck the air conditioning unit at the library building [75]. Two schools, including their libraries in Marawi City, were burned into ashes by the arsonists during the national and local election in 2016 [28]. Faulty electrical wiring caused the burning of a library in Iloilo City in 2014 [77], and the fire that burned the library of one of the respondents into ashes in 2012. Four libraries have experienced civil unrest and/or civil disorder in the last 10 years. However, the researchers were able to obtain detailed information about the incident from one library only. In early 2017, a grenade was thrown at the E-library at the ground floor of the library building that damaged some of the equipment and fixtures (M. Cortez, personal communication, January 7, 2018). During the Marawi Siege, most if not all of the academic institutions in Marawi City were open and was holding classes. As the firefight continued, civilians were asked to evacuate Marawi City that was put on lockdown. Classes were canceled, and the schools were closed. Since the disaster also poses a danger to the lives of the library personnel, the majority if not all were not able to do some measures to protect their library building and its collections. One respondent indicated that their library and its collections were damaged because the terrorists burned the school. Another stated that at least 50% of their library building and collections were destroyed, while the other one indicated that at most 25% of their library building and collections were destroyed. Majority of the damages incurred were caused mainly by fires, bombings, and air strikes. 4.5. Realizations and lessons learned The dedication of the library personnel is insufficient for the libraries to manage successfully either small-scale or catastrophic disaster that might befall them without the support of the school management [76]. In the current study, the respondents indicated that their libraries and the librarians remain the least priority; hence, the majority lacked training in disaster management. Trained library personnel is an essential factor in the successful implementation of the disaster man agement plan [37]. Also, an effective disaster management plan that could guide them on what to do whenever a disaster might happen re mains unavailable. Thus, the majority of the respondents remain 6
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Asia have the highest risk due to the threat of natural disasters [96].
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8
Contents lists available at ScienceDirect
International Journal of Disaster Risk Reduction journal homepage: http://www.elsevier.com/locate/ijdrr
Fire þ water þ bombs: Disaster management among academic libraries in Marawi City, Lanao del Sur, Philippines Daryl L. Superio a, *, Ethelyn M. Abaday b, Mary Grace H. Oliveros a, c, Allana S. Delgado a, c, Vince Ervin V. Palcullo c, d, Joy F. Geromiano a, c a
Aquaculture Department, Southeast Asian Fisheries Development Center, Tigbauan, Iloilo, Philippines University Library, Mindanao State University at Naawan, Misamis Oriental, Philippines School of Graduate Studies, Central Philippine University, Jaro, Iloilo City, Philippines d Henry Luce III Library, Central Philippine University, Jaro, Iloilo City, Philippines b c
A R T I C L E I N F O
A B S T R A C T
Keywords: Academic libraries Disaster management Disasters in libraries Battle of Marawi Philippines
The academic libraries in Marawi City, Lanao del Sur, Philippines are vulnerable to disasters. In the last ten years, the majority of the 13 respondent libraries have sustained at least one disaster that may have been caused by civil unrest, war or terrorism, flood, earthquake, or fire. The majority were unprepared to face such disasters, may it be small-scale or catastrophic, and only one library has a disaster management plan. The lack of significant holdings of rare books, shortage of financial resources, no perceived risk, and the unavailability of staff to write a disaster management plan, are the reasons why most libraries do not have a plan. Moreover, the majority lacked staff that has undergone training in disaster preparedness and management. On the other hand, all of the libraries have disaster management practices that although not enough, will still enable them to lessen the effects of the disaster and save their library and parts of their collection when necessary. The respondents identified man agement support as an essential factor in their success in disaster management. The results of the study provide valuable information on the current state of the libraries in the Philippines with regards to disaster preparedness and management. Therefore, it is an essential addition to the literature on disaster management in the Philippines, which is very scarce as of the moment.
1. Introduction
Provincial public library [61]. The Battle of Marawi was identified to be the most massive urban warfare in the country since World War II. The whole city was heavily damaged, with more than a thousand people killed and displaced from Marawi City and the surrounding areas due to the conflict. Ninety-five percent (95%) of the buildings in the battle area were heavily damaged [8]. An estimated 150 billion pesos would be needed to rehabilitate the entire city, rebuild damaged structures, and restore essential services and 2 billion pesos to rehabilitate the 22 public schools that were destroyed [19]. Aside from these, 47 schools were partially damaged and are currently using temporary spaces for their classes [12]. Private schools in Marawi also appealed to the government for assis tance in rebuilding structures after the war [27]. The Department of Education (DepEd) is partnering with the Congress of the Philippines for funds to help in the rehabilitation of schools. The government desig nated the National Disaster Risk Reduction Council (NDRRMC) to take
The Philippines is identified as one of the top three global disaster hotspots [55] in the world. Natural calamities such as typhoon, earth quake, and tsunami occur regularly, causing widespread damage and losses [65]. Human-made tragedies, although not frequent, also occur in the Philippines. For instance, the Maute rebel group attacked Marawi City, Lanao del Sur on May 23, 2017, resulting in conflict between the Philippine government forces and the terrorist group, also known as the Battle of Marawi, that lasted for five months, ending on October 23, 2017 [16]. Marawi City is the capital of Lanao Del Sur Province in Mindanao. It is a fourth-class city consisting of 96 barangays or villages, with a total land area of 87.55 square kilometers. Its population as of 2015 is 201,785 and 99% are Muslims. Their economy relies on agriculture, trade, and exports. It has 16 colleges and a university [17,66] and one
* Corresponding author. E-mail addresses: [email protected] (D.L. Superio), [email protected] (E.M. Abaday), [email protected] (M.G.H. Oliveros), adelgado@ seafdec.org.ph (A.S. Delgado), [email protected] (V.E.V. Palcullo), [email protected] (J.F. Geromiano). https://doi.org/10.1016/j.ijdrr.2019.101311 Received 24 January 2019; Received in revised form 24 August 2019; Accepted 31 August 2019 Available online 1 September 2019 2212-4209/© 2019 Elsevier Ltd. All rights reserved.
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the lead of the response operations in Marawi City to efficiently deliver services and respond to the needs of the people affected by the war [56]. Libraries were also damaged and affected during the crisis. Libraries provide for the needs of the people acting as the community’s infor mation centers and repositories of valuable historical and cultural her itage. In any school and organization, disaster management planning for libraries should be a priority to preserve crucial information. Libraries should be preserved and protected against disasters. However, while there are studies on the effects of natural calamities in libraries, those affected by war are still a new topic in the Philippines in this era. This study was conducted to record the occurrence of disasters in the last 10 years and their impacts on libraries, document the disaster management practices and the overall preparedness of the academic libraries in Marawi City in facing disasters, as well as provide baseline information to fill in this knowledge gap in the Philippine setting. The scope of the study only includes the 13 academic libraries in Marawi City, Lanao del Sur, Philippines. The results may not be used to generalize the current state of all the libraries in the country regarding their disaster preparedness and management but could be used as a basis for the conduct of a national study of the libraries in the country.
publications documenting the impacts of disasters in libraries, including typhoons [56,76] and fires [2,28,75]. 2.1. Fire disasters in libraries In the book “Books on fire: The destruction of libraries throughout history,” Polastron [63] provided a detailed list of libraries that were destroyed by fire from the ancient times to the present. Fire “was responsible for the majority of library disappearances throughout his tory” [63,64]. Faulty electrical wiring, and the failure or misuse of lighting, cooking, cooling, and heating equipment, and arson were some of the common reasons for fire disasters in libraries [47]. Fires due to faulty electrical wirings turned the Mzuzu University in Malawi to ashes [14], damaged 400,000 books of the USSR Academy of Science Library [52,72,74] and closed the Barton Public Library for a year because of smoke damage [62]. Arson has been one of the cruelest causes of fire disaster in libraries. Arsonists have caused the fire disaster twice in the Los Angeles Central Public Library in 1986 that is considered to be the worst library fire in American history [10], and destroyed libraries including those in Great Britain and Canada [2]; West Africa [6]; Australia [22]; Poland [83]; and the Philippines [22,28]. Moreover, fire disasters caused by natural phenomena such as wildfire and lightning have caused damage to some libraries. The col lections of the Paradise Branch of the Butte County Library in California were damaged by smoke from wildfires in November 2018 [34], while a fire ignited by a lightning strike burned parts of and brought fire, smoke and water damages to the collections of the Library of Southeast Asian Fisheries Development Center, Aquaculture Department (SEAFDE C/AQD Library) in Iloilo Province, Philippines in 1998 [75] and the Hopkinton Town Library in New Hampshire, the USA in 2018 [44].
2. Review of related literature A disaster is “any incident which threatens human safety and/or damages, or threatens to damage a library’s building, and collection or item(s) therein, equipment and systems” [46]. Natural phenomena (ty phoons or hurricanes, earthquakes, tsunamis, landslides, volcanic eruption, vermin, and wildfires) or human-made adversities (careless ness such as gas leaks or faulty wirings, willful destruction including arson, vandalism, civil unrest, war, and terrorism) were often the causes of disasters in libraries. A disaster is unavoidable, but in some cases, its occurrence could be predicted. Hence, preparation could be made to lessen its effects. Frequently it happens in an instant which often leaves its victims unguarded and overwhelmed with the damage it has incurred. Libraries, being prone to disasters, must always be prepared for the worst to come. Since the earliest times, libraries around the world have experienced natural and human-made disasters, there were fortunate libraries that were able to bounce back after the calamity while there were those that vanished and remain part of history. Several works have been published documenting disasters in libraries including the books “Memory of the world: Lost memory - libraries and archives the twentieth century” which provided a comprehensive list of libraries and archives that were destroyed by disasters from 1904 to 1994 [83], and “Lost Libraries: The Destruction of Great Book Collections since Antiquity” which docu mented the disasters that destroyed some libraries from ancient, medi eval up to the present time [64]. However, the majority of the libraries covered in these works were from the Global North while only a few were from the Global South, maybe because library services in devel oping countries during those times were inadequate and trained li brarians were scarce [33]. It was only in the 1970s when libraries from developing countries got representation in the International Federation of Library Associations and Institutions (IFLA) [29]. Hence, documen tation about their experienced disasters remains limited. Since the 1980s, there has been an increasing number of publications documenting disasters in libraries in developing countries. Nigerian li braries were damaged due to fire (1987), leaky roofs and leaky pipes (1975–1985), and civil war (1967–1970) [89]. In Ghana, vermin, vandalism, and leaky walls, although non-catastrophic, when left un attended, could cause significant damage to the building and collection of an academic library [90]. On the other hand, the 2005 earthquake in Pakistan devastated schools, academic and public libraries [70,71] while a flood ravaged two university libraries in Punjab, India, in 1994 [37]. Disasters such as fire, flood, landslide, etc. were experienced by 13 academic libraries in Malaysia [73]. Meanwhile, in the Philippines, despite being prone to different types of disasters, there are very few
2.2. Water disasters in libraries Water disasters due to malfunctioning plumbing, leaky roofs, heavy rains, typhoons, and floods are common causes of damage to libraries and their collections. Malfunctioning plumbing or leaky pipes damaged a considerable amount of books and some equipment in the McWherter Library of the University of Memphis in 1996 and 2014, although the library personnel was able to salvage the collections with lesser damage since the previous disaster had already prepared them [13]. Several studies are doc umenting how small scale water disasters have affected and successfully managed by libraries like the cases of Howard Tilton Library at Tulane University (USA) [43]; Lane Community College Archives (USA) [81]; and, SEAFDEC/AQD Library (Philippines) [75]. Although small scale water disaster is not catastrophic, it must not be neglected; thus, library personnel must check water lines and the possible entry point of water regularly to ensure safety and reduce risk in libraries. Some libraries have experienced catastrophic water disasters. Van der Hoeven and Van Albada [83] made a comprehensive list of water disasters that caused immense damage to the libraries and archives around the world. Included in their list were the libraries that were destroyed by floods, like the libraries in Ohio, West Virginia, Indiana, Illinois and Mississippi (1937), the former Royal and Provincial Library in Hannover (1946), the Fawcett Library (1994) and the University of Sussex Library in the United Kingdom (2000). In 1979, the Taylor Institution Library’s collection in the United Kingdom was damaged by water because of water main break. Natural calamities that have caused severe damages to some libraries in the last decade include the Asian tsunami in 2004 that damaged li braries in Sri Lanka and Indonesia [3,7]; hurricane Ivan in Jamaica in 2004 [58]; hurricane Katrina in the United States in 2005 [15,79] and Typhoon Haiyan in the Philippines in 2013 [76]. 2
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2.3. Civil unrest and war disasters in libraries
institutional and community supporters; government partners; collec tion managers; information disseminators; internal planners; educators and trainers; and information community builders in the aftermath of a disaster [25].
War is also a massive catalyst for disasters in libraries. It can cause a domino effect that can trigger further damages because of fire and water. Throughout history, several important libraries were destroyed due to civil unrest or war. Van der Hoeven and Van Albada [83] had listed li braries that experienced overwhelming destruction caused by wars like the University of Valencia Library during the Spanish Civil War in 1932, libraries in China during the Sino-Japanese War in 1937–1945, as well as libraries in Germany, Poland, France, Belgium, Italy, and Russia among others during these periods. The libraries in the Philippines were also damaged during World War II [32,60]. The National Library had 733,000 vol in its collection before the war started but only saved 36,600 vol after. The University of the Philippines Library recovered only 3000 vol out of 147,000 vol in its collection. The Scientific Library, which had 357,000 vol, was destroyed entirely. Recently, two schools, including their libraries, were burned by arsonists in Marawi City, Lanao del Sur due to poll violence on May 9, 2016 [28]. Several libraries, archives and cultural heritage were destroyed during the Balkan Wars in the 1990s in the countries of Croatia, BosniaHerzegovina, and Kosovo [67]. In 2003, looting of libraries, museums, and archives occurred after the fall of Saddam Hussein’s regime in Iraq. The National Library and the National Archives in Baghdad were burnt and looted twice [4]. After the first attack, a part of the collections was moved by the library employees and volunteers to a mosque and at the Board of Tourism building. In 2014, the militant group ISIS captured the City of Mosul in Iraq and intentionally burned books. By the time the Iraqi army was advancing to retake the city, the retreating militants burned the library of the University of Mosul [86].
2.5. In retrospect - disasters in libraries No matter how big, secured, or advanced a library is - the library personnel cannot stop a catastrophe from happening. However, they can prepare ahead to lessen the damage to the collection in case disaster strikes, and the best preparation is to have a disaster management plan. A disaster management plan must be comprehensive and should include disaster control, risk assessment, training of staff, and finance [46]. It is an essential part of disaster preparedness and management, as it could guide the library personnel on what to do in a critical time thereby minimizing the impacts of the disaster and maximizing their efficiency in controlling it [75]. Despite its importance, it is uncommon among libraries [5,37–39,73,75,89]. Some did have a disaster man agement plan but was found to be inadequate for the disaster that their libraries have sustained [79]. Therefore, to ensure its effectivity, a disaster management plan should " … be flexible and open to revision and updating. No disaster plan is complete and perfect; all plans could be better in some way,” as stated by Robertson [68]. A comprehensive disaster management plan is of little value when there is a lack of well-trained library staff on disaster preparedness and management to implement them [46]. Studies have found that the majority of the libraries lacked staff who are well-trained on disaster preparedness and management, including the libraries in Ghana [5], Greece [39], India [37], Nigeria [89], the Philippines [76], and South Africa [59]. Due to lack of training, some of the document recovery practices of the libraries in Panay Island, the Philippines that were affected by Typhoon Haiyan were inappropriate, thereby worsening the damage of the affected library collections rather than saving them [76]. Therefore, training library staff on disaster management is as necessary as writing a disaster management plan. Moreover, knowing that victims of disasters would often go to libraries to seek comfort [88], it is therefore a must for librarians to equip themselves not just with skills on keeping the library and its collection safe, and on saving the affected resources, but also with skills on responding to the needs of the community.
2.4. The roles of libraries and librarians in time disasters The library personnel is one of the most important factors for suc cessful disaster preparedness and management, as they are “the first line of defense in every disaster situation” [9]. However, according to Rob ertson [68] compared to other professionals, librarians are less inclined to plan and respond to a disaster. Moreover, they lack training and would often rely on public safety personnel to prepare them and sometimes, save them from any unfortunate events because they were busy with routine library works and the occurrence of a disaster is infrequent. Hence, there are several cases where libraries and their collections were damaged like the majority of the libraries in Panay Is land, Philippines during the onslaught of typhoon Haiyan in 2013 [76] and the libraries in Croatia during the war in 1991–1995 [31] because the majority of the librarians did not see any approaching risk. On the other hand, there were instances when the library disaster preparedness and procedures seemed inadequate due to the intensity of the disaster, for example, when Hurricane Katrina struck Louisiana, USA in August 2005 and was followed by hurricane Rita in less than a month. The massive destruction led to the temporary closure of one-third of public libraries in Louisiana [30]. The most important lessons for the librarians was the inadequacy of their disaster management plans and the importance of the library to the community after the disaster. Hamilton [30] noted that, since people turned to libraries, librarians must focus on business continuity rather than collection recovery. Libraries and librarians play essential roles in disaster response and recovery. According to Young [88], libraries are essential “in building a more disaster-resilient society through community support and in fostering access to critical information and resources in the wake of a disaster.” Traumatic experiences during disasters could cause immense psychological impacts on victims. A library is a place where victims could seek comfort [88], with its resources, particularly the Internet, they were able to provide victims connectivity to the outside world, including government agencies, insurance companies, employers, and loved ones among others [25,35]. Furthermore, librarians could act as
3. Methodology This is a quantitative-qualitative study of the disaster-preparedness of academic libraries in disaster prone community, like those in Mar awi City, Philippines. The instrument that was used in data gathering was based mainly on the tool used in the study of Superio, Alayon, and Oliveros about the academic libraries in Panay Island the Philippines that were affected by Typhoon Haiyan in 2013 [76]. Furthermore, studies about water-, fire-, and civil unrest or war-related disasters from different countries were also consulted during its development. It in cludes questions on demographics, the library and its environment, the library personnel, the disaster management practices, the disaster(s) experienced in the last 10 years and the damages sustained by the library and the collections, and open-ended questions on the realizations regarding the strengths and weaknesses of the library in dealing a disaster. The survey started in November 2017, a month after the war ended, and it concluded in January 2018. The head librarians or librarians-incharge of all the 16 colleges, and a university including its depart mental libraries in Marawi City were considered in the study. Due to safety reasons, civilians were not allowed to enter the City. Thus, the most convenient means for the researchers to identify and to contact the librarians for data gathering was through social media given the fact that Filipinos are the world’s leader in social media usage, particularly Facebook [11]. One of the researchers has joined the Facebook Page of 3
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the Philippine Librarians Association, Inc. - Autonomous Region for Muslim Mindanao Librarians Council (PLAI-ARMMLC). Through the PLAI-ARMMLC Facebook Page, 19 respondent librarians were identi fied. The researchers were not able to establish contact with the li brarians or library-in-charge of the other colleges as there is no record of their membership in PLAI-ARMMLC. Furthermore, the researchers were not able to visit the schools and conduct an ocular inspection because the whole Mindanao Island was under Martial Law and the civilians were not allowed to enter Marawi City without clearance from the Military. Print copies of the survey instrument were sent to some respondents through the contacts of the researchers who are residing in Marawi City, while some were given personally. Since the respondents were also affected by the war, to ensure the efficiency in data gathering, electronic versions of the instrument were sent to the respondents as Facebook Messenger attachment. All of the responses were sent back to the re searchers as Facebook Messenger attachments as well. Furthermore, Facebook Messenger was also utilized when clarifications were needed from the respondents. For the researchers to ensure the safety of data, all the conversations were deleted after the attachments were downloaded, and all of the responses were recorded. After three months, 13 responses were received, yielding a 68.4% response rate, higher than 60%, which, according to Taylor-Powell and Hernan [78] is considered adequate to represent the whole sample. Several follow-ups were done on the remaining six respondents but to no avail. Since the responses contain some sensitive information, the re searchers have decided to anonymize the name of the academic institutions. The Statistical Package for Social Sciences (SPSS) Version 19 soft ware and the Microsoft Excel 2010 were used to analyze the data. Fre quency counts, percentages, and mean were used to describe the results.
10,000.00). For some of the respondents, the allocated budget is not even enough for the development of the library collection. Ten of the thirteen (76.9%) libraries were prone to disasters. All of the 10 respondents identified their libraries as being prone to earth quakes. Several earthquakes have devastated Lanao del Sur in the past, one of which was an intensity six earthquake on April 12, 2017, that has affected thousands of individuals in the province [91]. On average, there are at least three small to moderate earthquakes that happened in Lanao del Sur from 2011 to 2016 [92]. According to the Philippine Institute of Volcanology and Seismology (Phivolcs), Central Mindanao including Lanao del Sur where Marawi is situated “is one of the most seismically active areas in the country because of the presence of the western extension of the Mindanao Fault or Cotabato-Sindangan Fault, an active fault that runs from Sarangani province to the northwest of Zamboanga Peninsula” [20]. Sixty percent of the respondent identified fire as one of the disasters that are most likely to happen; the libraries of the 40% of the respondents were made up of materials that are fire hazards. Fifty percent of the libraries were prone to wars, terrorisms or civil unrest. Historically, the Mindanao Region experienced several disastrous wars and terrorists-inflicted destruction that has caused damages to cultural heritage, and libraries, one of which is the Marawi Siege. While some identified their libraries to be prone to flood (40%) and typhoons (30%), in the past decades, Mindanao Island is known to be “typhoon-free” because it is outside the typhoon belt [97,98]. Typhoons do hit the Mindanao Island but not as frequent as in Luzon and Visayas islands. However, since the late 2000s several typhoons have been recorded and most of which have caused billions of pesos (Php) of damages to agriculture, infrastructure, and properties and have claimed hundreds of lives [97,98]. One was typhoon Vinta (International name: Tembin), that made landfall on December 23, 2017, three months after the war. Due to severe flooding, Marawi City was placed under a state of calamity. Typhoon Vinta has affected hundreds of thousands of families and has incurred an estimated Php 2 billion worth of damages [99].
4. Results and discussion 4.1. The library environment
4.2. The library personnel
Like the libraries in Panay Island that were devastated by the super typhoon Haiyan in 2013 [76], in Marawi City, majority (61.5%) of the respondent’s library buildings were made of concrete materials, more than one-third (38.5%) were made of mixed concrete and wood mate rials (Table 1). In the Philippines, wood is commonly used with concrete because it is less expensive compared to purely concrete, howbeit it is vulnerable to disasters [50] like fire [54], typhoons and termites [1], and earthquake [26] among others. Wood materials are usually mixed with concrete because these libraries were inadequately funded, with the majority having an annual budget lower than Php 500,000.00 (USD
The Philippine Board for Librarians (BFL), which is under the Pro fessional Regulations Commission, is the government body that oversees the practice of librarianship in the Philippines. The BFL, as stated in the Republic Act 9246, also known as The Philippine Librarianship Act of 2003, has adopted a set of standards for all the types of the libraries. Two of the provisions of the standard for academic libraries, specifically entail that libraries “shall have policies on security of its collection to safeguard the collection from damage, loss, mutilation, and theft”, and “shall provide control and security measures in its building and facilities such as emergency exits, fire extinguishers, and built-in emergency lights” [18]. Hence, it is the responsibility of the library management to oversee if not to create the disaster management program of their li braries to ensure the security and safety of their collections, building, and facilities. In the Philippines, courses on disaster preparedness and manage ment are often included in collection management, conservation, and in archives and records management subjects in the masters in library and information science curriculum [93,94]. As stated in Table 2, only 46% of the respondents finished their master’s degree despite the minimum
Table 1 The library and its environment. The Library Environment
f
%
1. Physical Structure (n¼13) a. Concrete (cement and steel) 8 61.5 b. Mixed (commonly wood, sometimes with cement and steel) 5 38.5 2. Annual Library Budget (n¼13) a. Below Php500,000 (USD10,000; 1USD ¼ Php50) 9 69.2 b. Php500,001–750,000 (USD10,001–150,000; 1USD ¼ Php50) 3 23.1 c. PhP1,000,001–1,250,000 (USD20,001–25,000; 1USD ¼ Php50) 1 7.7 3. Location Prone to Disaster (n¼13) a. Yes 10 76.9 b. No 3 23.1 4. Disaster(s) that are Most Likely to Happen (Multiple Responses) (n¼10) a. Earthquake 10 100 b. Fire 6 60 c. Wars/Terrorism/Civil disorder or civil unrest 5 50 d. Flood 4 40 e. Typhoon 3 30 f. Volcanic Eruption 1 10
Table 2 The library and its personnel (n ¼ 13). The Library Personnel
f
%
1. Highest Educational Attainment of Head Librarian/Officer-In-Charge a. Bachelor’s Degree (in Library and Information Science) 7 53.8 b. Master’s Degree (in Library and Information Science) 6 46.2 2. Has Staff(s) that has(ve) Undergone Training on Disaster Management a. None 11 84.6 b. Yes (one or more) 2 15.4
4
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that most of them did not perceive any risk to happen [76]. Similarly, the lack of human resources is the most common reason for the absence of a disaster management plan among 12 (100%) respondents (Table 3). Lacking human resources does not only mean that there is no enough number of personnel working and are overloaded with library work, but it also means that the library lacks a staff who is knowledgeable enough to carry out the task. The finding is associated with the fact that the majority of the libraries are manned by librarians who lack training on disaster preparedness and management (Table 2). Moreover, the other reasons were that the libraries do not have significant holdings of rare books (83.3%), lack of financial resources (75%), no perceived risk (66.7%), and lack model to serve as a guide (41.7%). Only six out of 12 (50%) libraries intended to write a disaster management plan, a much lower outcome compared to the 83% of the libraries in Panay Island that were planning to write one [76]. A good disaster management plan should explain the duties and procedures in the areas of the organization, the people, the collections, buildings, and other assets [22]. Only one respondent library has a disaster management plan which explained the abovementioned cate gory. However, the respondent library does not assess or update the disaster management plan regularly, which is one of the most important aspects that should be done to ensure its effectivity [22].
requirements stated by the Commission on Higher Education (CHED) for libraries of higher education institutions in the Philippines that a head librarian must have at least a master’s degree in library and information science or related field. Majority of libraries in the Philippines are managed by licensed librarians however, the majority are still completing their master’s degree [76]. For the librarians to be effective, they must acquire knowledge and develop skills in disaster preparedness and management on all of the four phases of disaster response planning as identified by Kahn [36] which are: 1) Response, the most important aspect (including skills on responding to the notification of disaster, damage assessment, recovery decisions and priorities, emotional issues, etc.); 2) Recovering collec tions and restoring operations (including skills in scanning the envi ronment for safety, evaluating and revising the plan, handling and drying methods for water damaged collections, handling molds, insects and pests, etc.); 3) Prevention (including skills in looking for potential hazard in the building and correcting them, and in identifying and planning for safety of vulnerable collections), and; 4) Planning (including writing of a disaster management plan, assigning re sponsibilities for activating and implementing the plan, designating priorities for recovery of affected damaged collections, etc.). However, these aspects of disaster preparedness and management are not all covered in the courses offered in library schools not just in the Philippines but also in North America as well [95]. Hence, the best way to learn and develop the abovementioned skills is through continuing professional education such as attendance to training, workshops, and conferences. Only 15.4% of the respondents have undergone training on disaster preparedness and management even though the majority is aware that their libraries are vulnerable to different types of disasters. Trained li brary personnel is one of the most important factors for the successful implementation of a disaster management plan [21,23,76]. This person can determine the best ways to recover the damaged library materials so the library could resume its regular operation on time [36]. The apparent absence or the lack of trained library personnel on disaster preparedness and management is a common concern of libraries in different parts of the world [5,37,39,59,76,89]. Librarians are seldom trained because most often, they would rely on police, firefighters, in surers, and municipal planners among others to prepare or occasionally save them from disasters because they have other tasks [68]. However, the respondents identified lack or the absence of management support as the reason why the majority of libraries lacked personnel that is skilled in disaster management.
4.4. Disaster management practices in libraries Libraries have disaster management practices. Through these prac tices, the libraries in northern Panay, the Philippines that were affected by Typhoon Haiyan were able to save parts of their collections [76]. Table 4 shows that the respondent libraries have some disaster man agement practices as well, such as the maintenance of an updated tele phone tree (46.2%), keeping of emergency kits including flashlights and fire extinguishers (38.5%), and guidelines on how to salvage the damaged library materials (23.1%). Only few respondents have the following: alarm system against fire (15.4%); collections with label for easy prioritization on what to salvage in case of disaster (7.7%); estab lished contacts with other libraries and government agencies who could respond in case of disaster (7.7%); organized drills to train staff (7.7%); and, regular training for staff on disaster management (7.7%). According to Layne [40], “every device, on every system, needs to be tested and documented, not less than annually” this is to ensure that they are in good condition and are operating correctly. Although two respondent libraries have alarm systems against fire and another respondent library has an alarm system against theft, these are not regularly tested, hence, leaving their libraries unprepared and vulner able to damage whenever a disaster comes. Insurance is the “best possible safeguards to preserve and protect the incalculable wealth of buildings and the contents of libraries for future generations” [82] as it protects against hazards and risks of a loss against the buildings and contents, and protection against claims arising from injuries occurred inside the building premises. Only one respondent answered that their library building and collection are insured. The reason for the absence of insurance among the libraries could be asso ciated with the fact that property and liability insurance is quite expensive while the libraries remain under-budgeted. As presented in Table 1, ten of the respondent libraries stated that their location is prone to disasters such as an earthquake, fire, war/
4.3. Disaster management planning in libraries A disaster management plan prepares libraries for any disaster that might occur[49]; it would assist libraries in preventing disasters from happening as it provides step-by-step instructions that help to eliminate panic, ensures that proper decisions are taken, reduces damage to col lections, and limits recovery costs should a disaster occur [52]. A well-thought-out disaster response plan will decrease the amount of time it takes to implement disaster recovery procedures and should decrease the loss of materials and contents and increase the recovery rate [36]. Despite its importance, it is uncommon among libraries around the world [5,37–39,39,54,59,73,76,85,89]. Similarly, only one of the 13 (7.7%) libraries has a disaster management plan, although the majority identified their location to be prone to both natural and human-made disasters. In the study conducted by Varlamoff and Plassard [84] among 73 national libraries, only 39 (53%) had a disaster management plan. The lack of human and financial resources and model to guide in the creation of a disaster management plan were the most common reasons why it does not exist. Lack of human and financial resources were also the most common reasons why the majority of academic libraries in Panay Island, Philippines do not have a disaster management plan, other than the fact
Table 3 Reasons why disaster management plan does not exist (n ¼ 12).
5
Reasons
f
%
1. Lack of human resources 2. No significant holdings of rare books 3. Lack of financial resources 4. No perceived risk 5. Lack of model to serve as a guide
12 10 9 8 5
100.0 83.3 75.0 66.7 41.7
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Table 4 Disaster management practices of libraries (n ¼ 13). Disasters experienced in the last 10 years. Disaster Management Practices
f
%
1. An updated list of staff (telephone tree) to contact in case of disaster 2. Have emergency kits (flashlights, fire extinguishers, etc.) 3. Have guidelines on how to save damaged library materials 4. Have an alarm system against fire 5. Collections labeled to identify what to prioritize in case of disaster 6. Contacts with libraries/government agencies who could respond in case of disaster 7. Drills or exercises have been organized to train staff 8. Have an alarm system against theft 9. Staff trains regularly on disaster management (at least once a year)
6 5 3 2 1 1
46.2 38.5 23.1 15.4 7.7 7.7
1 1 1
7.7 7.7 7.7
Table 5 Disaster(s) experienced in the last 10 years - multiple responses (n ¼ 6). Disasters
f
%
1. Civil unrest/Civil disorder 2. Wars/Terrorism 3. Flood 4. Earthquake 5. Fire
4 3 2 1 1
66.7 50.0 33.3 16.7 16.7
unfamiliar with how to respond to a disaster effectively. 5. Conclusions and recommendations Libraries in Marawi City are generally prone to disasters. Regardless of nature, they are unprepared in facing either small-scale or cata strophic disasters because the majority of the libraries do not have a disaster management plan, and a staff that is trained in disaster man agement. The librarians remain undertrained because they lack support from the administration because library development remains the least priority. This fact is not just evident among the respondent libraries but also to the majority of the libraries in the country [69,75,87]. On the other hand, despite the lack of support from the management and the lack of training of library staff, the libraries have disaster management practices that enabled them to save parts of their collections. The insignificant number of rare books collections was one of the most common reasons identified by the majority of the respondents why disaster management plans do not exist. Still, academic libraries should plan for the security of their libraries and collections, since they house information resources that are essential to support the curricular offer ings of their parent institution. According to Kahn [36], the value of the collections for the institution to achieve its mission or in providing essential services to its patrons is one of the top categories to consider when making decisions on what to prioritize during the disaster recov ery phase. Thus, the educational value of the collection in academic li braries is a valid reason to prepare a disaster management plan. Since the librarians have insufficient knowledge and training on disaster management, it is suggested that the different library organi zations in the Philippines, notably the Philippine Librarians Association, Inc. (PLAI) as the umbrella organization of all the library groups in the country, should initiate training programs on disaster management. The scope of the training programs should be as intensive as possible and will cover all aspects of disaster preparedness and management, such as disaster response, recovery, prevention, and planning. The writing and implementation of a disaster management plan should be given emphasis. Likewise, the librarians must be trained in dealing with any type (i.e., water, fire, war, etc.) and extent (i.e., small-scale and cata strophic) of disasters. Moreover, as revealed in the study, libraries and its collections are not only vulnerable during disasters and conflicts but also in times of heightened security threats, when ordinary people do not have the au thority or mobility to carry out assessments or pre-emptive actions [note from reviewer]. This is similar to the case of the respondent libraries, wherein the whole Mindanao Island was placed under Martial Law. Thus, the scenario mentioned above, although do not always happen must also be included when planning for disaster preparedness and management. If possible, a more detailed study on the status of all the libraries in Marawi City, including the steps that were undertaken by the librarians to save the damaged collections, and to rebuild their libraries and col lections that were not dealt in the present study, is recommended. Also, a national survey on the disaster preparedness and management of different types of libraries in the country is suggested. Furthermore, due to lacking information on the current state of disaster preparedness and management of libraries in the Southeast Asian Region, a region-wide study would be very significant knowing that countries in Southeast
terrorism, flood, typhoon, and volcanic eruption, civil unrest or civil disorder. Table 5 shows that five of the libraries have sustained one of these disasters in the last 10 years, while one library has experienced an earthquake, war, and civil unrest or civil disorder that have caused some damages in their collection and library building. Two respondent li braries indicated that they had experienced flooding that caused slight damage or at most 25% damage to their collections. Flood is a constant threat to the libraries throughout the Philippines since there are at least 20 typhoons annually leading to heavy rainfall during the rainy season [76,80]. One respondent library indicated that they had sustained damages caused by an earthquake. Fire is one of the most common causes of di sasters in libraries around the world. A library in Iloilo Province, Philippines was razed by fire due to a bolt of lightning that struck the air conditioning unit at the library building [75]. Two schools, including their libraries in Marawi City, were burned into ashes by the arsonists during the national and local election in 2016 [28]. Faulty electrical wiring caused the burning of a library in Iloilo City in 2014 [77], and the fire that burned the library of one of the respondents into ashes in 2012. Four libraries have experienced civil unrest and/or civil disorder in the last 10 years. However, the researchers were able to obtain detailed information about the incident from one library only. In early 2017, a grenade was thrown at the E-library at the ground floor of the library building that damaged some of the equipment and fixtures (M. Cortez, personal communication, January 7, 2018). During the Marawi Siege, most if not all of the academic institutions in Marawi City were open and was holding classes. As the firefight continued, civilians were asked to evacuate Marawi City that was put on lockdown. Classes were canceled, and the schools were closed. Since the disaster also poses a danger to the lives of the library personnel, the majority if not all were not able to do some measures to protect their library building and its collections. One respondent indicated that their library and its collections were damaged because the terrorists burned the school. Another stated that at least 50% of their library building and collections were destroyed, while the other one indicated that at most 25% of their library building and collections were destroyed. Majority of the damages incurred were caused mainly by fires, bombings, and air strikes. 4.5. Realizations and lessons learned The dedication of the library personnel is insufficient for the libraries to manage successfully either small-scale or catastrophic disaster that might befall them without the support of the school management [76]. In the current study, the respondents indicated that their libraries and the librarians remain the least priority; hence, the majority lacked training in disaster management. Trained library personnel is an essential factor in the successful implementation of the disaster man agement plan [37]. Also, an effective disaster management plan that could guide them on what to do whenever a disaster might happen re mains unavailable. Thus, the majority of the respondents remain 6
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Asia have the highest risk due to the threat of natural disasters [96].
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