National Crisis Management Core Manual 2012

8/17/2019 National Crisis Management Core Manual 2012

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Cover Page Literature

• Te Causal Loop of Global Economic Risks

– Illustrates the virally emergent problems spawning from each crisis.

– Shared inter-organizational tribulations; as well as the need for a

harmonized crisis response.

• Te Chain

– Signifies Interconnected Strength– Te unique virtue of shared power where the whole will eventually fall

upon its most fragile link.

• Te Stylized Paper Dolls

– Collaboration, collective security, accountability and responsibility of

the Global Community.


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NATIONAL CRISIS MANAGEMENT CORE MANUAL


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Amendment Certicate

1. Proposals for amendment or additions to the text of this manual should be made throughthe normal channels to the primary proponent, the National Security Council Secretariat/National Security Adviser.

2. It is certied that the amendments promulgated in the under-mentioned amendment listhave been made in this manual.

Amendment List Amended by

(Printed Name and Initials)Date of Amendment

Number Date

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RECOMMENDATION FOR AMENDMENTS

______________________________________ __________________________________

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(Originating Agency)

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SUBJECT: Recommendation for Changes

TO: _________________________ _________________________ _________________________

The following recommendation is submitted for improvement of

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(Long Title)

_________________________________ _________________________________ (Short Title) Page

_________________________________ _________________________________

Article Para No. Line Sentence

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Figure No.

Comment:

Recommendation:

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(Signature)


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PREFACE

On March 22, 2011, President Benigno S Aquino III issued a memorandum to the NationalSecurity Adviser, to organize an inter-agency working group that would review and revise the 2000Crisis Management Manual, and would harmonize all government crisis management manualswith the revised manual. Secretary Cesar P. Garcia Jr., NSA, organized a Project ManagementTeam and undertook a series of inter-agency workshops and conferences, researches, interviews

with subject-matter experts, and focus group discussions, for the crafting of the National CrisisManagement Core Manual (NCMCM) or the Core Manual.

Purpose

The purpose of the Core Manual is to provide a general framework of courses of actionsthat will guide government agencies in dealing with emerging and existing threats and crises ofvarying characteristics.

Specically, it has the following objectives:

• To establish uniform terminologies used in crisis management, vis-à-vis RA 10121(PDRRMC) and other international organizations;

• To achieve a uniform Situation Awareness process;• To attain uniformity in the formulation of inter and intra-agency policies, contingency plans

and crisis action plans for crisis management;• To identify Post-Action and Assessment activities;• To provide awareness of the principles in building and enhancing capabilities of government

agencies for crisis management; and• To identify levels of authority, responsibility, and accountability in times of crisis

Scope and Applicability

The Core Manual covers all functional areas and phases in government agencies’crisis management efforts. These comprise strategic context, situation awareness, responsesto emerging threats and crises, post-action and assessment, enhancing and building crisismanagement capabilities and applying Command and Control in crisis management.

Given this scope, it is expected that government agencies would align their respectivecrisis management plans and operational manuals upon promulgation of the Core Manual,without prejudice to specic systems or courses of actions inherent in respective agencies thatare deemed vital to their proper functioning.

User Information

The primary proponent of the Core Manual is the National Security Council Secretariat/Ofce of the National Security Adviser through the Crisis Management Support Secretariat(CMSS), which is responsible for its evaluation and revision upon directives of the NationalSecurity Adviser (NSA). The Core Manual is the product of inter-agency consultations andresearch work facilitated by the CMSS. Items in existing crisis management plans/systems fromvarious agencies found useful by the CMSS were adopted and incorporated in the Core Manual.


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Rescission

All previously NSC-issued publications and manuals directly inconsistent with the CoreManual are hereby rescinded. In compelling situations or contexts, however, the Core Manual orparts of it can be revised at any given time upon instructions from the Cabinet Cluster on Securitythrough the NSA or from the President of the Republic of the Philippines.

Gender

The Core Manual adheres to the principle of gender equality in all of its sections andintentions. Unless this publication states otherwise, ostensibly masculine terms and phraseologiesdo not refer exclusively to “men.”


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GLOSSARY

Administrative Control (ADCON) - is a direction or exercise of authority over subordinate or otherorganizations in respect to administration and support, including organization of Serviceforces, control of resources and equipment, personnel management, unit logistics, individualand unit training, readiness, mobilization, demobilization, discipline, and other matters notincluded in the operational missions of the subordinate or other organizations

Affectation - disease; morbid symptom; malady; as, a pulmonary affection. To have an inuenceon or affect a change in; to attack or infect, as a disease

Allocation - in a general sense, distribution of limited resources among competing requirements

Bayani, bayanihan spirit - ba.ya.ni pd. (pandiwa) Nauukol sa paggawang hindi binabayaran anggumagawa. sk (singkahulugan): pakisuyo, tulong, bataris, suyuan

“bayani” is situated in his or her (the word “bayani” is not gender-specic) relation to thecommunity, and the verb sense, in fact, stresses community spirit-- working for free the way

we have always known the “bayanihan” spirit to be

“Bayani” as concept and word can have any of these three applications: “bayani” as aperson; “kabayanihan” as a heroic act; and “bayani” as a heroic group, community or nation

The core value in being “bayani” is recognition of and deference to the interest of what isbigger than the individual, like the group, the community, the nation, even humanity andnature. This deference is conscious even if almost instinctive and habitual.

For one to be “bayani” in meeting with various challenges both in daily life and in criticalhistorical moments, he/she must have all or at least most of the following: (1) determination;

(2) perseverance; (3) courage; (4) diligence; (5) enthusiasm; (6) humility; and (7) inspirationand effect of inspiring others.

Capability-Building - efforts aimed to develop human skills or societal infrastructure within acommunity or organization needed to reduce the level of risk; includes development ofinstitutional, nancial, political and other resources, such as technology at different levelsand sectors of the society

Capability Components - component parts of capability are leadership; people; coordination,cooperation and communication; organization; training; sustainability; exercises; equipment;

community awareness and support

Capability Enhancement - required activities for stakeholders who have experienced respondingor pre-empting the occurrence of a crisis

Capacity - refers to the ability of the people, organizations and society as a whole to prepare for,respond to and recover from the impact of crises or disasters

Chain of Command - is the succession of leadership from a superior to a subordinate throughwhich command is exercised. Also called command channel


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Civil Society Organizations - also known as CSOs, include non-government organizations(NGOs), trade unions, faith-based organizations, indigenous peoples movements andfoundations

Collaboration Scheme - has the following components: Stakeholders with vested interests incollaboration; Trusting relationships among and between the partners; A shared vision andcommon goals for the collaboration; Expertise; Teamwork strategies; Open communication;

Motivated partners; Means to implement and sustain the collaborative effort; and, An actionplan

Command Post (CP) - is a unit’s or subunit’s headquarters where the commander and the staffperform their activities. It is the principal facility employed by the commander to controloperations

Community Resilience – is the sustained ability of a community to withstand and recover fromadversity. It may also refer to practices or experiences emphasizing local empowermentand helping minimize the likelihood of chronic dependency by returning individuals toeconomically productive routines, and helping affected communities participate actively in a

substantial amount of rebuilding activities

Concept of Operations - (1) is a verbal or graphic statement, in broad outline, of a commander’sassumptions or intent in regard to an operation or series of operations. The concept ofoperations frequently is embodied in operation plans particularly when the plans covera series of connected operations to be carried out simultaneously or in succession. Theconcept is designed to give an overall picture of the operation. It is included primarily foradditional clarity of purpose; (2) is a clear and concise statement of the line of action chosenby a commander in order to accomplish his mission — describes how the commander seesthe actions of each of his units tting together to accomplish the mission

Contingency Planning - is a forward planning process in a state of uncertainty, in which scenariosand objectives are agreed, managerial and technical actions dened, and potential responsesystems put in place in order to prevent or better respond to an emergency or critical situation

Coordination - is an exchange of information to inform and integrate, synchronize, and de-conictoperations. Coordination is not necessarily a process of gaining approval but is most oftenused for mutual exchange of information

Coordination, Cooperation, Communication - known as the 3Cs in Crisis Management; themechanisms pursuing common goals needed to be established at the lowest levels, to close

in any gaps in any short fall of capabilities when needed and avoid turng issues, and theinconsistencies in the overall crisis management/ emergency operations and contingencies

Course of Action (COA) - (1) is a plan that would accomplish, or is related to, the accomplishmentof a mission; (2) is the scheme adopted to accomplish a task or mission

Crisis - a crisis or emergency is a threatening condition that requires urgent action or response

Crisis Action Planning - is based on current events and conducted in time-sensitive situations andemergencies using assigned, attached, and allocated forces or units and resources


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Crisis Capabilities - capability to anticipate potential crisis and prepare for them; provide accurateinformation; pre-empt situations; and, if this fails, provide timely response; and determinelong-term solutions

Crisis Management - involves plans and institutional arrangement to engage and guide theefforts of government, non-government, voluntary and private agencies in comprehensiveand coordinated ways to respond to the entire spectrum of crisis needs

Crisis Management Council - is a governing body that takes decisive actions to resolve crisisor emergency. It is primarily concerned with the formulation of crisis management policies,integration and orchestration of government and public efforts towards the control of crisis

Critical Incident - is any incident/event, whether man-made or natural, that requires theimplementation of special tasks by one or more of the urgent services of the Philippinegovernment

Critical Success Factors - the following should be considered during the Pre-Crisis, During andPost-Crisis Phases: application of early warnings and alert levels; situation assessment &crisis determination; authority to act; leadership and business/ community awareness andsupport; establishing a foundation for identifying community resilience-building activities;and community resilience

For Pre-crisis, consider the following: dissemination of operational responsibility; programand response priorities; crisis management organizations (teams, mandate, participants,roles, designated backups, team leaders); operational policies; application of principles ofcrisis management in accordance to the Core Manual; pre-crisis response planning; and,geographical implementation and organizational-wide implementation

During the Crisis, consider the following: decision making during the crisis; documentationof event during the crisis; tools to support teams and in-crisis processes; process duringthe crisis (threat assessment until the resolution of the crisis); and crisis command centreoperations (including Risk Communication utilizing external media stakeholders)

For Post-Crisis Phase, consider all of the above and operational integration with otherstakeholders.

Culture of preparedness - for a community to believe they have the wherewithal to “createan orderly arena within a chaotic environment” would be the essence of a culture ofpreparedness; preparing for an effective response to a large-scale disaster

Disaster - a serious disruption of the functioning of a community or society involving widespreadhuman, material, economic or environmental losses and impacts, which exceeds the abilityof the affected community or society to cope using its own resources

Disaster Risk Reduction Management Council - this pertains to the DRRMC from national tolocal level. Its powers and functions are dened in Republic Act 10121 also known as the“Philippine Disaster Risk Reduction and Management Act of 2010”


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Documentation - a record of contingency, emergency or crisis management plans, equipmentmaintenance, skills training as well as risk and vulnerability assessment for review andfuture reference; studies of successful sustainable crisis and recovery efforts focus on threebroad approaches -- local empowerment, organization and leadership, and planning forsustainability

Drivers - are variables that inuence or propel an event’s occurrence

Emergency Planning - is decision-making prior to an actual crisis or disaster including theconsideration of resources required to manage and resolve the event. The plan must alsoinclude the necessary steps during and after the crisis is resolved

Emerging or Weak Signals - either inuence the enfoldment of one underlying process or another,or be a symptom of this evolution. It also signies the appearance of new processes

Equipment - should not only comprise an inventory of equipment but rather an assessment ofthe condition, availability, maintenance and use for inter-operability to properly perform ina crisis

Exercises - exercises must be done constantly to test the capabilities of equipment and thepersonnel familiarization of its use. These include interfacing between or among agenciesin order to assist in determining deciencies and needs for additional or updated equipmentor skills enhancement, especially in the area of an integrated or inter-agency response

First Responder - any person or unit who arrived rst at the place of incident and endeavours torender assistance to the victim and to protect and secure the incident scene

Foresight - dened in several ways but that which essentially means a process of anticipation

of future probabilities and options for actions. For the Strategic Foresight Group, it isforecasting plus insight, requiring deep understanding of a particular subject (Kousa, 2010).It is a systematic, participatory, future-intelligence-gathering and medium-to-long-termvision-building process aimed at present-day decisions and mobilizing joint actions (Lavoix,2010)

Foresight means going beyond the “usual suspects” and gathering widely distributedintelligence on current and emerging threats (Kousa, 2010), identifying and creatingopportunities, assessing vulnerabilities and strengths

Gap Analysis - a technique for determining the steps to be taken in moving from a currentstate to a desired future-state; also called need-gap analysis, needs analysis, and needsassessment. Gap analysis consists of (1) listing of characteristic factors (such as attributes,competencies, performance levels) of the present situation (“what is”); (2) cross listingfactors required to achieve the future objectives (“what should be”); and then (3) highlightingthe gaps that exist and need to be lled

Growth Stage - is the period when the system imports material and energy to enable it to surviveand meet growth needs/goals. Each stage of growth is marked by a beginning and an end-point


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Hard Target - one which is guarded or has considerable security; this means that a terrorist attackruns the risk of being intercepted often with potentially lethal force. Examples of ‘Hard’targets would include military bases, and political organizations and high ranking politiciansand heads of state such as Presidents

Hazards - dened as dangers and are widely used in the case of natural dangers; Hazard is apotentially damaging phenomenon that may cause the loss of life or injury

Incident - an event or occurrence

Incident Command System (ICS) - a set of personnel, policies, procedures, facilities, andequipment, integrated into a common organizational structure designed to improveemergency response operations of all types and complexities

Incident Commander - is the single person who commands the incident response and is thedecision-making nal authority on the ground

Inhibitors - are variables that have negating effect

Inter-agency Contingency Planning Process - is a procedure in the formulation of a contingencyplan involving more than one department, bureaus or units of the executive branch and otherstakeholders. An inter-agency contingency plan (IACP) includes three essential elements:Situation Awareness, Strategy, Command and Control

Interagency Operations - any action which combines the human and material resources of twoor more independent organizations, be they governmental, international, or private, inprosecution of a common objective

Interoperability - the ability of systems, units, or forces to provide services to and accept servicesfrom other systems, units, or forces and to use the services so exchanged to enable themto operate effectively together

Leadership - a Crisis Manager, a person who has the ability to direct a team towards theachievement of a specic goal within a timeframe using available resources, to gatherinformation, to establish priorities, and to dene crisis management plans

Local Disaster Risk Reduction Management Fund (LDRRMF) - not less than ve percent (5%) ofthe estimated revenue from regular sources shall be set aside as the LDRRMF to supportdisaster risk management activities such as, but not limited to, pre-disaster preparednessprograms including training, purchasing life-saving rescue equipment, supplies andmedicines, for post-disaster activities, and for the payment of premiums on calamityinsurance. Of this amount, thirty percent (30%) shall be allocated as the Quick ResponseFund (QRF) or stand-by fund for relief and recovery programs so that the situation and livingconditions of people in communities or areas stricken by disasters, calamities, epidemics, orcomplex emergencies may be normalized as quickly as possible

Loss and Damage Control Management - preventing or controlling incidents by protecting theoverall safety of people, equipment, material and the environment


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Mass Casualty - any large number of casualties produced in a relatively short period of time,usually as the result of a single incident such as a military aircraft accident, hurricane, ood,earthquake, or armed attack that exceeds local logistical support capabilities

Mission - the commander’s expression of what the unit must accomplish and for what purpose.The who, what, when, where, and why that must be accomplished

Mission Statement - a short paragraph or sentence describing the task and purpose that clearlyindicate the action to be taken and the reason therefore. It usually contains the elements ofwho, what, when, and where, and the reason therefore, but seldom species how

Mob Rule - characterized by anarchy/chaos, blatant violation of law due to breakdown of theadministration; a situation in which a crowd of people control a place illegally

Multi-Year Development Plan - planning that should be based on medium to long-terms, usingFutures Research and/or Horizon Scanning methodologies (refer to Situation Awareness) tomeet desired level of capability, so that the long-term development projects can be properlyscheduled and funded

On-Scene Commander - is an individual in the vicinity who temporarily assumes command ofthe incident

Opportunities - a chance or opening offered by circumstances

Order - a communication, written, oral, or by signal, that conveys instructions from a superior toa subordinate

Organization - a clear and responsive structure that supports a hierarchy which is neither too

unstructured that it fails to support the 3Cs system of Crisis Management, or too rigid that itdisables stakeholders from responding at all

People as Human Resources - includes both leadership and support staff that mean not onlyhaving the right number, but also the appropriate skills and competencies.

Perform - is the actual implementation of contingency plans when a crisis occurs, despite thepro-active measures undertaken

Policy - describes the intention of the government and provides the principles that govern the

action towards certain ends. In the context of crisis management, policy directs and becomesthe consideration from where responses to crises or disasters are derived

Risks - the chance or possibility of danger, loss, injury or other adverse consequence; thecombination of the potential negative impact of an event, determined by combining thelikelihood of the event occurring with the impact should it occur. Risk is characterized byboth the probability and severity of a potential loss that may result from the presence of anadversary or a hazardous condition

Risk Analysis - organized ways to identify and evaluate the threat or hazardous conditions, and to


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take actions to eliminate, reduce or control the risks posed by such conditions; risk analysisapproach can identify the requisite response activities, and a logically ordered sequence fortheir implementation; generally accepted to consist of risk assessment, risk management,and risk communications

Risk Assessment - evaluation of a recognized dangerous condition to determine the risk or threatthey present; identify the dangers it may pose to people or equipment (lower risk, serious

injury/damage, or death/destruction); See also loss and damage control management

Risk Communication - the communication of clear, accurate and understandable information onthe risks to the public; Essential for informing the public of preventive measures that areavailable to minimize the risk of exposure in a clear and rapid manner

Risk Management - the process of identifying, assessing and controlling risks arising fromoperational factors, and making decisions that balance risk cost with benets; encompassesall those activities that are required to reach and implement decisions on risk reduction orelimination. Once a risk has been identied and characterized, an informed decision can bemade as to what control measures can be applied, if any, to reduce the risk or eliminate thehazard. Usually, control measures involve reducing the probability of occurrence or severityof an incident

Risk Management And Acceptable Risks - all activities that are required to reach and implementdecisions on risk reduction or elimination; an informed decision can be made as to whatcontrol measures can be applied, if any, to reduce the risk or eliminate the hazard. Usually,control measures involve reducing the probability of occurrence or the severity of an incident

“Acceptable risk” - a conscious decision must be made at the proper level whether theremaining risk is acceptable; everyone accepts a degree of risk in order to accomplish

something benecial

Semaphore - an apparatus for visual signalling (as by the position of one or more movable arms).It is a system of visual signalling by two ags held one in each hand

Situation Awareness - the ability to identify, detect and anticipate incidents or risks that can turninto a crisis; should be done throughout the phases and stages of the Crisis ManagementFramework

Soft Target - one which has little or no military protection or security and hence is an easy optionfor a terrorist attack. This includes commercial shopping centres, power stations, and leisurefacilities such as football grounds and sports stadiums

Stakeholders - stakeholders are persons or entities who may have an interest in or who may beaffected by a particular policy

Stakeholders’ Relationship - fostering stakeholders’ relationship achieves a comprehensiveintegration of crisis management planning among communities, people’s organizations, andcivil society organizations (CSOs), and between the local and national policy making andoperations systems


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Standing Operating Procedures (SOP) - are routine duties or recurring actions not needing thecommander’s involvement aimed at enhancing effectiveness and exibility

Sustainability - a high level of capability for an extended period of time; capabilities can only besustained through planning at the short, medium and long-terms, skills enhancements, andequipment procurement

Target hardening - target hardening is the use of strategies to make it harder for a crime tobe committed and reduces the gains of crime. Target hardening increases the efforts thatoffenders must expend in the commission of a crime and is the most established approachto crime prevention. It is directed at denying or limiting access to a crime target through theuse of physical barriers such as fences, gates, locks, electronic alarms and security patrols

Task - the specic activity to be performed by the unit while conducting a form of tactical operationor a choice of manoeuvre. It is the minimum essential effects to accomplish the purpose

Threat - an indication of something undesirable coming; a person or thing as a likely cause ofharm; refers to people, phenomena, situations and trends in the environment that couldadversely affect the welfare and well being of the people

Threat Analysis - a multi-disciplinary activity, with inputs from a range of stakeholders; aims toidentify the kind of threat, the potential perpetrators, the means that may be used and thecircumstances under which they may be used

Training - aims to enhance specic agencies tasked for Crisis Response; comprised of individualand collective training, where individuals must be prepared to be part of an integrated,inter-agency operations; should also address the operational and strategic needs of thestakeholders

Triage - the evaluation and classication of casualties for purposes of treatment and evacuation.It consists of the immediate sorting of patients according to type and seriousness of injury,and likelihood of survival, and the establishment of priority for treatment and evacuation toassure medical care of the greatest benet to the largest number

TTP’s (Tactics, Techniques and Procedures)• Tactics – the art and science of employing available means to win battles and engagements• Techniques – the methods used by troops and/or commanders to perform assigned

missions and functions, specically, the method of employing equipment and personnel• Procedures – the standard and detailed courses of action that describe how to perform

a task

Turning Point - the point at which a very signicant change occurs; a decisive moment

Volunteer Service Organizations - a local or foreign group that recruits, trains, deploys andsupports volunteer workers to programs and projects implemented by them or by otherorganizations or any group that provides services and resources, including but not limited to,information, capability building, advocacy and networking for the attainment of the commongood


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Vulnerability - the characteristics and circumstances of a community, system or asset that makeit susceptible to the damaging effects of a hazard; is a set of conditions resulting fromphysical, social, economic and environmental factors which increase susceptibility to lossesfrom impact of hazards

Vulnerability Analysis - identies the level of threat that exists, given the potential vulnerability ofthe community or area concerned; identication of potential scenarios as well as weaknesses

in the system that may come into play for an incident to escalate

Weak Signals - are phenomena, trends, issues, factors, or forces that may initially have negligibleimpact but are too important to be totally ignored

Wildcards - are low-probability, high-impact events that can drastically alter situations andassumptions, and catch everyone by surprise should they occur


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TABLE OF CONTENTS

Amendment Certicate viPreface viii

Glossary x

Table of Contents xix List of Annexes xxi

List of Figures and Tables xxii

Introduction 1

Strategic Context 4

National Policy Guidelines 7

Key Principles in Crisis Management 9

The National Crisis Management Framework 12

Chapter 1: Crisis Management Organizations 14

1-1 Crisis Management Committee 14 1-2 Incident Command System 19 1-3 Working Synergy 24

1-4 National Level Crisis Management Committees 26 1-5 Local Level Crisis Management Committees 32 (Regional, Provincial, Municipality/City, and Barangay)

1-6 Crisis Management Organizations Abroad 33 1-7 Crisis Escalation Protocol 33

Chapter 2: Situation Awareness 40

2-1 Strategic Situation Awareness 40 2-2 Operational Situation Awareness 42

2-3 Tactical Situation Awareness 43

Chapter 3: Crisis Prevention Measures 46

3-1 Policy Process in Crisis Management 46 3-2 Inter-Agency Contingency Planning 48

3-3 Crisis Action Plan 51

Chapter 4: Building and Enhancing Crisis Management Capabilities 54

4-1 Principles in Capabilities Building and Enhancement 55 4-2 Principles in Conducting Needs Assessments/ Vulnerabilities’ 56

Assessment of Capabilities to Determine Effective andEfcient Crisis Management

4-3 Principles in Capabilities Enhancement or Building Plans 60 4-4 Principles in Sustaining Capability 60


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4-5 Principles in Prevention and Mitigation of an Incident from 62Becoming a Crisis

4-6 Principles in Evaluating Crisis or Emergency Operations 62 4-7 Principles in Making Multi-Year Capabilities Development Plan 63 4-8 Principles in Annual Capability Development Increment 64 4-9 Principle for Capability Resource Management 64 4-10 Principles in Fostering Stakeholders’ Relationships 65

Chapter 5: Applying Command and Control In Crisis Management 68

5-1 Fundamental Principles 68 5-2 Command and Control System 70

Chapter 6: Post-Action and Assessment 74

6-1 Activities in Post-Action and Assessment 75 6-2 Handover of Responsibility 76

Conclusion 78

References 158


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LIST OF ANNEXES

A Summary of AFP/DND International Agreements 79

B Other relevant Policies related to Crisis Management 88

C Sketch on Incident Command System Deployment at Scene of 91 Incident

C-1 ICS of the NDRRMC 92

D Government Media Platforms 106

E Steps in conducting Situation Awareness (SA) 108

F Sample Checklist for Tactical Situation Awareness (SA) 123

G Inter-Agency Contingency Planning Toolbox 127

H Inter-Agency Contingency Planning Format 134

I Summary of Principles Arranged According to the Components 137 of the Crisis Management Framework

J Recovery and Redevelopment Experiences based from 139

International Disasters

K Command and Support Relationship 153

L Proposed Action and Assessment Report 156


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LIST OF FIGURES AND TABLES

Fig. 1-1 Ideal Composition of a Crisis Management Committee at Any Level 15

Fig. 1-2.1 ICS Basic Organizational Structure 19

Fig. 1-2.2 Organizational Structure of PMAG within the ICS 23

Fig. 1-4.1 ONSA-PSR-CMSS-EXECOM Command Relationship 32

Fig. 1-7.1 Conditions/Trigger Points in the Handover of Responsibilities 37

Fig. 2-1.1 SA at the Strategic, Operational and Tactical Levels 43 Fig. 2-1.2 SA Processes at the Strategic, Operational and Tactical Levels 44

Fig. 3-1.1 Policy Process 46

Fig. 3-1.2 Policy to Contingency Planning Flowchart 48 Fig. 3-2.1 Inter-Agency Contingency Planning Flowchart 50

Fig. 3-3.1 Crisis Action Planning Procedure 51

Fig. 3-3.2 Guide to Making a Tentative Operational Plan 52

Fig. 4.1 Principles of Building and Enhancing Capabilities 54

Table 1-1.1 Role of the C, CMC 15

Table 1-3.1 Delineation of CMC’s and ICS Authority, Responsibility and Accountability 26

Table 1-4.1 Components of the EXECOM/NCMC 27

Table 1-4.2 Members of the EXECOM/NCMC Designated as C-OPR 27

Table 1-7.1 Conditions/Situations with Particular CMC 34

Table 1-7.2 List of Available Resources that a CMC may Utilize at its Own Discretion 35

Table 1-7.3 Sample Matrix to be Considered in the Relinquishment of Responsibilities 36

Table 4-6.1 Critical Success Factors 62


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INTRODUCTION

The 2009 United Nations International Strategy for Disaster Reduction (UNISDR) denescrisis or emergency as a threatening condition that requires urgent action.

A single crisis may spawn another crisis elsewhere, or several crises could happen indifferent places at the same time. A complex emergency could also happen where “the cause of

emergency as well as the assistance to the aficted is complicated by intense level of politicalconsiderations” (Republic Act 10121 or Philippine Disaster Reduction and Management Act).

The National Security Policy recognizes the crises’ adverse effects to society and theenvironment, to wit: “crises and disasters are being confronted every year which signicantlydeplete scarce government nancial and material resources, including the interruption of criticaldelivery of basic services.” Worse, mishandling of crisis may even lead to disaster or loss of lives.

However, crises may not always “go down” towards “deterioration” or “disintegration”but could also “go up” towards resolution, often temporary, and/or higher order transformation as

shown in the following gure:

Crisis Managers are responsible for the entire spectrum. Crisis planners are particularlyresponsible for activities before the turning point so that instead of “deterioration” the institutionrises up and turns the crisis into an opportunity. Incident Commanders, on the other hand, areresponsible for events/activities pertaining to and/or leading to deterioration/disintegration. CrisisManagers and Planners, and Incident Commanders all work towards resolution of and recoveryfrom crisis.

Managing, resolving and even turning crisis into opportunity was ably demonstrated byGeneral Roy A. Cimatu (Ret.) and the Ambassadors of the Philippine Embassy in the Middle East


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when they placed “out of harm’s way” the millions of Overseas Filipino Workers (OFWs) in theMiddle East during the war between the US and Iraq in 2002. Their commitment, preparednessand dedication resulted in zero casualties among OFWs, in having other countries’ embassiesrelying on the Philippines’ contingency plan for the protection of their countrymen, and in becominginstrumental for the restoration of the Kuwaiti government.

Government response efforts to prevent or mitigate the effects of crisis are guided by

Article II, Section 4 and 5 of the Constitution, which states that the prime duty of the Governmentis to serve and protect the people and that it is essential to maintain peace and order, protectthe life, liberty and property, and promote the general welfare of the people. The objective of ouroverall crisis management effort is embodied in the Preamble of the Constitution. Public leaders,therefore, have a special responsibility to safeguard society from adverse consequences ofcrises. And since crises almost always emerge and occur within a specic locality, effectivecrisis management, thus, begins with the lowest political jurisdiction.

Crises or emergencies take several forms and have varying extent. The Core Manualis designed to address human-induced crises through a preventive, inter-agency approach.This manual recognizes that threats, hazards, vulnerabilities, and risks in the 21st centurysecurity environment are interconnected; with one crisis resulting into another crisis of varyingproportions. Thus, an agency/department/unit may need to consider working with other agenciesto effectively detect and manage crises and its consequences. Effective inter-agency approachto detecting and managing crisis, however, poses several challenges, one of which is goingbeyond our individual and organizational biases. Having a uniform way of addressing our rolesand functions, and processes and concepts in crisis management, should help us go beyond our‘silos.’ This Core Manual, with its six chapters, aims to harmonize all crisis management functionsof government agencies/departments and stakeholders toward thinking and moving coherentlyand strategically over any type of crisis.

Chapter 1 discusses the prescribed Crisis Management Organizations. It started with theCrisis Management Committee and the Incident Command System and the levels of authority,responsibility and accountability of the two organizations. The National level crisis managementorganizations and their functions, focusing on human induced incidents, are identied. Locallevel crisis management organizations from the regional to the Barangay were also recognized.In order to understand when to elevate a crisis level, a crisis escalation protocol is established.

Chapter 2 discusses detecting crisis through Situation Awareness (SA) at the strategic,operational and tactical levels. At the strategic level, SA is developing foresight of emergingthreats, risks and crises, from primarily scanning the environment and conveying warnings todecision makers. At the operational and tactical levels, SA is analyzing the identied threat andthe operating environment so that appropriate response efforts are known and undertaken.

Chapter 3 talks about undertaking responses to emerging crises: policy formulation andinter-agency contingency planning—and during crisis—crisis action planning.

Chapter 4 discusses enhancing and building capabilities in the long, medium andshort terms. A strong and effective capability can prevent and/or limit the damage of a crisis ordisaster. These include: thorough assessment on leadership; people; coordination/cooperation/communication; organizational structure; sustainability; training; exercises; equipment; and


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documentation.

Chapter 5 entitled Applying command and control in crisis management coversthe principles on command and control system, communication system, computer drives andinformation system.

Chapter 6, “Post-Action and Assessment,” discusses crisis recovery and evaluation

efforts. This chapter describes actions and procedures aimed to assist policy and decision makersin improving or rening crisis response efforts.


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STRATEGIC CONTEXT

The 21st security environment, in which crises of varying forms and proportion are expected

to emerge, is said to have evolved from a purely military concept to a more comprehensive,

multidimensional idea shared by sectors outside the military establishment. Security, therefore,

is now perceived to be more complex and wide-ranging. It has veered away from mere security

of the state to the more comprehensive and complicated security of communities/individuals. Inglobal, regional, and national security settings, a multitude of perspectives must be employed to

capture the intimate interrelations of one issue/threat to others.

This manual intends to proceed with national crisis management mindful of the nature,

dynamics, and interrelation of 21st century threats. This chapter aims to briey showcase a

number of security threats that could abruptly or gradually give rise to a plethora of crises, which

the government and the people should be capacitated to deal with.

Dynamics and Interrelations of 21st Century Security Threats. This gure is lifted from a publication

of the World Economic Forum in January 2011 entitled Global Risks 2011 Sixth Edition. It is an excellent

illustration of a comprehensive and multidimensional appreciation of the security threats of our time. It

depicts issues and threats of various natures and how they interact with each other. It identies economic

disparity and global governance failures as the key drivers of risks while also providing insights into

perceived likelihood and impact that are very useful in strategic-planning and national crisis management.


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The Security Environment

The 21st Century strategic environment poses emerging and re-emerging security threats

and concerns at the global, regional, and national levels. These security issues encompass both

traditional and non-traditional concerns, involving actors that are not anymore limited to states/

governments. Another key characteristic about these 21st Century security concerns is their

dynamic interrelations that put tremendous pressure on the government to be more insightfuland creative in the performance of its functions. This validates a more comprehensive and

multidimensional conception of crisis and security.

Threats at the global arena such as terrorism and militant extremism exacerbate anxieties

of world governments towards weapons of mass destruction. The global economic crisis also

contributes to rising public/labor discontent towards governments and large corporations, making

people more restive. Such restiveness could spell gargantuan shifts in the political landscape

as clearly evidenced by the Arab Spring. Cyberspace is also fast becoming an arena of great

insecurities as more and more aspects of humanity’s day-to-day affairs are hinged upon thistechnology. The most “global” perhaps of all threats is climate change, which threatens all fabrics

of humanity’s existence. Yet, the global arena remains largely a stage of interactions between

and among states, whose geostrategic interests sometimes clash.

The regional environment (East Asia/Asia Pacic), meanwhile, lays witness to a very

gradual yet steady thrust towards community-building. However, countries in the region are faced

with many transnational problems, and quite numerous of these predicaments are sea-borne.

Border disputes between and among states are still high in the agenda, making their military

establishments perennially alert. Such disputes also highlight to a very acute level the great-power competition, which smaller countries are very anxious to manage or cushion. The claws

of terrorism, coupled with highly porous and disputed borders, present serious strains to the

defense and law enforcement policies and capacities of governments in the region.

These international dynamics are felt, in varying degrees, at the national level. Exploiting

the vulnerabilities brought about by communist insurgency and the Southern Philippines

Secessionist Groups (SPSG). The menace of terrorism threatens to worsen the socio-economic

and political malaise of the country that gave rise to insurgency and secessionism in the rst

place. There is also an increasing recognition of the fusion of criminality and terrorism, with onereinforcing the other. Furthermore, natural disasters constitute challenges to the country’s socio-

political and economic resiliency while overpopulation and over-urbanization take their toll on the

government’s capacity to deliver basic social services.


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The gure below attempts to showcase global environment trends vis-a-vis the Philippine

situation.

Sample Causal Loop depicting the local security environment in relation to regional and global trends: blue

lines for emerging global trends, black for regional and yellow for the PH environment. The colors indicate

what dimensions they fall under: Green for environment, Blue for social, Gray for terrorism/political, Beige

for geo-political, Pink for techno-scientic and Light Gray for economic. The Red blasts/gures represent

factors that contribute to each situation or outcome.

The National Security Policy (NSP) further discusses the 21st security environment in its

sections on the external and internal environment and on other strategic issues. The NSP could be

viewed at the ofcial gazette: http://www.gov.ph/2011/08/18/national-security-policy-2011-2016.

The complexity of the 21st century security environment necessitates a response that

should involve all sectors in the community in order to be successful in preventing or mitigating the

negative effects of crises. The succeeding section presents the crisis management organizations

at the national level and the general principle in organizing the same at the regional down to the

barangay level.


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NATIONAL POLICY GUIDELINES

Crisis management policies should be anchored in the 1987 Constitution that spells outthe ways and means to achieve the end that is embodied in the Preamble. Stated thus:

We, the sovereign Filipino people, imploring the act of Almighty God, in order to build a just

and humane society and establish a Government that shall embody our ideals and aspirations,

promote the Common good, conserve and develop our patrimony and secure to ourselves andour posterity the blessings of independence and democracy under the rule of law and a regime

of truth, justice, freedom, love, equality, and peace, do ordain and promulgate this Constitution.

-Preamble, 1987 Constitution

Crisis management policies are further guided by the following: Legislation, a law which

has been promulgated (or enacted) by Congress; Executive Proclamations or Orders or Decreesissued by the President; Treaties, a formal agreement between two or more states, as in referenceto terms of peace or trade, binding among all parties to the treaty; and Supreme Court decisions.

Specically:

1. SEC 3, ARTICLE II of the Philippine Constitution, which states that the Armed Forcesof the Philippines is the protector of the people and the State. Its goal is to secure the sovereigntyof the State and the integrity of the national territory. SECTION 5, ARTICLE II states that one ofthe prime duties of the Government shall be the maintenance of peace and order, the protectionof life, liberty, and property, and promotion of the general welfare are essential for the enjoymentby all the people of the blessings of democracy.

2. The National Security Policy, a statement of principles that should guide nationaldecision-making and determine courses of action to be taken in order to attain the state or

condition wherein the national interests, the well being of our people and institutions, and oursovereignty and territorial integrity are protected and enhanced.

3. Executive Order 773 series 2009, further reorganizing the Peace and Order Council,with specic responsibilities that include contributing to the strategies of the NSC that wouldeffectively respond to peace and order problems, coordinating and monitoring peace and orderplans, providing a forum for inter-disciplinary dialogue and deliberation of major issues andproblems affecting peace and order, providing a forum for dialogue and deliberation of majorissues and problems affecting peace and order, including insurgency, recommending measureswhich will improve or enhance peace and order and public safety in their respective areas of

responsibility, including anti-insurgency measures, and recommending measures to convergeand orchestrate internal security operations efforts of civil authorities and agencies, military andpolice.

4. Republic Act 8551, Philippine National Police Reform and Reorganization Act of 1998is an act providing for the reform and reorganization of the Philippine National Police and forother purposes, amending certain provisions of Republic Acts 6900 and 75 entitled, “An Actestablishing the Philippine National Police under a re-organized department of the interior andlocal government, and for other purposes”.


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Although RA 8551 mentions the PNP reform and reorganization, it also discusses therelief of the DILG from its responsibility on matters involving the suppression of insurgency andother serious threats to national security. The Armed Forces of the Philippines shall be responsiblefor matters involving suppression of insurgency and the Philippine National Police will providesupport, except in cases where the President shall call on the PNP to support the AFP in combatoperations.

5. Republic Act 9372, Human Security Act of 2007, “An Act to Secure the State andProtect Our People From Terrorism”, to protect life, liberty, and property from acts of terrorism,to condemn terrorism as inimical and dangerous to the national security of the country and tothe welfare of the people, and to make terrorism a crime against the Filipino people, againsthumanity, and against the law of nations. It further states that the State recognizes that theght against terrorism requires a comprehensive approach, comprising political, economic,diplomatic, military, and legal means duly taking into account the root causes of terrorism withoutacknowledging these as justications for terrorist and/or criminal activities. Such measures shallinclude conict management and post-conict peace-building, addressing the roots of conict bybuilding state capacity and promoting equitable economic development.

6. Treatise – A summary of International Agreements involving the DND/AFP are foundin Annex A.

Other policies related to crisis management can be found in Annex B. Crisis managersare encouraged to strengthen existing and future crisis-related policies or laws, identify cruciallinkages (or perhaps incompatibilities) among these statutes, and reect on the comprehensiveand multi-dimensional approach of crisis management.


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KEY PRINCIPLES IN CRISIS MANAGEMENT

The key principles in crisis management are rooted in the 1987 Constitution, our culturesand values, and the best practices that were honed by years of governance. These principlesalso recognize that our country, being an archipelago, shaped the differences not only of thephysical environment but also of the people residing in them. These eight (8) key principles are:

a. Whole-of-nation approach;b. Strengthened inter-agency collaboration;c. Efcient Situation Awareness;d. Tiered response to incidents;e. Adaptable operational capabilities;f. Unity of effort through Unity of Command;g. Readiness to act; andh. Intensied public information campaign.

A. Whole-of-Nation Approach (WONA)

The whole of nation approach is having leaders at all levels communicating andengaging all stakeholders in identifying emerging or immediate threats, agreeing with solutions,developing shared goals, and aligning capabilities so that no one is overwhelmed in times ofcrisis. Stakeholders’ participation is critical in order to establish a sense of ownership for responseactions. The unique Filipino values of bayanihan and bridging leadership typify the Whole-of-Nation-Approach in preventing and/or mitigating the effects of crises.

B. Strengthened Inter-Agency Collaboration

Agencies/Departments have specic mandates and limited resources. Each agency/

department would thus need the support of other agencies/departments to be effective inaddressing complex and interconnected threats in the 21st century. In order to be successful,agencies/departments must collaborate with other agencies in detecting and simultaneouslyaddressing all aspects of a crisis - diplomatic, political, military, humanitarian, economic, andsocial.

The goals of a strengthened inter-agency coordination are comprehensive: gain completesituation awareness; formulate integrated government policy guidance; make agency planningactivities transparent to other agencies; increase individual accountability for implementation ofassigned agency responsibilities; and anticipate and keep pace with events during operations. To

accomplish these goals, inter-agency crisis management organizations have been established.Inter-agency functions and processes are likewise prescribed in the succeeding chapters.

C. Efcient Situation Awareness

The importance of an efcient Situation Awareness in the 21st century environmentshould be emphasized prior to adopting measures to prevent and prepare for emerging andimmediate threats and crises. Efcient situation awareness detects threats and crises long beforeit occurs; analyzes the root causes; and effectively conveys warnings, providing enough leadtime to prepare for wide ranging scenarios.


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D. Tiered Response to Incidents

Crises essentially begin and end locally. Local government units must therefore be capableand effective in managing crisis. Crises may require unied response from local governmentunits and other stakeholders, or higher levels of governance. National level organizations shouldrecognize this and should be ready to provide resources or capabilities to support and sustain theresponses and initial recovery. National level organization can also hold command over any crisis

response effort, if necessary. This conforms to the responsibility and power given to the Presidentby the Constitution. However, it is imperative that all levels are able to prevent and mitigate theoccurrence of crisis and anticipate required resources.

E. Adaptable Operational Capabilities

As incidents change in size, scope and complexity, the response should adapt to meetrequirements. Therefore, crisis management organizations at all levels should be organized withcapabilities for diverse operations. Government agencies must be ready to execute graduatedmeasures to a particular incident, and as needs increase and change, responders should remainalert and adaptable. Similarly, the overall response should be exible as it transitions fromresponse effort to recovery.

F. Unity of Effort through Unity of Command

Effective unied command is indispensable to response activities and requires a clearunderstanding of the roles and responsibilities of participating organizations. Success requiresunity of effort, which respects the chain of command of each participating organization, overcomingorganizational biases, while harnessing seamless coordination across jurisdictions in support ofcommon objectives.

Unity of command is accomplished through the different levels of Crisis ManagementCommittee and the Incident Command System (ICS). The role of the Incident Commander (IC)in providing effective leadership and decision making is critical to the successful resolution of anycrisis. Chapter 6 discusses in detail the ICS.

G. Readiness to Act

Effective response to crisis requires readiness to act balanced with an understandingof the risks. From individuals, indigenous groups, private sectors and government agencies,response to a crisis depends on the players’ instinct and ability and readiness to act. Readinessto act or the willingness to do something if and when needed should be encouraged amongcommunities. Readiness to act is ingrained among First Responders and is enhanced throughtraining and planning. Readiness to act may mean readily taking command or being responsiblefor establishing priorities for the safety of the public and other responders, and for ensuring thatadequate safety measures are in place.

H. Effective Public Information Campaign

The government must pursue an effective public information campaign. The public mustbe informed of the nature of the threat and its effects, and of government actions that prevent the


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occurrence of crisis resulting from these threats. Well-developed public information, educationstrategies, and communication plans help ensure that lifesaving measures, evacuation routes,threat and alert systems and other public safety information are coordinated and communicatedto numerous and diverse audiences in a consistent, accessible, and timely manner.

An effective public information campaign against an impending or current crisis alsoensures everyone’s support. This manual espouses a comprehensive and multidimensional

approach in anticipating risks and scenarios, and preventing or managing crisis. Effective crisismanagement necessitates continuous participation from a wide variety of stakeholders in orderto guarantee the employment of as much viewpoints and core competencies as possible. Aneffective public information campaign is crucial to achieving this.

In compelling situations where the government is confronted with the absence of statutes/policies to address serious and potentially devastating emergencies and crises, the President isvested with the authority or responsibility to employ his/her constitutional powers in protectingthe State and the people, and maintain peace and order in the country or any part of it, within aprescribed period.


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THE NATIONAL CRISIS MANAGEMENT FRAMEWORK

(NCMF)

The National Crisis Management Framework provides a comprehensive approach tounderstanding the components of a crisis or the 5Ps of crisis management: Predict, Prevent,Prepare, Perform and Post-Action and Assessment. The illustration below shows theescalation of crisis—from convergence of indicators to the occurrence of an incident, criticalincident and a full-blown crisis—and the interaction of the 5Ps of crisis management.

Although the 5Ps are interrelated crucial components of effective crisis management,these components do not happen in phases, whether sequential or consequential. Addressingcomplex or multi-dimensional crises require activities under Predict, Prepare and Preventto happen simultaneously and in a continuous manner even while executing activities underPerform or responding to an ongoing crisis or conducting Post-Action and Assessment activities.

Predict – Predictions are attempts to remove uncertainty from the future. The Predict component,as prescribed in the Core Manual, is undertaken through Strategic, Operational and TacticalSituation Awareness processes. Strategic SA is producing foresight and conveying strategicwarnings through Horizon Scanning or Strategic Forecasting; It scans the environment,identifying weak signals, drivers, inhibitors, wildcards, threats, hazards, risks, opportunities andvulnerabilities, among others, develops foresight and conveys strategic warnings. Operationaland Tactical SA is producing detailed reports against a specied threat, describing the operatingenvironment where a threat or a crisis could emerge; the threat or the crisis itself, its potential ofbecoming a crisis; and current efforts and capabilities of agencies/departments addressing thethreat or crisis.

National Crisis Management FrameworkAppropriate Crisis Management Committee

(National, Regional, Provincial, City/Municipal)


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Prevent – Crisis prevention is better than cure. Prevention is a deliberate action aimed atavoiding future harm by addressing its causes. It is closely related to mitigation, which acceptsthat a potentially harmful incident cannot be prevented, but harmful consequences arising from itcan be minimized by precautionary measures. Two (2) preventive measures are described in theCore Manual: the rst involves a long-term strategy that is expected to yield effects over years;and, the other is operational in nature (e.g. target hardening).

Prepare – Preparedness is essential for effective response. It covers six (6) essential activities:Plan, Organize, Train, Equip, Exercise and Evaluate and Improve. The gure below illustratesthe preparedness cycle.

The Preparedness Cycle

Simulation and desktop exercises evaluate the effectiveness of preparations, bring outaws and weaknesses, and enable corrections and remedies to be effected, to heighten levels ofreadiness of systems, procedures, organization, equipment and logistics, to better cope up withactual crisis.

Perform – Performance is the actual implementation of contingency plans when a crisis occurs,despite the pro-active measures undertaken. Once a crisis occurs, priorities shift from building orenhancing capabilities to employing resources to save lives, protect property and environment,and preserve the social, economic and political structure of the jurisdiction.

Post-Action and Assessment – Post-Action is a component which begins when the crisis hasbeen addressed and the situation is deemed clear. It is in this phase where the organizationis returning to business as usual. Post-Action activities seek ways to evaluate and improveprevention, preparation and the actual execution.


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CHAPTER 1

CRISIS MANAGEMENT ORGANIZATIONS

Crisis management organizations determine the levels of authority, responsibilityand accountability. This manual identies three characteristics of crisis management that aresignicant in establishing crisis management organizations. First, the amount of time availablefor deliberation is comparatively short. Therefore, there must be well-established proceduresfor producing timely direction and guidelines. A day to day coordination among agenciescould accomplish this. Second, decisions concerning the response to a crisis must not only becoordinated at the national level, but also coordinated and implemented in an integrated mannerat the local levels (regional, provincial, municipal and barangay or in cases involving OFWs,with the Ambassadors). Consequently, the national level inter-agency organizations must notmerely decide on policy direction, but also carry out initial planning for the implementation ofthose decisions. Third, crisis often involve government agencies and other stakeholders that arenot normally party to the national security policy-making structure. Any crisis procedure must notonly include these agencies and stakeholders, but must also ensure that their perspectives areadequately integrated into the overall government response.

Section 1-1 The Crisis Management Committee (CMC)

The CMC is a governing body that takes decisive actions to resolve crisis or emergency.It is primarily concerned with the formulation of crisis management policies, integration andorchestration of government and public efforts towards the control of crisis or incidents.

Members of the CMC are both elected and appointed public ofcials who have a specialresponsibility to safeguard society from the adverse consequences of crisis. They are thusconcerned with the entire crisis spectrum.

The CMC has the ve (5) critical tasks of: sense making, decision making, meaningmaking, terminating, and learning. Sense making may be considered as the classicalassessment step in decision making. Decision making is both the act of coming to a decision asthe implementation of that decision. Meaning making refers to crisis management as a politicalcommunication. Terminating a crisis is only possible if the committee, through its Chairperson,correctly handles the accountability question. Learning refers to the actual learning from a crisis;it is limited but it should be noted that a crisis often opens a window of opportunity for reform – forbetter or for worse.

Ideally, a CMC must comprise of a Chairperson and Point-Persons for medical, legal,

logistics, community relations, public safety, and social services, as well as technicaladvisers as needed. Members of the CMC shall establish procedures for producing timelydirection and guideline, coordinate and implement responses to crisis in an integrated mannerfrom national to local levels (in cases involving OFWs, with the Ambassadors), ensure thatthe perspective of government agencies and other stakeholders are integrated into the overallgovernment response. Other functions of the CMCs are:

a. Provide and mobilize available resources through an established inter-agency resourcesharing protocol.


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b. Coordinate inter-agency crisis management efforts;

c. Ensure that operational demands during crisis are met and all actions are coordinatedand complementary; and

d. Establish an accessible communication lines so that reliable and timely information arereceived and disseminated to appropriate levels.

Once the CMC is activated, they shall now perform their roles and functions in accordanceto the authority and responsibility bestowed upon them. They shall be accountable not only toproper authority but also to the people. The following gure illustrates the ideal composition of aCMC at all levels:

Figure 1-1 Ideal Composition of a Crisis Management Committee at Any Level

1-1.1 The C, CMC has a special responsibility to safeguard society from the adverse consequencesof crisis. This entails accomplishing tasks under Predict, Prevent, Prepare, Perform and Post-

Action and Assessment. In this regard, the C,CMC shall designate a specic ofce to undertakeor monitor crisis management efforts (i.e. The Disaster Risk Reduction Management Ofce maybe designated to monitor crisis management efforts). The following are the responsibilities of theC,CMC vis-à-vis the components of crisis management:

CM Component Responsibility of the C,CMC

Predict • Responsible for scanning emerging crises and conveying strategicwarnings through Horizon Scanning. Likewise, it shall be responsiblefor monitoring actions taken with regard to warnings issued.


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Prevent • Formulates policy and contingency plan, based on worst casescenarios, which include an appropriate rules of engagement andstrategic communication plan, among others, in relation to a warningissued on an emerging crisis and monitors the preparations of theagency/department or units to ensure effectiveness in preventingand mitigating the effects of a crisis.

When appropriate, crafts an operational manual based onthe agency/department or unit’s contingency plan preparedin accordance with concepts and processes dened in theCore Manual.

• Ensure the participation and assistance of appropriate agencies/departments during inter-agency/department policy formulation andcontingency planning

The inter-agency/department Contingency Plan will identify

and dene the roles of each agency/department andestablish command and control during crisis. • Encourages subordinate ofces/agencies/departments/units within

the ofces/agency/department/units to understand and internalizetheir roles, both in the intra-agency/department and inter-agency/department process, in addressing emerging and current threats orcrises.

Prepare • After the formulation of plans, undertake or monitors other “Prepare”activities such as organizing, training, equipping, exercising andevaluating/improving. This includes regular conduct of simulationexercises to test and evaluate contingency plans.

• Systematically undertakes capability building and enhancement,such as resource identication/mapping and allocating funds.

Perform • Identies the appropriate Contingency Plan that will be implementedin anticipation of an emerging or current threat.

• If the emerging or current threat was not addressed by the CONPLANwhich resulted to an incident developing into a crisis:

Activate the Crisis Management Committee and initiallyconducts all-source situation awareness on the incident.

Declare the level of crisis, depending on the situation and theprevailing procedures of the concerned agency/departmentor unit.

Activate the Incident Command System (ICS) and calls onthe pre-designated Incident Commander (IC).


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Issues decisions and guidance to the IC including the Rules ofEngagement (for Media, Incident Commanders, Crowd/ExternalPublic, etc.).The IC shall:

Report directly to the Chairperson of the CMC for guidance andinstructions.

Issue Warning Order to available forces/units within the ICS.

Request the CMC for additional forces when necessary. Formulate a tentative operation plan (See Figure 3-3.2). Review

contingency plan, incident action plans and other plans ormanuals related to the incident while formulating a tentativeplan.

Initiate movement of forces/units which includes establishmentof Incident Command Post, Staging Areas and Bases, andMedia Centers, etc.

Conduct inspection on the area of operation. At this point theIC may recommend to the C,CMC whether the situation needs

to be elevated or he may request for special units needed toaccomplish the objective. Adjust the tentative operational plan if necessary. Brief and recommend the best Course of Action (COA) to the

C,CMC. If time permits, conduct rehearsal on the forces/units in

accordance to the COA selected by the C,CMC. Implements and executes plan of action. Ensures compliance of instructions down to the lowest level.

Designates a Public Information Ofcer (PIO) who shall undertake

the following functions:

Coordinates with the Head/s Communication Group with regardto strategic communication (STRATCOM) plan and existingprotocols on crisis management.

Reviews strategic communication plan and ensures thatprotocols are followed.

Shall receive information from the designated IC in relation tothe incident.

Seeks clearance from C,CMC prior to the release of information

to the public/media.

Coordinates with higher level authority or other agencies, whetherlocal or international, for support, if necessary.

Allocates and dispatches resources to the Incident Commander.

Select and, if possible, afx signature on the selected COA.


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Exercise general supervision over the actions of the IncidentCommander.

Provides expert advice to the next higher CMC or to the Presidentand the EXECOM/NCMC.

Informs the Department of Foreign Affairs (DFA) if incident involves

foreign nationals (whether as offender/s or victim/s).

The DFA shall ensure that the Philippine government shall act inaccordance with existing multilateral and bilateral understandingor agreements. In the absence of such agreements, it shallensure that the Philippine government maintains close contactand coordination with the foreign government whose national orproperty is involved.

The DFA shall also monitor the impact of crisis on the country’sdiplomatic relations and international image and implement

measures or recommend actions to address issues that mayarise. The DFA, as needed, shall implement measures to generate

international support for the Philippines.

Be prepared to receive guidance from higher authorities.

Post Action and

Assessment

• In coordination with the Incident Commander, relinquishesresponsibility to appropriate agency.

• Undertake or monitor post action activities.• Systematically provides Post Action and Assessment Reports to the

next higher CMC or the EXECOM/NCMC. Table 1-1.1


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Section 1-2 Incident Command System (ICS)

The ICS is a set of personnel, policies, procedures, facilities, and equipment, integratedinto a common organizational structure designed to improve emergency response operations of

all types and complexities. It is based upon a exible, scalable response organization providinga common framework within which people can work together effectively, since these peoplemay be drawn from multiple agencies that do not routinely work together. ICS is designed to

give standard response and operation procedures to reduce the problems and potential formiscommunication on such incidents.

ICS includes procedures to select and form temporary management hierarchies to controlfunds, personnel, facilities, equipment, and communications. Personnel are selected accordingto standard rules previously sanctioned by legitimate authorities. ICS is a system designed tobe used or applied from the time an incident occurs until the requirement for management andoperations no longer exist.

ICS is interdisciplinary and organizationally exible to meet the following managementchallenges:

a. Meets the needs of a jurisdiction to cope with incidents of any kind or complexity (i.e.it expands or contracts as needed)

b. Allows personnel from a wide variety of agencies to meld rapidly into a commonmanagement structure with common terminology

c. Provide logistical and administrative support to operational staff

d. Be cost effective by avoiding duplication of efforts and continuing overhead

e. Provide a unied, centrally authorized, legitimate emergency organization

For an overview of the deployment of the ICS at the scene of incident, refer to Annex C.Likewise, a detailed discussion on the Incident Command System of the NDRRMC, as approvedby its Executive Committee for implementation through Memorandum Circular Nr. 4, s. 2012, ishereto attached as Appendix C-1 of this Core Manual.

Figure 1-2.1 ICS Basic Organizational Structure


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The ICS organizational structure develops in a modular fashion based on the size andcomplexity of the incident, as well as the specics of the hazard environment created by theincident. When needed, separate functional elements can be established, each of which may befurther subdivided to enhance internal organizational management and external coordination.Responsibility for the establishment and expansion of the ICS modular organization ultimatelyrests with the Incident Commander, which bases the ICS organization on the requirements of thesituation. As incident complexity increases, the organization expands from the top then down,

as functional responsibilities are delegated. Concurrently with structural expansion, the numberof management and supervisory positions expands to address the requirements of the incidentadequately.

1-2.1 Modules of ICS.

Generally, there are three (3) modules in the ICS organizational structure, and these are:

a. Incident Commander – The ICS Commander or Incident Commander isthe single person who commands the incident response, and is the nal

decision-making authority on the ground. It is the Incident Commander’srole to efciently and effectively integrate the people and resources to containthe current crisis. He/She is a duly designated individual, responsible for theimplementation of the decision of the CMC. His/her designation, thus, shouldnot be made solely by virtue of his present position or assignment. He/Shemust possess necessary and appropriate knowledge, skills, and ability tomanage or handle crisis. An Incident Commander can be:

1) Single Incident Commander – is a single person command

2) Unied Commander – is a person designated to command on larger incidents

– usually when multiple agencies are involved; a Unied Command typicallyincludes a command representative from primarily involved agencies andone from that group to act as the spokesman, though not designated as anIncident Commander. A Unied Command acts as a single entity.

3) Area Commander – is a person designated during multiple-incident situationswhere he has to provide support for Incident Commanders at separatelocations. Generally, an Area Commander will be assigned - a single person -and the Area Command will operate as a logistical and administrative support.

Area Commands usually do not include an Operations function.

b. General Staff – provides planning and operations direction and supervision,resources procurement and allocation, and support services. They are primarilycomposed of:

1) The Operations Chief – tasked with directing all actions to meet the incidentobjectives

2) The Planning Section Chief – tasked with the collection and display of incident


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information, primarily consisting of the status of all resources and overallstatus of the incident

3) The Finance/Administration Section Chief – tasked with tracking incidentrelated costs, personnel records, requisitions, and administrating procurementcontracts required by Logistics

4) The Logistics Section Chief – tasked with providing all resources, services,and support required by the incident

c. Technical Staff – provides technical advice to the Incident Commander and theyare:

1) The Safety Ofcer – monitors safety conditions and develops measures forassuring the safety of all assigned personnel

2) A Liaison – serves as the primary contact for supporting agencies assisting atan incident

3) The Public Information Ofcer – serves as the conduit for information tointernal and external stakeholders, including the media or other organizationsseeking information directly from the incident or event

1-2.2 The Public Information Ofcer or the Spokesperson (PIO)

To ensure that accurate information and a consistent message is provided to the media in

a crisis, there should only be one spokesperson. At times however, there may be more than onespokesperson designated depending on the type of inquiries, and the need for specic expertise

to respond to questions or concerns. Whatever would be the set-up and whoever would bedesignated as spokesperson/s, the following must be clearly understood and applied by them inany crisis:

a. Functions of the PIO:

1) Provide information openly and honestly – with minimum delay;

2) Contribute to condence, trust, respect and esteem of the members of theCMC and of the ICS; and

3) Promote a greater understanding of the CMC and ICS and its contribution tothe overall effort of restoring peace and order.

b. Roles of the PIO:

1) Know the media;

2) Engage the media;

3) Tell the story – good or bad – accurately and timely.


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c. Responsibilities of the PIO:

1) Ensure that all information provided to internal or external audience isaccurate;

2) Take appropriate action to correct erroneous information that appears in anymedium;

3) Avoid promotional, self-serving releases and events staged solely for publicitypurposes; and

4) Protect classied information in the interest of the safety of victims and familyand that of national security, including the security of one’s operation.

1-2.3 Role of Public and Media Affairs Group (PMAG)

The PMAG plays a vital role in crisis management. As such, failure to consider its rolewould result in failure in the overall crisis management effort, as in several cases in the past,which brought the country into disrepute.

Crises, as well as events that are controversial in nature are often the focus of mediaattention. However, fear of potentially negative media reports is no reason to refuse legitimaterequests for information. It is important to remember that in the normal course of affairs, themedia also provides coverage of “good news” items, and in doing so, helps to build the reputationof the CMC involved, the ICS, and the whole of government.

In any situation where there is the potential for media attention, the provision of factual

information is important, but the safety and well-being of victims including incident commandersand responders are the rst priorities in any crisis management.

Generally, as the incident develops into a critical incident or into a crisis, a PMAG shallbe organized and activated within the ICS. This is to unburden the Incident Commander fromanswering meticulous queries from the members of press so that his operational focus would notbe affected. It is the responsibility of the PIO of the ICS, at any level, to manage and maintainrelations with the members of the media. Initially, the PIO of the ICS, once designated, mustestablish a Media Center to cater to all queries from the media or the public. Within the MediaCenter , a Monitoring Unit shall be organized to process the inux and outow of information.On this note, the Incident Commander must issue his critical guidance on interacting with themedia and must establish certain protocols or a system: on who should provide the necessaryand appropriate information; to whom the information should be directed to; and how it

should be disseminated. In other words, sets of media protocol, clearly specifying the “Dosand Don’ts” in reporting, must be in place to address specic type of crisis without necessarilycurtailing freedom of information.

For security purposes, only accredited and sanctioned media practitioners and outtsshall be tapped to cover crisis.


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Figure 1-2.2 Organizational Structure of PMAG within the ICS

The PMAG shall be organized by the ICS PIO. Basically, it evolves from the MediaCenter and it shall be composed of the PIOs from the different government department/agencies

Documents

National Crisis Management Core Manual 2012